The Leaving Care System

Is it failing our

young people

School of Social Sciences

Bangor University

Health and Social Care BA(Hons) SXU-3010

Dissertation

Nikola Thompson

500365785

1

Ethical Approval

This research has been approved by Bangor University School of

Social Sciences Research Ethics Sub-Committee Ref No U1556

2

Acknowledgments

I would firstly like to thank my dissertation supervisor Dr Roger Slack

Without Dr Slack this project would not have been possible His belief

and encouragement throughout the whole project and especially when

seeking ethical approval was unfaltering

I would also like to thank everyone who participated in the research

and were willing to share their stories with me

Last but not least I would like to thank my partner Dave and my son

Harvey for their support for the duration of this project

3

Abstract

There are just under 70000 children living in local authority care of

those approximately 10000 leave care each year This is a significant

number of young people who require substantial support in order to

have improved outcomes

In the past a lax system with little support seems to have operated

However with advances in research and knowledge a more organised

and extensive system has been created Specialist leaving care teams

are now established and policy and legislation in place

Nonetheless there appears to be significant failings and inconsistencies

within this service and outcomes for these young people are not as

universal as they should be With the age of austerity and consistent

cuts to budgets the landscape does not look set to improve

4

Table of Contents Chapter 1 5

Introduction 5

Chapter 2 8

A Review of the Literature 8

Chapter 3 16

Methodology 16

a) Ethical Consideration 17

Chapter 4 18

Findings 18

a) Transition 18

b) Housing and Accommodation 22

c) Pathway Plans Personal Advisors and Social Workers 26

d) Financial aspects 29

e) Evaluation and Reflection 31

Chapter 5 32

Conclusion 32

Appendix 40

5

Chapter 1

Introduction

The purpose of this project is to explore aspects of the leaving care

system how it currently operates and if or how the outcome for these

young people may be improved

This is important as the young people involved are usually incredibly

vulnerable and often stigmatised The question whether the current

system offers them good support and guidance suitable to their needs

will be examined This is especially relevant as the number of care

leavers has steadily risen since 1985 (Hutchinson 2013)

At present Action for Children identifies that young care leavers are

ldquothree times more likely to be cautioned or convicted of an offence

four times more likely to have a mental health disorder

five times less likely to achieve five good GCSEs eight times more

likely to be excluded from school and less likely to go to university

one in five homeless people are care leaversrdquo (2014 DfES 2007)

In 1968 the Seebohm Report the restructuring of the personal social

services including the suggestion of a complete after care service for

young people was considered This would be provided by the new

social service departments rather than the probation service which

supervised the young people at that time This and the knowledge

gained by childcare experts shaped the Children and Young Persons

Act 1969 (House of Commons 1968 para 257 cited in Stein

201215) The implementation of the act influenced by the emergence

of social work as a solid profession was due to the suggestion that

young people would be better served away from the juvenile court

system (Harris 1982)

6

However due to the poverty and identifying several social problems

during this time focus on care-leavers declined Though social services

were reorganised along with the implementation of the Children and

Young Persons Act 1969 in 1971 this did not lead to improve the after

care services ndash rather the opposite Studies such as Godek (1976) and

Mulvey (1977) emphasised the difficulties the young people faced

upon leaving care

There was an end to the probation services involvement a change in

approved school orders to all-purpose care orders and approved school

being replaced by Community Homes with Education all of which

aided the demise of specialist after-care officers Due to the social

climate of the time Stein (2012 16) notes ldquocare leavers became a

forgotten grouprdquo

This is reflected in the lack of literature pre 1970 due to scarce research

taking place at this time Added to which the lack of research was

attributed to favourable economic conditions and full youth

employment during the aftermath of World War II It seems only by

the beginning of the 1970rsquos as social work developed and looked

towards the future did research into young peoplersquos outcomes within

the care system take place (Stein 2012 14)

Nevertheless from 1973 young people came together to talk about their

experiences in care A ldquolack of power over their livesrdquo in relation to

their finances their own reviews and the opportunity to learn

independent skills whilst in care lead to the formation of local groups

such as the lsquoWho Cares Projectrsquo and the lsquoNational Association of

Young People in Carersquo This resulted in giving them a voice (Stein

2012 17) and small scale studies began to take place For example

Godek (1976) Mulvey (1977) and Page and Clark (1977) in the

1970rsquos In the 1980rsquos studies were undertaken by Burgess (1981) Stein

and Ellis (1983) Stein and Meynard (1985) and Stein and Carey

(1986) amongst others These studies found the aforementioned

7

challenges with finance and so on added to which more often than not

young people left care at 16 and were required to live independently

(Stein 2012 17) One reoccurring theme throughout the studies taking

place was the lack of preparation for this vulnerable group for living

independently The latter studies finding high levels of care leavers

becoming homeless

More recently this topic is of particular importance as the data held for

2012 found there were 67050 young people in care [by local

authority] of those 10000 aged 16 or over left care (NCAS 2012)

Stein (2002 32) notes their transition to adulthood is lsquocompressed and

acceleratedrsquo With this in mind Stein (2006 423) states that these

young people are ldquohellipthe most excluded groups of young people in

societyrdquo

Furthermore in light of the refugee crisis emerging from Syria there

is another particularly vulnerable group This group is identified by the

United Kingdom Border Agency (UKBA) as someone below the age

of 18 (or appearing to be should the proof be lacking) and claiming

asylum in their own right with no significant adult in the UK to provide

care (Wade 2011 2424-2425) Under UK guidelines a young person

may be given support whilst they are under the age of 18 only to be at

risk of deportation upon reaching 18 years old (Family Rights Group

2014) A study conducted by Wade (et al 2005) found younger

unaccompanied refugees received more thorough assessment of needs

as opposed to 16 and 17 year olds of the same status This being

resource driven due to less government funding for this age group

Added to which previous studies (Courtney Terrao and Bost 2004

Stein 2004) have also identified within this group of young people an

inconsistency of preparation for independence

The inconsistency of service delivery appears to apply to citizen young

people along with non-citizen

8

Chapter 2

A Review of the Literature

lsquoIf I had parents to go to I would go to my parents and ask them

for help Or Irsquod be with my parents so the strain wouldnrsquot be so

much But I donrsquot have anybody I donrsquot have anyone to turn torsquo

(Care leaver in Barnardorsquos (1) 2014)

Most parents have positive expectations for their own children and are

there offering full support when their child moves into independence

However children leaving the care system often have to live without

this Lack of parental support clearly contributes to a difficult

transition into independence (Barnardorsquos (1) 2014 1)

As previously noted literature pre 1970 is scarce Here the focus will

be on more recent findings in the consistency of services for care

leavers The service areas are

Housing and accommodation

Finance

Transition

It is noted by Stein (2012) that in the view of young care leavers foster

carers care workers and personal advisors that the young people left

care too young The earlier research notes the same problem Young

care leavers are being moved on from the age of 16 whereas studies

found the median age for leaving home was 22 for men and 20 for

women (Biehal et al 1995 30) In recent times the number of young

people [not in care] still living at home with their parents has risen from

27 million in 1996 to 33 million in 2013 their ages ranging from 20

ndash 34 (ONS 2014) It may be seen therefore how difficult it can be for

9

young people in Local Authority (hereafter LA) care to leave at such a

young age

The National Institute for Health and Care Excellence (NICE 2013)

supported by the NSPCC state that ldquocare leavers move to independence

at their own pacerdquo recognising how difficult this time may be

Currently a new duty has been placed upon LArsquos in England This

implementation named the lsquoStaying Putrsquo scheme came into force in

May 2014 (part 5 Welfare of Children (98) of the Children and

Families Act 2014) and offers young people the chance to stay on in

their foster home where the LA regards this consistent with the welfare

of the young person although this does not include residential care

Additional funding has been allocated for each individual LArsquos for this

However nationally this service is inconsistent In Scotland a similar

scheme has been introduced in 2015 also including residential care

Wales has placed the same duty on their LArsquos through the lsquoWhen Irsquom

Readyrsquo scheme though no additional funding has been allocated (The

Fostering Network 2014)

Housing is a fundamental area of concern for young care leavers

Literature pre 1980rsquos is scarce for all issues however due to this lack of

information a National Survey of Leaving Care Schemes was

conducted in 1989 During this time housing was the most common

service provided to young care leavers After housing other services

were offered such as counselling advocacy training preparation for

leaving care and advice on leisure facilities food and clothing

However these services were not universal and most did not offer any

preparation for leaving care (Stone 1990 7)

More recently the LA are duty bound to provide such services

universally Current legislation held in the Children (Leaving Care) Act

2000 states ldquoIt is the duty of the local authority looking after a child to

advise assist and befriend him with a view to promoting his welfare

when they have ceased to look after himrdquo More recent legislation held

10

within the Children and Young Persons Act (2008) along with the

Transitions Guidance for LArsquos to assist with strengthening policy and

practice framework to encourage a lsquolevelling uprsquo of services (Stein

2012 24)

Although these measures are currently in place it is suggested by Dixon

and Baker (2012) that service quality and effectiveness is not consistent

and varies from LA to LA This is not surprising as a survey carried out

in 2011 by the National Care Advisory Service (NCAS) reported high

level of funding cuts to leaving care services (varying from 7 to 15)

making implementation of the Transitions Guidance problematic

Additionally it is apparent housing and accommodation are high on

the list of issues facing care leavers The LArsquos are only duty bound to

provide lsquosuitable accommodationrsquo to 16 and 17 year olds Once a care

leaver reaches 18 the LArsquos are only required to assist with

accommodation advice and support as far as their [young personrsquos]

welfare requires it

Dixon and Baker (2012) continue to identify that although legislation

and advances in support services have increased over the last couple of

decades from knowledge gained through research young care leavers

are still over- represented within the homeless and inadequately

housed With this in mind it is not surprising to find that recent figures

suggest 30 of homeless people have been in the care system (The

Who Carersquos Trust 2014)

This is evident in research compiled by Barnardorsquos (2) (2014) were by

even with the advances in policy the case studies show a chaotic

existence for some young people Several moves from one unsuitable

accommodation to another periods of homelessness and being moved

out of familiar areas [geographically] remains a prominent feature

(Appendix 1)

11

Stone (1990) identified this issue twenty years prior to Dixon

indicating the evidence then showed an over-representation of care

leavers experiencing homelessness The same problem occurs in

literature by Stein and Carey (1986) from their study during 1982

It is noted by Morgan and Lindsey (2012) that there is a need for more

support with accommodation however Munro et al (2011) identified

out of the young people offered extra support the take up was only

about 50 This may be due to wanting to get rid of the lsquobeing in carersquo

label or perhaps a lack of understanding of the extra support offered

There is evidence within the literature that finances present a

significant issue to care leavers (Broad 2005 Munro et al 2011

Stein 2012 54)

Regional differences in the levels of financial support in the form of

leaving care grants is significant ranging from pound400 to pound2000 with the

average payment being pound1000 (Broad 200547) Stein (2012) notes

more recently the leaving care grant still lack in consistency ranging

from zero to pound2000 A survey carried out by the Care Leaverrsquos

Foundation (2009) calculated the young people needed at least pound2500

in order to set up the most basic essentials to live independently [of 150

LArsquos surveyed only one provided this amount]

These financial inconsistencies clearly present challenges not only with

basic needs such as food and housing but also the ability to participate

in leisure activities and higher education This exclusion has a

potentially damaging impact on the health and well-being for young

people who are already vulnerable (Jackson and Cameron 2012)

Furthermore a lack of understanding of financial matters can lead to

long term debt and financial difficulties

ldquoIrsquom still paying off debts now [nine years after living in her first

independent placement] if somebody had have gone through

these bills bills I didnrsquot even know existed Irsquove had to figure

everything out myself Irsquove had to learn the hard way If I had

12

have had support with that it would have changed thingsrdquo (Care

leaver in Barnardorsquos (2) 2014 13)

There is evidence the young peoplersquos voices may not be listened to

The meetings and reviews appear stressful for the young people (Daly

2012) A large proportion felt ignored during meetings (Munro et al

2011 28) and approximately a third felt their lsquoPathway Planrsquo [the LA

is duty bound to have a Pathway Plan to assist in the transition to

independent living] was not adhered to at all It is noted young people

wish to have more control of when they leave care and for the

transition to be more gradual and less rushed (Morgan and Lindsey

2012 Morgan and Lindsey 2006)

Mendes and Moselhuddin (2006 113) note lsquoGraduation from care

needs to become a far more gradual and flexible process based on levels

of maturity and skill development rather than simply agersquo

Furthermore this view is held by the young people involved

ldquoI didnrsquot want to go I still had to go anyway I didnrsquot have a

choiceI was moving out at eighteen end of discussion and the

bit that really pissed me [off] is [that] they chucked me out on

my eighteenth birthdayrdquo (Care leaver in Munro et al 2011 21)

Although the age has been extended to 18 before a young person has to

leave care [unless they are in full time education] an Independent

Reviewing Officer (IRO) in Munro et al (2011 23) states

ldquoWe identified fairly quickly that all it has done is just knock it

back two years erm you know what used to be 16hellipused to have

all these arguments Wersquove shunted it back to 18 but you know

our 18 year olds are just as vulnerable as those 16 year olds

wererdquo

It is clear within the literature the young people fundamentally require

consistency and support from leaving care workers and services to aid

their transition from care to independence (Munro et al 2011 21)

Pride and an inability to ask for help to access services is apparent It

is recognised that many care leavers where reluctant to allow

13

themselves to be cared for The young people were more comfortable

with caring for others This is a result of often having to adopt the role

of carer within their birth family (Samuels and Pryce 2008 1203-

1205) However the literature does not identify other underlying

reasons for the young people having difficulty in accepting help

themselves Reasons such as lack of self- esteem and self- worth due to

the trauma they may have suffered

The transition to independence brings with it feelings of isolation and

loneliness which were connected to losing their carers

ldquoItrsquos hard to think that people you lived with for nine years are

not in your life anymorerdquo

(Care leaver in Morgan 2012 22)

There is evidence these feelings may also be connected to moving away

from friends and professionals changes in social workers and a

transition to adult services

One author notes the young people are living life lsquoin limborsquo (Hiles et

al 2014 6) It is suggested as the young people approach their

eighteenth birthday they are in a state of limbo knowing they may not

be lsquoin carersquo not knowing if they can lsquostay putrsquo with foster carers or

lsquomoving onrsquo to independent accommodation Leaving care workers

involved in Hilesrsquo et al (2014) study describe having ldquoinsufficient time

to prepare some young people for this transitionrdquo especially the young

people who had experienced problems in maintaining stable

placements prior to leaving care

Moreover the system is described as ldquochaotic and complexrdquo forced to

react rather than respond to crisis The cause of this is identified

through poor staff retention and therefore the use of temporary staff

leaving a lack of continuity and consistency (Hiles et al 2014 7)

This research examines policies potentially promoting negative

consequences For example a disengagement of adult mental health

services leading to re-engagement of childrenrsquos services those young

14

people most able being offered more support through education

leaving some young people of low risk but still vulnerable in an isolated

position Also it was noted the young people leaving care to return

home to their birth families for longer than six months lose access to

services when they may actually still be in a vulnerable position (Hiles

et al2014 7)

However Stein (2012 81) suggests there is evidence that most young

people experience good outcomes after leaving care Positive outcomes

are underpinned by the relationship between the young person and the

leaving care teams In addition the evidence points to a positive sense

of well-being when settled and happy even if past or leaving care

experiences have been negative (Wade and Dixon 2006)

In conclusion the literature identifies the inconsistency within leaving

care systems These inconsistencies span throughout the services

available to care leavers from financial to pathway planning and

implementation There is evidence of a somewhat uneven service

delivery despite policy stipulations

There has been an encouraging influx of research in the last fifteen

years or so which should promote a continued improvement in policy

and outcome for this fundamentally vulnerable group in society

There is evident progress within the leaving care system which has

been noted by Stein Wade and Dixon However despite progress

within the system [the introduction of personal advisors Pathway

Plans and specific leaving care teams] and extensive research

informing policy makers the uneven delivery still exists Additionally

care leavers are still disadvantaged compared to their peers even with

the progress that has been made

There is an emphasis on a proactive and preventative approach and a

significant need for placement stability underpinned by systematic and

consistent services As it stands young people are currently being

15

ldquopushed into fighting against a systemrdquo rather than a system that works

together for a positive outcome (Hiles et al 2014 11)

Contingency plans are an important recommendation outlined in recent

research as a necessity to prevent care leavers falling into crisis These

plans need to be in place regardless of assessed lsquoneedrsquo Moreover

access to an independent visitor enabling another supportive

relationship to be formed along with personal advisors would offer

greater assistance when decisions are being made for the young

personrsquos future (Barnardorsquos 2014 23)

Now the research is taking place identifying young peoplersquos

experiences of leaving care it is necessary to listen in order to make

effective changes in policy and practice to achieve better outcomes for

this vulnerable group

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

1

Ethical Approval

This research has been approved by Bangor University School of

Social Sciences Research Ethics Sub-Committee Ref No U1556

2

Acknowledgments

I would firstly like to thank my dissertation supervisor Dr Roger Slack

Without Dr Slack this project would not have been possible His belief

and encouragement throughout the whole project and especially when

seeking ethical approval was unfaltering

I would also like to thank everyone who participated in the research

and were willing to share their stories with me

Last but not least I would like to thank my partner Dave and my son

Harvey for their support for the duration of this project

3

Abstract

There are just under 70000 children living in local authority care of

those approximately 10000 leave care each year This is a significant

number of young people who require substantial support in order to

have improved outcomes

In the past a lax system with little support seems to have operated

However with advances in research and knowledge a more organised

and extensive system has been created Specialist leaving care teams

are now established and policy and legislation in place

Nonetheless there appears to be significant failings and inconsistencies

within this service and outcomes for these young people are not as

universal as they should be With the age of austerity and consistent

cuts to budgets the landscape does not look set to improve

4

Table of Contents Chapter 1 5

Introduction 5

Chapter 2 8

A Review of the Literature 8

Chapter 3 16

Methodology 16

a) Ethical Consideration 17

Chapter 4 18

Findings 18

a) Transition 18

b) Housing and Accommodation 22

c) Pathway Plans Personal Advisors and Social Workers 26

d) Financial aspects 29

e) Evaluation and Reflection 31

Chapter 5 32

Conclusion 32

Appendix 40

5

Chapter 1

Introduction

The purpose of this project is to explore aspects of the leaving care

system how it currently operates and if or how the outcome for these

young people may be improved

This is important as the young people involved are usually incredibly

vulnerable and often stigmatised The question whether the current

system offers them good support and guidance suitable to their needs

will be examined This is especially relevant as the number of care

leavers has steadily risen since 1985 (Hutchinson 2013)

At present Action for Children identifies that young care leavers are

ldquothree times more likely to be cautioned or convicted of an offence

four times more likely to have a mental health disorder

five times less likely to achieve five good GCSEs eight times more

likely to be excluded from school and less likely to go to university

one in five homeless people are care leaversrdquo (2014 DfES 2007)

In 1968 the Seebohm Report the restructuring of the personal social

services including the suggestion of a complete after care service for

young people was considered This would be provided by the new

social service departments rather than the probation service which

supervised the young people at that time This and the knowledge

gained by childcare experts shaped the Children and Young Persons

Act 1969 (House of Commons 1968 para 257 cited in Stein

201215) The implementation of the act influenced by the emergence

of social work as a solid profession was due to the suggestion that

young people would be better served away from the juvenile court

system (Harris 1982)

6

However due to the poverty and identifying several social problems

during this time focus on care-leavers declined Though social services

were reorganised along with the implementation of the Children and

Young Persons Act 1969 in 1971 this did not lead to improve the after

care services ndash rather the opposite Studies such as Godek (1976) and

Mulvey (1977) emphasised the difficulties the young people faced

upon leaving care

There was an end to the probation services involvement a change in

approved school orders to all-purpose care orders and approved school

being replaced by Community Homes with Education all of which

aided the demise of specialist after-care officers Due to the social

climate of the time Stein (2012 16) notes ldquocare leavers became a

forgotten grouprdquo

This is reflected in the lack of literature pre 1970 due to scarce research

taking place at this time Added to which the lack of research was

attributed to favourable economic conditions and full youth

employment during the aftermath of World War II It seems only by

the beginning of the 1970rsquos as social work developed and looked

towards the future did research into young peoplersquos outcomes within

the care system take place (Stein 2012 14)

Nevertheless from 1973 young people came together to talk about their

experiences in care A ldquolack of power over their livesrdquo in relation to

their finances their own reviews and the opportunity to learn

independent skills whilst in care lead to the formation of local groups

such as the lsquoWho Cares Projectrsquo and the lsquoNational Association of

Young People in Carersquo This resulted in giving them a voice (Stein

2012 17) and small scale studies began to take place For example

Godek (1976) Mulvey (1977) and Page and Clark (1977) in the

1970rsquos In the 1980rsquos studies were undertaken by Burgess (1981) Stein

and Ellis (1983) Stein and Meynard (1985) and Stein and Carey

(1986) amongst others These studies found the aforementioned

7

challenges with finance and so on added to which more often than not

young people left care at 16 and were required to live independently

(Stein 2012 17) One reoccurring theme throughout the studies taking

place was the lack of preparation for this vulnerable group for living

independently The latter studies finding high levels of care leavers

becoming homeless

More recently this topic is of particular importance as the data held for

2012 found there were 67050 young people in care [by local

authority] of those 10000 aged 16 or over left care (NCAS 2012)

Stein (2002 32) notes their transition to adulthood is lsquocompressed and

acceleratedrsquo With this in mind Stein (2006 423) states that these

young people are ldquohellipthe most excluded groups of young people in

societyrdquo

Furthermore in light of the refugee crisis emerging from Syria there

is another particularly vulnerable group This group is identified by the

United Kingdom Border Agency (UKBA) as someone below the age

of 18 (or appearing to be should the proof be lacking) and claiming

asylum in their own right with no significant adult in the UK to provide

care (Wade 2011 2424-2425) Under UK guidelines a young person

may be given support whilst they are under the age of 18 only to be at

risk of deportation upon reaching 18 years old (Family Rights Group

2014) A study conducted by Wade (et al 2005) found younger

unaccompanied refugees received more thorough assessment of needs

as opposed to 16 and 17 year olds of the same status This being

resource driven due to less government funding for this age group

Added to which previous studies (Courtney Terrao and Bost 2004

Stein 2004) have also identified within this group of young people an

inconsistency of preparation for independence

The inconsistency of service delivery appears to apply to citizen young

people along with non-citizen

8

Chapter 2

A Review of the Literature

lsquoIf I had parents to go to I would go to my parents and ask them

for help Or Irsquod be with my parents so the strain wouldnrsquot be so

much But I donrsquot have anybody I donrsquot have anyone to turn torsquo

(Care leaver in Barnardorsquos (1) 2014)

Most parents have positive expectations for their own children and are

there offering full support when their child moves into independence

However children leaving the care system often have to live without

this Lack of parental support clearly contributes to a difficult

transition into independence (Barnardorsquos (1) 2014 1)

As previously noted literature pre 1970 is scarce Here the focus will

be on more recent findings in the consistency of services for care

leavers The service areas are

Housing and accommodation

Finance

Transition

It is noted by Stein (2012) that in the view of young care leavers foster

carers care workers and personal advisors that the young people left

care too young The earlier research notes the same problem Young

care leavers are being moved on from the age of 16 whereas studies

found the median age for leaving home was 22 for men and 20 for

women (Biehal et al 1995 30) In recent times the number of young

people [not in care] still living at home with their parents has risen from

27 million in 1996 to 33 million in 2013 their ages ranging from 20

ndash 34 (ONS 2014) It may be seen therefore how difficult it can be for

9

young people in Local Authority (hereafter LA) care to leave at such a

young age

The National Institute for Health and Care Excellence (NICE 2013)

supported by the NSPCC state that ldquocare leavers move to independence

at their own pacerdquo recognising how difficult this time may be

Currently a new duty has been placed upon LArsquos in England This

implementation named the lsquoStaying Putrsquo scheme came into force in

May 2014 (part 5 Welfare of Children (98) of the Children and

Families Act 2014) and offers young people the chance to stay on in

their foster home where the LA regards this consistent with the welfare

of the young person although this does not include residential care

Additional funding has been allocated for each individual LArsquos for this

However nationally this service is inconsistent In Scotland a similar

scheme has been introduced in 2015 also including residential care

Wales has placed the same duty on their LArsquos through the lsquoWhen Irsquom

Readyrsquo scheme though no additional funding has been allocated (The

Fostering Network 2014)

Housing is a fundamental area of concern for young care leavers

Literature pre 1980rsquos is scarce for all issues however due to this lack of

information a National Survey of Leaving Care Schemes was

conducted in 1989 During this time housing was the most common

service provided to young care leavers After housing other services

were offered such as counselling advocacy training preparation for

leaving care and advice on leisure facilities food and clothing

However these services were not universal and most did not offer any

preparation for leaving care (Stone 1990 7)

More recently the LA are duty bound to provide such services

universally Current legislation held in the Children (Leaving Care) Act

2000 states ldquoIt is the duty of the local authority looking after a child to

advise assist and befriend him with a view to promoting his welfare

when they have ceased to look after himrdquo More recent legislation held

10

within the Children and Young Persons Act (2008) along with the

Transitions Guidance for LArsquos to assist with strengthening policy and

practice framework to encourage a lsquolevelling uprsquo of services (Stein

2012 24)

Although these measures are currently in place it is suggested by Dixon

and Baker (2012) that service quality and effectiveness is not consistent

and varies from LA to LA This is not surprising as a survey carried out

in 2011 by the National Care Advisory Service (NCAS) reported high

level of funding cuts to leaving care services (varying from 7 to 15)

making implementation of the Transitions Guidance problematic

Additionally it is apparent housing and accommodation are high on

the list of issues facing care leavers The LArsquos are only duty bound to

provide lsquosuitable accommodationrsquo to 16 and 17 year olds Once a care

leaver reaches 18 the LArsquos are only required to assist with

accommodation advice and support as far as their [young personrsquos]

welfare requires it

Dixon and Baker (2012) continue to identify that although legislation

and advances in support services have increased over the last couple of

decades from knowledge gained through research young care leavers

are still over- represented within the homeless and inadequately

housed With this in mind it is not surprising to find that recent figures

suggest 30 of homeless people have been in the care system (The

Who Carersquos Trust 2014)

This is evident in research compiled by Barnardorsquos (2) (2014) were by

even with the advances in policy the case studies show a chaotic

existence for some young people Several moves from one unsuitable

accommodation to another periods of homelessness and being moved

out of familiar areas [geographically] remains a prominent feature

(Appendix 1)

11

Stone (1990) identified this issue twenty years prior to Dixon

indicating the evidence then showed an over-representation of care

leavers experiencing homelessness The same problem occurs in

literature by Stein and Carey (1986) from their study during 1982

It is noted by Morgan and Lindsey (2012) that there is a need for more

support with accommodation however Munro et al (2011) identified

out of the young people offered extra support the take up was only

about 50 This may be due to wanting to get rid of the lsquobeing in carersquo

label or perhaps a lack of understanding of the extra support offered

There is evidence within the literature that finances present a

significant issue to care leavers (Broad 2005 Munro et al 2011

Stein 2012 54)

Regional differences in the levels of financial support in the form of

leaving care grants is significant ranging from pound400 to pound2000 with the

average payment being pound1000 (Broad 200547) Stein (2012) notes

more recently the leaving care grant still lack in consistency ranging

from zero to pound2000 A survey carried out by the Care Leaverrsquos

Foundation (2009) calculated the young people needed at least pound2500

in order to set up the most basic essentials to live independently [of 150

LArsquos surveyed only one provided this amount]

These financial inconsistencies clearly present challenges not only with

basic needs such as food and housing but also the ability to participate

in leisure activities and higher education This exclusion has a

potentially damaging impact on the health and well-being for young

people who are already vulnerable (Jackson and Cameron 2012)

Furthermore a lack of understanding of financial matters can lead to

long term debt and financial difficulties

ldquoIrsquom still paying off debts now [nine years after living in her first

independent placement] if somebody had have gone through

these bills bills I didnrsquot even know existed Irsquove had to figure

everything out myself Irsquove had to learn the hard way If I had

12

have had support with that it would have changed thingsrdquo (Care

leaver in Barnardorsquos (2) 2014 13)

There is evidence the young peoplersquos voices may not be listened to

The meetings and reviews appear stressful for the young people (Daly

2012) A large proportion felt ignored during meetings (Munro et al

2011 28) and approximately a third felt their lsquoPathway Planrsquo [the LA

is duty bound to have a Pathway Plan to assist in the transition to

independent living] was not adhered to at all It is noted young people

wish to have more control of when they leave care and for the

transition to be more gradual and less rushed (Morgan and Lindsey

2012 Morgan and Lindsey 2006)

Mendes and Moselhuddin (2006 113) note lsquoGraduation from care

needs to become a far more gradual and flexible process based on levels

of maturity and skill development rather than simply agersquo

Furthermore this view is held by the young people involved

ldquoI didnrsquot want to go I still had to go anyway I didnrsquot have a

choiceI was moving out at eighteen end of discussion and the

bit that really pissed me [off] is [that] they chucked me out on

my eighteenth birthdayrdquo (Care leaver in Munro et al 2011 21)

Although the age has been extended to 18 before a young person has to

leave care [unless they are in full time education] an Independent

Reviewing Officer (IRO) in Munro et al (2011 23) states

ldquoWe identified fairly quickly that all it has done is just knock it

back two years erm you know what used to be 16hellipused to have

all these arguments Wersquove shunted it back to 18 but you know

our 18 year olds are just as vulnerable as those 16 year olds

wererdquo

It is clear within the literature the young people fundamentally require

consistency and support from leaving care workers and services to aid

their transition from care to independence (Munro et al 2011 21)

Pride and an inability to ask for help to access services is apparent It

is recognised that many care leavers where reluctant to allow

13

themselves to be cared for The young people were more comfortable

with caring for others This is a result of often having to adopt the role

of carer within their birth family (Samuels and Pryce 2008 1203-

1205) However the literature does not identify other underlying

reasons for the young people having difficulty in accepting help

themselves Reasons such as lack of self- esteem and self- worth due to

the trauma they may have suffered

The transition to independence brings with it feelings of isolation and

loneliness which were connected to losing their carers

ldquoItrsquos hard to think that people you lived with for nine years are

not in your life anymorerdquo

(Care leaver in Morgan 2012 22)

There is evidence these feelings may also be connected to moving away

from friends and professionals changes in social workers and a

transition to adult services

One author notes the young people are living life lsquoin limborsquo (Hiles et

al 2014 6) It is suggested as the young people approach their

eighteenth birthday they are in a state of limbo knowing they may not

be lsquoin carersquo not knowing if they can lsquostay putrsquo with foster carers or

lsquomoving onrsquo to independent accommodation Leaving care workers

involved in Hilesrsquo et al (2014) study describe having ldquoinsufficient time

to prepare some young people for this transitionrdquo especially the young

people who had experienced problems in maintaining stable

placements prior to leaving care

Moreover the system is described as ldquochaotic and complexrdquo forced to

react rather than respond to crisis The cause of this is identified

through poor staff retention and therefore the use of temporary staff

leaving a lack of continuity and consistency (Hiles et al 2014 7)

This research examines policies potentially promoting negative

consequences For example a disengagement of adult mental health

services leading to re-engagement of childrenrsquos services those young

14

people most able being offered more support through education

leaving some young people of low risk but still vulnerable in an isolated

position Also it was noted the young people leaving care to return

home to their birth families for longer than six months lose access to

services when they may actually still be in a vulnerable position (Hiles

et al2014 7)

However Stein (2012 81) suggests there is evidence that most young

people experience good outcomes after leaving care Positive outcomes

are underpinned by the relationship between the young person and the

leaving care teams In addition the evidence points to a positive sense

of well-being when settled and happy even if past or leaving care

experiences have been negative (Wade and Dixon 2006)

In conclusion the literature identifies the inconsistency within leaving

care systems These inconsistencies span throughout the services

available to care leavers from financial to pathway planning and

implementation There is evidence of a somewhat uneven service

delivery despite policy stipulations

There has been an encouraging influx of research in the last fifteen

years or so which should promote a continued improvement in policy

and outcome for this fundamentally vulnerable group in society

There is evident progress within the leaving care system which has

been noted by Stein Wade and Dixon However despite progress

within the system [the introduction of personal advisors Pathway

Plans and specific leaving care teams] and extensive research

informing policy makers the uneven delivery still exists Additionally

care leavers are still disadvantaged compared to their peers even with

the progress that has been made

There is an emphasis on a proactive and preventative approach and a

significant need for placement stability underpinned by systematic and

consistent services As it stands young people are currently being

15

ldquopushed into fighting against a systemrdquo rather than a system that works

together for a positive outcome (Hiles et al 2014 11)

Contingency plans are an important recommendation outlined in recent

research as a necessity to prevent care leavers falling into crisis These

plans need to be in place regardless of assessed lsquoneedrsquo Moreover

access to an independent visitor enabling another supportive

relationship to be formed along with personal advisors would offer

greater assistance when decisions are being made for the young

personrsquos future (Barnardorsquos 2014 23)

Now the research is taking place identifying young peoplersquos

experiences of leaving care it is necessary to listen in order to make

effective changes in policy and practice to achieve better outcomes for

this vulnerable group

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

2

Acknowledgments

I would firstly like to thank my dissertation supervisor Dr Roger Slack

Without Dr Slack this project would not have been possible His belief

and encouragement throughout the whole project and especially when

seeking ethical approval was unfaltering

I would also like to thank everyone who participated in the research

and were willing to share their stories with me

Last but not least I would like to thank my partner Dave and my son

Harvey for their support for the duration of this project

3

Abstract

There are just under 70000 children living in local authority care of

those approximately 10000 leave care each year This is a significant

number of young people who require substantial support in order to

have improved outcomes

In the past a lax system with little support seems to have operated

However with advances in research and knowledge a more organised

and extensive system has been created Specialist leaving care teams

are now established and policy and legislation in place

Nonetheless there appears to be significant failings and inconsistencies

within this service and outcomes for these young people are not as

universal as they should be With the age of austerity and consistent

cuts to budgets the landscape does not look set to improve

4

Table of Contents Chapter 1 5

Introduction 5

Chapter 2 8

A Review of the Literature 8

Chapter 3 16

Methodology 16

a) Ethical Consideration 17

Chapter 4 18

Findings 18

a) Transition 18

b) Housing and Accommodation 22

c) Pathway Plans Personal Advisors and Social Workers 26

d) Financial aspects 29

e) Evaluation and Reflection 31

Chapter 5 32

Conclusion 32

Appendix 40

5

Chapter 1

Introduction

The purpose of this project is to explore aspects of the leaving care

system how it currently operates and if or how the outcome for these

young people may be improved

This is important as the young people involved are usually incredibly

vulnerable and often stigmatised The question whether the current

system offers them good support and guidance suitable to their needs

will be examined This is especially relevant as the number of care

leavers has steadily risen since 1985 (Hutchinson 2013)

At present Action for Children identifies that young care leavers are

ldquothree times more likely to be cautioned or convicted of an offence

four times more likely to have a mental health disorder

five times less likely to achieve five good GCSEs eight times more

likely to be excluded from school and less likely to go to university

one in five homeless people are care leaversrdquo (2014 DfES 2007)

In 1968 the Seebohm Report the restructuring of the personal social

services including the suggestion of a complete after care service for

young people was considered This would be provided by the new

social service departments rather than the probation service which

supervised the young people at that time This and the knowledge

gained by childcare experts shaped the Children and Young Persons

Act 1969 (House of Commons 1968 para 257 cited in Stein

201215) The implementation of the act influenced by the emergence

of social work as a solid profession was due to the suggestion that

young people would be better served away from the juvenile court

system (Harris 1982)

6

However due to the poverty and identifying several social problems

during this time focus on care-leavers declined Though social services

were reorganised along with the implementation of the Children and

Young Persons Act 1969 in 1971 this did not lead to improve the after

care services ndash rather the opposite Studies such as Godek (1976) and

Mulvey (1977) emphasised the difficulties the young people faced

upon leaving care

There was an end to the probation services involvement a change in

approved school orders to all-purpose care orders and approved school

being replaced by Community Homes with Education all of which

aided the demise of specialist after-care officers Due to the social

climate of the time Stein (2012 16) notes ldquocare leavers became a

forgotten grouprdquo

This is reflected in the lack of literature pre 1970 due to scarce research

taking place at this time Added to which the lack of research was

attributed to favourable economic conditions and full youth

employment during the aftermath of World War II It seems only by

the beginning of the 1970rsquos as social work developed and looked

towards the future did research into young peoplersquos outcomes within

the care system take place (Stein 2012 14)

Nevertheless from 1973 young people came together to talk about their

experiences in care A ldquolack of power over their livesrdquo in relation to

their finances their own reviews and the opportunity to learn

independent skills whilst in care lead to the formation of local groups

such as the lsquoWho Cares Projectrsquo and the lsquoNational Association of

Young People in Carersquo This resulted in giving them a voice (Stein

2012 17) and small scale studies began to take place For example

Godek (1976) Mulvey (1977) and Page and Clark (1977) in the

1970rsquos In the 1980rsquos studies were undertaken by Burgess (1981) Stein

and Ellis (1983) Stein and Meynard (1985) and Stein and Carey

(1986) amongst others These studies found the aforementioned

7

challenges with finance and so on added to which more often than not

young people left care at 16 and were required to live independently

(Stein 2012 17) One reoccurring theme throughout the studies taking

place was the lack of preparation for this vulnerable group for living

independently The latter studies finding high levels of care leavers

becoming homeless

More recently this topic is of particular importance as the data held for

2012 found there were 67050 young people in care [by local

authority] of those 10000 aged 16 or over left care (NCAS 2012)

Stein (2002 32) notes their transition to adulthood is lsquocompressed and

acceleratedrsquo With this in mind Stein (2006 423) states that these

young people are ldquohellipthe most excluded groups of young people in

societyrdquo

Furthermore in light of the refugee crisis emerging from Syria there

is another particularly vulnerable group This group is identified by the

United Kingdom Border Agency (UKBA) as someone below the age

of 18 (or appearing to be should the proof be lacking) and claiming

asylum in their own right with no significant adult in the UK to provide

care (Wade 2011 2424-2425) Under UK guidelines a young person

may be given support whilst they are under the age of 18 only to be at

risk of deportation upon reaching 18 years old (Family Rights Group

2014) A study conducted by Wade (et al 2005) found younger

unaccompanied refugees received more thorough assessment of needs

as opposed to 16 and 17 year olds of the same status This being

resource driven due to less government funding for this age group

Added to which previous studies (Courtney Terrao and Bost 2004

Stein 2004) have also identified within this group of young people an

inconsistency of preparation for independence

The inconsistency of service delivery appears to apply to citizen young

people along with non-citizen

8

Chapter 2

A Review of the Literature

lsquoIf I had parents to go to I would go to my parents and ask them

for help Or Irsquod be with my parents so the strain wouldnrsquot be so

much But I donrsquot have anybody I donrsquot have anyone to turn torsquo

(Care leaver in Barnardorsquos (1) 2014)

Most parents have positive expectations for their own children and are

there offering full support when their child moves into independence

However children leaving the care system often have to live without

this Lack of parental support clearly contributes to a difficult

transition into independence (Barnardorsquos (1) 2014 1)

As previously noted literature pre 1970 is scarce Here the focus will

be on more recent findings in the consistency of services for care

leavers The service areas are

Housing and accommodation

Finance

Transition

It is noted by Stein (2012) that in the view of young care leavers foster

carers care workers and personal advisors that the young people left

care too young The earlier research notes the same problem Young

care leavers are being moved on from the age of 16 whereas studies

found the median age for leaving home was 22 for men and 20 for

women (Biehal et al 1995 30) In recent times the number of young

people [not in care] still living at home with their parents has risen from

27 million in 1996 to 33 million in 2013 their ages ranging from 20

ndash 34 (ONS 2014) It may be seen therefore how difficult it can be for

9

young people in Local Authority (hereafter LA) care to leave at such a

young age

The National Institute for Health and Care Excellence (NICE 2013)

supported by the NSPCC state that ldquocare leavers move to independence

at their own pacerdquo recognising how difficult this time may be

Currently a new duty has been placed upon LArsquos in England This

implementation named the lsquoStaying Putrsquo scheme came into force in

May 2014 (part 5 Welfare of Children (98) of the Children and

Families Act 2014) and offers young people the chance to stay on in

their foster home where the LA regards this consistent with the welfare

of the young person although this does not include residential care

Additional funding has been allocated for each individual LArsquos for this

However nationally this service is inconsistent In Scotland a similar

scheme has been introduced in 2015 also including residential care

Wales has placed the same duty on their LArsquos through the lsquoWhen Irsquom

Readyrsquo scheme though no additional funding has been allocated (The

Fostering Network 2014)

Housing is a fundamental area of concern for young care leavers

Literature pre 1980rsquos is scarce for all issues however due to this lack of

information a National Survey of Leaving Care Schemes was

conducted in 1989 During this time housing was the most common

service provided to young care leavers After housing other services

were offered such as counselling advocacy training preparation for

leaving care and advice on leisure facilities food and clothing

However these services were not universal and most did not offer any

preparation for leaving care (Stone 1990 7)

More recently the LA are duty bound to provide such services

universally Current legislation held in the Children (Leaving Care) Act

2000 states ldquoIt is the duty of the local authority looking after a child to

advise assist and befriend him with a view to promoting his welfare

when they have ceased to look after himrdquo More recent legislation held

10

within the Children and Young Persons Act (2008) along with the

Transitions Guidance for LArsquos to assist with strengthening policy and

practice framework to encourage a lsquolevelling uprsquo of services (Stein

2012 24)

Although these measures are currently in place it is suggested by Dixon

and Baker (2012) that service quality and effectiveness is not consistent

and varies from LA to LA This is not surprising as a survey carried out

in 2011 by the National Care Advisory Service (NCAS) reported high

level of funding cuts to leaving care services (varying from 7 to 15)

making implementation of the Transitions Guidance problematic

Additionally it is apparent housing and accommodation are high on

the list of issues facing care leavers The LArsquos are only duty bound to

provide lsquosuitable accommodationrsquo to 16 and 17 year olds Once a care

leaver reaches 18 the LArsquos are only required to assist with

accommodation advice and support as far as their [young personrsquos]

welfare requires it

Dixon and Baker (2012) continue to identify that although legislation

and advances in support services have increased over the last couple of

decades from knowledge gained through research young care leavers

are still over- represented within the homeless and inadequately

housed With this in mind it is not surprising to find that recent figures

suggest 30 of homeless people have been in the care system (The

Who Carersquos Trust 2014)

This is evident in research compiled by Barnardorsquos (2) (2014) were by

even with the advances in policy the case studies show a chaotic

existence for some young people Several moves from one unsuitable

accommodation to another periods of homelessness and being moved

out of familiar areas [geographically] remains a prominent feature

(Appendix 1)

11

Stone (1990) identified this issue twenty years prior to Dixon

indicating the evidence then showed an over-representation of care

leavers experiencing homelessness The same problem occurs in

literature by Stein and Carey (1986) from their study during 1982

It is noted by Morgan and Lindsey (2012) that there is a need for more

support with accommodation however Munro et al (2011) identified

out of the young people offered extra support the take up was only

about 50 This may be due to wanting to get rid of the lsquobeing in carersquo

label or perhaps a lack of understanding of the extra support offered

There is evidence within the literature that finances present a

significant issue to care leavers (Broad 2005 Munro et al 2011

Stein 2012 54)

Regional differences in the levels of financial support in the form of

leaving care grants is significant ranging from pound400 to pound2000 with the

average payment being pound1000 (Broad 200547) Stein (2012) notes

more recently the leaving care grant still lack in consistency ranging

from zero to pound2000 A survey carried out by the Care Leaverrsquos

Foundation (2009) calculated the young people needed at least pound2500

in order to set up the most basic essentials to live independently [of 150

LArsquos surveyed only one provided this amount]

These financial inconsistencies clearly present challenges not only with

basic needs such as food and housing but also the ability to participate

in leisure activities and higher education This exclusion has a

potentially damaging impact on the health and well-being for young

people who are already vulnerable (Jackson and Cameron 2012)

Furthermore a lack of understanding of financial matters can lead to

long term debt and financial difficulties

ldquoIrsquom still paying off debts now [nine years after living in her first

independent placement] if somebody had have gone through

these bills bills I didnrsquot even know existed Irsquove had to figure

everything out myself Irsquove had to learn the hard way If I had

12

have had support with that it would have changed thingsrdquo (Care

leaver in Barnardorsquos (2) 2014 13)

There is evidence the young peoplersquos voices may not be listened to

The meetings and reviews appear stressful for the young people (Daly

2012) A large proportion felt ignored during meetings (Munro et al

2011 28) and approximately a third felt their lsquoPathway Planrsquo [the LA

is duty bound to have a Pathway Plan to assist in the transition to

independent living] was not adhered to at all It is noted young people

wish to have more control of when they leave care and for the

transition to be more gradual and less rushed (Morgan and Lindsey

2012 Morgan and Lindsey 2006)

Mendes and Moselhuddin (2006 113) note lsquoGraduation from care

needs to become a far more gradual and flexible process based on levels

of maturity and skill development rather than simply agersquo

Furthermore this view is held by the young people involved

ldquoI didnrsquot want to go I still had to go anyway I didnrsquot have a

choiceI was moving out at eighteen end of discussion and the

bit that really pissed me [off] is [that] they chucked me out on

my eighteenth birthdayrdquo (Care leaver in Munro et al 2011 21)

Although the age has been extended to 18 before a young person has to

leave care [unless they are in full time education] an Independent

Reviewing Officer (IRO) in Munro et al (2011 23) states

ldquoWe identified fairly quickly that all it has done is just knock it

back two years erm you know what used to be 16hellipused to have

all these arguments Wersquove shunted it back to 18 but you know

our 18 year olds are just as vulnerable as those 16 year olds

wererdquo

It is clear within the literature the young people fundamentally require

consistency and support from leaving care workers and services to aid

their transition from care to independence (Munro et al 2011 21)

Pride and an inability to ask for help to access services is apparent It

is recognised that many care leavers where reluctant to allow

13

themselves to be cared for The young people were more comfortable

with caring for others This is a result of often having to adopt the role

of carer within their birth family (Samuels and Pryce 2008 1203-

1205) However the literature does not identify other underlying

reasons for the young people having difficulty in accepting help

themselves Reasons such as lack of self- esteem and self- worth due to

the trauma they may have suffered

The transition to independence brings with it feelings of isolation and

loneliness which were connected to losing their carers

ldquoItrsquos hard to think that people you lived with for nine years are

not in your life anymorerdquo

(Care leaver in Morgan 2012 22)

There is evidence these feelings may also be connected to moving away

from friends and professionals changes in social workers and a

transition to adult services

One author notes the young people are living life lsquoin limborsquo (Hiles et

al 2014 6) It is suggested as the young people approach their

eighteenth birthday they are in a state of limbo knowing they may not

be lsquoin carersquo not knowing if they can lsquostay putrsquo with foster carers or

lsquomoving onrsquo to independent accommodation Leaving care workers

involved in Hilesrsquo et al (2014) study describe having ldquoinsufficient time

to prepare some young people for this transitionrdquo especially the young

people who had experienced problems in maintaining stable

placements prior to leaving care

Moreover the system is described as ldquochaotic and complexrdquo forced to

react rather than respond to crisis The cause of this is identified

through poor staff retention and therefore the use of temporary staff

leaving a lack of continuity and consistency (Hiles et al 2014 7)

This research examines policies potentially promoting negative

consequences For example a disengagement of adult mental health

services leading to re-engagement of childrenrsquos services those young

14

people most able being offered more support through education

leaving some young people of low risk but still vulnerable in an isolated

position Also it was noted the young people leaving care to return

home to their birth families for longer than six months lose access to

services when they may actually still be in a vulnerable position (Hiles

et al2014 7)

However Stein (2012 81) suggests there is evidence that most young

people experience good outcomes after leaving care Positive outcomes

are underpinned by the relationship between the young person and the

leaving care teams In addition the evidence points to a positive sense

of well-being when settled and happy even if past or leaving care

experiences have been negative (Wade and Dixon 2006)

In conclusion the literature identifies the inconsistency within leaving

care systems These inconsistencies span throughout the services

available to care leavers from financial to pathway planning and

implementation There is evidence of a somewhat uneven service

delivery despite policy stipulations

There has been an encouraging influx of research in the last fifteen

years or so which should promote a continued improvement in policy

and outcome for this fundamentally vulnerable group in society

There is evident progress within the leaving care system which has

been noted by Stein Wade and Dixon However despite progress

within the system [the introduction of personal advisors Pathway

Plans and specific leaving care teams] and extensive research

informing policy makers the uneven delivery still exists Additionally

care leavers are still disadvantaged compared to their peers even with

the progress that has been made

There is an emphasis on a proactive and preventative approach and a

significant need for placement stability underpinned by systematic and

consistent services As it stands young people are currently being

15

ldquopushed into fighting against a systemrdquo rather than a system that works

together for a positive outcome (Hiles et al 2014 11)

Contingency plans are an important recommendation outlined in recent

research as a necessity to prevent care leavers falling into crisis These

plans need to be in place regardless of assessed lsquoneedrsquo Moreover

access to an independent visitor enabling another supportive

relationship to be formed along with personal advisors would offer

greater assistance when decisions are being made for the young

personrsquos future (Barnardorsquos 2014 23)

Now the research is taking place identifying young peoplersquos

experiences of leaving care it is necessary to listen in order to make

effective changes in policy and practice to achieve better outcomes for

this vulnerable group

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

3

Abstract

There are just under 70000 children living in local authority care of

those approximately 10000 leave care each year This is a significant

number of young people who require substantial support in order to

have improved outcomes

In the past a lax system with little support seems to have operated

However with advances in research and knowledge a more organised

and extensive system has been created Specialist leaving care teams

are now established and policy and legislation in place

Nonetheless there appears to be significant failings and inconsistencies

within this service and outcomes for these young people are not as

universal as they should be With the age of austerity and consistent

cuts to budgets the landscape does not look set to improve

4

Table of Contents Chapter 1 5

Introduction 5

Chapter 2 8

A Review of the Literature 8

Chapter 3 16

Methodology 16

a) Ethical Consideration 17

Chapter 4 18

Findings 18

a) Transition 18

b) Housing and Accommodation 22

c) Pathway Plans Personal Advisors and Social Workers 26

d) Financial aspects 29

e) Evaluation and Reflection 31

Chapter 5 32

Conclusion 32

Appendix 40

5

Chapter 1

Introduction

The purpose of this project is to explore aspects of the leaving care

system how it currently operates and if or how the outcome for these

young people may be improved

This is important as the young people involved are usually incredibly

vulnerable and often stigmatised The question whether the current

system offers them good support and guidance suitable to their needs

will be examined This is especially relevant as the number of care

leavers has steadily risen since 1985 (Hutchinson 2013)

At present Action for Children identifies that young care leavers are

ldquothree times more likely to be cautioned or convicted of an offence

four times more likely to have a mental health disorder

five times less likely to achieve five good GCSEs eight times more

likely to be excluded from school and less likely to go to university

one in five homeless people are care leaversrdquo (2014 DfES 2007)

In 1968 the Seebohm Report the restructuring of the personal social

services including the suggestion of a complete after care service for

young people was considered This would be provided by the new

social service departments rather than the probation service which

supervised the young people at that time This and the knowledge

gained by childcare experts shaped the Children and Young Persons

Act 1969 (House of Commons 1968 para 257 cited in Stein

201215) The implementation of the act influenced by the emergence

of social work as a solid profession was due to the suggestion that

young people would be better served away from the juvenile court

system (Harris 1982)

6

However due to the poverty and identifying several social problems

during this time focus on care-leavers declined Though social services

were reorganised along with the implementation of the Children and

Young Persons Act 1969 in 1971 this did not lead to improve the after

care services ndash rather the opposite Studies such as Godek (1976) and

Mulvey (1977) emphasised the difficulties the young people faced

upon leaving care

There was an end to the probation services involvement a change in

approved school orders to all-purpose care orders and approved school

being replaced by Community Homes with Education all of which

aided the demise of specialist after-care officers Due to the social

climate of the time Stein (2012 16) notes ldquocare leavers became a

forgotten grouprdquo

This is reflected in the lack of literature pre 1970 due to scarce research

taking place at this time Added to which the lack of research was

attributed to favourable economic conditions and full youth

employment during the aftermath of World War II It seems only by

the beginning of the 1970rsquos as social work developed and looked

towards the future did research into young peoplersquos outcomes within

the care system take place (Stein 2012 14)

Nevertheless from 1973 young people came together to talk about their

experiences in care A ldquolack of power over their livesrdquo in relation to

their finances their own reviews and the opportunity to learn

independent skills whilst in care lead to the formation of local groups

such as the lsquoWho Cares Projectrsquo and the lsquoNational Association of

Young People in Carersquo This resulted in giving them a voice (Stein

2012 17) and small scale studies began to take place For example

Godek (1976) Mulvey (1977) and Page and Clark (1977) in the

1970rsquos In the 1980rsquos studies were undertaken by Burgess (1981) Stein

and Ellis (1983) Stein and Meynard (1985) and Stein and Carey

(1986) amongst others These studies found the aforementioned

7

challenges with finance and so on added to which more often than not

young people left care at 16 and were required to live independently

(Stein 2012 17) One reoccurring theme throughout the studies taking

place was the lack of preparation for this vulnerable group for living

independently The latter studies finding high levels of care leavers

becoming homeless

More recently this topic is of particular importance as the data held for

2012 found there were 67050 young people in care [by local

authority] of those 10000 aged 16 or over left care (NCAS 2012)

Stein (2002 32) notes their transition to adulthood is lsquocompressed and

acceleratedrsquo With this in mind Stein (2006 423) states that these

young people are ldquohellipthe most excluded groups of young people in

societyrdquo

Furthermore in light of the refugee crisis emerging from Syria there

is another particularly vulnerable group This group is identified by the

United Kingdom Border Agency (UKBA) as someone below the age

of 18 (or appearing to be should the proof be lacking) and claiming

asylum in their own right with no significant adult in the UK to provide

care (Wade 2011 2424-2425) Under UK guidelines a young person

may be given support whilst they are under the age of 18 only to be at

risk of deportation upon reaching 18 years old (Family Rights Group

2014) A study conducted by Wade (et al 2005) found younger

unaccompanied refugees received more thorough assessment of needs

as opposed to 16 and 17 year olds of the same status This being

resource driven due to less government funding for this age group

Added to which previous studies (Courtney Terrao and Bost 2004

Stein 2004) have also identified within this group of young people an

inconsistency of preparation for independence

The inconsistency of service delivery appears to apply to citizen young

people along with non-citizen

8

Chapter 2

A Review of the Literature

lsquoIf I had parents to go to I would go to my parents and ask them

for help Or Irsquod be with my parents so the strain wouldnrsquot be so

much But I donrsquot have anybody I donrsquot have anyone to turn torsquo

(Care leaver in Barnardorsquos (1) 2014)

Most parents have positive expectations for their own children and are

there offering full support when their child moves into independence

However children leaving the care system often have to live without

this Lack of parental support clearly contributes to a difficult

transition into independence (Barnardorsquos (1) 2014 1)

As previously noted literature pre 1970 is scarce Here the focus will

be on more recent findings in the consistency of services for care

leavers The service areas are

Housing and accommodation

Finance

Transition

It is noted by Stein (2012) that in the view of young care leavers foster

carers care workers and personal advisors that the young people left

care too young The earlier research notes the same problem Young

care leavers are being moved on from the age of 16 whereas studies

found the median age for leaving home was 22 for men and 20 for

women (Biehal et al 1995 30) In recent times the number of young

people [not in care] still living at home with their parents has risen from

27 million in 1996 to 33 million in 2013 their ages ranging from 20

ndash 34 (ONS 2014) It may be seen therefore how difficult it can be for

9

young people in Local Authority (hereafter LA) care to leave at such a

young age

The National Institute for Health and Care Excellence (NICE 2013)

supported by the NSPCC state that ldquocare leavers move to independence

at their own pacerdquo recognising how difficult this time may be

Currently a new duty has been placed upon LArsquos in England This

implementation named the lsquoStaying Putrsquo scheme came into force in

May 2014 (part 5 Welfare of Children (98) of the Children and

Families Act 2014) and offers young people the chance to stay on in

their foster home where the LA regards this consistent with the welfare

of the young person although this does not include residential care

Additional funding has been allocated for each individual LArsquos for this

However nationally this service is inconsistent In Scotland a similar

scheme has been introduced in 2015 also including residential care

Wales has placed the same duty on their LArsquos through the lsquoWhen Irsquom

Readyrsquo scheme though no additional funding has been allocated (The

Fostering Network 2014)

Housing is a fundamental area of concern for young care leavers

Literature pre 1980rsquos is scarce for all issues however due to this lack of

information a National Survey of Leaving Care Schemes was

conducted in 1989 During this time housing was the most common

service provided to young care leavers After housing other services

were offered such as counselling advocacy training preparation for

leaving care and advice on leisure facilities food and clothing

However these services were not universal and most did not offer any

preparation for leaving care (Stone 1990 7)

More recently the LA are duty bound to provide such services

universally Current legislation held in the Children (Leaving Care) Act

2000 states ldquoIt is the duty of the local authority looking after a child to

advise assist and befriend him with a view to promoting his welfare

when they have ceased to look after himrdquo More recent legislation held

10

within the Children and Young Persons Act (2008) along with the

Transitions Guidance for LArsquos to assist with strengthening policy and

practice framework to encourage a lsquolevelling uprsquo of services (Stein

2012 24)

Although these measures are currently in place it is suggested by Dixon

and Baker (2012) that service quality and effectiveness is not consistent

and varies from LA to LA This is not surprising as a survey carried out

in 2011 by the National Care Advisory Service (NCAS) reported high

level of funding cuts to leaving care services (varying from 7 to 15)

making implementation of the Transitions Guidance problematic

Additionally it is apparent housing and accommodation are high on

the list of issues facing care leavers The LArsquos are only duty bound to

provide lsquosuitable accommodationrsquo to 16 and 17 year olds Once a care

leaver reaches 18 the LArsquos are only required to assist with

accommodation advice and support as far as their [young personrsquos]

welfare requires it

Dixon and Baker (2012) continue to identify that although legislation

and advances in support services have increased over the last couple of

decades from knowledge gained through research young care leavers

are still over- represented within the homeless and inadequately

housed With this in mind it is not surprising to find that recent figures

suggest 30 of homeless people have been in the care system (The

Who Carersquos Trust 2014)

This is evident in research compiled by Barnardorsquos (2) (2014) were by

even with the advances in policy the case studies show a chaotic

existence for some young people Several moves from one unsuitable

accommodation to another periods of homelessness and being moved

out of familiar areas [geographically] remains a prominent feature

(Appendix 1)

11

Stone (1990) identified this issue twenty years prior to Dixon

indicating the evidence then showed an over-representation of care

leavers experiencing homelessness The same problem occurs in

literature by Stein and Carey (1986) from their study during 1982

It is noted by Morgan and Lindsey (2012) that there is a need for more

support with accommodation however Munro et al (2011) identified

out of the young people offered extra support the take up was only

about 50 This may be due to wanting to get rid of the lsquobeing in carersquo

label or perhaps a lack of understanding of the extra support offered

There is evidence within the literature that finances present a

significant issue to care leavers (Broad 2005 Munro et al 2011

Stein 2012 54)

Regional differences in the levels of financial support in the form of

leaving care grants is significant ranging from pound400 to pound2000 with the

average payment being pound1000 (Broad 200547) Stein (2012) notes

more recently the leaving care grant still lack in consistency ranging

from zero to pound2000 A survey carried out by the Care Leaverrsquos

Foundation (2009) calculated the young people needed at least pound2500

in order to set up the most basic essentials to live independently [of 150

LArsquos surveyed only one provided this amount]

These financial inconsistencies clearly present challenges not only with

basic needs such as food and housing but also the ability to participate

in leisure activities and higher education This exclusion has a

potentially damaging impact on the health and well-being for young

people who are already vulnerable (Jackson and Cameron 2012)

Furthermore a lack of understanding of financial matters can lead to

long term debt and financial difficulties

ldquoIrsquom still paying off debts now [nine years after living in her first

independent placement] if somebody had have gone through

these bills bills I didnrsquot even know existed Irsquove had to figure

everything out myself Irsquove had to learn the hard way If I had

12

have had support with that it would have changed thingsrdquo (Care

leaver in Barnardorsquos (2) 2014 13)

There is evidence the young peoplersquos voices may not be listened to

The meetings and reviews appear stressful for the young people (Daly

2012) A large proportion felt ignored during meetings (Munro et al

2011 28) and approximately a third felt their lsquoPathway Planrsquo [the LA

is duty bound to have a Pathway Plan to assist in the transition to

independent living] was not adhered to at all It is noted young people

wish to have more control of when they leave care and for the

transition to be more gradual and less rushed (Morgan and Lindsey

2012 Morgan and Lindsey 2006)

Mendes and Moselhuddin (2006 113) note lsquoGraduation from care

needs to become a far more gradual and flexible process based on levels

of maturity and skill development rather than simply agersquo

Furthermore this view is held by the young people involved

ldquoI didnrsquot want to go I still had to go anyway I didnrsquot have a

choiceI was moving out at eighteen end of discussion and the

bit that really pissed me [off] is [that] they chucked me out on

my eighteenth birthdayrdquo (Care leaver in Munro et al 2011 21)

Although the age has been extended to 18 before a young person has to

leave care [unless they are in full time education] an Independent

Reviewing Officer (IRO) in Munro et al (2011 23) states

ldquoWe identified fairly quickly that all it has done is just knock it

back two years erm you know what used to be 16hellipused to have

all these arguments Wersquove shunted it back to 18 but you know

our 18 year olds are just as vulnerable as those 16 year olds

wererdquo

It is clear within the literature the young people fundamentally require

consistency and support from leaving care workers and services to aid

their transition from care to independence (Munro et al 2011 21)

Pride and an inability to ask for help to access services is apparent It

is recognised that many care leavers where reluctant to allow

13

themselves to be cared for The young people were more comfortable

with caring for others This is a result of often having to adopt the role

of carer within their birth family (Samuels and Pryce 2008 1203-

1205) However the literature does not identify other underlying

reasons for the young people having difficulty in accepting help

themselves Reasons such as lack of self- esteem and self- worth due to

the trauma they may have suffered

The transition to independence brings with it feelings of isolation and

loneliness which were connected to losing their carers

ldquoItrsquos hard to think that people you lived with for nine years are

not in your life anymorerdquo

(Care leaver in Morgan 2012 22)

There is evidence these feelings may also be connected to moving away

from friends and professionals changes in social workers and a

transition to adult services

One author notes the young people are living life lsquoin limborsquo (Hiles et

al 2014 6) It is suggested as the young people approach their

eighteenth birthday they are in a state of limbo knowing they may not

be lsquoin carersquo not knowing if they can lsquostay putrsquo with foster carers or

lsquomoving onrsquo to independent accommodation Leaving care workers

involved in Hilesrsquo et al (2014) study describe having ldquoinsufficient time

to prepare some young people for this transitionrdquo especially the young

people who had experienced problems in maintaining stable

placements prior to leaving care

Moreover the system is described as ldquochaotic and complexrdquo forced to

react rather than respond to crisis The cause of this is identified

through poor staff retention and therefore the use of temporary staff

leaving a lack of continuity and consistency (Hiles et al 2014 7)

This research examines policies potentially promoting negative

consequences For example a disengagement of adult mental health

services leading to re-engagement of childrenrsquos services those young

14

people most able being offered more support through education

leaving some young people of low risk but still vulnerable in an isolated

position Also it was noted the young people leaving care to return

home to their birth families for longer than six months lose access to

services when they may actually still be in a vulnerable position (Hiles

et al2014 7)

However Stein (2012 81) suggests there is evidence that most young

people experience good outcomes after leaving care Positive outcomes

are underpinned by the relationship between the young person and the

leaving care teams In addition the evidence points to a positive sense

of well-being when settled and happy even if past or leaving care

experiences have been negative (Wade and Dixon 2006)

In conclusion the literature identifies the inconsistency within leaving

care systems These inconsistencies span throughout the services

available to care leavers from financial to pathway planning and

implementation There is evidence of a somewhat uneven service

delivery despite policy stipulations

There has been an encouraging influx of research in the last fifteen

years or so which should promote a continued improvement in policy

and outcome for this fundamentally vulnerable group in society

There is evident progress within the leaving care system which has

been noted by Stein Wade and Dixon However despite progress

within the system [the introduction of personal advisors Pathway

Plans and specific leaving care teams] and extensive research

informing policy makers the uneven delivery still exists Additionally

care leavers are still disadvantaged compared to their peers even with

the progress that has been made

There is an emphasis on a proactive and preventative approach and a

significant need for placement stability underpinned by systematic and

consistent services As it stands young people are currently being

15

ldquopushed into fighting against a systemrdquo rather than a system that works

together for a positive outcome (Hiles et al 2014 11)

Contingency plans are an important recommendation outlined in recent

research as a necessity to prevent care leavers falling into crisis These

plans need to be in place regardless of assessed lsquoneedrsquo Moreover

access to an independent visitor enabling another supportive

relationship to be formed along with personal advisors would offer

greater assistance when decisions are being made for the young

personrsquos future (Barnardorsquos 2014 23)

Now the research is taking place identifying young peoplersquos

experiences of leaving care it is necessary to listen in order to make

effective changes in policy and practice to achieve better outcomes for

this vulnerable group

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

4

Table of Contents Chapter 1 5

Introduction 5

Chapter 2 8

A Review of the Literature 8

Chapter 3 16

Methodology 16

a) Ethical Consideration 17

Chapter 4 18

Findings 18

a) Transition 18

b) Housing and Accommodation 22

c) Pathway Plans Personal Advisors and Social Workers 26

d) Financial aspects 29

e) Evaluation and Reflection 31

Chapter 5 32

Conclusion 32

Appendix 40

5

Chapter 1

Introduction

The purpose of this project is to explore aspects of the leaving care

system how it currently operates and if or how the outcome for these

young people may be improved

This is important as the young people involved are usually incredibly

vulnerable and often stigmatised The question whether the current

system offers them good support and guidance suitable to their needs

will be examined This is especially relevant as the number of care

leavers has steadily risen since 1985 (Hutchinson 2013)

At present Action for Children identifies that young care leavers are

ldquothree times more likely to be cautioned or convicted of an offence

four times more likely to have a mental health disorder

five times less likely to achieve five good GCSEs eight times more

likely to be excluded from school and less likely to go to university

one in five homeless people are care leaversrdquo (2014 DfES 2007)

In 1968 the Seebohm Report the restructuring of the personal social

services including the suggestion of a complete after care service for

young people was considered This would be provided by the new

social service departments rather than the probation service which

supervised the young people at that time This and the knowledge

gained by childcare experts shaped the Children and Young Persons

Act 1969 (House of Commons 1968 para 257 cited in Stein

201215) The implementation of the act influenced by the emergence

of social work as a solid profession was due to the suggestion that

young people would be better served away from the juvenile court

system (Harris 1982)

6

However due to the poverty and identifying several social problems

during this time focus on care-leavers declined Though social services

were reorganised along with the implementation of the Children and

Young Persons Act 1969 in 1971 this did not lead to improve the after

care services ndash rather the opposite Studies such as Godek (1976) and

Mulvey (1977) emphasised the difficulties the young people faced

upon leaving care

There was an end to the probation services involvement a change in

approved school orders to all-purpose care orders and approved school

being replaced by Community Homes with Education all of which

aided the demise of specialist after-care officers Due to the social

climate of the time Stein (2012 16) notes ldquocare leavers became a

forgotten grouprdquo

This is reflected in the lack of literature pre 1970 due to scarce research

taking place at this time Added to which the lack of research was

attributed to favourable economic conditions and full youth

employment during the aftermath of World War II It seems only by

the beginning of the 1970rsquos as social work developed and looked

towards the future did research into young peoplersquos outcomes within

the care system take place (Stein 2012 14)

Nevertheless from 1973 young people came together to talk about their

experiences in care A ldquolack of power over their livesrdquo in relation to

their finances their own reviews and the opportunity to learn

independent skills whilst in care lead to the formation of local groups

such as the lsquoWho Cares Projectrsquo and the lsquoNational Association of

Young People in Carersquo This resulted in giving them a voice (Stein

2012 17) and small scale studies began to take place For example

Godek (1976) Mulvey (1977) and Page and Clark (1977) in the

1970rsquos In the 1980rsquos studies were undertaken by Burgess (1981) Stein

and Ellis (1983) Stein and Meynard (1985) and Stein and Carey

(1986) amongst others These studies found the aforementioned

7

challenges with finance and so on added to which more often than not

young people left care at 16 and were required to live independently

(Stein 2012 17) One reoccurring theme throughout the studies taking

place was the lack of preparation for this vulnerable group for living

independently The latter studies finding high levels of care leavers

becoming homeless

More recently this topic is of particular importance as the data held for

2012 found there were 67050 young people in care [by local

authority] of those 10000 aged 16 or over left care (NCAS 2012)

Stein (2002 32) notes their transition to adulthood is lsquocompressed and

acceleratedrsquo With this in mind Stein (2006 423) states that these

young people are ldquohellipthe most excluded groups of young people in

societyrdquo

Furthermore in light of the refugee crisis emerging from Syria there

is another particularly vulnerable group This group is identified by the

United Kingdom Border Agency (UKBA) as someone below the age

of 18 (or appearing to be should the proof be lacking) and claiming

asylum in their own right with no significant adult in the UK to provide

care (Wade 2011 2424-2425) Under UK guidelines a young person

may be given support whilst they are under the age of 18 only to be at

risk of deportation upon reaching 18 years old (Family Rights Group

2014) A study conducted by Wade (et al 2005) found younger

unaccompanied refugees received more thorough assessment of needs

as opposed to 16 and 17 year olds of the same status This being

resource driven due to less government funding for this age group

Added to which previous studies (Courtney Terrao and Bost 2004

Stein 2004) have also identified within this group of young people an

inconsistency of preparation for independence

The inconsistency of service delivery appears to apply to citizen young

people along with non-citizen

8

Chapter 2

A Review of the Literature

lsquoIf I had parents to go to I would go to my parents and ask them

for help Or Irsquod be with my parents so the strain wouldnrsquot be so

much But I donrsquot have anybody I donrsquot have anyone to turn torsquo

(Care leaver in Barnardorsquos (1) 2014)

Most parents have positive expectations for their own children and are

there offering full support when their child moves into independence

However children leaving the care system often have to live without

this Lack of parental support clearly contributes to a difficult

transition into independence (Barnardorsquos (1) 2014 1)

As previously noted literature pre 1970 is scarce Here the focus will

be on more recent findings in the consistency of services for care

leavers The service areas are

Housing and accommodation

Finance

Transition

It is noted by Stein (2012) that in the view of young care leavers foster

carers care workers and personal advisors that the young people left

care too young The earlier research notes the same problem Young

care leavers are being moved on from the age of 16 whereas studies

found the median age for leaving home was 22 for men and 20 for

women (Biehal et al 1995 30) In recent times the number of young

people [not in care] still living at home with their parents has risen from

27 million in 1996 to 33 million in 2013 their ages ranging from 20

ndash 34 (ONS 2014) It may be seen therefore how difficult it can be for

9

young people in Local Authority (hereafter LA) care to leave at such a

young age

The National Institute for Health and Care Excellence (NICE 2013)

supported by the NSPCC state that ldquocare leavers move to independence

at their own pacerdquo recognising how difficult this time may be

Currently a new duty has been placed upon LArsquos in England This

implementation named the lsquoStaying Putrsquo scheme came into force in

May 2014 (part 5 Welfare of Children (98) of the Children and

Families Act 2014) and offers young people the chance to stay on in

their foster home where the LA regards this consistent with the welfare

of the young person although this does not include residential care

Additional funding has been allocated for each individual LArsquos for this

However nationally this service is inconsistent In Scotland a similar

scheme has been introduced in 2015 also including residential care

Wales has placed the same duty on their LArsquos through the lsquoWhen Irsquom

Readyrsquo scheme though no additional funding has been allocated (The

Fostering Network 2014)

Housing is a fundamental area of concern for young care leavers

Literature pre 1980rsquos is scarce for all issues however due to this lack of

information a National Survey of Leaving Care Schemes was

conducted in 1989 During this time housing was the most common

service provided to young care leavers After housing other services

were offered such as counselling advocacy training preparation for

leaving care and advice on leisure facilities food and clothing

However these services were not universal and most did not offer any

preparation for leaving care (Stone 1990 7)

More recently the LA are duty bound to provide such services

universally Current legislation held in the Children (Leaving Care) Act

2000 states ldquoIt is the duty of the local authority looking after a child to

advise assist and befriend him with a view to promoting his welfare

when they have ceased to look after himrdquo More recent legislation held

10

within the Children and Young Persons Act (2008) along with the

Transitions Guidance for LArsquos to assist with strengthening policy and

practice framework to encourage a lsquolevelling uprsquo of services (Stein

2012 24)

Although these measures are currently in place it is suggested by Dixon

and Baker (2012) that service quality and effectiveness is not consistent

and varies from LA to LA This is not surprising as a survey carried out

in 2011 by the National Care Advisory Service (NCAS) reported high

level of funding cuts to leaving care services (varying from 7 to 15)

making implementation of the Transitions Guidance problematic

Additionally it is apparent housing and accommodation are high on

the list of issues facing care leavers The LArsquos are only duty bound to

provide lsquosuitable accommodationrsquo to 16 and 17 year olds Once a care

leaver reaches 18 the LArsquos are only required to assist with

accommodation advice and support as far as their [young personrsquos]

welfare requires it

Dixon and Baker (2012) continue to identify that although legislation

and advances in support services have increased over the last couple of

decades from knowledge gained through research young care leavers

are still over- represented within the homeless and inadequately

housed With this in mind it is not surprising to find that recent figures

suggest 30 of homeless people have been in the care system (The

Who Carersquos Trust 2014)

This is evident in research compiled by Barnardorsquos (2) (2014) were by

even with the advances in policy the case studies show a chaotic

existence for some young people Several moves from one unsuitable

accommodation to another periods of homelessness and being moved

out of familiar areas [geographically] remains a prominent feature

(Appendix 1)

11

Stone (1990) identified this issue twenty years prior to Dixon

indicating the evidence then showed an over-representation of care

leavers experiencing homelessness The same problem occurs in

literature by Stein and Carey (1986) from their study during 1982

It is noted by Morgan and Lindsey (2012) that there is a need for more

support with accommodation however Munro et al (2011) identified

out of the young people offered extra support the take up was only

about 50 This may be due to wanting to get rid of the lsquobeing in carersquo

label or perhaps a lack of understanding of the extra support offered

There is evidence within the literature that finances present a

significant issue to care leavers (Broad 2005 Munro et al 2011

Stein 2012 54)

Regional differences in the levels of financial support in the form of

leaving care grants is significant ranging from pound400 to pound2000 with the

average payment being pound1000 (Broad 200547) Stein (2012) notes

more recently the leaving care grant still lack in consistency ranging

from zero to pound2000 A survey carried out by the Care Leaverrsquos

Foundation (2009) calculated the young people needed at least pound2500

in order to set up the most basic essentials to live independently [of 150

LArsquos surveyed only one provided this amount]

These financial inconsistencies clearly present challenges not only with

basic needs such as food and housing but also the ability to participate

in leisure activities and higher education This exclusion has a

potentially damaging impact on the health and well-being for young

people who are already vulnerable (Jackson and Cameron 2012)

Furthermore a lack of understanding of financial matters can lead to

long term debt and financial difficulties

ldquoIrsquom still paying off debts now [nine years after living in her first

independent placement] if somebody had have gone through

these bills bills I didnrsquot even know existed Irsquove had to figure

everything out myself Irsquove had to learn the hard way If I had

12

have had support with that it would have changed thingsrdquo (Care

leaver in Barnardorsquos (2) 2014 13)

There is evidence the young peoplersquos voices may not be listened to

The meetings and reviews appear stressful for the young people (Daly

2012) A large proportion felt ignored during meetings (Munro et al

2011 28) and approximately a third felt their lsquoPathway Planrsquo [the LA

is duty bound to have a Pathway Plan to assist in the transition to

independent living] was not adhered to at all It is noted young people

wish to have more control of when they leave care and for the

transition to be more gradual and less rushed (Morgan and Lindsey

2012 Morgan and Lindsey 2006)

Mendes and Moselhuddin (2006 113) note lsquoGraduation from care

needs to become a far more gradual and flexible process based on levels

of maturity and skill development rather than simply agersquo

Furthermore this view is held by the young people involved

ldquoI didnrsquot want to go I still had to go anyway I didnrsquot have a

choiceI was moving out at eighteen end of discussion and the

bit that really pissed me [off] is [that] they chucked me out on

my eighteenth birthdayrdquo (Care leaver in Munro et al 2011 21)

Although the age has been extended to 18 before a young person has to

leave care [unless they are in full time education] an Independent

Reviewing Officer (IRO) in Munro et al (2011 23) states

ldquoWe identified fairly quickly that all it has done is just knock it

back two years erm you know what used to be 16hellipused to have

all these arguments Wersquove shunted it back to 18 but you know

our 18 year olds are just as vulnerable as those 16 year olds

wererdquo

It is clear within the literature the young people fundamentally require

consistency and support from leaving care workers and services to aid

their transition from care to independence (Munro et al 2011 21)

Pride and an inability to ask for help to access services is apparent It

is recognised that many care leavers where reluctant to allow

13

themselves to be cared for The young people were more comfortable

with caring for others This is a result of often having to adopt the role

of carer within their birth family (Samuels and Pryce 2008 1203-

1205) However the literature does not identify other underlying

reasons for the young people having difficulty in accepting help

themselves Reasons such as lack of self- esteem and self- worth due to

the trauma they may have suffered

The transition to independence brings with it feelings of isolation and

loneliness which were connected to losing their carers

ldquoItrsquos hard to think that people you lived with for nine years are

not in your life anymorerdquo

(Care leaver in Morgan 2012 22)

There is evidence these feelings may also be connected to moving away

from friends and professionals changes in social workers and a

transition to adult services

One author notes the young people are living life lsquoin limborsquo (Hiles et

al 2014 6) It is suggested as the young people approach their

eighteenth birthday they are in a state of limbo knowing they may not

be lsquoin carersquo not knowing if they can lsquostay putrsquo with foster carers or

lsquomoving onrsquo to independent accommodation Leaving care workers

involved in Hilesrsquo et al (2014) study describe having ldquoinsufficient time

to prepare some young people for this transitionrdquo especially the young

people who had experienced problems in maintaining stable

placements prior to leaving care

Moreover the system is described as ldquochaotic and complexrdquo forced to

react rather than respond to crisis The cause of this is identified

through poor staff retention and therefore the use of temporary staff

leaving a lack of continuity and consistency (Hiles et al 2014 7)

This research examines policies potentially promoting negative

consequences For example a disengagement of adult mental health

services leading to re-engagement of childrenrsquos services those young

14

people most able being offered more support through education

leaving some young people of low risk but still vulnerable in an isolated

position Also it was noted the young people leaving care to return

home to their birth families for longer than six months lose access to

services when they may actually still be in a vulnerable position (Hiles

et al2014 7)

However Stein (2012 81) suggests there is evidence that most young

people experience good outcomes after leaving care Positive outcomes

are underpinned by the relationship between the young person and the

leaving care teams In addition the evidence points to a positive sense

of well-being when settled and happy even if past or leaving care

experiences have been negative (Wade and Dixon 2006)

In conclusion the literature identifies the inconsistency within leaving

care systems These inconsistencies span throughout the services

available to care leavers from financial to pathway planning and

implementation There is evidence of a somewhat uneven service

delivery despite policy stipulations

There has been an encouraging influx of research in the last fifteen

years or so which should promote a continued improvement in policy

and outcome for this fundamentally vulnerable group in society

There is evident progress within the leaving care system which has

been noted by Stein Wade and Dixon However despite progress

within the system [the introduction of personal advisors Pathway

Plans and specific leaving care teams] and extensive research

informing policy makers the uneven delivery still exists Additionally

care leavers are still disadvantaged compared to their peers even with

the progress that has been made

There is an emphasis on a proactive and preventative approach and a

significant need for placement stability underpinned by systematic and

consistent services As it stands young people are currently being

15

ldquopushed into fighting against a systemrdquo rather than a system that works

together for a positive outcome (Hiles et al 2014 11)

Contingency plans are an important recommendation outlined in recent

research as a necessity to prevent care leavers falling into crisis These

plans need to be in place regardless of assessed lsquoneedrsquo Moreover

access to an independent visitor enabling another supportive

relationship to be formed along with personal advisors would offer

greater assistance when decisions are being made for the young

personrsquos future (Barnardorsquos 2014 23)

Now the research is taking place identifying young peoplersquos

experiences of leaving care it is necessary to listen in order to make

effective changes in policy and practice to achieve better outcomes for

this vulnerable group

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

5

Chapter 1

Introduction

The purpose of this project is to explore aspects of the leaving care

system how it currently operates and if or how the outcome for these

young people may be improved

This is important as the young people involved are usually incredibly

vulnerable and often stigmatised The question whether the current

system offers them good support and guidance suitable to their needs

will be examined This is especially relevant as the number of care

leavers has steadily risen since 1985 (Hutchinson 2013)

At present Action for Children identifies that young care leavers are

ldquothree times more likely to be cautioned or convicted of an offence

four times more likely to have a mental health disorder

five times less likely to achieve five good GCSEs eight times more

likely to be excluded from school and less likely to go to university

one in five homeless people are care leaversrdquo (2014 DfES 2007)

In 1968 the Seebohm Report the restructuring of the personal social

services including the suggestion of a complete after care service for

young people was considered This would be provided by the new

social service departments rather than the probation service which

supervised the young people at that time This and the knowledge

gained by childcare experts shaped the Children and Young Persons

Act 1969 (House of Commons 1968 para 257 cited in Stein

201215) The implementation of the act influenced by the emergence

of social work as a solid profession was due to the suggestion that

young people would be better served away from the juvenile court

system (Harris 1982)

6

However due to the poverty and identifying several social problems

during this time focus on care-leavers declined Though social services

were reorganised along with the implementation of the Children and

Young Persons Act 1969 in 1971 this did not lead to improve the after

care services ndash rather the opposite Studies such as Godek (1976) and

Mulvey (1977) emphasised the difficulties the young people faced

upon leaving care

There was an end to the probation services involvement a change in

approved school orders to all-purpose care orders and approved school

being replaced by Community Homes with Education all of which

aided the demise of specialist after-care officers Due to the social

climate of the time Stein (2012 16) notes ldquocare leavers became a

forgotten grouprdquo

This is reflected in the lack of literature pre 1970 due to scarce research

taking place at this time Added to which the lack of research was

attributed to favourable economic conditions and full youth

employment during the aftermath of World War II It seems only by

the beginning of the 1970rsquos as social work developed and looked

towards the future did research into young peoplersquos outcomes within

the care system take place (Stein 2012 14)

Nevertheless from 1973 young people came together to talk about their

experiences in care A ldquolack of power over their livesrdquo in relation to

their finances their own reviews and the opportunity to learn

independent skills whilst in care lead to the formation of local groups

such as the lsquoWho Cares Projectrsquo and the lsquoNational Association of

Young People in Carersquo This resulted in giving them a voice (Stein

2012 17) and small scale studies began to take place For example

Godek (1976) Mulvey (1977) and Page and Clark (1977) in the

1970rsquos In the 1980rsquos studies were undertaken by Burgess (1981) Stein

and Ellis (1983) Stein and Meynard (1985) and Stein and Carey

(1986) amongst others These studies found the aforementioned

7

challenges with finance and so on added to which more often than not

young people left care at 16 and were required to live independently

(Stein 2012 17) One reoccurring theme throughout the studies taking

place was the lack of preparation for this vulnerable group for living

independently The latter studies finding high levels of care leavers

becoming homeless

More recently this topic is of particular importance as the data held for

2012 found there were 67050 young people in care [by local

authority] of those 10000 aged 16 or over left care (NCAS 2012)

Stein (2002 32) notes their transition to adulthood is lsquocompressed and

acceleratedrsquo With this in mind Stein (2006 423) states that these

young people are ldquohellipthe most excluded groups of young people in

societyrdquo

Furthermore in light of the refugee crisis emerging from Syria there

is another particularly vulnerable group This group is identified by the

United Kingdom Border Agency (UKBA) as someone below the age

of 18 (or appearing to be should the proof be lacking) and claiming

asylum in their own right with no significant adult in the UK to provide

care (Wade 2011 2424-2425) Under UK guidelines a young person

may be given support whilst they are under the age of 18 only to be at

risk of deportation upon reaching 18 years old (Family Rights Group

2014) A study conducted by Wade (et al 2005) found younger

unaccompanied refugees received more thorough assessment of needs

as opposed to 16 and 17 year olds of the same status This being

resource driven due to less government funding for this age group

Added to which previous studies (Courtney Terrao and Bost 2004

Stein 2004) have also identified within this group of young people an

inconsistency of preparation for independence

The inconsistency of service delivery appears to apply to citizen young

people along with non-citizen

8

Chapter 2

A Review of the Literature

lsquoIf I had parents to go to I would go to my parents and ask them

for help Or Irsquod be with my parents so the strain wouldnrsquot be so

much But I donrsquot have anybody I donrsquot have anyone to turn torsquo

(Care leaver in Barnardorsquos (1) 2014)

Most parents have positive expectations for their own children and are

there offering full support when their child moves into independence

However children leaving the care system often have to live without

this Lack of parental support clearly contributes to a difficult

transition into independence (Barnardorsquos (1) 2014 1)

As previously noted literature pre 1970 is scarce Here the focus will

be on more recent findings in the consistency of services for care

leavers The service areas are

Housing and accommodation

Finance

Transition

It is noted by Stein (2012) that in the view of young care leavers foster

carers care workers and personal advisors that the young people left

care too young The earlier research notes the same problem Young

care leavers are being moved on from the age of 16 whereas studies

found the median age for leaving home was 22 for men and 20 for

women (Biehal et al 1995 30) In recent times the number of young

people [not in care] still living at home with their parents has risen from

27 million in 1996 to 33 million in 2013 their ages ranging from 20

ndash 34 (ONS 2014) It may be seen therefore how difficult it can be for

9

young people in Local Authority (hereafter LA) care to leave at such a

young age

The National Institute for Health and Care Excellence (NICE 2013)

supported by the NSPCC state that ldquocare leavers move to independence

at their own pacerdquo recognising how difficult this time may be

Currently a new duty has been placed upon LArsquos in England This

implementation named the lsquoStaying Putrsquo scheme came into force in

May 2014 (part 5 Welfare of Children (98) of the Children and

Families Act 2014) and offers young people the chance to stay on in

their foster home where the LA regards this consistent with the welfare

of the young person although this does not include residential care

Additional funding has been allocated for each individual LArsquos for this

However nationally this service is inconsistent In Scotland a similar

scheme has been introduced in 2015 also including residential care

Wales has placed the same duty on their LArsquos through the lsquoWhen Irsquom

Readyrsquo scheme though no additional funding has been allocated (The

Fostering Network 2014)

Housing is a fundamental area of concern for young care leavers

Literature pre 1980rsquos is scarce for all issues however due to this lack of

information a National Survey of Leaving Care Schemes was

conducted in 1989 During this time housing was the most common

service provided to young care leavers After housing other services

were offered such as counselling advocacy training preparation for

leaving care and advice on leisure facilities food and clothing

However these services were not universal and most did not offer any

preparation for leaving care (Stone 1990 7)

More recently the LA are duty bound to provide such services

universally Current legislation held in the Children (Leaving Care) Act

2000 states ldquoIt is the duty of the local authority looking after a child to

advise assist and befriend him with a view to promoting his welfare

when they have ceased to look after himrdquo More recent legislation held

10

within the Children and Young Persons Act (2008) along with the

Transitions Guidance for LArsquos to assist with strengthening policy and

practice framework to encourage a lsquolevelling uprsquo of services (Stein

2012 24)

Although these measures are currently in place it is suggested by Dixon

and Baker (2012) that service quality and effectiveness is not consistent

and varies from LA to LA This is not surprising as a survey carried out

in 2011 by the National Care Advisory Service (NCAS) reported high

level of funding cuts to leaving care services (varying from 7 to 15)

making implementation of the Transitions Guidance problematic

Additionally it is apparent housing and accommodation are high on

the list of issues facing care leavers The LArsquos are only duty bound to

provide lsquosuitable accommodationrsquo to 16 and 17 year olds Once a care

leaver reaches 18 the LArsquos are only required to assist with

accommodation advice and support as far as their [young personrsquos]

welfare requires it

Dixon and Baker (2012) continue to identify that although legislation

and advances in support services have increased over the last couple of

decades from knowledge gained through research young care leavers

are still over- represented within the homeless and inadequately

housed With this in mind it is not surprising to find that recent figures

suggest 30 of homeless people have been in the care system (The

Who Carersquos Trust 2014)

This is evident in research compiled by Barnardorsquos (2) (2014) were by

even with the advances in policy the case studies show a chaotic

existence for some young people Several moves from one unsuitable

accommodation to another periods of homelessness and being moved

out of familiar areas [geographically] remains a prominent feature

(Appendix 1)

11

Stone (1990) identified this issue twenty years prior to Dixon

indicating the evidence then showed an over-representation of care

leavers experiencing homelessness The same problem occurs in

literature by Stein and Carey (1986) from their study during 1982

It is noted by Morgan and Lindsey (2012) that there is a need for more

support with accommodation however Munro et al (2011) identified

out of the young people offered extra support the take up was only

about 50 This may be due to wanting to get rid of the lsquobeing in carersquo

label or perhaps a lack of understanding of the extra support offered

There is evidence within the literature that finances present a

significant issue to care leavers (Broad 2005 Munro et al 2011

Stein 2012 54)

Regional differences in the levels of financial support in the form of

leaving care grants is significant ranging from pound400 to pound2000 with the

average payment being pound1000 (Broad 200547) Stein (2012) notes

more recently the leaving care grant still lack in consistency ranging

from zero to pound2000 A survey carried out by the Care Leaverrsquos

Foundation (2009) calculated the young people needed at least pound2500

in order to set up the most basic essentials to live independently [of 150

LArsquos surveyed only one provided this amount]

These financial inconsistencies clearly present challenges not only with

basic needs such as food and housing but also the ability to participate

in leisure activities and higher education This exclusion has a

potentially damaging impact on the health and well-being for young

people who are already vulnerable (Jackson and Cameron 2012)

Furthermore a lack of understanding of financial matters can lead to

long term debt and financial difficulties

ldquoIrsquom still paying off debts now [nine years after living in her first

independent placement] if somebody had have gone through

these bills bills I didnrsquot even know existed Irsquove had to figure

everything out myself Irsquove had to learn the hard way If I had

12

have had support with that it would have changed thingsrdquo (Care

leaver in Barnardorsquos (2) 2014 13)

There is evidence the young peoplersquos voices may not be listened to

The meetings and reviews appear stressful for the young people (Daly

2012) A large proportion felt ignored during meetings (Munro et al

2011 28) and approximately a third felt their lsquoPathway Planrsquo [the LA

is duty bound to have a Pathway Plan to assist in the transition to

independent living] was not adhered to at all It is noted young people

wish to have more control of when they leave care and for the

transition to be more gradual and less rushed (Morgan and Lindsey

2012 Morgan and Lindsey 2006)

Mendes and Moselhuddin (2006 113) note lsquoGraduation from care

needs to become a far more gradual and flexible process based on levels

of maturity and skill development rather than simply agersquo

Furthermore this view is held by the young people involved

ldquoI didnrsquot want to go I still had to go anyway I didnrsquot have a

choiceI was moving out at eighteen end of discussion and the

bit that really pissed me [off] is [that] they chucked me out on

my eighteenth birthdayrdquo (Care leaver in Munro et al 2011 21)

Although the age has been extended to 18 before a young person has to

leave care [unless they are in full time education] an Independent

Reviewing Officer (IRO) in Munro et al (2011 23) states

ldquoWe identified fairly quickly that all it has done is just knock it

back two years erm you know what used to be 16hellipused to have

all these arguments Wersquove shunted it back to 18 but you know

our 18 year olds are just as vulnerable as those 16 year olds

wererdquo

It is clear within the literature the young people fundamentally require

consistency and support from leaving care workers and services to aid

their transition from care to independence (Munro et al 2011 21)

Pride and an inability to ask for help to access services is apparent It

is recognised that many care leavers where reluctant to allow

13

themselves to be cared for The young people were more comfortable

with caring for others This is a result of often having to adopt the role

of carer within their birth family (Samuels and Pryce 2008 1203-

1205) However the literature does not identify other underlying

reasons for the young people having difficulty in accepting help

themselves Reasons such as lack of self- esteem and self- worth due to

the trauma they may have suffered

The transition to independence brings with it feelings of isolation and

loneliness which were connected to losing their carers

ldquoItrsquos hard to think that people you lived with for nine years are

not in your life anymorerdquo

(Care leaver in Morgan 2012 22)

There is evidence these feelings may also be connected to moving away

from friends and professionals changes in social workers and a

transition to adult services

One author notes the young people are living life lsquoin limborsquo (Hiles et

al 2014 6) It is suggested as the young people approach their

eighteenth birthday they are in a state of limbo knowing they may not

be lsquoin carersquo not knowing if they can lsquostay putrsquo with foster carers or

lsquomoving onrsquo to independent accommodation Leaving care workers

involved in Hilesrsquo et al (2014) study describe having ldquoinsufficient time

to prepare some young people for this transitionrdquo especially the young

people who had experienced problems in maintaining stable

placements prior to leaving care

Moreover the system is described as ldquochaotic and complexrdquo forced to

react rather than respond to crisis The cause of this is identified

through poor staff retention and therefore the use of temporary staff

leaving a lack of continuity and consistency (Hiles et al 2014 7)

This research examines policies potentially promoting negative

consequences For example a disengagement of adult mental health

services leading to re-engagement of childrenrsquos services those young

14

people most able being offered more support through education

leaving some young people of low risk but still vulnerable in an isolated

position Also it was noted the young people leaving care to return

home to their birth families for longer than six months lose access to

services when they may actually still be in a vulnerable position (Hiles

et al2014 7)

However Stein (2012 81) suggests there is evidence that most young

people experience good outcomes after leaving care Positive outcomes

are underpinned by the relationship between the young person and the

leaving care teams In addition the evidence points to a positive sense

of well-being when settled and happy even if past or leaving care

experiences have been negative (Wade and Dixon 2006)

In conclusion the literature identifies the inconsistency within leaving

care systems These inconsistencies span throughout the services

available to care leavers from financial to pathway planning and

implementation There is evidence of a somewhat uneven service

delivery despite policy stipulations

There has been an encouraging influx of research in the last fifteen

years or so which should promote a continued improvement in policy

and outcome for this fundamentally vulnerable group in society

There is evident progress within the leaving care system which has

been noted by Stein Wade and Dixon However despite progress

within the system [the introduction of personal advisors Pathway

Plans and specific leaving care teams] and extensive research

informing policy makers the uneven delivery still exists Additionally

care leavers are still disadvantaged compared to their peers even with

the progress that has been made

There is an emphasis on a proactive and preventative approach and a

significant need for placement stability underpinned by systematic and

consistent services As it stands young people are currently being

15

ldquopushed into fighting against a systemrdquo rather than a system that works

together for a positive outcome (Hiles et al 2014 11)

Contingency plans are an important recommendation outlined in recent

research as a necessity to prevent care leavers falling into crisis These

plans need to be in place regardless of assessed lsquoneedrsquo Moreover

access to an independent visitor enabling another supportive

relationship to be formed along with personal advisors would offer

greater assistance when decisions are being made for the young

personrsquos future (Barnardorsquos 2014 23)

Now the research is taking place identifying young peoplersquos

experiences of leaving care it is necessary to listen in order to make

effective changes in policy and practice to achieve better outcomes for

this vulnerable group

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

6

However due to the poverty and identifying several social problems

during this time focus on care-leavers declined Though social services

were reorganised along with the implementation of the Children and

Young Persons Act 1969 in 1971 this did not lead to improve the after

care services ndash rather the opposite Studies such as Godek (1976) and

Mulvey (1977) emphasised the difficulties the young people faced

upon leaving care

There was an end to the probation services involvement a change in

approved school orders to all-purpose care orders and approved school

being replaced by Community Homes with Education all of which

aided the demise of specialist after-care officers Due to the social

climate of the time Stein (2012 16) notes ldquocare leavers became a

forgotten grouprdquo

This is reflected in the lack of literature pre 1970 due to scarce research

taking place at this time Added to which the lack of research was

attributed to favourable economic conditions and full youth

employment during the aftermath of World War II It seems only by

the beginning of the 1970rsquos as social work developed and looked

towards the future did research into young peoplersquos outcomes within

the care system take place (Stein 2012 14)

Nevertheless from 1973 young people came together to talk about their

experiences in care A ldquolack of power over their livesrdquo in relation to

their finances their own reviews and the opportunity to learn

independent skills whilst in care lead to the formation of local groups

such as the lsquoWho Cares Projectrsquo and the lsquoNational Association of

Young People in Carersquo This resulted in giving them a voice (Stein

2012 17) and small scale studies began to take place For example

Godek (1976) Mulvey (1977) and Page and Clark (1977) in the

1970rsquos In the 1980rsquos studies were undertaken by Burgess (1981) Stein

and Ellis (1983) Stein and Meynard (1985) and Stein and Carey

(1986) amongst others These studies found the aforementioned

7

challenges with finance and so on added to which more often than not

young people left care at 16 and were required to live independently

(Stein 2012 17) One reoccurring theme throughout the studies taking

place was the lack of preparation for this vulnerable group for living

independently The latter studies finding high levels of care leavers

becoming homeless

More recently this topic is of particular importance as the data held for

2012 found there were 67050 young people in care [by local

authority] of those 10000 aged 16 or over left care (NCAS 2012)

Stein (2002 32) notes their transition to adulthood is lsquocompressed and

acceleratedrsquo With this in mind Stein (2006 423) states that these

young people are ldquohellipthe most excluded groups of young people in

societyrdquo

Furthermore in light of the refugee crisis emerging from Syria there

is another particularly vulnerable group This group is identified by the

United Kingdom Border Agency (UKBA) as someone below the age

of 18 (or appearing to be should the proof be lacking) and claiming

asylum in their own right with no significant adult in the UK to provide

care (Wade 2011 2424-2425) Under UK guidelines a young person

may be given support whilst they are under the age of 18 only to be at

risk of deportation upon reaching 18 years old (Family Rights Group

2014) A study conducted by Wade (et al 2005) found younger

unaccompanied refugees received more thorough assessment of needs

as opposed to 16 and 17 year olds of the same status This being

resource driven due to less government funding for this age group

Added to which previous studies (Courtney Terrao and Bost 2004

Stein 2004) have also identified within this group of young people an

inconsistency of preparation for independence

The inconsistency of service delivery appears to apply to citizen young

people along with non-citizen

8

Chapter 2

A Review of the Literature

lsquoIf I had parents to go to I would go to my parents and ask them

for help Or Irsquod be with my parents so the strain wouldnrsquot be so

much But I donrsquot have anybody I donrsquot have anyone to turn torsquo

(Care leaver in Barnardorsquos (1) 2014)

Most parents have positive expectations for their own children and are

there offering full support when their child moves into independence

However children leaving the care system often have to live without

this Lack of parental support clearly contributes to a difficult

transition into independence (Barnardorsquos (1) 2014 1)

As previously noted literature pre 1970 is scarce Here the focus will

be on more recent findings in the consistency of services for care

leavers The service areas are

Housing and accommodation

Finance

Transition

It is noted by Stein (2012) that in the view of young care leavers foster

carers care workers and personal advisors that the young people left

care too young The earlier research notes the same problem Young

care leavers are being moved on from the age of 16 whereas studies

found the median age for leaving home was 22 for men and 20 for

women (Biehal et al 1995 30) In recent times the number of young

people [not in care] still living at home with their parents has risen from

27 million in 1996 to 33 million in 2013 their ages ranging from 20

ndash 34 (ONS 2014) It may be seen therefore how difficult it can be for

9

young people in Local Authority (hereafter LA) care to leave at such a

young age

The National Institute for Health and Care Excellence (NICE 2013)

supported by the NSPCC state that ldquocare leavers move to independence

at their own pacerdquo recognising how difficult this time may be

Currently a new duty has been placed upon LArsquos in England This

implementation named the lsquoStaying Putrsquo scheme came into force in

May 2014 (part 5 Welfare of Children (98) of the Children and

Families Act 2014) and offers young people the chance to stay on in

their foster home where the LA regards this consistent with the welfare

of the young person although this does not include residential care

Additional funding has been allocated for each individual LArsquos for this

However nationally this service is inconsistent In Scotland a similar

scheme has been introduced in 2015 also including residential care

Wales has placed the same duty on their LArsquos through the lsquoWhen Irsquom

Readyrsquo scheme though no additional funding has been allocated (The

Fostering Network 2014)

Housing is a fundamental area of concern for young care leavers

Literature pre 1980rsquos is scarce for all issues however due to this lack of

information a National Survey of Leaving Care Schemes was

conducted in 1989 During this time housing was the most common

service provided to young care leavers After housing other services

were offered such as counselling advocacy training preparation for

leaving care and advice on leisure facilities food and clothing

However these services were not universal and most did not offer any

preparation for leaving care (Stone 1990 7)

More recently the LA are duty bound to provide such services

universally Current legislation held in the Children (Leaving Care) Act

2000 states ldquoIt is the duty of the local authority looking after a child to

advise assist and befriend him with a view to promoting his welfare

when they have ceased to look after himrdquo More recent legislation held

10

within the Children and Young Persons Act (2008) along with the

Transitions Guidance for LArsquos to assist with strengthening policy and

practice framework to encourage a lsquolevelling uprsquo of services (Stein

2012 24)

Although these measures are currently in place it is suggested by Dixon

and Baker (2012) that service quality and effectiveness is not consistent

and varies from LA to LA This is not surprising as a survey carried out

in 2011 by the National Care Advisory Service (NCAS) reported high

level of funding cuts to leaving care services (varying from 7 to 15)

making implementation of the Transitions Guidance problematic

Additionally it is apparent housing and accommodation are high on

the list of issues facing care leavers The LArsquos are only duty bound to

provide lsquosuitable accommodationrsquo to 16 and 17 year olds Once a care

leaver reaches 18 the LArsquos are only required to assist with

accommodation advice and support as far as their [young personrsquos]

welfare requires it

Dixon and Baker (2012) continue to identify that although legislation

and advances in support services have increased over the last couple of

decades from knowledge gained through research young care leavers

are still over- represented within the homeless and inadequately

housed With this in mind it is not surprising to find that recent figures

suggest 30 of homeless people have been in the care system (The

Who Carersquos Trust 2014)

This is evident in research compiled by Barnardorsquos (2) (2014) were by

even with the advances in policy the case studies show a chaotic

existence for some young people Several moves from one unsuitable

accommodation to another periods of homelessness and being moved

out of familiar areas [geographically] remains a prominent feature

(Appendix 1)

11

Stone (1990) identified this issue twenty years prior to Dixon

indicating the evidence then showed an over-representation of care

leavers experiencing homelessness The same problem occurs in

literature by Stein and Carey (1986) from their study during 1982

It is noted by Morgan and Lindsey (2012) that there is a need for more

support with accommodation however Munro et al (2011) identified

out of the young people offered extra support the take up was only

about 50 This may be due to wanting to get rid of the lsquobeing in carersquo

label or perhaps a lack of understanding of the extra support offered

There is evidence within the literature that finances present a

significant issue to care leavers (Broad 2005 Munro et al 2011

Stein 2012 54)

Regional differences in the levels of financial support in the form of

leaving care grants is significant ranging from pound400 to pound2000 with the

average payment being pound1000 (Broad 200547) Stein (2012) notes

more recently the leaving care grant still lack in consistency ranging

from zero to pound2000 A survey carried out by the Care Leaverrsquos

Foundation (2009) calculated the young people needed at least pound2500

in order to set up the most basic essentials to live independently [of 150

LArsquos surveyed only one provided this amount]

These financial inconsistencies clearly present challenges not only with

basic needs such as food and housing but also the ability to participate

in leisure activities and higher education This exclusion has a

potentially damaging impact on the health and well-being for young

people who are already vulnerable (Jackson and Cameron 2012)

Furthermore a lack of understanding of financial matters can lead to

long term debt and financial difficulties

ldquoIrsquom still paying off debts now [nine years after living in her first

independent placement] if somebody had have gone through

these bills bills I didnrsquot even know existed Irsquove had to figure

everything out myself Irsquove had to learn the hard way If I had

12

have had support with that it would have changed thingsrdquo (Care

leaver in Barnardorsquos (2) 2014 13)

There is evidence the young peoplersquos voices may not be listened to

The meetings and reviews appear stressful for the young people (Daly

2012) A large proportion felt ignored during meetings (Munro et al

2011 28) and approximately a third felt their lsquoPathway Planrsquo [the LA

is duty bound to have a Pathway Plan to assist in the transition to

independent living] was not adhered to at all It is noted young people

wish to have more control of when they leave care and for the

transition to be more gradual and less rushed (Morgan and Lindsey

2012 Morgan and Lindsey 2006)

Mendes and Moselhuddin (2006 113) note lsquoGraduation from care

needs to become a far more gradual and flexible process based on levels

of maturity and skill development rather than simply agersquo

Furthermore this view is held by the young people involved

ldquoI didnrsquot want to go I still had to go anyway I didnrsquot have a

choiceI was moving out at eighteen end of discussion and the

bit that really pissed me [off] is [that] they chucked me out on

my eighteenth birthdayrdquo (Care leaver in Munro et al 2011 21)

Although the age has been extended to 18 before a young person has to

leave care [unless they are in full time education] an Independent

Reviewing Officer (IRO) in Munro et al (2011 23) states

ldquoWe identified fairly quickly that all it has done is just knock it

back two years erm you know what used to be 16hellipused to have

all these arguments Wersquove shunted it back to 18 but you know

our 18 year olds are just as vulnerable as those 16 year olds

wererdquo

It is clear within the literature the young people fundamentally require

consistency and support from leaving care workers and services to aid

their transition from care to independence (Munro et al 2011 21)

Pride and an inability to ask for help to access services is apparent It

is recognised that many care leavers where reluctant to allow

13

themselves to be cared for The young people were more comfortable

with caring for others This is a result of often having to adopt the role

of carer within their birth family (Samuels and Pryce 2008 1203-

1205) However the literature does not identify other underlying

reasons for the young people having difficulty in accepting help

themselves Reasons such as lack of self- esteem and self- worth due to

the trauma they may have suffered

The transition to independence brings with it feelings of isolation and

loneliness which were connected to losing their carers

ldquoItrsquos hard to think that people you lived with for nine years are

not in your life anymorerdquo

(Care leaver in Morgan 2012 22)

There is evidence these feelings may also be connected to moving away

from friends and professionals changes in social workers and a

transition to adult services

One author notes the young people are living life lsquoin limborsquo (Hiles et

al 2014 6) It is suggested as the young people approach their

eighteenth birthday they are in a state of limbo knowing they may not

be lsquoin carersquo not knowing if they can lsquostay putrsquo with foster carers or

lsquomoving onrsquo to independent accommodation Leaving care workers

involved in Hilesrsquo et al (2014) study describe having ldquoinsufficient time

to prepare some young people for this transitionrdquo especially the young

people who had experienced problems in maintaining stable

placements prior to leaving care

Moreover the system is described as ldquochaotic and complexrdquo forced to

react rather than respond to crisis The cause of this is identified

through poor staff retention and therefore the use of temporary staff

leaving a lack of continuity and consistency (Hiles et al 2014 7)

This research examines policies potentially promoting negative

consequences For example a disengagement of adult mental health

services leading to re-engagement of childrenrsquos services those young

14

people most able being offered more support through education

leaving some young people of low risk but still vulnerable in an isolated

position Also it was noted the young people leaving care to return

home to their birth families for longer than six months lose access to

services when they may actually still be in a vulnerable position (Hiles

et al2014 7)

However Stein (2012 81) suggests there is evidence that most young

people experience good outcomes after leaving care Positive outcomes

are underpinned by the relationship between the young person and the

leaving care teams In addition the evidence points to a positive sense

of well-being when settled and happy even if past or leaving care

experiences have been negative (Wade and Dixon 2006)

In conclusion the literature identifies the inconsistency within leaving

care systems These inconsistencies span throughout the services

available to care leavers from financial to pathway planning and

implementation There is evidence of a somewhat uneven service

delivery despite policy stipulations

There has been an encouraging influx of research in the last fifteen

years or so which should promote a continued improvement in policy

and outcome for this fundamentally vulnerable group in society

There is evident progress within the leaving care system which has

been noted by Stein Wade and Dixon However despite progress

within the system [the introduction of personal advisors Pathway

Plans and specific leaving care teams] and extensive research

informing policy makers the uneven delivery still exists Additionally

care leavers are still disadvantaged compared to their peers even with

the progress that has been made

There is an emphasis on a proactive and preventative approach and a

significant need for placement stability underpinned by systematic and

consistent services As it stands young people are currently being

15

ldquopushed into fighting against a systemrdquo rather than a system that works

together for a positive outcome (Hiles et al 2014 11)

Contingency plans are an important recommendation outlined in recent

research as a necessity to prevent care leavers falling into crisis These

plans need to be in place regardless of assessed lsquoneedrsquo Moreover

access to an independent visitor enabling another supportive

relationship to be formed along with personal advisors would offer

greater assistance when decisions are being made for the young

personrsquos future (Barnardorsquos 2014 23)

Now the research is taking place identifying young peoplersquos

experiences of leaving care it is necessary to listen in order to make

effective changes in policy and practice to achieve better outcomes for

this vulnerable group

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

7

challenges with finance and so on added to which more often than not

young people left care at 16 and were required to live independently

(Stein 2012 17) One reoccurring theme throughout the studies taking

place was the lack of preparation for this vulnerable group for living

independently The latter studies finding high levels of care leavers

becoming homeless

More recently this topic is of particular importance as the data held for

2012 found there were 67050 young people in care [by local

authority] of those 10000 aged 16 or over left care (NCAS 2012)

Stein (2002 32) notes their transition to adulthood is lsquocompressed and

acceleratedrsquo With this in mind Stein (2006 423) states that these

young people are ldquohellipthe most excluded groups of young people in

societyrdquo

Furthermore in light of the refugee crisis emerging from Syria there

is another particularly vulnerable group This group is identified by the

United Kingdom Border Agency (UKBA) as someone below the age

of 18 (or appearing to be should the proof be lacking) and claiming

asylum in their own right with no significant adult in the UK to provide

care (Wade 2011 2424-2425) Under UK guidelines a young person

may be given support whilst they are under the age of 18 only to be at

risk of deportation upon reaching 18 years old (Family Rights Group

2014) A study conducted by Wade (et al 2005) found younger

unaccompanied refugees received more thorough assessment of needs

as opposed to 16 and 17 year olds of the same status This being

resource driven due to less government funding for this age group

Added to which previous studies (Courtney Terrao and Bost 2004

Stein 2004) have also identified within this group of young people an

inconsistency of preparation for independence

The inconsistency of service delivery appears to apply to citizen young

people along with non-citizen

8

Chapter 2

A Review of the Literature

lsquoIf I had parents to go to I would go to my parents and ask them

for help Or Irsquod be with my parents so the strain wouldnrsquot be so

much But I donrsquot have anybody I donrsquot have anyone to turn torsquo

(Care leaver in Barnardorsquos (1) 2014)

Most parents have positive expectations for their own children and are

there offering full support when their child moves into independence

However children leaving the care system often have to live without

this Lack of parental support clearly contributes to a difficult

transition into independence (Barnardorsquos (1) 2014 1)

As previously noted literature pre 1970 is scarce Here the focus will

be on more recent findings in the consistency of services for care

leavers The service areas are

Housing and accommodation

Finance

Transition

It is noted by Stein (2012) that in the view of young care leavers foster

carers care workers and personal advisors that the young people left

care too young The earlier research notes the same problem Young

care leavers are being moved on from the age of 16 whereas studies

found the median age for leaving home was 22 for men and 20 for

women (Biehal et al 1995 30) In recent times the number of young

people [not in care] still living at home with their parents has risen from

27 million in 1996 to 33 million in 2013 their ages ranging from 20

ndash 34 (ONS 2014) It may be seen therefore how difficult it can be for

9

young people in Local Authority (hereafter LA) care to leave at such a

young age

The National Institute for Health and Care Excellence (NICE 2013)

supported by the NSPCC state that ldquocare leavers move to independence

at their own pacerdquo recognising how difficult this time may be

Currently a new duty has been placed upon LArsquos in England This

implementation named the lsquoStaying Putrsquo scheme came into force in

May 2014 (part 5 Welfare of Children (98) of the Children and

Families Act 2014) and offers young people the chance to stay on in

their foster home where the LA regards this consistent with the welfare

of the young person although this does not include residential care

Additional funding has been allocated for each individual LArsquos for this

However nationally this service is inconsistent In Scotland a similar

scheme has been introduced in 2015 also including residential care

Wales has placed the same duty on their LArsquos through the lsquoWhen Irsquom

Readyrsquo scheme though no additional funding has been allocated (The

Fostering Network 2014)

Housing is a fundamental area of concern for young care leavers

Literature pre 1980rsquos is scarce for all issues however due to this lack of

information a National Survey of Leaving Care Schemes was

conducted in 1989 During this time housing was the most common

service provided to young care leavers After housing other services

were offered such as counselling advocacy training preparation for

leaving care and advice on leisure facilities food and clothing

However these services were not universal and most did not offer any

preparation for leaving care (Stone 1990 7)

More recently the LA are duty bound to provide such services

universally Current legislation held in the Children (Leaving Care) Act

2000 states ldquoIt is the duty of the local authority looking after a child to

advise assist and befriend him with a view to promoting his welfare

when they have ceased to look after himrdquo More recent legislation held

10

within the Children and Young Persons Act (2008) along with the

Transitions Guidance for LArsquos to assist with strengthening policy and

practice framework to encourage a lsquolevelling uprsquo of services (Stein

2012 24)

Although these measures are currently in place it is suggested by Dixon

and Baker (2012) that service quality and effectiveness is not consistent

and varies from LA to LA This is not surprising as a survey carried out

in 2011 by the National Care Advisory Service (NCAS) reported high

level of funding cuts to leaving care services (varying from 7 to 15)

making implementation of the Transitions Guidance problematic

Additionally it is apparent housing and accommodation are high on

the list of issues facing care leavers The LArsquos are only duty bound to

provide lsquosuitable accommodationrsquo to 16 and 17 year olds Once a care

leaver reaches 18 the LArsquos are only required to assist with

accommodation advice and support as far as their [young personrsquos]

welfare requires it

Dixon and Baker (2012) continue to identify that although legislation

and advances in support services have increased over the last couple of

decades from knowledge gained through research young care leavers

are still over- represented within the homeless and inadequately

housed With this in mind it is not surprising to find that recent figures

suggest 30 of homeless people have been in the care system (The

Who Carersquos Trust 2014)

This is evident in research compiled by Barnardorsquos (2) (2014) were by

even with the advances in policy the case studies show a chaotic

existence for some young people Several moves from one unsuitable

accommodation to another periods of homelessness and being moved

out of familiar areas [geographically] remains a prominent feature

(Appendix 1)

11

Stone (1990) identified this issue twenty years prior to Dixon

indicating the evidence then showed an over-representation of care

leavers experiencing homelessness The same problem occurs in

literature by Stein and Carey (1986) from their study during 1982

It is noted by Morgan and Lindsey (2012) that there is a need for more

support with accommodation however Munro et al (2011) identified

out of the young people offered extra support the take up was only

about 50 This may be due to wanting to get rid of the lsquobeing in carersquo

label or perhaps a lack of understanding of the extra support offered

There is evidence within the literature that finances present a

significant issue to care leavers (Broad 2005 Munro et al 2011

Stein 2012 54)

Regional differences in the levels of financial support in the form of

leaving care grants is significant ranging from pound400 to pound2000 with the

average payment being pound1000 (Broad 200547) Stein (2012) notes

more recently the leaving care grant still lack in consistency ranging

from zero to pound2000 A survey carried out by the Care Leaverrsquos

Foundation (2009) calculated the young people needed at least pound2500

in order to set up the most basic essentials to live independently [of 150

LArsquos surveyed only one provided this amount]

These financial inconsistencies clearly present challenges not only with

basic needs such as food and housing but also the ability to participate

in leisure activities and higher education This exclusion has a

potentially damaging impact on the health and well-being for young

people who are already vulnerable (Jackson and Cameron 2012)

Furthermore a lack of understanding of financial matters can lead to

long term debt and financial difficulties

ldquoIrsquom still paying off debts now [nine years after living in her first

independent placement] if somebody had have gone through

these bills bills I didnrsquot even know existed Irsquove had to figure

everything out myself Irsquove had to learn the hard way If I had

12

have had support with that it would have changed thingsrdquo (Care

leaver in Barnardorsquos (2) 2014 13)

There is evidence the young peoplersquos voices may not be listened to

The meetings and reviews appear stressful for the young people (Daly

2012) A large proportion felt ignored during meetings (Munro et al

2011 28) and approximately a third felt their lsquoPathway Planrsquo [the LA

is duty bound to have a Pathway Plan to assist in the transition to

independent living] was not adhered to at all It is noted young people

wish to have more control of when they leave care and for the

transition to be more gradual and less rushed (Morgan and Lindsey

2012 Morgan and Lindsey 2006)

Mendes and Moselhuddin (2006 113) note lsquoGraduation from care

needs to become a far more gradual and flexible process based on levels

of maturity and skill development rather than simply agersquo

Furthermore this view is held by the young people involved

ldquoI didnrsquot want to go I still had to go anyway I didnrsquot have a

choiceI was moving out at eighteen end of discussion and the

bit that really pissed me [off] is [that] they chucked me out on

my eighteenth birthdayrdquo (Care leaver in Munro et al 2011 21)

Although the age has been extended to 18 before a young person has to

leave care [unless they are in full time education] an Independent

Reviewing Officer (IRO) in Munro et al (2011 23) states

ldquoWe identified fairly quickly that all it has done is just knock it

back two years erm you know what used to be 16hellipused to have

all these arguments Wersquove shunted it back to 18 but you know

our 18 year olds are just as vulnerable as those 16 year olds

wererdquo

It is clear within the literature the young people fundamentally require

consistency and support from leaving care workers and services to aid

their transition from care to independence (Munro et al 2011 21)

Pride and an inability to ask for help to access services is apparent It

is recognised that many care leavers where reluctant to allow

13

themselves to be cared for The young people were more comfortable

with caring for others This is a result of often having to adopt the role

of carer within their birth family (Samuels and Pryce 2008 1203-

1205) However the literature does not identify other underlying

reasons for the young people having difficulty in accepting help

themselves Reasons such as lack of self- esteem and self- worth due to

the trauma they may have suffered

The transition to independence brings with it feelings of isolation and

loneliness which were connected to losing their carers

ldquoItrsquos hard to think that people you lived with for nine years are

not in your life anymorerdquo

(Care leaver in Morgan 2012 22)

There is evidence these feelings may also be connected to moving away

from friends and professionals changes in social workers and a

transition to adult services

One author notes the young people are living life lsquoin limborsquo (Hiles et

al 2014 6) It is suggested as the young people approach their

eighteenth birthday they are in a state of limbo knowing they may not

be lsquoin carersquo not knowing if they can lsquostay putrsquo with foster carers or

lsquomoving onrsquo to independent accommodation Leaving care workers

involved in Hilesrsquo et al (2014) study describe having ldquoinsufficient time

to prepare some young people for this transitionrdquo especially the young

people who had experienced problems in maintaining stable

placements prior to leaving care

Moreover the system is described as ldquochaotic and complexrdquo forced to

react rather than respond to crisis The cause of this is identified

through poor staff retention and therefore the use of temporary staff

leaving a lack of continuity and consistency (Hiles et al 2014 7)

This research examines policies potentially promoting negative

consequences For example a disengagement of adult mental health

services leading to re-engagement of childrenrsquos services those young

14

people most able being offered more support through education

leaving some young people of low risk but still vulnerable in an isolated

position Also it was noted the young people leaving care to return

home to their birth families for longer than six months lose access to

services when they may actually still be in a vulnerable position (Hiles

et al2014 7)

However Stein (2012 81) suggests there is evidence that most young

people experience good outcomes after leaving care Positive outcomes

are underpinned by the relationship between the young person and the

leaving care teams In addition the evidence points to a positive sense

of well-being when settled and happy even if past or leaving care

experiences have been negative (Wade and Dixon 2006)

In conclusion the literature identifies the inconsistency within leaving

care systems These inconsistencies span throughout the services

available to care leavers from financial to pathway planning and

implementation There is evidence of a somewhat uneven service

delivery despite policy stipulations

There has been an encouraging influx of research in the last fifteen

years or so which should promote a continued improvement in policy

and outcome for this fundamentally vulnerable group in society

There is evident progress within the leaving care system which has

been noted by Stein Wade and Dixon However despite progress

within the system [the introduction of personal advisors Pathway

Plans and specific leaving care teams] and extensive research

informing policy makers the uneven delivery still exists Additionally

care leavers are still disadvantaged compared to their peers even with

the progress that has been made

There is an emphasis on a proactive and preventative approach and a

significant need for placement stability underpinned by systematic and

consistent services As it stands young people are currently being

15

ldquopushed into fighting against a systemrdquo rather than a system that works

together for a positive outcome (Hiles et al 2014 11)

Contingency plans are an important recommendation outlined in recent

research as a necessity to prevent care leavers falling into crisis These

plans need to be in place regardless of assessed lsquoneedrsquo Moreover

access to an independent visitor enabling another supportive

relationship to be formed along with personal advisors would offer

greater assistance when decisions are being made for the young

personrsquos future (Barnardorsquos 2014 23)

Now the research is taking place identifying young peoplersquos

experiences of leaving care it is necessary to listen in order to make

effective changes in policy and practice to achieve better outcomes for

this vulnerable group

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

8

Chapter 2

A Review of the Literature

lsquoIf I had parents to go to I would go to my parents and ask them

for help Or Irsquod be with my parents so the strain wouldnrsquot be so

much But I donrsquot have anybody I donrsquot have anyone to turn torsquo

(Care leaver in Barnardorsquos (1) 2014)

Most parents have positive expectations for their own children and are

there offering full support when their child moves into independence

However children leaving the care system often have to live without

this Lack of parental support clearly contributes to a difficult

transition into independence (Barnardorsquos (1) 2014 1)

As previously noted literature pre 1970 is scarce Here the focus will

be on more recent findings in the consistency of services for care

leavers The service areas are

Housing and accommodation

Finance

Transition

It is noted by Stein (2012) that in the view of young care leavers foster

carers care workers and personal advisors that the young people left

care too young The earlier research notes the same problem Young

care leavers are being moved on from the age of 16 whereas studies

found the median age for leaving home was 22 for men and 20 for

women (Biehal et al 1995 30) In recent times the number of young

people [not in care] still living at home with their parents has risen from

27 million in 1996 to 33 million in 2013 their ages ranging from 20

ndash 34 (ONS 2014) It may be seen therefore how difficult it can be for

9

young people in Local Authority (hereafter LA) care to leave at such a

young age

The National Institute for Health and Care Excellence (NICE 2013)

supported by the NSPCC state that ldquocare leavers move to independence

at their own pacerdquo recognising how difficult this time may be

Currently a new duty has been placed upon LArsquos in England This

implementation named the lsquoStaying Putrsquo scheme came into force in

May 2014 (part 5 Welfare of Children (98) of the Children and

Families Act 2014) and offers young people the chance to stay on in

their foster home where the LA regards this consistent with the welfare

of the young person although this does not include residential care

Additional funding has been allocated for each individual LArsquos for this

However nationally this service is inconsistent In Scotland a similar

scheme has been introduced in 2015 also including residential care

Wales has placed the same duty on their LArsquos through the lsquoWhen Irsquom

Readyrsquo scheme though no additional funding has been allocated (The

Fostering Network 2014)

Housing is a fundamental area of concern for young care leavers

Literature pre 1980rsquos is scarce for all issues however due to this lack of

information a National Survey of Leaving Care Schemes was

conducted in 1989 During this time housing was the most common

service provided to young care leavers After housing other services

were offered such as counselling advocacy training preparation for

leaving care and advice on leisure facilities food and clothing

However these services were not universal and most did not offer any

preparation for leaving care (Stone 1990 7)

More recently the LA are duty bound to provide such services

universally Current legislation held in the Children (Leaving Care) Act

2000 states ldquoIt is the duty of the local authority looking after a child to

advise assist and befriend him with a view to promoting his welfare

when they have ceased to look after himrdquo More recent legislation held

10

within the Children and Young Persons Act (2008) along with the

Transitions Guidance for LArsquos to assist with strengthening policy and

practice framework to encourage a lsquolevelling uprsquo of services (Stein

2012 24)

Although these measures are currently in place it is suggested by Dixon

and Baker (2012) that service quality and effectiveness is not consistent

and varies from LA to LA This is not surprising as a survey carried out

in 2011 by the National Care Advisory Service (NCAS) reported high

level of funding cuts to leaving care services (varying from 7 to 15)

making implementation of the Transitions Guidance problematic

Additionally it is apparent housing and accommodation are high on

the list of issues facing care leavers The LArsquos are only duty bound to

provide lsquosuitable accommodationrsquo to 16 and 17 year olds Once a care

leaver reaches 18 the LArsquos are only required to assist with

accommodation advice and support as far as their [young personrsquos]

welfare requires it

Dixon and Baker (2012) continue to identify that although legislation

and advances in support services have increased over the last couple of

decades from knowledge gained through research young care leavers

are still over- represented within the homeless and inadequately

housed With this in mind it is not surprising to find that recent figures

suggest 30 of homeless people have been in the care system (The

Who Carersquos Trust 2014)

This is evident in research compiled by Barnardorsquos (2) (2014) were by

even with the advances in policy the case studies show a chaotic

existence for some young people Several moves from one unsuitable

accommodation to another periods of homelessness and being moved

out of familiar areas [geographically] remains a prominent feature

(Appendix 1)

11

Stone (1990) identified this issue twenty years prior to Dixon

indicating the evidence then showed an over-representation of care

leavers experiencing homelessness The same problem occurs in

literature by Stein and Carey (1986) from their study during 1982

It is noted by Morgan and Lindsey (2012) that there is a need for more

support with accommodation however Munro et al (2011) identified

out of the young people offered extra support the take up was only

about 50 This may be due to wanting to get rid of the lsquobeing in carersquo

label or perhaps a lack of understanding of the extra support offered

There is evidence within the literature that finances present a

significant issue to care leavers (Broad 2005 Munro et al 2011

Stein 2012 54)

Regional differences in the levels of financial support in the form of

leaving care grants is significant ranging from pound400 to pound2000 with the

average payment being pound1000 (Broad 200547) Stein (2012) notes

more recently the leaving care grant still lack in consistency ranging

from zero to pound2000 A survey carried out by the Care Leaverrsquos

Foundation (2009) calculated the young people needed at least pound2500

in order to set up the most basic essentials to live independently [of 150

LArsquos surveyed only one provided this amount]

These financial inconsistencies clearly present challenges not only with

basic needs such as food and housing but also the ability to participate

in leisure activities and higher education This exclusion has a

potentially damaging impact on the health and well-being for young

people who are already vulnerable (Jackson and Cameron 2012)

Furthermore a lack of understanding of financial matters can lead to

long term debt and financial difficulties

ldquoIrsquom still paying off debts now [nine years after living in her first

independent placement] if somebody had have gone through

these bills bills I didnrsquot even know existed Irsquove had to figure

everything out myself Irsquove had to learn the hard way If I had

12

have had support with that it would have changed thingsrdquo (Care

leaver in Barnardorsquos (2) 2014 13)

There is evidence the young peoplersquos voices may not be listened to

The meetings and reviews appear stressful for the young people (Daly

2012) A large proportion felt ignored during meetings (Munro et al

2011 28) and approximately a third felt their lsquoPathway Planrsquo [the LA

is duty bound to have a Pathway Plan to assist in the transition to

independent living] was not adhered to at all It is noted young people

wish to have more control of when they leave care and for the

transition to be more gradual and less rushed (Morgan and Lindsey

2012 Morgan and Lindsey 2006)

Mendes and Moselhuddin (2006 113) note lsquoGraduation from care

needs to become a far more gradual and flexible process based on levels

of maturity and skill development rather than simply agersquo

Furthermore this view is held by the young people involved

ldquoI didnrsquot want to go I still had to go anyway I didnrsquot have a

choiceI was moving out at eighteen end of discussion and the

bit that really pissed me [off] is [that] they chucked me out on

my eighteenth birthdayrdquo (Care leaver in Munro et al 2011 21)

Although the age has been extended to 18 before a young person has to

leave care [unless they are in full time education] an Independent

Reviewing Officer (IRO) in Munro et al (2011 23) states

ldquoWe identified fairly quickly that all it has done is just knock it

back two years erm you know what used to be 16hellipused to have

all these arguments Wersquove shunted it back to 18 but you know

our 18 year olds are just as vulnerable as those 16 year olds

wererdquo

It is clear within the literature the young people fundamentally require

consistency and support from leaving care workers and services to aid

their transition from care to independence (Munro et al 2011 21)

Pride and an inability to ask for help to access services is apparent It

is recognised that many care leavers where reluctant to allow

13

themselves to be cared for The young people were more comfortable

with caring for others This is a result of often having to adopt the role

of carer within their birth family (Samuels and Pryce 2008 1203-

1205) However the literature does not identify other underlying

reasons for the young people having difficulty in accepting help

themselves Reasons such as lack of self- esteem and self- worth due to

the trauma they may have suffered

The transition to independence brings with it feelings of isolation and

loneliness which were connected to losing their carers

ldquoItrsquos hard to think that people you lived with for nine years are

not in your life anymorerdquo

(Care leaver in Morgan 2012 22)

There is evidence these feelings may also be connected to moving away

from friends and professionals changes in social workers and a

transition to adult services

One author notes the young people are living life lsquoin limborsquo (Hiles et

al 2014 6) It is suggested as the young people approach their

eighteenth birthday they are in a state of limbo knowing they may not

be lsquoin carersquo not knowing if they can lsquostay putrsquo with foster carers or

lsquomoving onrsquo to independent accommodation Leaving care workers

involved in Hilesrsquo et al (2014) study describe having ldquoinsufficient time

to prepare some young people for this transitionrdquo especially the young

people who had experienced problems in maintaining stable

placements prior to leaving care

Moreover the system is described as ldquochaotic and complexrdquo forced to

react rather than respond to crisis The cause of this is identified

through poor staff retention and therefore the use of temporary staff

leaving a lack of continuity and consistency (Hiles et al 2014 7)

This research examines policies potentially promoting negative

consequences For example a disengagement of adult mental health

services leading to re-engagement of childrenrsquos services those young

14

people most able being offered more support through education

leaving some young people of low risk but still vulnerable in an isolated

position Also it was noted the young people leaving care to return

home to their birth families for longer than six months lose access to

services when they may actually still be in a vulnerable position (Hiles

et al2014 7)

However Stein (2012 81) suggests there is evidence that most young

people experience good outcomes after leaving care Positive outcomes

are underpinned by the relationship between the young person and the

leaving care teams In addition the evidence points to a positive sense

of well-being when settled and happy even if past or leaving care

experiences have been negative (Wade and Dixon 2006)

In conclusion the literature identifies the inconsistency within leaving

care systems These inconsistencies span throughout the services

available to care leavers from financial to pathway planning and

implementation There is evidence of a somewhat uneven service

delivery despite policy stipulations

There has been an encouraging influx of research in the last fifteen

years or so which should promote a continued improvement in policy

and outcome for this fundamentally vulnerable group in society

There is evident progress within the leaving care system which has

been noted by Stein Wade and Dixon However despite progress

within the system [the introduction of personal advisors Pathway

Plans and specific leaving care teams] and extensive research

informing policy makers the uneven delivery still exists Additionally

care leavers are still disadvantaged compared to their peers even with

the progress that has been made

There is an emphasis on a proactive and preventative approach and a

significant need for placement stability underpinned by systematic and

consistent services As it stands young people are currently being

15

ldquopushed into fighting against a systemrdquo rather than a system that works

together for a positive outcome (Hiles et al 2014 11)

Contingency plans are an important recommendation outlined in recent

research as a necessity to prevent care leavers falling into crisis These

plans need to be in place regardless of assessed lsquoneedrsquo Moreover

access to an independent visitor enabling another supportive

relationship to be formed along with personal advisors would offer

greater assistance when decisions are being made for the young

personrsquos future (Barnardorsquos 2014 23)

Now the research is taking place identifying young peoplersquos

experiences of leaving care it is necessary to listen in order to make

effective changes in policy and practice to achieve better outcomes for

this vulnerable group

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

9

young people in Local Authority (hereafter LA) care to leave at such a

young age

The National Institute for Health and Care Excellence (NICE 2013)

supported by the NSPCC state that ldquocare leavers move to independence

at their own pacerdquo recognising how difficult this time may be

Currently a new duty has been placed upon LArsquos in England This

implementation named the lsquoStaying Putrsquo scheme came into force in

May 2014 (part 5 Welfare of Children (98) of the Children and

Families Act 2014) and offers young people the chance to stay on in

their foster home where the LA regards this consistent with the welfare

of the young person although this does not include residential care

Additional funding has been allocated for each individual LArsquos for this

However nationally this service is inconsistent In Scotland a similar

scheme has been introduced in 2015 also including residential care

Wales has placed the same duty on their LArsquos through the lsquoWhen Irsquom

Readyrsquo scheme though no additional funding has been allocated (The

Fostering Network 2014)

Housing is a fundamental area of concern for young care leavers

Literature pre 1980rsquos is scarce for all issues however due to this lack of

information a National Survey of Leaving Care Schemes was

conducted in 1989 During this time housing was the most common

service provided to young care leavers After housing other services

were offered such as counselling advocacy training preparation for

leaving care and advice on leisure facilities food and clothing

However these services were not universal and most did not offer any

preparation for leaving care (Stone 1990 7)

More recently the LA are duty bound to provide such services

universally Current legislation held in the Children (Leaving Care) Act

2000 states ldquoIt is the duty of the local authority looking after a child to

advise assist and befriend him with a view to promoting his welfare

when they have ceased to look after himrdquo More recent legislation held

10

within the Children and Young Persons Act (2008) along with the

Transitions Guidance for LArsquos to assist with strengthening policy and

practice framework to encourage a lsquolevelling uprsquo of services (Stein

2012 24)

Although these measures are currently in place it is suggested by Dixon

and Baker (2012) that service quality and effectiveness is not consistent

and varies from LA to LA This is not surprising as a survey carried out

in 2011 by the National Care Advisory Service (NCAS) reported high

level of funding cuts to leaving care services (varying from 7 to 15)

making implementation of the Transitions Guidance problematic

Additionally it is apparent housing and accommodation are high on

the list of issues facing care leavers The LArsquos are only duty bound to

provide lsquosuitable accommodationrsquo to 16 and 17 year olds Once a care

leaver reaches 18 the LArsquos are only required to assist with

accommodation advice and support as far as their [young personrsquos]

welfare requires it

Dixon and Baker (2012) continue to identify that although legislation

and advances in support services have increased over the last couple of

decades from knowledge gained through research young care leavers

are still over- represented within the homeless and inadequately

housed With this in mind it is not surprising to find that recent figures

suggest 30 of homeless people have been in the care system (The

Who Carersquos Trust 2014)

This is evident in research compiled by Barnardorsquos (2) (2014) were by

even with the advances in policy the case studies show a chaotic

existence for some young people Several moves from one unsuitable

accommodation to another periods of homelessness and being moved

out of familiar areas [geographically] remains a prominent feature

(Appendix 1)

11

Stone (1990) identified this issue twenty years prior to Dixon

indicating the evidence then showed an over-representation of care

leavers experiencing homelessness The same problem occurs in

literature by Stein and Carey (1986) from their study during 1982

It is noted by Morgan and Lindsey (2012) that there is a need for more

support with accommodation however Munro et al (2011) identified

out of the young people offered extra support the take up was only

about 50 This may be due to wanting to get rid of the lsquobeing in carersquo

label or perhaps a lack of understanding of the extra support offered

There is evidence within the literature that finances present a

significant issue to care leavers (Broad 2005 Munro et al 2011

Stein 2012 54)

Regional differences in the levels of financial support in the form of

leaving care grants is significant ranging from pound400 to pound2000 with the

average payment being pound1000 (Broad 200547) Stein (2012) notes

more recently the leaving care grant still lack in consistency ranging

from zero to pound2000 A survey carried out by the Care Leaverrsquos

Foundation (2009) calculated the young people needed at least pound2500

in order to set up the most basic essentials to live independently [of 150

LArsquos surveyed only one provided this amount]

These financial inconsistencies clearly present challenges not only with

basic needs such as food and housing but also the ability to participate

in leisure activities and higher education This exclusion has a

potentially damaging impact on the health and well-being for young

people who are already vulnerable (Jackson and Cameron 2012)

Furthermore a lack of understanding of financial matters can lead to

long term debt and financial difficulties

ldquoIrsquom still paying off debts now [nine years after living in her first

independent placement] if somebody had have gone through

these bills bills I didnrsquot even know existed Irsquove had to figure

everything out myself Irsquove had to learn the hard way If I had

12

have had support with that it would have changed thingsrdquo (Care

leaver in Barnardorsquos (2) 2014 13)

There is evidence the young peoplersquos voices may not be listened to

The meetings and reviews appear stressful for the young people (Daly

2012) A large proportion felt ignored during meetings (Munro et al

2011 28) and approximately a third felt their lsquoPathway Planrsquo [the LA

is duty bound to have a Pathway Plan to assist in the transition to

independent living] was not adhered to at all It is noted young people

wish to have more control of when they leave care and for the

transition to be more gradual and less rushed (Morgan and Lindsey

2012 Morgan and Lindsey 2006)

Mendes and Moselhuddin (2006 113) note lsquoGraduation from care

needs to become a far more gradual and flexible process based on levels

of maturity and skill development rather than simply agersquo

Furthermore this view is held by the young people involved

ldquoI didnrsquot want to go I still had to go anyway I didnrsquot have a

choiceI was moving out at eighteen end of discussion and the

bit that really pissed me [off] is [that] they chucked me out on

my eighteenth birthdayrdquo (Care leaver in Munro et al 2011 21)

Although the age has been extended to 18 before a young person has to

leave care [unless they are in full time education] an Independent

Reviewing Officer (IRO) in Munro et al (2011 23) states

ldquoWe identified fairly quickly that all it has done is just knock it

back two years erm you know what used to be 16hellipused to have

all these arguments Wersquove shunted it back to 18 but you know

our 18 year olds are just as vulnerable as those 16 year olds

wererdquo

It is clear within the literature the young people fundamentally require

consistency and support from leaving care workers and services to aid

their transition from care to independence (Munro et al 2011 21)

Pride and an inability to ask for help to access services is apparent It

is recognised that many care leavers where reluctant to allow

13

themselves to be cared for The young people were more comfortable

with caring for others This is a result of often having to adopt the role

of carer within their birth family (Samuels and Pryce 2008 1203-

1205) However the literature does not identify other underlying

reasons for the young people having difficulty in accepting help

themselves Reasons such as lack of self- esteem and self- worth due to

the trauma they may have suffered

The transition to independence brings with it feelings of isolation and

loneliness which were connected to losing their carers

ldquoItrsquos hard to think that people you lived with for nine years are

not in your life anymorerdquo

(Care leaver in Morgan 2012 22)

There is evidence these feelings may also be connected to moving away

from friends and professionals changes in social workers and a

transition to adult services

One author notes the young people are living life lsquoin limborsquo (Hiles et

al 2014 6) It is suggested as the young people approach their

eighteenth birthday they are in a state of limbo knowing they may not

be lsquoin carersquo not knowing if they can lsquostay putrsquo with foster carers or

lsquomoving onrsquo to independent accommodation Leaving care workers

involved in Hilesrsquo et al (2014) study describe having ldquoinsufficient time

to prepare some young people for this transitionrdquo especially the young

people who had experienced problems in maintaining stable

placements prior to leaving care

Moreover the system is described as ldquochaotic and complexrdquo forced to

react rather than respond to crisis The cause of this is identified

through poor staff retention and therefore the use of temporary staff

leaving a lack of continuity and consistency (Hiles et al 2014 7)

This research examines policies potentially promoting negative

consequences For example a disengagement of adult mental health

services leading to re-engagement of childrenrsquos services those young

14

people most able being offered more support through education

leaving some young people of low risk but still vulnerable in an isolated

position Also it was noted the young people leaving care to return

home to their birth families for longer than six months lose access to

services when they may actually still be in a vulnerable position (Hiles

et al2014 7)

However Stein (2012 81) suggests there is evidence that most young

people experience good outcomes after leaving care Positive outcomes

are underpinned by the relationship between the young person and the

leaving care teams In addition the evidence points to a positive sense

of well-being when settled and happy even if past or leaving care

experiences have been negative (Wade and Dixon 2006)

In conclusion the literature identifies the inconsistency within leaving

care systems These inconsistencies span throughout the services

available to care leavers from financial to pathway planning and

implementation There is evidence of a somewhat uneven service

delivery despite policy stipulations

There has been an encouraging influx of research in the last fifteen

years or so which should promote a continued improvement in policy

and outcome for this fundamentally vulnerable group in society

There is evident progress within the leaving care system which has

been noted by Stein Wade and Dixon However despite progress

within the system [the introduction of personal advisors Pathway

Plans and specific leaving care teams] and extensive research

informing policy makers the uneven delivery still exists Additionally

care leavers are still disadvantaged compared to their peers even with

the progress that has been made

There is an emphasis on a proactive and preventative approach and a

significant need for placement stability underpinned by systematic and

consistent services As it stands young people are currently being

15

ldquopushed into fighting against a systemrdquo rather than a system that works

together for a positive outcome (Hiles et al 2014 11)

Contingency plans are an important recommendation outlined in recent

research as a necessity to prevent care leavers falling into crisis These

plans need to be in place regardless of assessed lsquoneedrsquo Moreover

access to an independent visitor enabling another supportive

relationship to be formed along with personal advisors would offer

greater assistance when decisions are being made for the young

personrsquos future (Barnardorsquos 2014 23)

Now the research is taking place identifying young peoplersquos

experiences of leaving care it is necessary to listen in order to make

effective changes in policy and practice to achieve better outcomes for

this vulnerable group

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

10

within the Children and Young Persons Act (2008) along with the

Transitions Guidance for LArsquos to assist with strengthening policy and

practice framework to encourage a lsquolevelling uprsquo of services (Stein

2012 24)

Although these measures are currently in place it is suggested by Dixon

and Baker (2012) that service quality and effectiveness is not consistent

and varies from LA to LA This is not surprising as a survey carried out

in 2011 by the National Care Advisory Service (NCAS) reported high

level of funding cuts to leaving care services (varying from 7 to 15)

making implementation of the Transitions Guidance problematic

Additionally it is apparent housing and accommodation are high on

the list of issues facing care leavers The LArsquos are only duty bound to

provide lsquosuitable accommodationrsquo to 16 and 17 year olds Once a care

leaver reaches 18 the LArsquos are only required to assist with

accommodation advice and support as far as their [young personrsquos]

welfare requires it

Dixon and Baker (2012) continue to identify that although legislation

and advances in support services have increased over the last couple of

decades from knowledge gained through research young care leavers

are still over- represented within the homeless and inadequately

housed With this in mind it is not surprising to find that recent figures

suggest 30 of homeless people have been in the care system (The

Who Carersquos Trust 2014)

This is evident in research compiled by Barnardorsquos (2) (2014) were by

even with the advances in policy the case studies show a chaotic

existence for some young people Several moves from one unsuitable

accommodation to another periods of homelessness and being moved

out of familiar areas [geographically] remains a prominent feature

(Appendix 1)

11

Stone (1990) identified this issue twenty years prior to Dixon

indicating the evidence then showed an over-representation of care

leavers experiencing homelessness The same problem occurs in

literature by Stein and Carey (1986) from their study during 1982

It is noted by Morgan and Lindsey (2012) that there is a need for more

support with accommodation however Munro et al (2011) identified

out of the young people offered extra support the take up was only

about 50 This may be due to wanting to get rid of the lsquobeing in carersquo

label or perhaps a lack of understanding of the extra support offered

There is evidence within the literature that finances present a

significant issue to care leavers (Broad 2005 Munro et al 2011

Stein 2012 54)

Regional differences in the levels of financial support in the form of

leaving care grants is significant ranging from pound400 to pound2000 with the

average payment being pound1000 (Broad 200547) Stein (2012) notes

more recently the leaving care grant still lack in consistency ranging

from zero to pound2000 A survey carried out by the Care Leaverrsquos

Foundation (2009) calculated the young people needed at least pound2500

in order to set up the most basic essentials to live independently [of 150

LArsquos surveyed only one provided this amount]

These financial inconsistencies clearly present challenges not only with

basic needs such as food and housing but also the ability to participate

in leisure activities and higher education This exclusion has a

potentially damaging impact on the health and well-being for young

people who are already vulnerable (Jackson and Cameron 2012)

Furthermore a lack of understanding of financial matters can lead to

long term debt and financial difficulties

ldquoIrsquom still paying off debts now [nine years after living in her first

independent placement] if somebody had have gone through

these bills bills I didnrsquot even know existed Irsquove had to figure

everything out myself Irsquove had to learn the hard way If I had

12

have had support with that it would have changed thingsrdquo (Care

leaver in Barnardorsquos (2) 2014 13)

There is evidence the young peoplersquos voices may not be listened to

The meetings and reviews appear stressful for the young people (Daly

2012) A large proportion felt ignored during meetings (Munro et al

2011 28) and approximately a third felt their lsquoPathway Planrsquo [the LA

is duty bound to have a Pathway Plan to assist in the transition to

independent living] was not adhered to at all It is noted young people

wish to have more control of when they leave care and for the

transition to be more gradual and less rushed (Morgan and Lindsey

2012 Morgan and Lindsey 2006)

Mendes and Moselhuddin (2006 113) note lsquoGraduation from care

needs to become a far more gradual and flexible process based on levels

of maturity and skill development rather than simply agersquo

Furthermore this view is held by the young people involved

ldquoI didnrsquot want to go I still had to go anyway I didnrsquot have a

choiceI was moving out at eighteen end of discussion and the

bit that really pissed me [off] is [that] they chucked me out on

my eighteenth birthdayrdquo (Care leaver in Munro et al 2011 21)

Although the age has been extended to 18 before a young person has to

leave care [unless they are in full time education] an Independent

Reviewing Officer (IRO) in Munro et al (2011 23) states

ldquoWe identified fairly quickly that all it has done is just knock it

back two years erm you know what used to be 16hellipused to have

all these arguments Wersquove shunted it back to 18 but you know

our 18 year olds are just as vulnerable as those 16 year olds

wererdquo

It is clear within the literature the young people fundamentally require

consistency and support from leaving care workers and services to aid

their transition from care to independence (Munro et al 2011 21)

Pride and an inability to ask for help to access services is apparent It

is recognised that many care leavers where reluctant to allow

13

themselves to be cared for The young people were more comfortable

with caring for others This is a result of often having to adopt the role

of carer within their birth family (Samuels and Pryce 2008 1203-

1205) However the literature does not identify other underlying

reasons for the young people having difficulty in accepting help

themselves Reasons such as lack of self- esteem and self- worth due to

the trauma they may have suffered

The transition to independence brings with it feelings of isolation and

loneliness which were connected to losing their carers

ldquoItrsquos hard to think that people you lived with for nine years are

not in your life anymorerdquo

(Care leaver in Morgan 2012 22)

There is evidence these feelings may also be connected to moving away

from friends and professionals changes in social workers and a

transition to adult services

One author notes the young people are living life lsquoin limborsquo (Hiles et

al 2014 6) It is suggested as the young people approach their

eighteenth birthday they are in a state of limbo knowing they may not

be lsquoin carersquo not knowing if they can lsquostay putrsquo with foster carers or

lsquomoving onrsquo to independent accommodation Leaving care workers

involved in Hilesrsquo et al (2014) study describe having ldquoinsufficient time

to prepare some young people for this transitionrdquo especially the young

people who had experienced problems in maintaining stable

placements prior to leaving care

Moreover the system is described as ldquochaotic and complexrdquo forced to

react rather than respond to crisis The cause of this is identified

through poor staff retention and therefore the use of temporary staff

leaving a lack of continuity and consistency (Hiles et al 2014 7)

This research examines policies potentially promoting negative

consequences For example a disengagement of adult mental health

services leading to re-engagement of childrenrsquos services those young

14

people most able being offered more support through education

leaving some young people of low risk but still vulnerable in an isolated

position Also it was noted the young people leaving care to return

home to their birth families for longer than six months lose access to

services when they may actually still be in a vulnerable position (Hiles

et al2014 7)

However Stein (2012 81) suggests there is evidence that most young

people experience good outcomes after leaving care Positive outcomes

are underpinned by the relationship between the young person and the

leaving care teams In addition the evidence points to a positive sense

of well-being when settled and happy even if past or leaving care

experiences have been negative (Wade and Dixon 2006)

In conclusion the literature identifies the inconsistency within leaving

care systems These inconsistencies span throughout the services

available to care leavers from financial to pathway planning and

implementation There is evidence of a somewhat uneven service

delivery despite policy stipulations

There has been an encouraging influx of research in the last fifteen

years or so which should promote a continued improvement in policy

and outcome for this fundamentally vulnerable group in society

There is evident progress within the leaving care system which has

been noted by Stein Wade and Dixon However despite progress

within the system [the introduction of personal advisors Pathway

Plans and specific leaving care teams] and extensive research

informing policy makers the uneven delivery still exists Additionally

care leavers are still disadvantaged compared to their peers even with

the progress that has been made

There is an emphasis on a proactive and preventative approach and a

significant need for placement stability underpinned by systematic and

consistent services As it stands young people are currently being

15

ldquopushed into fighting against a systemrdquo rather than a system that works

together for a positive outcome (Hiles et al 2014 11)

Contingency plans are an important recommendation outlined in recent

research as a necessity to prevent care leavers falling into crisis These

plans need to be in place regardless of assessed lsquoneedrsquo Moreover

access to an independent visitor enabling another supportive

relationship to be formed along with personal advisors would offer

greater assistance when decisions are being made for the young

personrsquos future (Barnardorsquos 2014 23)

Now the research is taking place identifying young peoplersquos

experiences of leaving care it is necessary to listen in order to make

effective changes in policy and practice to achieve better outcomes for

this vulnerable group

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

11

Stone (1990) identified this issue twenty years prior to Dixon

indicating the evidence then showed an over-representation of care

leavers experiencing homelessness The same problem occurs in

literature by Stein and Carey (1986) from their study during 1982

It is noted by Morgan and Lindsey (2012) that there is a need for more

support with accommodation however Munro et al (2011) identified

out of the young people offered extra support the take up was only

about 50 This may be due to wanting to get rid of the lsquobeing in carersquo

label or perhaps a lack of understanding of the extra support offered

There is evidence within the literature that finances present a

significant issue to care leavers (Broad 2005 Munro et al 2011

Stein 2012 54)

Regional differences in the levels of financial support in the form of

leaving care grants is significant ranging from pound400 to pound2000 with the

average payment being pound1000 (Broad 200547) Stein (2012) notes

more recently the leaving care grant still lack in consistency ranging

from zero to pound2000 A survey carried out by the Care Leaverrsquos

Foundation (2009) calculated the young people needed at least pound2500

in order to set up the most basic essentials to live independently [of 150

LArsquos surveyed only one provided this amount]

These financial inconsistencies clearly present challenges not only with

basic needs such as food and housing but also the ability to participate

in leisure activities and higher education This exclusion has a

potentially damaging impact on the health and well-being for young

people who are already vulnerable (Jackson and Cameron 2012)

Furthermore a lack of understanding of financial matters can lead to

long term debt and financial difficulties

ldquoIrsquom still paying off debts now [nine years after living in her first

independent placement] if somebody had have gone through

these bills bills I didnrsquot even know existed Irsquove had to figure

everything out myself Irsquove had to learn the hard way If I had

12

have had support with that it would have changed thingsrdquo (Care

leaver in Barnardorsquos (2) 2014 13)

There is evidence the young peoplersquos voices may not be listened to

The meetings and reviews appear stressful for the young people (Daly

2012) A large proportion felt ignored during meetings (Munro et al

2011 28) and approximately a third felt their lsquoPathway Planrsquo [the LA

is duty bound to have a Pathway Plan to assist in the transition to

independent living] was not adhered to at all It is noted young people

wish to have more control of when they leave care and for the

transition to be more gradual and less rushed (Morgan and Lindsey

2012 Morgan and Lindsey 2006)

Mendes and Moselhuddin (2006 113) note lsquoGraduation from care

needs to become a far more gradual and flexible process based on levels

of maturity and skill development rather than simply agersquo

Furthermore this view is held by the young people involved

ldquoI didnrsquot want to go I still had to go anyway I didnrsquot have a

choiceI was moving out at eighteen end of discussion and the

bit that really pissed me [off] is [that] they chucked me out on

my eighteenth birthdayrdquo (Care leaver in Munro et al 2011 21)

Although the age has been extended to 18 before a young person has to

leave care [unless they are in full time education] an Independent

Reviewing Officer (IRO) in Munro et al (2011 23) states

ldquoWe identified fairly quickly that all it has done is just knock it

back two years erm you know what used to be 16hellipused to have

all these arguments Wersquove shunted it back to 18 but you know

our 18 year olds are just as vulnerable as those 16 year olds

wererdquo

It is clear within the literature the young people fundamentally require

consistency and support from leaving care workers and services to aid

their transition from care to independence (Munro et al 2011 21)

Pride and an inability to ask for help to access services is apparent It

is recognised that many care leavers where reluctant to allow

13

themselves to be cared for The young people were more comfortable

with caring for others This is a result of often having to adopt the role

of carer within their birth family (Samuels and Pryce 2008 1203-

1205) However the literature does not identify other underlying

reasons for the young people having difficulty in accepting help

themselves Reasons such as lack of self- esteem and self- worth due to

the trauma they may have suffered

The transition to independence brings with it feelings of isolation and

loneliness which were connected to losing their carers

ldquoItrsquos hard to think that people you lived with for nine years are

not in your life anymorerdquo

(Care leaver in Morgan 2012 22)

There is evidence these feelings may also be connected to moving away

from friends and professionals changes in social workers and a

transition to adult services

One author notes the young people are living life lsquoin limborsquo (Hiles et

al 2014 6) It is suggested as the young people approach their

eighteenth birthday they are in a state of limbo knowing they may not

be lsquoin carersquo not knowing if they can lsquostay putrsquo with foster carers or

lsquomoving onrsquo to independent accommodation Leaving care workers

involved in Hilesrsquo et al (2014) study describe having ldquoinsufficient time

to prepare some young people for this transitionrdquo especially the young

people who had experienced problems in maintaining stable

placements prior to leaving care

Moreover the system is described as ldquochaotic and complexrdquo forced to

react rather than respond to crisis The cause of this is identified

through poor staff retention and therefore the use of temporary staff

leaving a lack of continuity and consistency (Hiles et al 2014 7)

This research examines policies potentially promoting negative

consequences For example a disengagement of adult mental health

services leading to re-engagement of childrenrsquos services those young

14

people most able being offered more support through education

leaving some young people of low risk but still vulnerable in an isolated

position Also it was noted the young people leaving care to return

home to their birth families for longer than six months lose access to

services when they may actually still be in a vulnerable position (Hiles

et al2014 7)

However Stein (2012 81) suggests there is evidence that most young

people experience good outcomes after leaving care Positive outcomes

are underpinned by the relationship between the young person and the

leaving care teams In addition the evidence points to a positive sense

of well-being when settled and happy even if past or leaving care

experiences have been negative (Wade and Dixon 2006)

In conclusion the literature identifies the inconsistency within leaving

care systems These inconsistencies span throughout the services

available to care leavers from financial to pathway planning and

implementation There is evidence of a somewhat uneven service

delivery despite policy stipulations

There has been an encouraging influx of research in the last fifteen

years or so which should promote a continued improvement in policy

and outcome for this fundamentally vulnerable group in society

There is evident progress within the leaving care system which has

been noted by Stein Wade and Dixon However despite progress

within the system [the introduction of personal advisors Pathway

Plans and specific leaving care teams] and extensive research

informing policy makers the uneven delivery still exists Additionally

care leavers are still disadvantaged compared to their peers even with

the progress that has been made

There is an emphasis on a proactive and preventative approach and a

significant need for placement stability underpinned by systematic and

consistent services As it stands young people are currently being

15

ldquopushed into fighting against a systemrdquo rather than a system that works

together for a positive outcome (Hiles et al 2014 11)

Contingency plans are an important recommendation outlined in recent

research as a necessity to prevent care leavers falling into crisis These

plans need to be in place regardless of assessed lsquoneedrsquo Moreover

access to an independent visitor enabling another supportive

relationship to be formed along with personal advisors would offer

greater assistance when decisions are being made for the young

personrsquos future (Barnardorsquos 2014 23)

Now the research is taking place identifying young peoplersquos

experiences of leaving care it is necessary to listen in order to make

effective changes in policy and practice to achieve better outcomes for

this vulnerable group

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

12

have had support with that it would have changed thingsrdquo (Care

leaver in Barnardorsquos (2) 2014 13)

There is evidence the young peoplersquos voices may not be listened to

The meetings and reviews appear stressful for the young people (Daly

2012) A large proportion felt ignored during meetings (Munro et al

2011 28) and approximately a third felt their lsquoPathway Planrsquo [the LA

is duty bound to have a Pathway Plan to assist in the transition to

independent living] was not adhered to at all It is noted young people

wish to have more control of when they leave care and for the

transition to be more gradual and less rushed (Morgan and Lindsey

2012 Morgan and Lindsey 2006)

Mendes and Moselhuddin (2006 113) note lsquoGraduation from care

needs to become a far more gradual and flexible process based on levels

of maturity and skill development rather than simply agersquo

Furthermore this view is held by the young people involved

ldquoI didnrsquot want to go I still had to go anyway I didnrsquot have a

choiceI was moving out at eighteen end of discussion and the

bit that really pissed me [off] is [that] they chucked me out on

my eighteenth birthdayrdquo (Care leaver in Munro et al 2011 21)

Although the age has been extended to 18 before a young person has to

leave care [unless they are in full time education] an Independent

Reviewing Officer (IRO) in Munro et al (2011 23) states

ldquoWe identified fairly quickly that all it has done is just knock it

back two years erm you know what used to be 16hellipused to have

all these arguments Wersquove shunted it back to 18 but you know

our 18 year olds are just as vulnerable as those 16 year olds

wererdquo

It is clear within the literature the young people fundamentally require

consistency and support from leaving care workers and services to aid

their transition from care to independence (Munro et al 2011 21)

Pride and an inability to ask for help to access services is apparent It

is recognised that many care leavers where reluctant to allow

13

themselves to be cared for The young people were more comfortable

with caring for others This is a result of often having to adopt the role

of carer within their birth family (Samuels and Pryce 2008 1203-

1205) However the literature does not identify other underlying

reasons for the young people having difficulty in accepting help

themselves Reasons such as lack of self- esteem and self- worth due to

the trauma they may have suffered

The transition to independence brings with it feelings of isolation and

loneliness which were connected to losing their carers

ldquoItrsquos hard to think that people you lived with for nine years are

not in your life anymorerdquo

(Care leaver in Morgan 2012 22)

There is evidence these feelings may also be connected to moving away

from friends and professionals changes in social workers and a

transition to adult services

One author notes the young people are living life lsquoin limborsquo (Hiles et

al 2014 6) It is suggested as the young people approach their

eighteenth birthday they are in a state of limbo knowing they may not

be lsquoin carersquo not knowing if they can lsquostay putrsquo with foster carers or

lsquomoving onrsquo to independent accommodation Leaving care workers

involved in Hilesrsquo et al (2014) study describe having ldquoinsufficient time

to prepare some young people for this transitionrdquo especially the young

people who had experienced problems in maintaining stable

placements prior to leaving care

Moreover the system is described as ldquochaotic and complexrdquo forced to

react rather than respond to crisis The cause of this is identified

through poor staff retention and therefore the use of temporary staff

leaving a lack of continuity and consistency (Hiles et al 2014 7)

This research examines policies potentially promoting negative

consequences For example a disengagement of adult mental health

services leading to re-engagement of childrenrsquos services those young

14

people most able being offered more support through education

leaving some young people of low risk but still vulnerable in an isolated

position Also it was noted the young people leaving care to return

home to their birth families for longer than six months lose access to

services when they may actually still be in a vulnerable position (Hiles

et al2014 7)

However Stein (2012 81) suggests there is evidence that most young

people experience good outcomes after leaving care Positive outcomes

are underpinned by the relationship between the young person and the

leaving care teams In addition the evidence points to a positive sense

of well-being when settled and happy even if past or leaving care

experiences have been negative (Wade and Dixon 2006)

In conclusion the literature identifies the inconsistency within leaving

care systems These inconsistencies span throughout the services

available to care leavers from financial to pathway planning and

implementation There is evidence of a somewhat uneven service

delivery despite policy stipulations

There has been an encouraging influx of research in the last fifteen

years or so which should promote a continued improvement in policy

and outcome for this fundamentally vulnerable group in society

There is evident progress within the leaving care system which has

been noted by Stein Wade and Dixon However despite progress

within the system [the introduction of personal advisors Pathway

Plans and specific leaving care teams] and extensive research

informing policy makers the uneven delivery still exists Additionally

care leavers are still disadvantaged compared to their peers even with

the progress that has been made

There is an emphasis on a proactive and preventative approach and a

significant need for placement stability underpinned by systematic and

consistent services As it stands young people are currently being

15

ldquopushed into fighting against a systemrdquo rather than a system that works

together for a positive outcome (Hiles et al 2014 11)

Contingency plans are an important recommendation outlined in recent

research as a necessity to prevent care leavers falling into crisis These

plans need to be in place regardless of assessed lsquoneedrsquo Moreover

access to an independent visitor enabling another supportive

relationship to be formed along with personal advisors would offer

greater assistance when decisions are being made for the young

personrsquos future (Barnardorsquos 2014 23)

Now the research is taking place identifying young peoplersquos

experiences of leaving care it is necessary to listen in order to make

effective changes in policy and practice to achieve better outcomes for

this vulnerable group

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

13

themselves to be cared for The young people were more comfortable

with caring for others This is a result of often having to adopt the role

of carer within their birth family (Samuels and Pryce 2008 1203-

1205) However the literature does not identify other underlying

reasons for the young people having difficulty in accepting help

themselves Reasons such as lack of self- esteem and self- worth due to

the trauma they may have suffered

The transition to independence brings with it feelings of isolation and

loneliness which were connected to losing their carers

ldquoItrsquos hard to think that people you lived with for nine years are

not in your life anymorerdquo

(Care leaver in Morgan 2012 22)

There is evidence these feelings may also be connected to moving away

from friends and professionals changes in social workers and a

transition to adult services

One author notes the young people are living life lsquoin limborsquo (Hiles et

al 2014 6) It is suggested as the young people approach their

eighteenth birthday they are in a state of limbo knowing they may not

be lsquoin carersquo not knowing if they can lsquostay putrsquo with foster carers or

lsquomoving onrsquo to independent accommodation Leaving care workers

involved in Hilesrsquo et al (2014) study describe having ldquoinsufficient time

to prepare some young people for this transitionrdquo especially the young

people who had experienced problems in maintaining stable

placements prior to leaving care

Moreover the system is described as ldquochaotic and complexrdquo forced to

react rather than respond to crisis The cause of this is identified

through poor staff retention and therefore the use of temporary staff

leaving a lack of continuity and consistency (Hiles et al 2014 7)

This research examines policies potentially promoting negative

consequences For example a disengagement of adult mental health

services leading to re-engagement of childrenrsquos services those young

14

people most able being offered more support through education

leaving some young people of low risk but still vulnerable in an isolated

position Also it was noted the young people leaving care to return

home to their birth families for longer than six months lose access to

services when they may actually still be in a vulnerable position (Hiles

et al2014 7)

However Stein (2012 81) suggests there is evidence that most young

people experience good outcomes after leaving care Positive outcomes

are underpinned by the relationship between the young person and the

leaving care teams In addition the evidence points to a positive sense

of well-being when settled and happy even if past or leaving care

experiences have been negative (Wade and Dixon 2006)

In conclusion the literature identifies the inconsistency within leaving

care systems These inconsistencies span throughout the services

available to care leavers from financial to pathway planning and

implementation There is evidence of a somewhat uneven service

delivery despite policy stipulations

There has been an encouraging influx of research in the last fifteen

years or so which should promote a continued improvement in policy

and outcome for this fundamentally vulnerable group in society

There is evident progress within the leaving care system which has

been noted by Stein Wade and Dixon However despite progress

within the system [the introduction of personal advisors Pathway

Plans and specific leaving care teams] and extensive research

informing policy makers the uneven delivery still exists Additionally

care leavers are still disadvantaged compared to their peers even with

the progress that has been made

There is an emphasis on a proactive and preventative approach and a

significant need for placement stability underpinned by systematic and

consistent services As it stands young people are currently being

15

ldquopushed into fighting against a systemrdquo rather than a system that works

together for a positive outcome (Hiles et al 2014 11)

Contingency plans are an important recommendation outlined in recent

research as a necessity to prevent care leavers falling into crisis These

plans need to be in place regardless of assessed lsquoneedrsquo Moreover

access to an independent visitor enabling another supportive

relationship to be formed along with personal advisors would offer

greater assistance when decisions are being made for the young

personrsquos future (Barnardorsquos 2014 23)

Now the research is taking place identifying young peoplersquos

experiences of leaving care it is necessary to listen in order to make

effective changes in policy and practice to achieve better outcomes for

this vulnerable group

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

14

people most able being offered more support through education

leaving some young people of low risk but still vulnerable in an isolated

position Also it was noted the young people leaving care to return

home to their birth families for longer than six months lose access to

services when they may actually still be in a vulnerable position (Hiles

et al2014 7)

However Stein (2012 81) suggests there is evidence that most young

people experience good outcomes after leaving care Positive outcomes

are underpinned by the relationship between the young person and the

leaving care teams In addition the evidence points to a positive sense

of well-being when settled and happy even if past or leaving care

experiences have been negative (Wade and Dixon 2006)

In conclusion the literature identifies the inconsistency within leaving

care systems These inconsistencies span throughout the services

available to care leavers from financial to pathway planning and

implementation There is evidence of a somewhat uneven service

delivery despite policy stipulations

There has been an encouraging influx of research in the last fifteen

years or so which should promote a continued improvement in policy

and outcome for this fundamentally vulnerable group in society

There is evident progress within the leaving care system which has

been noted by Stein Wade and Dixon However despite progress

within the system [the introduction of personal advisors Pathway

Plans and specific leaving care teams] and extensive research

informing policy makers the uneven delivery still exists Additionally

care leavers are still disadvantaged compared to their peers even with

the progress that has been made

There is an emphasis on a proactive and preventative approach and a

significant need for placement stability underpinned by systematic and

consistent services As it stands young people are currently being

15

ldquopushed into fighting against a systemrdquo rather than a system that works

together for a positive outcome (Hiles et al 2014 11)

Contingency plans are an important recommendation outlined in recent

research as a necessity to prevent care leavers falling into crisis These

plans need to be in place regardless of assessed lsquoneedrsquo Moreover

access to an independent visitor enabling another supportive

relationship to be formed along with personal advisors would offer

greater assistance when decisions are being made for the young

personrsquos future (Barnardorsquos 2014 23)

Now the research is taking place identifying young peoplersquos

experiences of leaving care it is necessary to listen in order to make

effective changes in policy and practice to achieve better outcomes for

this vulnerable group

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

15

ldquopushed into fighting against a systemrdquo rather than a system that works

together for a positive outcome (Hiles et al 2014 11)

Contingency plans are an important recommendation outlined in recent

research as a necessity to prevent care leavers falling into crisis These

plans need to be in place regardless of assessed lsquoneedrsquo Moreover

access to an independent visitor enabling another supportive

relationship to be formed along with personal advisors would offer

greater assistance when decisions are being made for the young

personrsquos future (Barnardorsquos 2014 23)

Now the research is taking place identifying young peoplersquos

experiences of leaving care it is necessary to listen in order to make

effective changes in policy and practice to achieve better outcomes for

this vulnerable group

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

16

Chapter 3

Methodology

This research is of a qualitative nature The methodology included an

online questionnaire (n=50) to identify common themes followed up

by face- to-face interviews (n=10) for more detailed data However

the response rate for the online questionnaire was poor with only ten

returned The interviews adopted a semi-structured approach to allow

for participants to talk freely about their experiences The author used

an interview guide to achieve this containing the areas of interest

rather than a structured set of interview questions (Appendix i)

Support for this project was received from a local fostering group and

that provided some resources for sourcing the sample

Initially the author had positive support from social workers and

professionals within the leaving care sector Although actual response

from local authority was limited only one out of four who received

the research pack responded Participation by third sector

organisations was similarly positive however commitment to be

interviewed could not be obtained

The sample consisted of four young people aged 16 plus involved in

the leaving care process and four professionals working within the

leaving care system Geographically broken down to Gwynedd

Conwy Telford and Wrekin and Caerphilly

The interviews took place either in their own home place of work or

a mutually comfortable setting agreed by the participants The

researcher offered anonymity to the participants and the interviews

were handled sensitively keeping the vulnerability of some of the

sample in mind

The interviews were concerned with

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

17

Whether the young person feels supported

Whether the resources are accessible and the young person is made

aware of everything available

Whether the duties of the LA are being met from both points of view

(professional and young person)

The view of the use of BampB accommodation

Whether the leaving care process helps or hinders their future

How universal are the services provided

Is there enough financial assistance available resources and financial

advice

Are the young peoplersquos voices heard

Has policy and practice improved over the last couple of decades

The interviews were voice recorded with consent and a diary was kept

for all fieldwork undertaken The study adopted a grounded

theoretical approach and the data subjected to content analysis

a) Ethical Consideration

The sample where given thorough information regarding the study in

order for them to make an informed choice whether to participate or

not Confidentiality was adhered to and any disclosures were handled

appropriately and with ethical consideration in mind The researcher

was aware of the vulnerability of the young people and the sensitive

nature of the study

Due to the sensitivity of the research the data gathered was securely

kept in a locked filing cabinet (paper) and secure password protected

file (electronic) and destroyed on completion of the study

Permission to undertake this study was granted after a thorough and

detailed ethics application

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

18

Chapter 4

Findings

a) Transition

ldquoYou wouldnrsquot dream of kicking your own kids out so young

They give these kids to much artificial support to encourage

them to leaverdquo (Foster carer)

This is clearly reverberated in the literature particularly in the

Barnardorsquos report Someone to Care Experiences of leaving care

(2014) which highlights the plight of young care leavers and the lack

of parental support contributing to difficult transitions In addition it

has already been identified in the literature review that for children not

in care the leaving home age ranges from 20- 34 (ONS 2014)

Communication for this specific young person appeared to be lacking

ldquoWell my social worker didnrsquot really talk about what

would happenhelliphellipthey were like lsquooh yeah you will get

your own placersquo hellipbut not what will happen afterhellipso I

rushed into it thinking it was a good idea I think they

said it too soon to me if they wouldnrsquot have said it I

would still be here (foster care) for a while So I rushed

into it I had just left school maybe it would be

better at 17 or 18rdquo (Care leaver A currently aged 18 LA

Gwynedd)

This statement by a young care leaver is echoed by a set of foster carers

It was found that by giving the young person an offer of their own flat

complete with some furnishings of their choice seemed to sway their

decision whether or not to leave This was especially the case for 16

year olds

These foster carers stated that their young person had indicated they

wanted to stay in care at least until 18 years old however with a change

of social worker came a change of heart

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

19

ldquoYou see we had talked about when he would leave but he said

lsquono I wouldnrsquot like to be in a house on my ownrsquo He wanted to

stay when he first came to us he was having nightmares hellip he is

still having problems now He wonrsquot sleep in his bedroom now

he sleeps in the living room with the TV on They (Social

Services team) didnrsquot take any of this into account When his

social worker changed to the 16+ one he was like lsquooh well I

might move outrsquordquo

This particular interview found the process of leaving care very hasty

with very little preparation The young person in question was

identified by the LA as vulnerable however according to the foster

carers the process continued regardless

ldquoHe suddenly was kicking against us The social worker said he

was a troubled child he just said he had issues We know about

confidentiality but we were part of the care package but they (16

+ team) would not involve us There was no communication

between the 16+ team and us It was like he is an adult and thatrsquos

thatrdquo

The foster carers suggested the young person was being coached to

leave There was a sudden decision made and the young person went

lsquooff the railsrsquo It seemed a place was offered to enable them to move

out and that was when reality hit

ldquohelliphe drank a bottle of vodka and was talking about suicide He

suffers from low self- esteem There was no help for that I think

this was brought on by them (16+ team) telling him there was a

space somewhere He kept saying lsquoIrsquom so sorryrsquo It was reality

he had been going through the motions before thisrdquo

This illustrates a terrible indictment of a rushed transition Added to

the trauma which led the young person to being in care this does not

present a positive outcome

The findings for this report support the previous literature Steinrsquos

(2012) extensive research in this area continually reveals hasty

transitions from care to independence

Legislation relating to young people leaving care states

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

20

lsquoIt is the duty of the local authority looking after a child to advise assist

and befriend him with a view to promoting his welfare when they have

ceased to look after himrsquo (19A Children (Leaving Care) Act 2000)

Indicating a rushed transition should not be promoted rather that it

should be a much slower process with time being given to prepare fully

for independence

In contrast one participant going through the leaving care system in

2004 and within a different LA (Telford and Wrekin) had a much more

positive experience

ldquoI left care at 18 I was in a childrenrsquos homehellipfoster care didnrsquot

suit me I was always running away I had brilliant support all

the way until I was 25 I went to supported living and I had help

to learn to cook and manage money and bills Then I had help to

find a flat and become independent I even still see some of the

people who supported me when I go back to Telfordrdquo (Care

leaver B aged 30)

This indicates a far more gradual transition to independence

Unfortunately the majority of the data within this study points more

often to the former rushed transition

ldquoI turned 18 and it was like hellipyoursquore an adult now I was in a

hostel then a homeless place that was scary there were all sorts

there I liked the place in Bala it was good there But when I

turned 18 I couldnrsquot stay It was like one minute I had everything

done for me then nothingrdquo (Care leaver C currently aged 19

LA Conwy)

This young person moved into private care and currently resides in a

mixed home for people with mental health problems He has Attention

Deficit Hyperactivity Disorder (ADHD) (Appendix 2)

The research suggests past history is not always taken into account

when assessing the suitability of independent living for these young

people

ldquoHis issues should have been recognised then he would not have

been offered to leave at 16 The social worker had not made the

effort to look at his historyrdquo (Foster carer)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

21

Taking the young peoplersquos history and circumstances into account

could offer a more positive outcome than simply their age

ldquoThey had eight files on me from when I was little My foster

carer nagged them until she was able to have them to read

Then she knew what had happenedrdquo (Care leaver D currently

aged 19 LA Caerphilly)

It is recognised in policy that the system still does not seem to perform

as it should The Care Leaversrsquo Strategy (2013) identifies the abrupt

transition experienced by these young people in its opening paragraphs

However the report fails to include lsquotransitionrsquo as a fundamental area

of concern Instead usual sections such as education employment

housing and so on are highlighted as lsquobroad areas of concernrsquo It would

seem the young peoplersquos emotional well- being which is clearly

affected by the hasty exit from care does not hold the same

governmental importance

Additionally it may be prudent to add at this point that Edward

Timpson Minister of State for Children and Families was contacted

for the purpose of this research Mr Timpson was involved in the

development of the Care Leaversrsquo Strategy and in addition to this grew

up with looked after children as his parents were foster carers There

was no response to the research (Appendix 3)

A fundamental issue surrounding rushed transitions is the view these

young people are now adults although they are still virtually as

vulnerable as children The serious case review into the murder of

Jayden Parkinson highlights this Jayden was 17 and considered an

adult by services and practitioners The review stated

lsquoToo often [Parkinson] was viewed as a difficult young person and not

recognised as a child in need of safeguarding Professionals and

agencies did not always fully understand the serious nature of the risks

to [her] or were too quick to be reassured that she would be able to

protect herself from those risksrsquo (Oxfordshire Safeguarding Children

Board 2016 62)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

22

It would seem important for policy to start considering the young

personrsquos position in life rather than their age as an indicator of their

readiness for independence

b) Housing and Accommodation

The participants were asked about their experiences with housing when

leaving care Questions about choice suitability and geographic area

where considered Consistent with past research and previous literature

(Barnardorsquos [2] 2014) issues where found in all these areas

Once again the Care Leaversrsquo Strategy recognises these issues found

in research past and present surrounding housing

lsquoCare leavers are a vulnerable group of young adults who have

particular needs in relation to housing and homelessness Around a

quarter of those living on the streets have a background in care The

majority of care leavers leave care by the age of 18 and rising demands

on social housing and other accommodation is making it increasingly

difficult for young people to find suitable accommodation as they enter

adulthoodrsquo (2013 14)

These findings suggest a significant risk of homelessness for these

participants In actual fact without the charity Gisda (Appendix 4) the

options for young people in Gwynedd would be seriously limited

It has already been noted that nationally care leavers are overly

represented within the homeless and inadequately housed with 30 of

homeless people formerly being in care (Who Cares Trust 2014)

When considering choice Bed and Breakfast (BampB) accommodation

was not always used but choice did appear limited Geographical

consideration and suitable match for the young person does not always

seem possible

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

23

ldquoWell there was a bit of choice but it was mainly Caernarfon I

had shared housing with Gisda not BampB and then I got my flat

with Gisdardquo (Care leaver A)

Once again this is echoed by foster carers

ldquoHe moved into shared housing for two weekshelliphe was

terrified he slit his mattress to hide his laptop in it There wasnrsquot

much choice had he had the choice to stay in Penygroes he

would have He has been trying to get back here ever since He

is afraid in Caernarfon He has two brothers living there which

he has had problems with and his brotherrsquos friend He is quite a

fearful child and finds living in Caernarfon stressful When he

gets home to his flat from here he doesnrsquot go outrdquo

This does not seem to be reserved to just this LA either

ldquoI was in a hostel but I kicked off so was in a BampB for a couple

of days They said I was smoking in the room so I got kicked out

of therehellipdidnrsquot even get all my stuff Then my social worker

said I could stay with my mum for the weekend cause my sister

wasnrsquot there But then she came backhellipshe winds me uphellipI

kicked off but hit the window hellipI wanted to hit her So my mum

called the police helliprdquo (Care leaver D)

There appears to be insecurity surrounding housing Care leaver D

went on to lsquosofa surfrsquo and then went back to his motherrsquos even though

that episode left him with a criminal damage conviction [brought on by

his mother] His support seemed to end there

Care leaver A was asked if the flat with Gisda was permanent

ldquoNo itrsquos two years temporary I have three months leftrdquo

When asked what happens then

ldquoI think Irsquom on the top the list with housing so Irsquove gotta hope

something comes up or I will probably end up in BampB The thing

is once you have had the flat and you get to 18 you sort of go in

circles so you can be put in BampB Itrsquos a worry being three months

awayhelliphellipI keep phoning themrdquo

This was reiterated by the foster carers

ldquoI canrsquot see Gisda putting him out on the street but they have to

give him notice of eviction in order for the council to do

something about it Sometimes he stays with his cousin or his

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

24

dad if there is any room But he will probably have to lsquosofa

surfrsquohellip thatrsquos what his brother had to do That will put him on

the list he has to be homeless to get helprdquo

The question of supported living was raised for this particular

participant the foster carer replied

ldquoThere doesnrsquot seem to be any here But for him it wouldnrsquot

work he would worry about the other people there He is afraid

of people that do drugs there is a family history with drugsrdquo

However a neighbouring LA had positive experiences with supported

living Their providers of supported living and BampB accommodation

had been the same for over ten years which would indicate some

consistency The manager for the leaving care team for this LA

commented that the staff at the BampBrsquos offered a sympathetic approach

with more of a lsquofamily feelrsquo to the service Furthermore this LA had

long term relationships with landlords who specifically offered

tenancies to care leavers This demonstrates the importance of

consistency Although BampB may not seem ideal if there are good long

term relationships with service providers this can offer a positive short

term solution

Likewise care leaver B had the right experience with their

accommodation

ldquoI went from the childrenrsquos home to supported lodgings and after

that had my own flat The supported lodgings really helped me

learn how to look after myself I did go off the rails a bit when I

was about 23 but because of my support I sorted myself outrdquo

Though care leaver C will be moving once again in the near future It

seems his ADHD leaves the LA at a loss as to where this young person

should live The condition necessitates extra support to enable him to

manage independence

ldquoI like where I am But the funding for here runs out soon They

(social services) have said there is a new place in Abergele I

think itrsquos a shared house If I turn that down though I will make

myself intentionally homeless so there is no choicerdquo

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

25

This young personrsquos worries where resonated by his mother too He

entered care under Section 20 of the Children Act 1989 (Appendix 5)

as his mother was unable to manage his behaviour Her understanding

was that he would be care for until he reached 21 It may be argued he

is being cared for and is continuing to be Yet as stated earlier a mental

health facility may not be seen as ideal equally shared housing may

not offer the level of support required for an eventual and positive

departure from care

Regrettably national statistics have shown a rise of 108 per cent in the

number of young people in unsuitable accommodation from 1660 in

2014 to 1840 in 2015 This is reiterated by Carrie Wilson young

peoplersquos project co-ordinator at The Care Leaversrsquo Association

ldquoOn a basic level [BampBs] are seen as a ldquosaferdquo place but those young

people do not feel safe regardless of the interventions put into place to

support a young person if they do not feel like they have personal

safety at the end of the day their coping mechanisms start to break

downrdquo (Puffett and Orfford 2016)

The experiences of these participants suggests a chaotic existence in

line with the research undertaken by Barnardorsquos (2) (2014)

This does not present an improvement of services Government

statistics from 2011 suggested only 17 local authorities were housing

100 per cent of care leavers in suitable accommodation (Higgs 2011)

These are dismal statistics as research conducted by Stein (201280)

found from 2004 to 2009 the numbers of care leavers in suitable

accommodation had risen from 77 to 90 The statistics from 2011

could correlate with the age of austerity and social service budget cuts

(Stein 2012 24)

In Gwynedd since 2013 there has been the lsquoWhen I Am Readyrsquo scheme

available and similar to Englandrsquos lsquoStaying Putrsquo scheme (Appendix 6

amp 7) These schemes are now available throughout Wales and offer the

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

26

young person an opportunity to stay within their foster care placement

until the age of 21 or beyond if they are engaged in education or

training which started before their twenty first birthday This extended

stay may last until completion of the education or training on the

condition it is set out in the young personrsquos pathway plan The

opportunity offers a more gradual transition similar to young people in

the general population (Gwynedd Council 2014)

However there was no evidence of this scheme to have been offered to

care leaver A Care leavers C and D appear to have merely been

managed until the LA no longer had the duty of care

c) Pathway Plans Personal Advisors and Social

Workers

ldquoI donrsquot remember how many social workers I had hellipmaybe 14

or 15 by the time I left care They kept changingrdquo (Care leaver

D)

The participants were asked about their experiences with personal

advisors social workers the creation and implementation of their

pathway plans (Appendix 8) and whether they felt they were listened

to

It would seem having several social workers is commonplace

ldquoThe 16+ team didnrsquot seem to support him They changed social

worker but he didnrsquot seem to know what was going on Then they

changed again to one from the 16+ team Thatrsquos when his

behaviour changed One of his previous social workers was

fantastic and he worshipped herhellip If only they had kept that

social worker it would have made such a differencerdquo (Foster

carer)

For care leaver A this seems to have happened with the personal

advisor too When asked about their personal advisor

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

27

ldquoThere was a foster meeting the lady what was her namehellip Jan

she was really good She was with social services and Gisda

But then when they thought I was ok they transferred me to

someone elserdquo

Though for some there was more consistency Care leaver C suggested

a good relationship with their personal advisor They indicated regular

visits phone calls and planning meetings In turn this young person felt

they were being listened to when the pathway plan was produced

The manager for this LAs leaving care team confirms his perspective

on personal advisors

ldquoWe have a team of four personal advisors They have about 40

cases each but they do a great job All of their cases have a

mobile phone number for them and they are all very dedicated

and approachable [from the young personrsquos point of view] They

offer a vital link from care to independencerdquo

However once again this service appears inconsistent depending on

the LA

Added to this frequent changes of case worker suggest a difficulty in

completion and implementation of pathway plans and causes the

young person to feel they are not being listened to

ldquoI was kind of listened to but then my social worker changed so

I had to start againhellipthere was no relationship there cause they

kept changing We would do one pathway plan then the social

worker changed and we would have to do another onerdquo (Care

leaver A)

When the foster carers were asked about the pathway plan and whether

they thought their young person was listened to

ldquoHe didnrsquot have a proper pathway plan for leaving it was rushed

There was no proper structure He was listened to but without

question or consideration of the consequences They ticked their

boxes and he was off their handsrdquo

These experiences were evident in the earlier research by Munro et al

(2011) whereby young people felt their voices were not heard and the

meetings surrounding their exit from care caused anxiety and stress

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

28

The foster carers then suggested their current placement who had just

turned 16 may suffer the same

ldquoShe is just about to change to the 16+ team they canrsquot wait to

get her on thathellipit will be her third social worker in two years

She is adamant she doesnrsquot want to leave at 16 but if they dangle

the carrot of her own flat in front of her it might be differentrdquo

Furthermore for the foster carers support appears to be inconsistent

One set had just been assigned a new social worker the third in two

years

ldquoWe have a new social worker and she just ticks the boxes She

seems terrified to use her initiative One social worker I was

dealing with said there were five people who were either off or

had left and not been replaced in his office alonerdquo

It is well documented that retention of staff within social work is

increasingly difficult Added to which there a national shortage of

approximately 3500 social workers both hindering continuity for the

people they provide services to (Community Care 2014) This and

aforementioned cuts to funding within leaving care services may

explain how the inconsistency and a lack of relationship with social

workers described within this data can infringe on the process of

leaving care

With this in mind it is imperative to consider the legal implications at

this point It would appear within the legal framework there are lsquogrey

areasrsquo which can allow the experiences of care leaverrsquos A C and D to

occur The Children (Leaving Care) Act (2000) states that an

assessment of needs must be carried out by the LA for the said child

(a)while they are still looking after him and

(b)after they cease to look after him (19B 4)

The proviso for this is the child has been looked after for a period of

time and that they are aged 16 or 17 (19B 2 a amp b)

However the Care Act (2014) has a section dedicated to the needs of a

child in the transition to adulthood including the requirement for a

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

29

needs assessment but in relation to the childrsquos needs after the age of

18 Furthermore section 58 (4) insists the assessment should be carried

out whether the child consents or not if there is a risk of or experiencing

abuse or neglect Bearing in mind the vulnerability of these young

people the causes for them to have been placed in care in the first place

it would be fair to consider this group eligible for this assessment and

extended care Added to which one would expect a more thorough and

consistent assessment to be carried out Clearly with several changes to

case workers [as experienced by care leavers A and D] this legal

standard is not being met

Perhaps government and policy makers should consider case worker

retention and better working environments as fundamental aspects of

policy in turn offering better outcomes for the young people

(Appendix 9)

d) Financial aspects

ldquoThey told him to choose what he needed for the flat but only

some of it turned up There is something I heard of might be

from the Joseph Rowntree Foundation where some money is put

into an ISA which can be accessed once they are 18 This is

because they have been in care But I feel the danger of that is it

could all be blown on something else or used as a carrot to

encourage leaving care As far as I have seen they just go and

spend it all then itrsquos gone ndash they would be better giving them a

furnished flatrdquo (Foster carer)

The Care Leavers Strategy states it encourages LArsquos to offer at least

pound2000 as a lsquoSetting Up Home Allowancersquo (leaving care grant)

although as this is not a legal requirement the amount varies from LA

to LA Care leaver A received in the region of pound400 (Gwynedd LA)

However the manager for Conwy laving care team indicated the

amount their care leavers receive is dependent on what they need This

is also stated on the LArsquos web site (Appendix 8) It may be suggested

that young people within less affluent LArsquos will fare worse financially

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

30

The Strategy maintains care leavers are entitled to a pound1200 bursary if

they are attending further education and a pound2000 bursary for higher

education This is financed by the Department for Education (2013

10) Extra funding of this kind would appear significant for these young

people however if the earlier literature is considered the statistics for

this grouprsquos educational achievements did not present well (See

chapter one) As this funding is reliant on the young person being in

education there will be a significant proportion unable to access this

extra help

Conwy LA did suggest promising outcomes for employment for their

care leavers with many undertaking apprenticeships within the

councilrsquos departments

ldquoWe have a number of our young people working and training in

the council (Conwy) with a selection of apprenticeships

specifically for them Some do go on to stay with us being

offered permanent contractsrdquo (Leaving care team manager)

Unfortunately a comparison cannot be made with other LArsquos or

voluntary organisations in this area as there was no response to the

research

Care leaver A did have temporary employment with a local leisure

centre although when a permanent contract was offered it was of a zero

hourrsquos nature

ldquoI wasnrsquot worth me taking ithellipI would lose my benefit and have

no guarantee of workrdquo

Care leaver C started a college course and managed a couple of shifts

in a restaurant kitchen however his chaotic accommodation provision

and a lack of support for his ADHD hampered his continuation

Care leaver D is NEET (Appendix 11) and has been since his exit from

care It would seem this has not been assisted by his family [to which

he returned] who have also never been in employment and his

reluctance to receive any more services It may be suggested his high

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

31

level of case worker turnover contributed to his reluctance Equally his

chaotic existence before entering care disrupted his education added

the rushed transition from care has not facilitated good employment

prospects

e) Evaluation and Reflection

When evaluating this research one must acknowledge the limitations

when assessing the size of the sample

Despite persistence there was a reluctance by professionals particularly

to participate Out of four LAs contacted only one responded and

agreed to be interviewed One LA received the research pack three

times follow up calls were made several times to no avail The same

may be said for the voluntary sector in spite of positive telephone

conversations and receipt of the research pack Barnardorsquos and Gisda

did not consent to be interviewed Therefore the findings were

somewhat one sided and the professional perspective limited

However even with the limited sample the original hypothesis of the

leaving care system failing the young people has a degree of truth

Equally the findings are reflective of earlier research identified in

chapter 2

There is certainly scope for further and more considerable research

within this field Although for future studies it may be beneficial to use

focus group methodology to encourage professional participation This

would possibly generate an improved response rate in comparison to

the online questionnaire used for the initial stages of this project The

face to face follow up interviews proved difficult to organise although

it was difficult to decipher whether this was due to a reluctance to

engage in the research or a lack of available time

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

32

Chapter 5

Conclusion

In conclusion the data collected for this study shows a system that sadly

does fail its young people Certainly in Gwynedd the leaving care

process is seemingly rushed and centred around a personrsquos age rather

than their readiness for independence Of course it may be argued there

has to be a lsquocut off pointrsquo and young people have to become

independent at some time for legal purposes that lsquopointrsquo is dictated by

their age It would seem this is the case regardless of the harm it may

cause Furthermore it could be argued this hasty process is a breach of

the young personrsquos human rights however despite searching no cases

were found

In 2006 research conducted by Mendes and Moselhuddin concluded

the leaving care process should be a gradual process based on levels of

maturity and ability to manage independence rather than simply age

The same recommendation is echoed in the majority of research both

past and present It would seem that ten years on we are no closer to an

ideal solution

For care leaver A C and D the outcome was poor Certainly they did

not feel supported through the transition although care leaver C had

significantly better support from their personal advisor post 18

However despite this support care leaver C was still living in less than

ideal circumstances and about to be moved once again

In line with the literature this study although with the limited sample

found immense inconsistencies within the system and in every area

from support to financial assistance

Evidently for some the system works against an already disadvantaged

group abandoning when needed the most so to speak

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

33

It would seem the introduction of legislation and the Transitions

Guidance to strengthen practice and policy has failed to make a

significant improvement especially surrounding the lsquolevelling uprsquo of

services Attributed by the cost cutting imposed on LArsquos by central

government this is hardly surprising

There are some encouraging outcomes such as care leaver B receiving

immense support from their LA beyond policy and legal requirement

This is in line with some of Steinrsquos (2012 81) research and positive

outcomes are underpinned by the level of good consistent and accurate

support received by the individual Yet as this study has found this is

not consistent or universal

It is clear inconsistencies lack of support young and rushed transitions

all contribute to poorer outcomes for this group of young people A

group which are already disadvantaged and at a much higher risk of

social exclusion

As a society we should consider these young people as just that ndash young

people Often with the same dreams and aspirations as any other young

person On the contrary perhaps we should consider these young

people further as many will have already been let down by society

Either way they are entitled to as much support guidance and

opportunity as any other Regrettably this does not seem to be the case

as despite advances in research policy and legislation the same

inconsistencies and failures appear to occur time and time again

The study has shown the importance of understanding the young

peoplersquos history Of understanding former problems or areas of

concern This aids the transition to independence as it identifies where

the support is needed and individualizes the young person There

cannot be a lsquoone size fits allrsquo approach to the leaving care system as

one can see these young people are individual It has identified how

fundamental it is to include a young personrsquos foster carers when

considering independence to recognise the relationship they may have

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

34

with the young person and the key role they play after leaving care (as

with care lever A)

With this in mind one must acknowledge the leaving care system has

indeed improved over the last 30 years however it needs to continue to

progress if there is any hope of achieving a consistent service with more

even and positive outcomes for these young people

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

35

Bibliography

Action for Children (2014) [Online]

Available at httpwwwactionforchildrenorgukour-

servicesadoption-fostering-and-children-in-carechildren-in-

careleaving-care

Barnardorsquos (2014)[1] [Online] Someone to Care Experiences of

leaving care Available at

httpwwwbarnardosorguksomeone_to_care_final_feb2014pdf

(Accessed 07 October 2015)

Barnardorsquos (2014)[2] [Online] The costs of not caring supporting

English care leavers into independence Available at

httpwwwbarnardosorgukcosts_of_care_leaverspdf (Accessed 07

October 2015)

Biehal N Clayden J Stein M and Wade J (1995) Moving On

Young people and leaving care schemes London HMSO

Broad B (2005) Improving the Health and Well-Being of Young

People Leaving Care Lyme Regis Russell House Publishing

Burgess C (1981) In Care and Into Work London Tavistock

Care Leaverrsquos Foundation (with Children and Young People Now)

(2009) [Online] Setting Up A place to call home Bala Care Leaverrsquos

Foundation Available at

httpwwwthecareleaversfoundationorgsitedatafilesSetting_Up_A

_Place_to_Callpdf (Accessed 06 April 2015)

Care Leavers Strategy (2013) [Online] Available at

httpswwwgovukgovernmentuploadssystemuploadsattachment_

datafile266484Care_Leaver_Strategypdf (Accessed 17 February

2016)

Care Act (2014) [Online] Available at

httpwwwlegislationgovukukpga201423part1crossheadingtra

nsition-for-children-to-adult-care-and-support-etcenacted (Accessed

01 March 2016)

Children and Families Act 2014 [Online] Available at

httpwwwlegislationgovukukpga20146section98enacted

(Accessed 02 October 2015)

36

Children (Leaving Care) Act 2000 [Online] Available at

httpwwwlegislationgovukukpga200035pdfsukpga_20000035_

enpdf (Accessed 19 March 2015)

Children and Young Persons Act (2008) [Online] Available at

httpwwwlegislationgovukukpga200823contents (Accessed 02

October 2015)

Community Care (2014) [Online] Councils struggling to retain social

workers in face of high caseloads and competition over pay

Available at httpwwwcommunitycarecouk20140130councils-

struggling-retain-social-workers-face-high-caseloads-competition-

pay (Accessed 22 February 2016)

Courtney M Terrao S and Bost N (2004) Midwest evaluation of

the adult functioning of former foster youth Conditions of youth

preparing to leave state care Outcomes at age 19 Chicago Chapin

Hall Centre for Children at University of Chicago

Daly F (2012) lsquoMy voice has to be heardrsquo Research on outcomes

for young people leaving care in North Dublin Dublin EPIC

Dixon J and Baker C (2012) lsquoThe Housing Experience of Young

People Leaving Care in England What helpsrsquo Developing Practice

The Child Youth and Family Work Journal Issue 32 National Care

Advisory Service (NCAS)

wwweducationgovuk [Online]

Available at

httpwebarchivenationalarchivesgovuk20130123124929httpw

wweducationgovukresearchandstatisticsstatisticsa00195573

Family Rights Group (2014) [Online] Support for Young People

Leaving the Care System Available at

httpwwwfrgorgukimagesAdvice_Sheets16-support-for-young-

people-leaving-carepdf (Accessed 29 September 2015)

The Fostering Network (2014) [Online] Staying Put Available at

httpswwwfosteringnetall-about-fosteringprovidersstaying-put-

updateVg5D-PRdX1Y (Accessed 02 October 2015)

Godek S (1976) Leaving Care Barkingside Barnardorsquos

Gwynedd Council (2014) [Online] lsquoWhen I Am Readyrsquo scheme

Available at

httpsdemocracycyngorgwyneddgovukDataServices20Scrutin

y20Committee20140619Agenda09_01_Report20on20When

37

20Im20Ready20Leaving20Care20Schemepdf (Accessed

22 February 2016)

Harris R J (1982) Institutionalized Ambivalence Social Work and

the Children and Young Persons Act 1969 British Journal of Social

Work Vol12 pp 247-263

Higgs L (2011) [Online] Housing crisis around the corner for care

leavers experts warn Children and Young People Now Available

at httpwwwcypnowcoukcypnews1050066housing-crisis-

corner-care-leavers-experts-warn (Accessed 17 February 2016)

Hiles D Moss D Thorne L Wright J and Dallos R (2014) ldquoSo

what am Irdquo ndash Multiple perspectives on young peoplersquos experience of

leaving care Children and Youth Services Review Vol 41 pp 1-15

House of Commons (1968) Report of the Committee on Local

Authority and Allied Personal Social Services London HMSO

Hutchinson D (2013) [Online] Catch 22 National Care Advisory

Service (NCAS) Available at

httpresourcesleavingcareorguploads9b7793d8be6ffc05a501df3df

4a1ef5fpdf

Jackson S and Cameron C (2012) lsquoLeaving Care Looking ahead

and aiming higherrsquo Children and Youth Services Review Vol 34 (6)

pp 1107-1114

Mendes P and Moslehuddin B (2006) lsquoFrom Dependence to

Interdependence Towards Better Outcomes for Young People

Leaving State Carersquo Child Abuse Review Vol15 pp 110-166

Morgan R and Lindsey M (2006) Young peoplersquos views on leaving

care Newcastle Commission for Social Care Inspection

Morgan R and Lindsey M (2012) Young peoplersquos views on care

and aftercare Office of the Childrenrsquos Rights Director London

Ofsted

Mulvey T (1977) lsquoAfter-care ndash who caresrsquo Concern No 26

London National Childrenrsquos Bureau

Munro E Lushey C and Ward H (2011) Evaluation of the

Right2BCared4 Pilots Final report (NCAS) London Department

for Education

38

National Care Advisory Service (NCAS) (2011) Making the Cut

Planning Transitions for Care Levers in an Age of Austerity London

NCAS

National Care Advisory Service (NCAS) (2012) [Online] Statistical

Briefing Looked after children and care leavers 2012 Available at

httpresourcesleavingcareorguploads0e9a6e4f266b8e96ad7c8e25

7bd53982pdf (Accessed 30 March 2015)

National Institute for Health and Care Excellence (NICE) (2013)

[Online] The NICE quality standard on the health and wellbeing of

looked after children and young people Available at

httpwwwniceorgukguidanceQS31chapterQuality-statement-8-

Support-to-move-to-independence (Accessed 01 October 2015)

Office for National Statistics (2014) [Online] Large increase in 20 to

34-year-olds living with parents since 1996 Available at

httpwebarchivenationalarchivesgovuk20160105160709httpw

wwonsgovukonsrelfamily-demographyyoung-adults-living-with-

parents2013sty-young-adultshtml (Accessed 01 October 2015)

Oxfordshire Safeguarding Children Board (2016) [Online] Child J ndash

Domestic Homicide Review and Serious Case Review (combined)

Available at httpwwwoscborgukwp-contentuploadsChild-J-

OSCB-Overview-Reportpdf (Accessed 25 February 2016)

Page R and Clark G (eds) (1977) Who Cares Young People in

Care Speak Out London National Childrenrsquos Bureau

Puffett N and Orfford A (2016) [Online] Increasing numbers of

care leavers in unsuitable accommodation Children and Young

People Now Available at

httpwwwcypnowcoukcypnews1155917increasing-numbers-of-

care-leavers-in-unsuitable-accommodation (Accessed 17 February

2016)

Samuels G M and Pryce J M (2008) ldquoWhat doesnrsquot kill you

makes you strongerrdquo Survivalist self-reliance as resilience and risk

among young adults aging out of foster care Children and Youth

Services Review Vol 30 (10) pp 1198-1210

Stein M (2002) Young People Leaving Care A Research

Perspective In A Wheal ed The RHP Companion to Leaving Care

Lyme Regis Russell House Publishing pp 28-33

39

Stein M (2004) What works for young people leaving care

Barkingside Barnardos

Stein M (2006) lsquoYoung people aging out of care The poverty of

theoryrsquo Children and Youth Services Review Vol 28 (4) pp 422-434

Stein M (2012) Young People Leaving Care Supporting Pathways

to Adulthood London Jessica Kingsley Publishers

Stein M and Carey K (1986) Leaving Care Oxford Blackwell

Stein M and Ellis S (1983) Gizza Say Reviews and Young People

in Care London NAYPIC

Stein M and Maynard C (1985) Irsquove Never Been So Lonely

London NAYPIC

Stone M (1990) Young People Leaving Care A study of

management systems service delivery and user evaluation UK The

Royal Philanthropic Society

The Who Carersquos Trust (2014) [Online] Leaving Care Available at

httpwwwthewhocarestrustorgukpagesleaving-care-what-

happens-post-16html

Wade J (2011) lsquoPreparation and transition planning for

unaccompanied asylum-seeking and refugee young people A review

of evidence in Englandrsquo Children and Youth Services Review Vol

33 pp 2424-2430

Wade J and Dixon J (2006) lsquoMaking a home finding a job

investing early housing and employment outcomes for young people

leaving carersquo Child and Family Social Work Vol 11 (3) pp 199-208

Wade J Mitchel F and Baylis G (2005) Unaccompanied asylum

seeking children The response of social services London BAAF

40

Appendix

1) httpwwwbarnardosorgukcosts_of_care_leaverspdf page 25

Karenrsquos story

2) httpwwwnhsukConditionsAttention-deficit-hyperactivity-

disorderPagesIntroductionaspx

3) Email received in response to a request for Mr Timpson (Minister

of State for Children and Families) to answer three questions

regarding care leavers

Dear MsthinspThompsonthinsp

I am writing on behalf of the Minister of State for Children and

Families to thank you for your email of 9 February about your

dissertation

I am sorry but the department receives so many requests like yours

that we are unable to respond to them other than to point you to

sources of information I would therefore suggest that you look at the

departmentrsquos website

at httpswwwgovuksearchq=care+leavers+strategy

I hope you find this link helpful and that you are able to find the

information you need

Your correspondence has been allocated reference number 2016-

0008179 If you need to respond to us please

visit httpswwweducationgovukcontactus and quote your

reference number

As part of our commitment to improving the service we provide to

our customers we are interested in hearing your views and would

welcome your comments via our website

at httpswwweducationgovukpcusurvey

Yours sincerely

Kelly Walkerthinsp

Ministerial and Public Communications Division

Web

[httpswwweducationgovuklthttpswwweducationgovuk]https

wwweducationgovuklthttpswwweducationgovukgt

Twitter httpswwwtwittercomeducationgovuk

Facebook httpswwwfacebookcomeducationgovuk

41

[httpswwweducationgovukimages2irisdfepng]

4) httpwwwgisdaorgengamdanom-nihtml

5) httpwwwlegislationgovukukpga198941section20

6)httpsdemocracycyngorgwyneddgovukDataServices20Scrut

iny20Committee20140619Agenda09_01_Report20on20Whe

n20Im20Ready20Leaving20Care20Schemepdf

7)httpswwwgovukgovernmentuploadssystemuploadsattachme

nt_datafile201015Staying_Put_Guidancepdf

8) httpwwwthewhocarestrustorgukpageswhats-a-pathway-

planhtml

9) httpjobscommunitycarecoukarticlecoventry-tops-london-in-

the-best-place-to-live-league-tablescmpid=EMP|JOBS|SCJOB-

2016-0224-CH|READMORE-COVampcmpid

10) httpwwwconwygovukdocaspcat=4800ampdoc=19742

11)httpresearchbriefingsparliamentukResearchBriefingSummary

SN06705

42

i) Interview Guide

Generic areas of question

Age upon leaving care

Staying put scheme

Financial help

Choice of housing

Suitability of accommodation

Geographical position of accommodation

Further education

Access to support eg Personal Advisor social worker

Input with Pathway plan

Being listened to

Transition

Keeping in touch

Difference with peers

43

43