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Children's Social Care Annual Report (2022/23) (19.05)

Meeting of Children and Young People Scrutiny Commission, Monday 18 December 2023 7.00 pm (Item 4.)

To review the children’s social care annual report 2022/23.

Minutes:

4.1The Children’s Social Care Annual Report is a standing item on the Commission’s work programme. This enables the Commission to have oversight of all activity across all children's social care services including early help, children in need, looked after children and care leavers. The attached report details activity for the Children’s Social Care Service for the period April 2022 to March 2023. This report is taken alongside the budget monitoring report (at item 5) so that members can be assured that budgetary and policy commitments are aligned.

4.2 To support the scrutiny process, the Commission held a short focus group with 9 members of Hackney of Tomorrow (Care Council) to talk through some of the issues which were important to them. Representatives were present at the meeting and agreed to ask some questions on behalf of other members of Hackney of Tomorrow.

4.3 The Director of Children’s Social Care introduced the report highlighting the following key achievements for 2022/23:

· The service had led a month long series of seminars on developing anti-racist practice across children and education services;

· An inspection assessed the Youth Justice Service to be good, highlighting the quality of partnership work and anti-racist practice;

· The new Mosaic primary case recording service has been embedded to help managers oversee and improve practice;

· Ongoing service alignment with Hackney Education.

4.4 From analysis of the activity data, the Director of Children’s Social Care also highlighted the following:

· The number of children on a child protection plan has dropped by 15%;

· The average time taken complete care and supervision proceedings has been reduced from 58 to 52 weeks (close to the national average of 47 weeks);

· As of September 2023 there were 390 looked after children down from a peak of 470 in November 2020

4.5 Priorities for children’s social care for 2024 were agreed:

· Proud to be systemic, anti-racist and trauma-informed;

· Proud to listen to children so they can help shape and inform provision;

· Proud to work in partnership to keep children safe and deliver the help and support that they and their families need;

· Proud to work with the workforce so that they can deliver the best possible outcomes for children and families in Hackney.

Questions from the Commission

4.6 The Commission requested further information on the designated safeguarding leads and how these worked with the Local Authority Designated Officer (LADO)?

§ The LADO role was well established and had good working relationships with local nurseries and schools, those settings which provide the highest number of referrals for allegations of harm to children from staff and volunteers. Safeguarding issues are raised in a number of contexts including allegations of direct harm, misconduct and other contextual issues for the school itself. A new referral system was set up over the past year as the LADO was always caught up on the phone and was therefore unable to triage or prioritise incoming enquiries. This initial written request process has had good response from users, as this now enables the LADO to prioritise referrals effectively.

4.7 A full inspection of children’s social care services by Ofsted is expected early in the New Year. Can you update the Commission on service preparations ahead of this visit? What have internal audit and quality assurance systems revealed about the services strengths and weaknesses ahead of this inspection? What is morale like ahead of the visit?

§ (DCSC)The service was expecting an inspection from Ofsted and this was likely in January 2024. The service was well prepared and had undertaken a ‘dip sampling’ of local social work practice to test out and assess local systems. The service was confident that ‘it knows itself’, and that perspective has been assisted by two previous focused visits by Ofsted as well as the Local Government Association visit.

§ (HoS) Annex A data is all ready for submission and there are approximately 200 supporting documents which have been cleared and are ready for inspection. The last 6 months of audits have been completed and ready for Ofsted to inspect and to select cases for further investigation. Practice has also developed and improved since the last visit as there are now many consistencies within the audit programme, for example ensuring the voice of the child is heard (previously identified as a weakness by Ofsted). The most recent internal audit was on anti-racist practice, which suggested that almost ? of cases had good evidence of anti-racist practice and with good outcomes for children and their families. There is a strong learning programme for practitioners with regular conversations between practitioners and managers. The annual report was also ready to share with inspectors.

4.8 Can officers update the Commission on the development of a partner wide Early Help Strategy? What are the key principles and functions of the strategy? What are the timelines for its completion and implementation?

§ (DCSC) The EH strategy is in its early days and at present is a small team of 3 practitioners located in the MASH. Ofsted feedback from the focused visit in 2022 noted that more use should be made of the early help strategy to expand referrals from beyond statutory services. Too many families were being referred for social care assessments where it was later determined that no statutory social service was required. This suggested that more work needed to be done to ensure that families were referred to other non-statutory support services earlier.

4.9 Given that Early Help - and preventative measures - are predominantly supported through non-discretionary funding, there are clearly challenges in developing a comprehensive and coordinated local early help offer in time on financial constraint. How is Children’s Social Care working to overcome these financial challenges?

§ (DCSC) Early help is jointly funded with Education as both services recognise the importance of this preventative service. There are financial challenges for this and it is important to safeguard these services given their preventative role in addressing needs early which may reduce future needs and provide longer term cost savings. Given its importance, the service was looking to increase the stability and future sustainability of the EH team.

§ (DoE) It was noted that there was a similar EH team located within the education service and that this would be combined with the CSC team to scale up the local early help response. It would be important to establish a single front door and early help response across all statutory services.

4.10 Can officers update the Commission on the effectiveness of the consultation line, where local services may contact social workers to discuss cases to assess whether a formal referral is needed? What levels of activity is this service recording? Is this resulting in fewer referrals? How will the service be evaluated - is it being used equally across all sectors?

§ (HoS) Whilst activity numbers were not to hand, there had been positive feedback about this service from local partners. One particular area of success was the clarity that it provided on the need for parental consent for a referral (unless this was a safeguarding issue). The consultation line had helped local agencies and practitioners to develop strategies for asking for consent from parents and to allow for a referral to take place. The consultation line had also helped agencies to understand how they might intervene first and support children and families before a referral might be made. CSC was keen to promote this model as it encouraged a shared approach to supporting children and families rather than simply ‘referring to another agency’.

§ (DCSC) Schools and police were the biggest users of the consultation line. This service provided an opportunity for front-line practitioners to discuss cases in advance, but this did not preclude from making a formal referral. The quality of the referrals (e.g. fathers details, consent) has also gone up as a result of the introduction of the consultation line, and this also helps for screening and assessment timescales.

§ (DCSC) Evaluation of the EH help service is ongoing, and the MASH manager is very clear as to who is using the service and why they are using the service. Whilst activity is currently high, more engagement needs to be undertaken with the voluntary sector to promote awareness and use of the service from community settings.

4.11 The rate of referrals for children’s social care has risen over 60% in 2 years (at page 19) and is now significantly higher than comparative assessment rates for England and other ‘comparator boroughs’. Why are referrals for social care increasing at a faster rate in Hackney than other areas? What analysis has been undertaken of where these referrals are coming from or for what area of need (to allow for upstream interventions)?

§ Some LA areas experienced a sharp increase in referrals after Covid, but Hackney did not, but hackney has experienced a more gradual but continuous increase. Increasing austerity has increased stresses and strains on families which was a likely factor in these increase referrals and assessments. The most recent data (not included in the annual report) would suggest that activity is plateauing to more ‘expected levels’. The numbers of children on Child Protection Plans (CPP) had fluctuated, which again suggests to the service that more support needed to be directed through the early help offer to reduce the need for more statutory interventions.

4.12 The Chair made the following observation. The data shows that the number of children who are looked after, who are assessed to be Children in Need or placed on a Child Protection Plan have all decreased since 2021. Given that the number of referrals and assessments that the children’s social care service has made is increasing, did this mean that there had been a change in thresholds for care and support? Is this an indicator of activity rates stabilising to pre-pandemic levels?

4.13 The performance of the service in undertaking social work assessments within the required 45 days was much lower than England and statistical neighbours in 2022/23. What was the reason for this underperformance - and what action was taken to address it? Data for the first half of 2023/24 shows a marked improvement in performance, is this being sustained ahead of a likely Ofsted inspection?

§ (DCSC) There was a period in 2022/23 when there were significant staffing issues which affected the performance in which statutory assessments were undertaken. The service was, for a period, struggling to maintain good quality staff, but this had since been resolved and performance in this area has now returned back to comparable levels with other boroughs. Furthermore, data from April 23 to September 23 indicated that assessments undertaken within the statutory timeframe has improved significantly. It was noted that social worker recruitment continues to be problematic for all local authorities, especially in London, and one of the key priorities for the service was to make sure that quality staff were recruited and retained.

4.14 Following on from the above, the Commission asked what the key strategies for recruitment and retention were, knowing that this has been an ongoing issue for a number of years. Also, what strategies have been successful in recruitment and retention? Is housing an issue in local retention and recruitment?

§ (DCSC) A lot of work has been undertaken to improve recruitment and retention, especially the London Pledge, which effectively prevents authorities from competing for, and bidding up the cost of employing social care staff. This had helped to bring some staffing stability. Exit interviews also suggested that social workers did not want to stay in Hackney as opportunities for progression were comparatively limited. As a result, the senior social worker grade had been introduced to allow more staff to progress internally. A bonus scheme had also been introduced for permanent social work staff in those service areas where it was known that there were retention issues. There was also a refer a friend scheme which also attracted a bonus for referring staff. There were of course other issues which may negatively impact on recruitment, such as for example, availability of affordable housing and parking. This was a constantly changing environment in which the service needed to respond to ensure that its staff offer remained attractive and competitive.

4.15 One in seven looked after children had 3 or more placements in the previous 12 months. What was the service doing to increase placement stability? Are placement breakdowns analysed to understand what has been learnt to help improve stability for others?

§ (HoS) It was accepted that this figure was high compared to statistical neighbours, but this was against a background of greater instability. It was noted that in-house foster carers have greater placement stability with LAC than independent fostering agencies (IFA). The fostering service offers a wide programme of training and takes great care in matching placements so that LAC are placed with foster carers who can best meet their needs. As with other LA’s, many of those entering care are older adolescents who may struggle with attachment and where it is difficult to find foster carers that can meet their needs.

4.16 (Hackney of Tomorrow) Care leavers noted that they had experienced periods of high turnover with their social workers that supported them, and aside from having to update and develop new relationships with different social workers, young people noted that the approach of social workers was not always consistent? What was the overarching approach of social workers, was this practice holistic, trauma informed and anti-racist? Are all social workers trauma informed - are all practitioners being trained in this approach?

§ (DCSC) This is something the service recognises, and has been developing a new practice model which is systemic, trauma-informed and anti-racist. The service did want care leavers to have stability with their social workers and was, as set out in previous responses, working to increase staff retention. Ensuring that all practitioners were systemic, trauma-informed and anti-racist was an important step in consistently meeting the needs of care leavers and other children in care.

4.17 Social work assessment and practice is having a disproportionate impact on some groups of children, particularly those from black and global majority children and their families (as in the S47 example in the report). What is Children's Social Care service doing to identify and remedy those practices which are having a disproportionate impact on local children?

§ (HoS) S47 assessments are where there are the greatest disproportionalities in the data. Dip samples revealed that police colleagues were more likely to opt for S47 assessment for black and global majority children than white children and closer examination revealed differences in the way that thresholds were applied (distinguishing between harm and significant harm). In response, the service had met with police colleagues to share these findings and to discuss how thresholds and those judgements that underpin them could be applied more consistently.

§ (HoS) The service had also identified disproportionality in the assessments which have led to an outcome where ‘no statutory social worker action is necessary’, not only in between black and global majority children and white children, but also within black and global majority communities. The service had commissioned a third party to look into this further with a focus to engage and develop networks with local parent groups from different faith and community groups. The aim was to raise awareness to improve understanding of social care systems, what support was available and those circumstances where authorities might intercede in families. It was hoped that this work would extend and develop knowledge and understanding of children’s social care systems across different communities and reduce the need for statutory assessments and interventions.

4.18 Are the systemic, trauma informed and anti-racist values clear in processes to on-board staff to ensure that they are aware of the Hackney values and approach?

§ (HoS) To make sure staff are recruited with the right ethos, these values are embedded within the competency questions and are a key part of the interview assessment process. So all staff have a clear message when entering Hackney that this is an anti-racist service and staff need to be active practitioners of this approach. There is a wide programme of staff training and development on anti-racism which also supports this approach.

§ (DCSC) With any new practice model however, it takes time to embed as it is trying to change the culture of the organisation. This was between 3-5 years. It should be noted that Hackney was not starting at zero or was currently operating at a ‘deficit model’ as Hackney had always been systemic and in many ways such as anti-racists practice, was already leading the way.

4.19 The data suggest that ¼ of children are on a child protection plan (CPP) for less than 3 months and over 1 in 3 children are on a child protection plan for less than 6 months. What does this suggest about the consistent application of safeguarding thresholds? Are children being placed on a CPP unnecessarily and are there disproportionalities within this data?

§ (HoS) Children can be on a CPP for many different circumstances and reasons why a child may be moved off a plan may vary, that is; the family makes the necessary adjustments very quickly, the child is moved into care or children move out of the borough. The service would not want children to be on a CPP for very short periods of time as this would suggest that there is some risk aversion within the assessment. Dip samples have been taken of this area of service and have not identified significant levels of risk aversion for 3 and 6 months transfers. More work was clearly needed across the partnership however, so that there was greater consistency in how agencies recognise the different identities of children in respect of safeguarding as well as making sure that services were anti-racist and trauma-informed. This year, the service would be developing an anti-racist approach to child protection conferences.

4.20 Following on from above, the Commission also wanted to know what external assessment and accountability was placed on the children’s social care anti-racist approach? What have we learned from other authorities as to where they feel that most impact can be achieved in this sphere?

§ (HoS) Ofsted are on a journey themselves in their own organisation in understanding anti-racist practice and the impact that this has within their own assessments. In the inspection of local youth justice services, HMIP noted that whilst there were still strong disproportionalities within the local data, it commended Hackney on its anti-racist practice. One of the most common reasons that children are placed on a CPP is in relation to domestic violence and or abuse, and it is worth noting that the DAIS in Hackney was one of the first to develop an anti-racist and older persons lens within the assessments that they undertake. There was more work to be done however, to ensure that culturally appropriate services were offered at the earliest opportunity, for example, there may be other more culturally appropriate services which may be able to work with the family to achieve change on a non-statutory level which may be more acceptable to families.

§ (DCSC) In fairness, Hackney was among the leading authorities in this work and significant numbers of other authorities were approaching the borough for advice, guidance and support in this area of practice. This was not to say that the borough does reflect on its on practice and not look to learn from other boroughs, as the organisation was always willing to learn to improve the culture of practice.

§ (DoE) Also noted that the DCSC and other Hackney officers were invited to the national conference of Ofsted inspectors in 2023, which was a testament to the high regard of local practice.

4.21 Many care leavers learn about services or benefits which may be of help to them opportunistically, rather than through their social workers. How does the service ensure that social workers and personal advisers are kept up to date on the opportunities available for care leavers, so that there is equal access to education, training or other benefits which may assist them? How do we ensure that care leavers get consistent advice and support?

§ (DCSC) The service does try to make sure that personal advisers and other practitioners supporting care leavers are up to date in key areas of provision, such as housing and benefits advice.

4.22 (Hackney of Tomorrow) Quality and affordable accommodation is paramount for care leavers stability and progression, yet care leavers are still reporting they are being placed in unsuitable accommodation. Can officers update the Commission on the implementation of the new supported housing strategy? What assurances can be provided that care leavers are being placed in accommodation which they can afford?

§ As a product of closer working with housing colleagues, from this year, care leavers can be on the housing register from the age of 18. The service acknowledged that some time back some of the available housing for care leavers was not suitable in that these were quite cold and just did not feel like homes for care leavers. The care leaving service did have a strategy to make sure all care leavers were placed in suitable accommodation, preferably in-borough, but this was not always possible. The reality however was that there was very limited housing stock in Hackney which meant that options for care leavers and other young people were limited.

4.23 Following on from the above, the Commission sought to clarify whether the housing quota for care leavers would remain? Being on the housing register does not give entitlement to social housing, and many young people are required to wait a long time to receive an offer. What priority is accorded to care leavers on the housing register to make sure that they are able to access housing?

§ (DCSC) Both the quota and the automatic enrolment would still be in place in April as this is a complex area and will need to settle in. Housing services have indicated that this is not sustainable given the number of properties becoming available. Care leavers remain a priority for the Council as a whole, not just the social care service. The authority does have a responsibility to make sure that housing for care leavers is of good quality, liveable and affordable, but the housing market was really challenging.

4.24 In terms of recruitment and retention, what does the service do to understand the views and needs of staff? Is a survey of staff attitudes and morale regularly undertaken and is exit interviews regularly held with all departing staff. How is the service adapting non-salary benefits to support recruitment?

§ (HoS) Regular exit interviews are undertaken by someone who is not their line manager and learning from all these is collated and analysed by the workforce development group. There are a number of consistent themes in why people leave, Brexit was a key reason recently as many social workers with European connections felt that they could not stay in the UK. Similarly, the cost of living and its impact on families is now a significant issue as many people have sought cheaper accommodation outside London. Opportunities for career development was also cited in many exit interviews, and as was reported earlier, there had been some adjustments to the local career structure in Hackney which now allows for more progression within the social care profession.

§ (HoS) Regular staff surveys were conducted across the council which assesses a wide range of issues including wellbeing, whether or not their voices are heard and how well they feel they are supported. Data was not available at the meeting.

4.25 Placement/accommodation stability is equally as important for care leavers as it is for looked after children, but does the authority monitor how many times care leavers may be moving accommodation? Could standards be developed?

§ (HoS) 74% of LAC are with foster carers and 26% in residential care. As previously indicated, the in-house foster carer arrangements tend to be more stable than other placements. Additional wraparound support was always considered to help maintain stable placements. In terms of supported accommodation, the council was changing its policy and this will not be available until a child reaches the age of 18, as these children will be placed with a foster carer under a ‘foster care first’ approach.

4.26 One of the concerns of the Commission from its work with housing support for care leavers was that some care leavers who chose to study outside the borough lost some of their rights to social housing. Has this been rectified so that children are penalised for their success or achievements? Are we confident that these children are not prejudiced by the system in any way or lose their entitlements?

§ (DCSC) Some care leavers that move away from Hackney do not want to come back as it is very expensive for young people to live here. For those that do, the authority does try to support them as best we can, though affordable high quality housing options in Hackney remained limited regardless of care status. Care leavers that moved away would not be prejudiced or lose out on existing entitlements.

4.27 Given that the session was overrunning, the Chair requested if other questions which there had not been time to be asked could be presented for a response at a later time. There were a number of issues which there had not been time to take within the meeting. This same issue applied to young people from Hackney of Tomorrow.

Agreed: Scrutiny would present a number of questions to Children’s Social Care which it (and representatives of Hackney of Tomorrow) were unable to ask due to time limitations. Responses to these questions would be published in a future scrutiny agenda.

4.28 The Chair thanked all officers for attending and responding to questions from the Commission.

Supporting documents: