6.3.7 Trans - racial Fostering Placements |
Contents
1. Introduction
This guidance provides a set of principles and values which should be considered by those who are involved in the matching of children or young people with foster carers who are from a different racial background to the children being placed.
In this guidance, the term black is used as a political term to unite people on the basis of some commonality of experience in the UK. It is used to refer to children of African, Caribbean or Asian origin and includes children with one 'white' parent. White refers to those of Anglo Saxon Protestant origin but includes those other minority ethnic or religious groups who describe themselves as 'white' in accordance with definitions used by A. R Flynn in 'Black Carers for White Children: Shifting the same race placement debate' Adoption & Fostering Volume 24 Number 1 p 47.
The term birth heritage is also used throughout the document and refers to the racial, ethnic, cultural, religious or linguistic needs of a Looked After child or young person.
A good practice framework is outlined which allows for the individual nature of each case, and as such, is not prescriptive in identifying the actions that must be taken in every circumstance when planning for each child. Nevertheless, the fundamental principle is that when considering a placement, any child or young person should ideally be placed with carers who reflect their identity whilst recognising that this may not always be possible in all cases.
Included in the guidance is a quality assurance framework which ensures that the Fostering Panel are provided with relevant information in respect of all trans-racial fostering placements. The role of Fostering Panel is to ensure that sufficient consideration has been given to the child's birth heritage needs being met appropriately by the matched carer(s).
2. Legislative Framework
The Children Act 1989 requires local authorities to give due consideration to: The child's religious persuasion, racial origin and cultural and linguistic background (Section 22(5) (a)).
The Guidance to the Children Act 1989 states 'It may be taken as a guiding principle of good practice that, all things being equal and in the great majority of cases, placement with a family of similar ethnic origin and religion is most likely to meet a child's needs as fully as possible and to safeguard his or her welfare most effectively.' (Volume 3, section 2 (40)).
The UN Convention on the Rights of the Child. Article 20
This Article states that: 'A child temporarily or permanently deprived of his or her family environment, or in whose best interests cannot be allowed to remain in that environment, shall be entitled to special protection and assistance provided by the state. When considering solutions due regard shall be paid to the desirability of continuity in a child's upbringing, and to the child's ethnic, religious, cultural and linguistic background.'
3. Principles
3.1 Duty of Foster Carers
All Foster Carers have a responsibility to assist children placed in their care to understand, appreciate and retain links with their cultural, religious and linguistic birth heritage. However, it is recognised that carers are likely to require additional support and skill development to effectively assist some of those young people in their care originating from a different background.
Nevertheless carers can make an enormous contribution by emphasising the value of the young person's birth heritage and through creating and supporting opportunities for them to meet others from similar backgrounds, to practice their religion formally and informally and maintain contact with siblings and birth family where appropriate. For those Looked After young people who are at an age where they are beginning to make the transition to adulthood, a clear understanding of their birth heritage is of critical significance and underpins the creation of a positive identity and a successful transition.
3.2 Skills based approach
Historically the term 'trans-racial placement' has referred to black children placed with white carers and the term 'same race placement' has been used for the placement of a black child and not those white children placed with white carers. This guidance proposes that the placement of all children should be encouraged, based on a skills-led approach. However, this does not imply that black children (including black children with one white parent) should be placed with white carers, thereby returning to a 'colour-blind' approach. The aim of the guidance is to ensure that the complex needs of children linked to their individual experience, ethnicities, religion, culture and class are assessed and that an assessment is not just based on the simplistic notion of 'racial matching'. "It is also recognised that such an approach can only succeed if it works within a protective framework of countering racism and exclusion and the promotion of a positive identity for all children by their carers and other professionals working with them" ('Black Carers for White Children: Shifting the same race placement debate' Adoption & Fostering Volume 24 Number 1 p 51).
3.3 Identity
Children develop their sense of identity from the environment, in which they live the relationships which are significant during their upbringing, and their role models. The identity of a child from a white majority group develops from their perception of commonality with others and the assumption that they have access to the same rights, can realise their potential and acquire the same status in society.
Those children from a black minority group are likely to observe differentials in power and control and will see and experience the prejudice and discrimination that exists towards those who are similar to themselves. Unless this is addressed these experiences are likely to have an adverse impact on the development of a child's self image and confidence. This can further be compounded for a child in care who may have been subject to negative life experiences from an early age and perhaps removed from the care of a parent from a minority group and perhaps placed with carers from a majority group.
It is therefore critical that children in care develop a positive self identity rooted in the attributes of their racial, cultural, religious and linguistic heritage and this is unlikely to be acquired without positive support and encouragement.
Life story work is an important tool to assist a child or young person in understanding and developing positive feelings about their birth heritage and self identity. In addition, advocacy and mentoring may also assist children and young people who have difficulties with their identity. All carers and professionals, working with children and young people having difficulties with their identity and self esteem, must be able to offer support and access to the expertise they require to help them address these issues.
3.4 Challenging Racism
The effects of racism and stereotyping are often subtle and insidious and can lead to the internalisation of negative self beliefs and low self esteem for some individuals. This may be compounded further for a looked after child or young person by their experience of coming into the care system.
Where either apparent or covert racism is perceived in the attitude or behaviour of anyone involved in the care and placement of looked after children this must be challenged in accordance with any policy, training and/or regulations that apply to their role.
3.5 Balancing the child's hierarchy of needs
To be placed with carers from the same or similar background should always be the overriding consideration when assessing a child's hierarchy of needs. However where a child or young person has a complex hierarchy of needs, these must be prioritised whilst clearly taking into account the wishes of the child or young person and those of his/her family. A 'good enough' match to the child's full range of needs should then be sought with each case being considered on its own merits.
3.6 Children with dual heritage
Like all children and young people, children with dual heritage should be placed with a carer(s) who can meet the complexity of their needs including needs arising from their birth heritage. Ideally this will be with carer/s who reflect the child or young person's dual heritage. Where this is not possible, the child's Social Worker during the process of assessment should be able to establish the hierarchy of priorities relating to the child's assessed needs.
If a young person is comfortable and positive about their birth heritage it may be appropriate to place with a carer or carers who only partially reflect their background or even a carer who is not of the same background but can meet their other priority needs, and who with additional support could provide a suitable placement for this young person. Clearly the decision to place should always take into account the views and wishes of the child or young person and that of their parent(s).
Where a young person does not have a positive self image/identify and cannot be placed with a carer(s) who are of a similar background the carer(s) must have a good understanding of the needs of the young person, the issues they face and be competent to meet those needs. This includes being able to undertake work to assist them to develop a positive identity. It is likely that the carer will need additional specialist support or training to help them achieve this as will the young person in their care.
There may also be additional complexities for a child or young person who has non-white dual heritage where their true heritage has not been fully shared with them by their parent(s) or they may be refusing to acknowledge their background. Efforts should be made to work with them in order to explore and resolve this and, in these circumstances, support may also be needed for the child's parent(s) in order to help them understand the implications of this.
3.7 Language
The language needs of a child or young person will have particular significance for them if they are newly arrived in the UK and if no appropriate match is available. At this point it is critical to determine which aspect of the child's identity is to be given precedence. For example, a French speaking child from Zaire could feel most comfortable within a Black African family even if they did not speak French but with whom they shared some racial and cultural similarities. The wishes of the child must be taken into consideration and it is vital to ensure interpreters are used to aid the communication and assessment (Guidance for Trans-racial Family Placement Bracknell Forest 2008).
3.8 Siblings
If the Care Plan states that siblings should be placed together then wherever possible this should be followed. However it may only be possible with a foster family who do not match the birth heritage of the children to be accommodated. Nevertheless, it is always preferable to keep siblings together, particularly if in a short term placement.
In some cases siblings may have different ethnic origins. Therefore it is important to acknowledge that the white sibling placed with a family of a different ethnic origin will have easier access to white culture and role models than his/her black or dual heritage sibling is likely to have from their birth heritage. The overriding principle is that all children with diverse family origins are placed within a family where all aspects of their background will be understood and valued.
3.9 Disability
Where a black child or young person has a disability, learning difficulty or mental health issue, it may not be possible to identify a carer from the same background with the necessary experience to support them with their health/disability needs. In these circumstances, it may well be appropriate to identify their health or disability needs as the overriding issue to be addressed when identifying an appropriate carer. If the carer has the skill to be able to manage and support these needs day-to-day, this will have an extremely positive impact on the child's quality of life which may then allow the opportunity to address any issues of identify.
3.10 Location
For a black child or young person, location can be a particularly critical issue in relation to a potential placement. It is important to ensure that they are not placed in an area where they may feel isolated and vulnerable. For example it may not be in their best interests to be placed in a predominantly white rural area. Nevertheless in some cases there may be restrictions on contact with certain individuals or indeed their parent(s). The requirement to safeguard the child/young person is of paramount concern, therefore the need to move children away from a particular locality may override all other considerations in the short term.
Furthermore, in cases where frequent parental contact is required between the child and their parents or siblings, the location of a placement should not impede or restrict these arrangements unnecessarily.
3.11 School
It is very important to avoid disrupting the continuity of a child or young person's school placement. The maintenance of links with friends and peers and school personnel on whom they may have come to rely, quite apart from the continuation of their studies is critical in providing an important element of stability when other aspects of their lives are in flux.
3.12 Religion
Defining the suitability of a placement with regard to religion can be a complex matter. For instance an Indian Muslim family and an Indian Sikh child could be identified and may identify themselves as 'Asian', however when considering the placement of the child, the religious needs of the child may well take precedence in a particular situation, and although the match may be a 'same race' placement other factors may well make the placement inappropriate.
4. Foster Carers
4.1 Matching and the Quality Assurance Role of Fostering Panel
All placements should fully take into account the child or young person's race, ethnicity, culture, religious and linguistic background.
The specific needs of each child or young person must be identified in all Care Plans, in placement referral information and in any other any assessments and reviews. The placement planning process can also identify who may take responsibility for ensuring the child's birth heritage needs are met.
Any Foster Carer who has a child placed with them with a different birth heritage or background should have the necessary skills, attitudes, support networks and knowledge to meet the child or young person's needs. In particular they must demonstrate that they have:
- A good understanding of the nature of prejudice, discrimination and racism;
- The skills to be able to prepare a child to deal with discrimination;
- The ability to provide a positive environment and opportunities for the child or young person to have contact with people from the same community.
If it is anticipated that a trans-racial placement is to last beyond six weeks a report must be presented to Fostering Panel in respect of each placement made trans-racially, (for the avoidance of doubt: this includes those white children placed with carers of a different birth heritage) which addresses the suitability of the carer to look after a child from a different racial background.
The role of the Fostering Panel is to ensure that sufficient consideration has been given by the Social Workers involved, to the capacity of the carers identified to meet the child's birth heritage needs either from within their existing skill set or with additional training or support identified. Panel will recommend that regular updates are provided in respect of a particular short term trans-racial foster placement in order to monitor that any plans to enhance the foster carer(s) skills and/or knowledge with additional support or training are being implemented as agreed.
If the placement has been made from within the authority's internal fostering resource, the report must be prepared by the allocated Supervising Social Worker from the Fostering Service, following discussion with the child's Social Worker. This report should then be presented to the next available Fostering Panel following placement with the Social Worker in attendance.
If the placement has been made with an Independent Fostering Agency (IFA) then a report should be presented by the IFA's Supervising Social Worker to the next available Fostering Panel following placement with the Social Worker in attendance. The report must be prepared in conjunction with others including the child's Social Worker.
4.2 Training
Training programmes for carers must provide carers with the knowledge and skills to care for children from different backgrounds. How to challenge racism and the implementation of strategies for children and young people to deal with racism should be a core requirement of training programmes for Foster Carers.
Carers must be able to demonstrate a sound understanding and evidence of how they have met the BAAF competency requirements to 'show an ability to promote equality, diversity, and rights of individuals and groups within society' (BAAF Form F1 Part 4B, Competences).
Those staff involved in the making and supporting of trans-racial placement must have the knowledge and competence to ensure that any needs relating to the birth heritage for each child or young person are met.
5. Placements
5.1 Emergency Placements
Although a child or young person's race, ethnicity, culture, religious and linguistic needs should be given priority this may not be possible in an emergency when there may be other concerns such as issues of safeguarding that must be considered. Where no placement is available in an emergency that recognises and addresses a child or young person's needs in terms of gender, religion, ethnic origin, language, culture, disability and sexuality then steps must be taken to achieve a placement which will meet the above. If the child remains in placement beyond six weeks a report to Fostering Panel will be required outlining the plans for the child and the measures being taken to ensure the carers are able to support the birth heritage needs in the meantime.
5.2 Short Term Placements
For any child likely to be placed for longer than six weeks, they should be placed with carers who can best meet their birth heritage needs, unless in the assessment of the child or young person's hierarchy of needs, other needs are assessed as more critical at that time. For instance there may be concerns about health or education that have to be prioritised.
The child's needs must then be more specifically addressed within the written Foster Placement Plan when the placement is made or within 5 working days of it being made (Care Planning, Placement and Case Review Regulations (England) 2010). Any deficits in the carer's skills, knowledge or competency should be identified and plans made to address any shortfall in the placement. For example if the child is of a different faith, arrangements may need to be put in place to enable that child or young person to practise their religion. Similarly the carer may need advice on hair/skin care or their may need to be restrictions on the way food is prepared. For the detailed procedure, please refer to the Placements in Foster Care Procedure.
In these circumstances a report must be presented to Fostering Panel as outlined above.
5.3 Permanent Fostering
Matching considerations for permanent fostering should include a full assessment of the child or young person's needs in respect of their birth heritage and the skills and capacity of any proposed carer to meet these needs. This information will be presented as part of the Child's Matching and Permanency Report to the Fostering Panel for consideration.
5.4 Placements with Family under the Care Planning/Fostering Services Regulations
Where dual heritage children and young people are to be placed within their own extended family the same principles of assessment should apply, i.e. are the proposed carers positive about both sides of the child's identity irrespective of what may have happened within the family? Any deficits in the placement must be identified from the outset and plans made to address any shortfall.
These placements are subject to the Directorate of Children's Services Family and Friends (Connected Persons) Fostering Procedure, which should be adhered to in all circumstances where a child is placed trans-racially with family members under Regulation 24 of the Care Planning Regulations 2010 and subject to the Fostering Services Regulations 2011.
The Fostering Manager should be notified at the point of placement, whereupon they will allocate a Social Worker from the Fostering Team to assist with the Viability Assessment and to prepare the Trans-racial report for Fostering Panel which will be submitted at the same time as the documentation for Approval with Conditions.
5.5 Transition from Short Term to Permanent Fostering
There may be occasions when a Foster Carer has a child placed with them in a short term placement and they subsequently express a wish to offer the child security through a permanent placement with them. This must be discussed formally at the child's Looked After Review and recorded as a recommendation that this option be explored further. The child or young person's views and wishes and those of their family must be ascertained. It should be clarified during the assessment that the child or young person is choosing to stay with their carers because they feel secure and comfortable in the placement and believe that their carers value and support their difference positively.
If the child is placed trans-racially the carers must be advised that their ongoing capacity to support the child in terms of their identity and meet any emergent needs arising from their birth heritage will be fully explored during their re-assessment of their ability to care for that particular child on a long term basis. These issues must be addressed within the matching and Permanency reports which will be presented to Fostering Panel.
How a child or young person views their identity and whether they have any negative feelings about it is a key issue to be addressed in the Care and Placement Plans.
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