Transitioning to independence from out of home care - Discussion Paper

The Department together with the National Framework Implementation Working Group

Foreword

Under the National Framework for Protecting Australia’s Children 2009 – 2020, (the National Framework) Commonwealth, State and Territory Governments have committed to improve support for young people leaving care as a priority, in recognition of the financial and social cost of poor outcomes.  The National Framework, endorsed by the Council of Australian Governments in March 2009, outlines the case for a broad response by all sectors if outcomes are to be improved.

The paper has been prepared with the National Framework Implementation Working group, established to oversee the implementation of the National Framework.  It summarises some key evidence from the literature and notes some existing good practice examples of support for young people leaving care.  It articulates a vision for the future and identifies the key actions as the first steps to improving the effectiveness of the transition from out of home care for young people that will be progressed through the Transitioning to Independence National Priority under the National Framework.  The key actions are:   

• A nationally consistent approach to leaving care plans;
• A review of the Transition to Independent Living Allowance (TILA).

A nationally consistent approach to leaving care plans

The scope and content of leaving care plans differs across jurisdictions and care providers.  The content of leaving care plans varies in terms of language used and areas covered e.g. health, housing, education, training, employment, self-care skills, financial management, identity issues, relationships etc.  Variations also occur in the processes used to develop, implement and monitor leaving care plans (e.g. who is involved, when does the planning start and implementation end).  Increased consistency across jurisdictions is needed to deliver equity in the planning process for young people, regardless of their location.

A review of the Transition to Independent Living Allowance (TILA)

A review of the TILA is one of the key actions under the Transitioning to Independence National Priority in the first three year action plan for the National Framework for Protecting Australia’s Children 2009-2020.  Since its introduction in 2003, TILA has grown from the original policy intent of assisting young people transitioning from statutory care, to assisting young people transitioning from any type of care. Other changes have also been made.  Broadening the client base and other changes have brought with them a number of issues which have been identified by the Commonwealth, State and Territory governments, and service providers

Further information about each of these key actions is provided at Attachment F.

As well as identifying these key actions, this paper also points to further opportunities across both government and non-government sectors for consideration in future policy development and service delivery reforms.

Improving transitions and outcomes for young people leaving out of home care cannot be addressed in isolation.  The need to build positive foundations through the development of essential life skills during care, and to support positive outcomes when leaving care and after care, is well recognised under the National Framework. Addressing issues to improve the quality of pre-care and in-care experiences is being progressed through other national priorities and actions, including the National Standards for Out of Home Care.  The National Standards for Out of Home Care will drive improvements in the quality of care to enable children and young people living in care to have the opportunity to reach their potential in all areas of well-being.  The National Standards will promote continuous improvement across child protection services and thereby support better outcomes for children and young people leaving care, no matter where they live.  The principles within the draft National Standards aim to ensure that outcomes are measured, monitored and reported.  

For the purposes of this paper, young people transitioning from out of home care to independence means those young people with Children’s Court ordered care arrangements, where the responsibility for the young person has been transferred to the Minister/Chief Executive.  This definition aligns with that in the National Standards for Out of Home Care.

Vision

All young people transitioning from out of home care to independence receive support from governments, non-government organisations, family members and/or carers, business and the community to experience an effective transition and reach their full potential for social and economic participation.

There are many services already available to young people transitioning from out of home care to independence and some young people experience an effective transition and achieve very positive outcomes.  Many, however, do not.  There is an opportunity to improve the effectiveness of this transition for more young people leaving out of home care through better planning and preparation for leaving care; better targeting of existing services to young people with a care experience; actions to encourage the engagement of these young people with existing services, and developing stronger, more effective referral pathways. 

All young people deserve the opportunity to achieve their full potential for social and economic participation.  The National Strategy for Young Australians articulates the vision for young people to grow up safe, healthy, happy and resilient and to have the opportunities and skills they need to learn, work, engage in community life and influence decisions that affect them.  It reaffirms the commitment we all share to ensure that young people develop the confidence, resilience and skills they need to be involved and productive citizens.  Young people transitioning from out of home care deserve these same opportunities.   

Business, families and/or carers, the community sector and young people, as well as governments, all have a role to play in achieving this outcome.

Introduction

Definition of the Problem

Despite the wealth of evidence in the literature about the key elements supporting effective transitions for young people leaving out of home care, and the legislative and policy frameworks existing within many jurisdictions, many of these young people do not receive adequate assistance during the transition period to establish stable social and economic independence into the future.

This is due to a number of factors, including:

• Sudden exits from care without adequate post care support;
• Young people who exit care at age 18 and move jurisdiction;
• Insufficient outreach by post-care and mainstream services;
• Insufficient capacity and expertise across the system to meet the particular, and often complex, needs of young people transitioning from out of home care to independence;
• Insufficient support for carers to facilitate a smooth transition to independence;
• Inadequate assessment of needs and planning support for young people;
• Young people choosing to disengage from the system;
• The low profile of leaving care services within the broader community;
• Disparity between policy and practice;
• No ‘whole of system approach’ to working with young people transitioning from out of home care to independence.

The willingness and ability of these young people to engage constructively with support services and to sustain effective relationships, without support is a significant issue.  This may be true for many young people however the literature suggests that those leaving care lack trust, alienated by a system that has not always given them the stability or sense of belonging that they need to thrive.  Many are further alienated by a community that they are unable to relate to.  This is often compounded by poorly developed social and emotional skills as a result of pre-care and in-care experiences.  Lack of engagement by many of these young people is a critical issue that must be addressed if government and non-government organisations and services are to effectively reach them.

Understanding the process of transition from out of home care to independence for young people leaving care

Transitioning from out of home care to independence can be conceptualised as a process comprising a series of “phases” occurring along a continuum (Maunders, Liddell, Liddell and Green 1999).  The literature suggests that the period of transition spans the age range from 15 to 25 years (Mendes, 2008; McDowall, 2009), commencing with preparation for leaving care and ceasing at the point of independent adulthood. 

To enable effective transitions to independence, support must focus on:

• Social transition – relationships, community participation, housing, health and well-being (including self –esteem and identity) and the development of practical skills required for independent living;
• Economic and financial transition – education/training, employment and income.

Transitioning to independence is a major life event for any young person and for most, the process is gradual, well supported and occurs over a prolonged period.  Typically, a young person within a family setting, continues to receive support and guidance to develop the necessary social skills and networks to support their move from dependence, to interdependence and finally, to independence.  In most cases, families provide a safety net allowing the young person to return to the family home and/or support if needed.

Studies cited by Stein (2004) however, show that young people in out of home care  have to cope with the additional challenges of major changes in their early lives in a far shorter time than other young people.  Stein states that young people transitioning from out of home care have compressed and accelerated transitions to adulthood (p.120).  Mendes (2009) cites Cashmore and Paxman (2006) and Mech et al. (1995), and reports that:

‘care leavers lack the social support networks typically utilised by young people as they make the transition from child welfare dependence to adult independence.  Many face independence alone and isolated without a safety net of extended family, friends and wider community supports such as neighbours, school teachers, sports coaches, and religious or cultural associates.’  (p.38)

More recently, a critical component of the stakeholder consultation process for the development of the National Standards for Out of Home Care has been the engagement of young people who have been, or are currently in, the out of home care system.  Sixty four young people, ranging in age from 12 to 25 years, with varying levels of engagement and care experiences participated in the consultation process. 

The consultations identified the leaving care process as central to the quality of the overall out of home care experience.  The final consultation report highlights the importance of adequate preparation and planning for transition, empowering individual care leavers to make informed decisions and facilitating access to transition and post-care supports (KPMG 2010).  These findings are consistent with those in much of the literature, including the CREATE Report Card 2009.  A more recent consultation with young people conducted by CREATE on behalf of the Department further corroborates these views.