Future of foster care: consultation analysis – updated final report

Executive Summary

A public consultation on the Future of Fostering in Scotland ran from 24 October 2024 to 6 February 2025. The consultation had 36 questions which asked for people’s views on the future of fostering, based on a flexible fostering approach. It also asked for opinions on how people could be encouraged to become foster carers and what support foster carers need to continue in the role. Alongside other consultations and events held in 2024 and 2025, this consultation helps the Scottish Government to keep The Promise.

This report presents an analysis of 103 consultation responses from 55 individuals and 48 organisations. It also includes notes from 21 consultation events with children and young people, foster carers, and other professionals. The report also notes findings from a Who Cares? Scotland report based on their conversations with 42 children and young people.

Vision of foster care

Many respondents were positive about the vision for the future of foster care and felt it was in line with The Promise's aims. However, many others felt it would be difficult to achieve the vision because of current issues such as limited funding or a lack of experienced foster carers. Respondents suggested the vision could be improved by including more information about the need for support for foster carers and possible new responsibilities for foster carers and detailing what needs to happen for the vision to become a reality.

Flexible fostering approach

Using a flexible fostering approach, and the principles behind this approach, were largely supported by respondents, who also gave examples of where the elements of a flexible fostering approach are already happening. When developing a flexible fostering approach, respondents recommended that things to consider could include: training and support to help foster carers take on more responsibilities, providing more support for children and birth families, taking an approach that considers each child or young person as an individual, and being clear about the roles of other professionals in a young person’s life.

Respondents gave different levels of support for the proposed elements of a flexible fostering approach but, overall, were more supportive than not. For example, many agreed that foster carers could have a bigger role in supporting families at the edge of care or that foster carers should have more short breaks. On the other hand, issues with a flexible fostering approach could include possible risks to foster carers when working with birth families, especially in their homes, and foster carers being expected to do tasks that are usually done by other professionals, such as social workers.

To improve the flexible fostering approach, respondents suggested that foster carers should have better terms and conditions including better payments, have their roles and responsibilities clearly defined, and get more support. The Scottish Government could also help by making sure their proposals are carefully considered, implemented in the same way across Scotland, and by engaging more with foster carers to understand their needs.

Independent Fostering Agencies (IFAs)

Various comments were made about IFAs. Positive comments included that IFAs can be better for foster carers to work for than local authorities, they help to make sure there are enough foster carers, or they can provide support for children who need specialised care. However, others thought that IFAs should have a very small role, or no role, in the future of fostering. Over four fifths (84%) felt IFAs should have the status of a charity. Reasons for this were that organisations should not make a profit from fostering, that any money made by IFAs would be used to improve their services, that it would help meet the needs of children, and that it could improve the regulation of IFAs. However, some felt IFAs should not need to be charities if, for instance, it led to fewer foster placements.

Over three quarters (78%) supported limiting how much local authorities pay to IFAs. Some called for more research on this topic. Most respondents (90%) agreed that IFAs should pay their foster carers at least the Scottish Recommended Allowance. However, some respondents worried that these changes might reduce the number or quality of foster carers. Respondents felt the Scottish Government could support local authorities when they pay for placements with IFAs by making sure contracts between local authorities and IFAs are fair and cost-effective, and finding ways to reduce the need to use IFAs.

Recruitment of Foster Carers

Overall, respondents were positive about the suggestions in the consultation paper to recruit more foster carers. Using a national recruitment campaign received the most support. However, some felt these ideas could have limited success or felt that local approaches could be more successful. Suggestions for how recruitment could work in practice included working with fostering services, using foster carer networks, using targeted approaches to attract a range of different types of carers and identifying places where future foster carers could see or pick up materials.

Retention: Learning, Development and Practical Support

Four fifths (83%) felt there was a need for a new learning framework for foster carers to support their training and skills development. It was noted that this could make training and development more similar across Scotland. Suggestions included providing more support to foster carers so they had the time and opportunity to go to or deliver training, making training flexible and easy to access, and using more digital and online learning. Frequently mentioned topics for training that could be useful for a flexible fostering approach included having specialist training for foster carers looking after infants and very young children, how to work with birth families, and how to conduct assessments. Suggestions for how the 2017 Standard for Foster Care published by the Scottish Social Services Council (SSSC) could be updated to make it more helpful included linking it to The Promise or adding details about various topics.

The most common types of practical support that respondents felt foster carers would welcome were more support from and socialising with other carers, help around the home or with childcare costs, counselling or mental health support, and access to short breaks.

Retention: Financial Support

Almost half of respondents (47%) felt the current financial model for foster carers – the pay and allowances they receive - was not effective, while 14% felt it was effective, and 28% felt it was somewhat effective. The most common view was that foster carers' terms and conditions need to improve by, for example, paying them a salary instead of them being self-employed, having the same value of payments across Scotland and making sure that payments increase each year. There were often calls for higher fees and allowances to attract new foster carers and encourage existing carers to continue in the role.

Over four fifths (82%) agreed there should be a national approach to fees and additional payments for foster carers. It was felt this would be simpler, clearer and fairer for carers. However, the need to have some flexibility was noted by several, for example, because of differences in living costs in certain areas or because some foster carers might have specialist skills. Suggestions on what additional payments could cover included travel costs, sick pay, caring for disabled children or costs at the start of a placement.

Almost all respondents (92%) felt that foster carers should have a retainer fee when they do not have a child placed with them. Respondents thought this would support carers who may not have another income and provide more financial stability. Most (96%) also agreed there should be a national approach to continuing care allowances as this would be fairer and ensure there is a consistent approach across Scotland.

Many respondents agreed that fostering services should be more open about their work, for example, by having a legal requirement to publish information about their fees and allowances. This could help people decide if they want to become foster carers or which agency to work with. However, some thought that this might not be useful or necessary.

A National Register of Foster Carers

Respondents supported creating a national register of foster carers. Those who agreed felt this could strengthen regulation and benefit carers and children by improving the status of carers and leading to better matching with children. Respondents felt it would be important to make sure data in a register is protected and kept up to date. Respondents most commonly felt a register should be managed by central government, with other suggestions including the SSSC, AFKA (who hold the adoption register) or the third sector. However, several thought a national register is not needed because current processes work well or because creating and maintaining a register would take too much time.

Several thought that including details about training and skills development on a national register could be useful. Reasons for this included that it could mean carers do not need to repeat training if they move to a different area, and that it could make it easier for foster carers to focus on learning and development. However, others were worried it could put pressure on foster carers to do more training or make fostering too much like a job.

Respondents felt a national approach to matching children with carers would be helpful. They felt it could help keep children close to the area they know and ensure they have the best match with carers. While most agreed, some were worried it might be hard to put into practice and could cause problems with current placements. Ideas were also shared about how the Scottish Government could help local authorities plan resources for foster care. Suggestions included making better use of existing data, sharing information, developing a common data set, and making sure data requirements are not too complicated.

Status, Recognition and Value

Many respondents supported a national charter for foster carers. They thought this could help clarify what is expected from foster carers. However, they often said that just having a set of guidelines is not enough and that actions need to happen, too. They suggested that a charter should be created with input from foster carers and other professionals. It should also ensure that the child's voice is central to the charter. They also thought the guidelines in a charter should match other existing documents and processes about fostering.

When asked how government could improve the status, recognition, and value of foster carers, respondents often felt carers should have the same status as other professionals who support children and families. They also felt more financial support is needed, cultural change is necessary, and that carers should be paid salaries and have employment rights.

One third of respondents (34%) thought that the current rules for foster carers making decisions about children are clear, while two thirds (66%) felt they are not. Respondents thought the rules were too complicated or that decisions often depended on a social worker's judgement or legal issues. Some mentioned difficulties when birth families had different opinions, saying clearer guidelines would help. However, a few thought the current rules worked well. Some respondents wanted foster carers to have more decision-making power. Most agreed that extra guidance would help foster carers make better decisions. However, a few respondents, especially from local authorities, disagreed, thinking the current guidance was good enough but needed to be more widely used.

Allegations and raising concerns

Most respondents (91%) thought the national guidance for dealing with allegations and raising concerns about foster carers should be updated. They wanted clearer steps to follow and quicker timeframes. They also wanted better support for children and young people during this process, and to make sure the rules fit with current child protection laws. There were also calls to make people more aware of how past trauma can contribute to allegations and concerns. Others felt that foster carers need more support and protection if complaints are made about them, as this can be stressful and damage relationships.

Respondents also agreed that foster carers should have a right to raise concerns and a clear way to do this. There were different views on whether this should be managed at a local or national level, but respondents suggested using more guidance, providing more money, or training to review and update current processes. However, some respondents felt the current rules and practices were good enough and did not need to change.

Other issues

Other issues were raised by respondents in the final question or throughout the consultation. They mentioned the need for wider changes to the care system, housing and cost of living support for foster carers, listening to and supporting children and young people, and more resources or information. Some suggestions included investing in services to support children and young people and providing better financial support or benefits for carers. Respondents also wanted more details on specific parts of the consultation, such as explaining certain terms, being aware of other approaches, or considering the impact of the proposals.

Conclusions

Overall, there is support for the for the proposals in the consultation. The views and ideas shared by the people who took part give the Scottish Government more helpful information to help finalise their plans for the future of foster care in Scotland.