The Children/Youth Foster Care Program in Taiwan

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‘δ˜pŽq‹Ÿ‰Ζ’λΰ’cŽΠ‰ο•ŸŽƒ•”Œv‰ζ”­“W‰Ϋ’·

Ms. Janet Hui-hsiang Chou,

Director of Programming & Development Division,

Social Work Department,

Taiwan Fund for Children and Families

 ƒŠƒXƒg‚Ι–ί‚ι@Back to list

 

I. Introduction

 

Foster care is a substitute child welfare service.  According to the definition from Child Welfare League of America in 1999, a foster care program should be a well- planned, goal-oriented service in which the temporary protection and nurturing of children takes place in homes of agency-approved families. When the biological family fails to give temporary or extended care for some particular reason, or children are forced to leave due to inappropriate parental discipline whether it be neglect or abuse, foster care provides children an alternative for a scheduled period of time to give them a secure life and make them socially and emotionally well adapted, so the goal of caring, protecting and healing is attended to. iBetty Ho, 1999; Taiwan Fund for Children and Families, 2003j.

 

As for the structure of the foster care program, the complete service system is built upon three sub-systems: government or entrusted institutions, the biological families and the foster families.  Laird & Hartmani1985jsuggests the essence of foster care program is made up of three systems. Figure 1 represents the interaction and operation of the three sub-systems in a major service system.  In brief, the foster care program is a team-work system.

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Figure 1FTeam Aproach to Foster Care

Laird & Hartmani1985j
 
 

 


The characteristics of the foster care program are as follows:

1.  Foster care program is provided by public, private or voluntary social welfare institutions.

2.  Forster care program is well planned.

3.  Forster care program is  a temporary service.

4.  Forster care program must proceed when the biological family fails to provide adequate care.

5.  Foster child is not the only subject in foster care.

6.  Foster care program is a professional and social children welfare work.

 

This article gives a glimpse about the foster care service trend, the needs of foster children and the program contents in Taiwan.  It also refers to the recruitment and training of foster families.  The problems and suggestions for the foster care programs in Taiwan are reviewed at the end.

 

IIAThe development of foster care program in Taiwan

 

In Taiwan, the related regulation about the mode of foster care program can be found in gChild Welfare Lawh established in 1973.  However, the  implement didnft start till Taiwan Fund for Children and Families (CCF/Taiwan) accepted governmental commission in 1984 and gradually promoted foster care program in Taiwan after two yearsf trail and revision since it consulted American practical mode in 1981.  Foster care program is regarded as the first example that the government entrusts Non-Profit Organization to provide services by contract in Taiwan (Taiwan Fund for Children and Families, 2002).  For the past twenty-six years, child protection and foster care related curriculums have been widely opened in Taiwanfs universities and the great devotion of social workers, established regulation and exclusive budgets, research and training, advocation for amendment and academic researches have made Taiwanfs foster care program progress to a professional and mature phase.

 

The various contents of the foster care program adjust and develop according to social transitions in Taiwan.  The practical experiences indicate there are the following changes and trends in foster care program:

1. The regulation is reaching maturity and the implement localizes: Since previous amendments, so far Child and Youth Welfare Law provides a legal basis for each city/county to establish individual foster family regulations so as to meet district needs more closely.

2. Voluntary placement and involuntary placement proceeding together: the foster care program takes a collateral procedure with voluntary application and enforced placement along side with the enhancement of law-enforcement to proceed in enforcing protective placement on physically and mentally endangered youth.

3. The rush of needs for protective foster care: The awareness of human rights has become more prevalent in the past few years and the protective cases increase rapidly.  Among the foster care children in CCF/Taiwan for the last five years, protective cases take more than 60% in both categories (Table 1).

4. The diverse characteristics of foster children:  Children and youth who are abused, seriously neglected, court-referred and whose families suffering from a sudden accident are placement subjects.  Lately foster children with developmental delay or who are physically and/or mentally handicapped are increasing, there are also cases of vertically-infected drug addictions and newborn babies with AIDS.

5. The specialization of foster families: In response to the diverse characteristics of foster children, the required qualification for a foster family are broad.  In addition to two-parent households, families with a single parent and professionals are also enlisted.  The training and evaluation turns stricter and more systematized making domestic foster care programs more professional (Betty Ho, 2005).  However, the current foster family specialized issues are focusing on gnon-relative familiesh while many grelative foster familiesh, composed of true family members, take in abused children who are still disadvantaged.

 

Table 1: The stats of newly-added foster children/youth and protective cases in Taiwan from 2001 to 2004.

Year

No. of foster child

Protective Casesi%j

90

1038

615i59.2﹪j

91

1102

695i63.07﹪j

92

1050

693i66﹪j

93

1172

811i69.2﹪j

Total

4885

3203

 

 

IIIAThe Workflow and Contents of Foster Care Program

iAWorkflow

In Taiwan, when children and youth enter the foster family care system, it requires application, assessment, matching, trial foster, official placement and periodical evaluations before their cases are closed.  Please refer to Figure 2 for detailed process.  During the whole foster care workflow, the major related personnel and institutions, including the foster child, care taker(s) from the biological family, foster care service provider, government, school and extended placement institutions are shown in Figure 2.  These personnel and institutions have their respective role and function throughout the whole foster care process.

 

Figure 2FFamily Foster Care Workflow

Taiwan Fund for Children and Families, 2001
 

 


iiAThe psychological responses and needs of foster children after placement.

Foster children face a series of adaptation problems and challenges after placement in foster families.  Many researchers indicate that the separation between foster children and their biological families causes emotional obsession, such as sense of guilt, feelings of being rejected and deserted, fear and hostility.  While these emotions are not properly handled, foster children are also immediately facing a new environment to adapt to, including new family members and household rules, a new school and a new community.  Going through these processes adds negative emotions like anxiety, shock, numbness, anger, sense of guilt and worthlessness in foster childreniKhan, 2000; CCF/Taiwan, 2002; Fan-In Tao, 2003j, causing great psychological torment to foster children.

CCF/Taiwan points out in its service pamphlet that there are four phases for foster children to adapt after their separation from their biological families:

1. Shock Phase:

Foster children just move into foster family and fail to adapt and accept new family members psychologically.  Therefore, there might be behaviors like isolation, retreat and even nightmares , or sleepwalking. Sometimes there are physical disorders, too.

2. Resisting Phase

Foster children would resist and assault foster parents in order to ease the sense of guilt toward their biological parents.  Foster children in this phase would also feel a lack of sense of safety and consequently become emotionally unstable.  Some negative emotions like anxiety, anger, feelings of helplessness and sadness are emerging, adding abnormal behaviors to foster children in this phase like assault, resisting, interpersonal conflict and falling-behind in studies.

3. Disappointment Phase

When foster children are aware that resistance cannot change the accomplished fact of foster placement, their emotional responses gradually become cool and depressed and resistance and assaults decrease, too.  There is still lack of will to build up relations in the new environment.

4. Separation Phase

After the three above phases, foster children are getting accustomed to the foster family and gradually going on the right track.  Step by step they can accept the foster care.

Foster children would face different issues and challenges in each phase.  Similarly, after placement there are still needs to be satisfied for foster children:

i1jMeeting childrenfs Physical Needs:

Needs like meals with regular nutrition, suitable clothing and an appropriate and safe dwelling.

i2jMeeting childrenfs Recreational Needs:

Provide applicable recreational activities according to the ages and developmental conditions.  Games are a vital learning and developmental experience for all children, so preschool-age foster children need toys and play companions.  For school-age foster children or teenagers, recreational activities are given to them as an approach to develop their peer relations, dignity and learn social skills.

i3jMeeting childrenfs Medical Needs:

Foster children still need medical care during foster placement, including preventive inoculations and treatment to help them grow up healthy.

i4jMeeting childrenfs Educational Needs:

Foster children still have their rights to be educated during foster placement.  They are assisted to finish compulsory education and proceed to higher level if needed.  As for physically and/or mentally handicapped, or developmentally delayed foster children, social workers and foster families should assist foster children with special education and therapy according to individual needs.

i5jMeeting childrenfs Sense of Safety and Trust Relationship to Build:

After foster children have their physical and psychological needs fulfilled more aptly, they can reconstruct their trust relationship with others.  Only when they grow more accustomed with the adult world can they merge into their foster families and accept the foster familyfs concerns and care well.

i6jMeeting childrenfs The Importance of Acceptance need:

Though living in another family, the acceptance from the whole foster family members, school and the society, and the on-going connection with biological family altogether can prevent foster children from feeling incompatible and drifting between two families. Transform opposition into harmony and cooperation and build up interpersonal intimacy.

i7jMeeting childrenfs Self-identification Needs

Let foster children realize their importance and that they deserve to be loved, their values are should not be built upon how they are treated, and the parental world is not beyond their comprehension and willing to help them.  The only things they can and need to do is to help themselves lead a healthy life against all adverse circumstances, discover their merits as soon as possible, learning some specialty and make a life plan.

i8jMeeting childrenfs Cultivation of Resilience need:

Cultivation of the abilities to live by oneself, promotion of self-protecting abilities, enhancement of confidence and a clear vision toward future.

i9jMeeting childrenfs needs for appropriate discipline

         Because of foster childrenfs previous life experiences, children entering foster care are apt to exhibit behavioral problems that will call for help from foster parents.

The family foster care agency social worker and foster parents should work collaboratively to provide the child with appropriate discipline commensurate with the childfs age, stage of development, previous experiences with parental guidance and discipline, and agency policy.

 

 

iiiAContents of Service for Foster Children

(1) Individual Consultation:

Periodical interviews and individual guidance after household visit can help foster children adapt foster family life and improve their interpersonal communication problems.

 (2) Group Consultation and Counseling:

A. Make foster children learn good social skills.

B. Make foster children realize their own advantages and consequently become self-affirmed.

C. Promote the ideas of self-protection.

 (3) Evaluations of Development, Therapy, Health Check-Up and Nutrition Improvement:

Children from broken or sudden accident-stricken families, or abused and abandoned children are more likely to suffer from physical and/or mental developmental problems and need timely evaluation at the right age and intervention.

Within one month after placement, social workers and foster family should arrange a health checkup for foster children, including developmental stage checkup, rare disease, hereditary disease and evaluation for inoculation and physical/mental handicap.

As for malnutrition, foster families are entrusted to provide nutritional and balanced meals so that foster children can grow up healthily.

 (4) Developmental Evolution, Mental and Behavioral Therapy and Counseling:

Mentally or physically hurt children need mental therapy and counseling, otherwise they might develop defective characteristics.  Children whose families suffer sudden accident are liable to feel sad and abject, thus behavioral problems are arising.  They also need assist and counseling.

            A. Medication:

Arrange foster children suffering developmental delay or accompany obsessed foster children to seek psychiatristfs advice and take foster children with behavioral problems to medical institutions for joint evaluation, rehabilitations and therapies, such as speech therapy, sensory integration training, rehabilitations, emotional therapy and counseling.

      B. Trauma Rehabilitation: Mental and Behavioral Guidance:

As for cases of sever resistance, hire professional counselors and therapists to periodically assist foster children both behaviorally and mentally, especially those suffered physical or sexual abuse need long-tern guidance and therapy to heal their traumatized mind.

 (5) Legal Consultation:

Assist foster children understand the whole process of trial and have a glimpse about child protection related regulations.  Make them prepare in advance, provide psychological support, accompany them to the court and plead for independent interrogation.

 (6) Recreational Activities

      Hold recreational activities like trips and camping for foster children.

 (7) Developmental Records:

Keep records of foster childrenfs life in foster families for social workers as evaluative reference in future services and as connecting materials for biological parents taking them back home.  These records include health records, developmental conditions, life adjustment and commentary, curricular and extra curricular performance.

 (8) School Transferring:

For child protection cases, pay particular attention to confidential issues.  When placement requires transferring to new school, assist foster children with all necessary procedures and help them adapt new studying environment and interpersonal relationship, such as with new teachers and peers.

 (9) Academic Reinforcement:

With the help of voluntary tutors, after-school classes are given to individuals or groups as well as outdoor group guidance activities.  There are also other referable external resources, like English and computer cram schools, for free or with discount.

 (10) Medical Care:

Special children (physically handicapped or seriously ill) require assistance from social workers for most appropriable medical care and services, such as assistant devices application, periodical medical checkup and monitoring and after-surgery hospitalization care.

 (11) Children Health & Accident Insurance:

Assist foster children without National Health Insurance get enrolled.  Insure foster children accident insurance after placement to assure their safety during placement phase.

 (12) Connection with Biological Family:

To assist either biological parent built up or keep good parent-child relationship with foster children, social workers should arrange family meetings for both parties on the hypothesis of protecting the privacy of foster family, or even agree foster children return home for an overnight stay after evaluation.  However, for either biological parent who is in jail, the best efforts are made for foster children to pay personal visit.

 

IVACurrent Foster Family Conditions in Taiwan

In Taiwan, in the case that some major accident strikes a family, such as both or either parent has a car accident, become seriously ill or get into jail and so on, or there is unsuitable parenting such as abuse and/or neglect, children/youth, then these families are not properly taken care of and their developments are obstructed.  Foster care brings children temporarily out of their biological families to live in a foster family with love and enthusiasm and accept warm attention from foster parents.  With monthly-subsidized expenses for foster family from government and guidance of social workers and foster care institutions, foster children remain in foster families and return to their biological families after their troubles are settled down.

       Since 1983 when CCF/Taiwan initiated foster care program, over 13,000 children have received foster care placement.  This article illustrates the current conditions of our foster care program in Taiwan with stats foster children and youths in 2004. 

In 2004, there are 1,172 new cases and 2,710 cases in total. As for budget, the 2004 annual total budget for foster children/youth care program reaches NT 367,830,086 dollars, in which 302,755,812 dollars are foster expense, taking up 82.31% while administrative and service fee are 65,074,274 dollars, taking up 17.69“.

Currently there are 24 city/county providing children/youth foster care service and all local governments entrust civil institutions to proceed except Kinmen County.  Taipei City Government entrust World Vision Taiwan and the remaining 22 city/county all entrust CCF/Taiwanfs Branch Offices.  There are 1,172 new cases in 2004 and most of them are protective placement, with 657 in total, taking up 56.06“. Among reasons for new foster care cases, the abused and neglected children and youth are the most, summing up 54.35“.  As for gender ratio, female cases are slightly more, taking up 50.34“.  Among all new cases, 88.23“ of them are first time in foster care program and the under 12 years of age group takes the highest rate of 84.82“.

There are 928 cases closed, including 454 protective placement case (the most) which takes up 48.92“.  The highest number of closed cases falls in Taipei County which are 227 cases, taking up 24.46“.  The majority of closed cases in duration are gbelow than one monthg which are 302 cases, taking up 32.54“.  The most reason to close cases is grestoration of biological family functionsh, taking up 25.86.  There are 58.51% of foster children/youth returning to their biological families when placement duration ends.

There was an average of 1,715 children/youth receiving our foster care service every month in 2004, mainly for family factors, taking up 53.76“.  The majority of duration are 1-2 years, taking up 21.51“.  There are 202 foster cases longer than5 years, 48 out of them are placed for more than 8 years.

In 2004, there were 296 families applying for foster families and 180 were approved after evaluation and training.  The rate of approval was 60.81“.  The main motive among newly approved foster families to apply for this program is gcare unfortunate children.h  There are 127 families, taking up 70.56“.

There were 1,028 families providing foster family care service in 2004.  That is an average of 852 foster families every month while an average of 229 back-up families, waiting to provide foster care service.  The most common seniority among a foster family is 3-4 years.  There are 147 families, taking up 14.30“.  About half of the foster parents are in their forties or fifties.  The most common education levels of foster parents are high school and vocational school and both make up more than 40%.

Still in 2004, 71 foster families stopped providing foster placement service.  19 of them have provided service for 3-4 years which takes up the highest rate for 26.76“.  The main reason of topping service is gunsuitableh.   There are 17 families, taking up 23.94“.

Table 1   The Placement Conditions of Foster Children in Taiwan, 2004

Item

No.

%

Item

No.

%

Types of Placement:

2,710

 

Reasons For Foster Care

 

 

  Voluntary  placement

945

34.88﹪

  Abused and neglected

1451

53.54﹪

  Protective placement

1,765

65.12﹪

  Abandoned

236

8.71﹪

 

 

 

  Both of one parent is in jail

395

14.58﹪

 

 

 

  Street children

45

1.66﹪

Gender

 

 

  Juvenile delinguency

19

0.70﹪

Male

1,335

49.26﹪

  Family factors

1457

53.76﹪

  Female

1,375

50.74﹪

  Others

283

10.44﹪

 

 

 

 

 

 

Age Distribution:

 

 

Duration of Placement

 

 

  0-2

318

11.73﹪

  Below three months

485

17.90﹪

  2-6

715

26.38﹪

3-6 months

296

10.92﹪

  6-12

1035

38.19﹪

6 months-1 year

500

18.45﹪

  12-15

397

14.65﹪

1-2 years

583

21.51﹪

  15-18

177

6.35﹪

2-3 years

308

11.37﹪

  18 and above

44

1.62﹪

3-4 years

225

8.30﹪

Unknown

24

0.89﹪

4-5 years

111

4.10﹪

 

 

 

5-6 years

85

3.14﹪

Reasons of Closing Cases

 

 

6-7 years

39

1.44﹪

Restoration of family functions

240

25.86﹪

7-8 years

30

1.11﹪

Relatives take care of the child

161

17.35﹪

8 years and above

48

1.77﹪

Child's biological family asks to terminate the contract earlier contract

91

9.81﹪

 

 

 

Termination of Foster care

115

12.39﹪

Conditions After Cases Closed

921

 

Refer to other institutions

147

15.84﹪

Return to biological families

543

58.51﹪

Child became independent (over 18 years old)

12

1.29﹪

Refer to other city/county

51

5.50﹪

Child was adopted

59

6.36﹪

Refer to other institutions

123

13.25﹪

Child could not adapt himself/herself in foster family

22

2.37﹪

Relatives take care of the child

106

11.42﹪

Childfs biological family refuses to cooperate

4

0.43﹪

Child was adapted

60

6.47﹪

Others

77

8.3﹪

Child lives independently

15

1.62﹪

 

 

 

Others

30

3.23﹪

Source: Statistics of Childrenfs Bureau Ministry of Interior R.O.C, 2005

Table 2  Information about Foster Families in Taiwan, 2004

Item

No.

%

Item

No.

%

New Application

 

 

Motive to Serve

 

 

  Applied

296

 

  Feedback the society

529

51.46﹪

  Approved

180

60.81﹪

  Care unfortunate children

748

72.76﹪

 

 

 

  Look for companions

338

32.88﹪

Seniority

1028

 

  Practice charity

211

20.53﹪

  Below 1 year

112

10.89﹪

  Increase family income

225

21.89﹪

  1-2 years

138

13.42﹪

  Assist their relatives

25

2.43﹪

2-3 years

142

13.81﹪

  Compensatory Mentality

14

1.36﹪

3-4 years

147

14.30﹪

  Pre-adoption foster

8

0.78﹪

4-5 years

94

9.14﹪

  Have leisure time

171

16.63﹪

5-6 years

101

9.82﹪

  Make family animated

113

10.99﹪

6-7 years

64

6.23﹪

  Others

30

2.92﹪

7-8 years

72

7.00﹪

 

 

 

8-9 years

41

3.99﹪

Types of Foster Families

1028

 

9-10 years

32

3.11﹪

General Foster Family

957

93.09﹪

10-15 years

66

6.42﹪

Single Parent Foster Family

62

6.03﹪

15-18 years

10

0.97﹪

Professional Foster Family

9

0.88﹪

18 and above

9

0.88﹪

 

 

 

 

 

 

 

 

 

Source: Statistics of Childrenfs Bureau Ministry of Interior R.O.C, 2005

 

VA Future Prosperity

        The original design for foster family care program is meant to be temporary or short-term, while currently there are still many children under placement over three years in Taiwan.  Facing the difficulties in restoring biological family functions, at present there are some documents indicating that foster family care can yet be regarded as an option for long-term placement.  However, Taiwanfs foster family care program still has a lot of room for improvement.

 

1. Appeal for Legislation to Give a Definite Evaluative Time-Limit for Foster Care Program and Make Long-Term Plan for Foster Children/Youth

Since 1997, USAfs gAdoption and Safe Family Acth has mentioned that for children who were placed outside their biological families for at least 15 months in the past 22months, there must be positive decisions about whether to bring them home or make follow-up treatment plans.  The intention of the act is nothing more than to demand local governments provide biological families all necessary treatment services within a limited period of time to increase the chances for foster children to return.  Moreover, it is meant to make long-term plan for foster children/youth in advance to prevent them from remaining in foster care system aimlessly.

In order to attend to the rights of biological parents and foster children/youth, there should be definite legislation about the evaluative time-limit for foster care program. It can not only urge biological families to actively enforce their restoration but also make long-term plan for foster children/youth in advance.

 

2.      Bring Relatives into Formal Foster Care System

Whether abused or abandoned, children become traumatized to a certain degree. And if they are placed into an unfamiliar environment, it would make their depression and trauma heavier and add difficulties in adjusting new life.  Therefore, if children/youth are placed with relatives, it helps reduce the trauma of placement and prevent foster care from sudden stop.  Besides, it also helps maintain the relationship between foster children/youth and their biological families.

However, relative foster care should not be regarded as an easily-accessed social resource only, or be taken for granted that since they are related, taking care of these children/youth is part of their obligation and consequently cut down related welfare services or foster care subsidization.  Taking the rights of foster children/youth into consideration, relative foster care families should be subsumed into formal foster care system and equally treated.  The new foster cases keep increasing each year while foster family recruitment has become more and more difficult.  This would increasingly add burden to foster families and children/youth in desperate needs are unable to get timely assistance.

 

3. Reinforce Restoration of Family Functions and Maintain Positive Relationship Between Foster Children/Youth and Biological Families to Prepare for Home Reunion in Advance

Make individual guidance plan for each biological family and arrange periodical meeting for foster children/youth and their biological families.  Discuss with biological families about child-caring techniques and methods to build correct parenting concepts for biological parents.

 

4. Promote the Proficiency of Social Workers in Handling Special Cases

With the foster care program growing complicated, various problems and protection care cases have added pressure to social workers.  In response to practical needs, proficiency trainings and stress-relieving programs are given to practical workers as supports in professional services and psychological encouragement.

 

5. Make Professional Ratings for Foster Families

Protection cases increase year by year and the counseling and caring needs for traumatized children/youth are more diversified and complicated than regular placement cases.  To respond to the placement needs for protection cases and provide professional caring services, city/county governments should make professional ratings for foster families.  By setting various qualifications, planning trainings and setting quotas for foster expanse, foster families are rated according to their proficiency.  With professional ratings for foster families, a complete foster care program is made and the qualities of foster care service are promoted.  Meanwhile, the pressure and frustration in foster families due to insufficient professional knowledge is reduced, too.

 

Foster care is a temporary off-home placement for children/youth when some major accident has made them unable to stay in their biological families.  For the past 23 years of practicing foster care program in Taiwan, the reasons for foster care vary greatly with the transition and various problems of the society.  The main principle for foster care program is temporary placement, expecting children/youth to return their biological families eventually.  During off-home placement, from the perspective of child welfare we hope the less the replacement times the better.  Our number 1 option is there is no longer re-placement need and the shorter the duration of off-home replacement the better.

This article illustrates the development of the foster care program in Taiwan, the needs of foster children, the program contents, the recruitment and evaluation of qualified foster families.  Hopefully it would offer some concrete information for staff in foster care program.

Reference

 

1.          Childrenfs Bureau Ministry of Interior, R.O.C (2004), Work Report for Foster Family Program.  Taichung: Taiwan Fund for Children and Families.

2.          Taiwan Fund for Children and Families (1999).  A Handbook for Children/Youth Fostering Program.  Taichung: Taiwan Fund for Children and Families.

3.          Betty Ho (1999), Studies on Foster Parents for the Will of Continuity and Content in Fostering Services, thesis of Youth and Child Welfare Graduate School of Providence University.

4.          Fan-Ying Tao (2003), Studies on the Process of Off-Home Placement and the Indictor of Foster Program.   Taichung: Taiwan Fund for Children and Families.

5.          Child Welfare League of America. Standards of excellence for family foster care services. Washington, DCFChild Welfare League of America

6.          Khan, J. E.i2000j.Adolescents in foster careFA descriptive study of self-concept and dehavioral indicators of psychosocial adjustment. Baylor University, PHD.

7.          Laird & Hartmani1985jCA Handbook Of Child Welfare: Context, Knowledge, and Practice. Third edition, New York:Mcgraw-Hill Book Co.

8.          Susan,E.CDorli,B.CJill,W.(2001) Helping Foster Parents Cope with Separation, Loss and Grief. Child WelfareCV80i1jCP5-23