Professional Documents
Culture Documents
Number of households
4,000,000
3,000,000
2,000,000
1,000,000
0
Married couple households with
dependent children
2001
problems for children7. Another study found that contact with a nonresident parent had no impact on the childs welfare and development,
but that this could be predicted more accurately by the quality of
relationships within the childs home 8. The mere presence of contact is,
another study suggests, not enough; it is the quality and nature of the
parenting, monitoring, encouragement, love and warmth, which count 9.
15.Contact with both parents has potential value in developing the childs
sense of identity, preserving links with the wider family, and providing
additional support. In ordinary circumstances, where a parent has an
established relationship, it seems clear that time spent with their child
is beneficial to the child. Yet contact per se is clearly not always
beneficial. Where there is no pre-existing relationship or where there
are known risks of abuse or neglect, exposure to domestic violence, or
severe parental conflict, contact can be extremely damaging to
children10.
16.The evidence therefore suggests that, whilst the ideal amount and type
of contact for any given child will vary, a significant minority of children
do not currently appear to be getting an optimal level of contact with
their non-resident parent.
Encountering Problems
17.Some parents may separate acrimoniously and have disagreements
about parenting arrangements from the outset. Others may encounter
them later, perhaps due to the changed circumstances of one parent
such as one having a new partner or moving location. Some parents
may have other unresolved issues and disputes or wider problems and
difficulties about, for example, money. These can sometimes create an
environment of conflict that could have a knock-on effect to complicate
discussions about childcare and parenting. These other issues need to
be cleared to focus on the children.
18.So whilst separating parents face similar problems their particular
circumstances mean they have their own sets of issues to address.
This suggests they may need different types and levels of help. No
one-size fits all solution is likely to be effective. The section below
describes and analyses the characteristics of those parents who
currently go to court and discusses what processes they experience.
How many contact cases come to court every year?
19.As already stated, around 10% of parents experiencing relationship
breakdown choose to resolve their contact issues with the help of the
courts every year. In 2003 this resulted in 67,000 contact orders being
made by the courts. This figure continues the rising trend that has
been seen over the previous 10 years, between 1992 and 2002, the
number of private law contact orders made by courts in England and
Wales more than tripled from 17,470 to 61,356.
7 Dunn 2003
8 Smith et al, 2001
9 Pryor and Rodgers
10 Buchanan et al 2001
25.Intractable cases are often those which return to the courts time after
time, with one parent repeatedly flouting court ordered contact
agreements. The analysis of court files showed that almost half (48%)
of all contact cases come to court only once, while a further 28%
involve just one repeat application. The remaining 24% of cases have 2
or more repeat applications.
34.One key issue for parents is, they tell us, that the information they
receive is too focused on legal and factual issues, rather than on
meeting their individual emotional and practical needs. This often
leads to feelings of frustration and bitterness and pushes many parents
into increasingly polarised and emotional positions than they might
otherwise be. The danger is that the system actually exacerbates the
acrimony between separating parents and ends up making things
worse rather than better.
They (solicitors) keep pushing you to be more confrontational
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services, an abiding message from all parents is that they want to feel
in control when they are trying to solve parenting problems. This is
particularly true of newly formed step-families, where parents are often
reluctant to rely on formal support services at a time when they are still
trying to get their new families settled and established 11. This might
sometimes be a flash-point where previous parenting arrangements
come under particular stress. Support services, particularly at times of
relationship breakdown, therefore tread a fine line between being seen
as supportive to parenting and being seen as interfering.
50.Parents will themselves usually be the best organisers of their own
parenting support. The Government must therefore focus on providing
support services that are diverse and flexible enough to enable parents
to tailor a package of help to suit their particular needs.
51.Good information provision is also key to helping parents solve their
own problems. Parents want information to help them understand the
problems they are facing in order to work out ways of solving them
either on their own or with outside support.
52.Support is also a relationship that requires respect and partnership.
Support from any source should not make parents feel vulnerable,
small or obligated. If support does make parents feel this way then it
is, simply, not supportive.
53.The effectiveness of support and its ability to build and maintain good
relationships with parents is also improved if support is seen as a longterm holistic process, rather than a series of one-off interventions.
Parenting problems are often a consequence of overlapping difficulties
and it therefore makes little sense to deal with one of these difficulties
while ignoring the others. This implies that family needs should be
addressed holistically rather than in a piecemeal way, with individual
support services not concentrating on their own narrow area of
expertise and ignoring the broader family context of parents problems.
Providing this type of holistic support requires good assessment of
needs, co-operation and information sharing between support services
and with parents. The poor flow of information between current
support services points to the lack of a holistic approach at present.
54.Government and others provide a great deal of support to parents
already. Initiatives such as the Marriage and Relationship Support
(MARS) grant programme provide support to relationships through
organisations such as Relate. The parenting fund supports parenting
programmes that aim to help all parents, including those who have
separated from their partners. The DfES is providing funding of 3.5
million, through the Childrens Fund and Sure Start, from 2003-04 to
2005-06 to resource 14 new supervised Child Contact Centres in
England and support the NACCCs programme of moving centres from
affiliated to accredited status. DfES and DH recently published
guidance on supporting parents generally.
55.Whilst there are some important initiatives already in place to support
relationships and to help resolve difficulties within them, current
11 Smith M et al (2001)
Imprisonment
Fine
parents which would require them to consult with each other about
major decisions. But at the same time a presumption against such
responsibility was recommended for families affected by entrenched
conflict, family violence, substance abuse or established child abuse.
78.In Canada also there has been recent discussion of legislative reform.
But in Bill 22, An Act to Amend the Divorce Act, the approach as
described by the Minister of Justice is not to presume that any one
parenting arrangement is better than others.
We believe that such presumptions tend to focus on parental
rights rather than on what is in the interests of the child (Martin
Cauchon, 2002)
79.Shared parenting, meaning for the child living in two places, has been
studied in the UK. It was found that although such an arrangement can
work well in the small group of parents where both parents are
enthusiastic and put the children first, it was generally stressful for
children particularly when there is conflict 14. The term collaborative
parenting is becoming more widely used in the UK, where the Children
Act gives responsibility to both parents after separation and the courts
are only involved when there is a dispute, in which case they will
guided by the best interests of the child.
International Approaches to Alternatives to court for conflict
management and resolution
80.New Zealand is often perceived as a enjoying a low rate of court use in
contact disputes. But is important to note that in New Zealand the
population is reluctant to use the court use generally for all civil and
family matters. There seems a cultural instinct to avoid court-based
interventions. Those who experienced highly-conflicted court cases
were found to be characterised by characteristics such as untreated
mental illness and lack of representation in court15.
81.In the United States the law relating to divorce is framed around the
rights of adults, and there is no equivalent of the Children Act.
Schemes to divert parents away from court have been developing,
including the scheme led by Judge John Lendeman in Florida whereby
parents are given information about the damaging impact of their
conflict on their children and invited to work out a parenting plan with
the help of a mediator. Other programmes are being developed to help
and support parents by teaching about their new roles as collaborative
mothers and fathers after separation. ACT, (Assisting Children through
Transition) based in New York, emphasises the learning of new skills
ranging from anger management to cookery.
82.In Australia, Victoria Legal Aid is currently setting up a new dispute
management service called Roundtable Dispute Management, which
combines legal advice and representation with the aim of a less
adversarial mediation style approach.
The UK Government will
continue to monitor this, and other international developments, to see
14 Smart et al 2004
15 Barwick et al 2003
what further lessons can be learned and applied here from experience
elsewhere.
What happens when courts make orders?
83.A court order has a different meaning in different jurisdictions. In some
countries the courts are required to make an order identifying
responsibility for every child whose parents separate. In others, the
making of an order may be a formal notice of an agreement worked out
by the parents, or that a dispute between parents has proved
intractable and required adjudication. It is the last group where
problems may most likely continue after the making of the order if the
child, mother or father is unhappy with the decision and unwilling to
comply. All jurisdictions have provisions for dealing with those who fail
to comply with the orders of the court and are in contempt of court,
though approaches are different. These are commonly difficult to apply
in the family setting, where attempts to intervene risk making matters
worse for the child, whose welfare is the central concern.
84.In Australia judges were given the power to order parents who
breached contact orders to attend a parenting support programme
before resorting to the imposition of penalties. The early experience of
this scheme suggests that its effectiveness has been hampered partly
by the resources needed to implement this but also by the attempt to
combine a disciplinary approach with a scheme designed to support
parents who are struggling with their post separation parenting
relationship and ongoing conflict. Perhaps the most successful scheme
to date is, Keeping Contact Going by Unifam. This is based on making
childrens views known to parents and providing individual sessions
with a therapist for both parents and children 16. This accords with
developments in Germany, where a child involved in a conflicted
contact case is given individual support and parents receive
counselling17.
85.The Australian Commission recommended a new system for dealing
with parental disputes about children. This recommendation is for
setting up a Families Tribunal staffed by lawyers and social welfare
experts, which would have conciliation and decision making functions.
All families where there were no issues of violence or abuse would use
the Tribunal, and parents would be required to attempt mediation
before applying. This proposal builds on recent developments in their
family justice system which have attempted to move away from
adversarial processes and practices, instead investigating and testing
accounts of past events with reliance on expert reports, towards a
more investigative approach. This approaches parental separation as
being about relationships rather than the law. These new processes
focus on the child, and the aim is to help parents manage their post
separation parenting18.
16 Rhoades 2004
17 Mueller Johnson and Maclean 2003, Johnson in press
18 Attorney Generals Department and Department of Family and Community Services, Government
response to the Family Law Pathways Advisory Group Report, Canberra 2003, and The Childrens
Cases Program http://www.familycourt.gov.au/ccp.pdf
Endnote - References
Atwood et al 2001 Home Office Citizenship Survey: people, families and
communities, Home Office Research Study 270
Barwick et al 2003, Characteristics associated with the early identification of
complex Family Court cases, Department for Courts, Wellington New Zealand
Butler- Sloss, Dame Elizabeth, (2001) Contact and Domestic Violence, Family Law
31, May 355-8
Buchanan A, Hunt J Bretherton H, Bream V (2001) Families in Conflict;
perspectives of children and parents on the Family Court Welfare Service Bristol
Policy Press
Hunt J, 2003, Oxford Policy Briefing Paper No. 1, Child Contact with Non-Resident
Parents, available via the University website
Maclean M and Eekelaar J ,1997, The Parental Obligation, OUP Oxford
Mueller Johnson K in Family Law and Family Values Maclean M, Hart in press
Pryor J and Rodgers B ,2002, Children in Changing Families, Blackwell, Oxford
Dunn J, 2003, Contact and Childrens perspectives on Parental Relationships in A
Bainham et al (eds) Children and their families: Contact, Rights and Welfare, Hart,
Oxford,
OQuigley A, 1999, Listening to the Childrens Views and Representing their Best
Interests, Joseph Rowntree Foundation
Rhoades H and Boyd S 2004 Reforming custody laws; a comparative study, Int J
Law family and Policy in press
Rhoades H Contact enforcement and parenting programs-policy aims in confusion
in press Children and Family Law Quarterly see also Family Law 2003 for brief
version
Ryrstadt E Joint decisions a prerequisite or a drawback in joint parental
responsibility, 2003, 17 Australian Journal of Family Law
Smart C May V Wade A and Furniss C, 2003, Residence and Contact disputes in
court, DCA,London
Smarth C Neale B and Flowerdew J, Drifting towards Shared Residence Family Law
vol. 33, Dec 2003
Smith M et al (2001) A study of Step children and Step parenting Thomas Coram
Research Unit, London
Trinder L et al ,2002, Making contact work: How parents and children negotiate
and experience contact after divorce YPS/JRF