Last week’s post on the Law Commission is actually likely to be the most important long-term material on social care. But today’s announcement that the election is starting means that a lot of political debate will shift away from detailed policy considerations, and everything will be up for grabs again.
The debate about care costs
Parliament in going into its ‘wash-up’, getting through all the stuff that’s still hanging around, so I feel that I need to complete my own wash-up and pick up on the accumulation of materials on funding of long-term care. Most of the emphasis is on older people, the largest population group, and perhaps the one most of interest to people in palliative care, but of course whatever is decided will affect all groups who might use social care services. Perhaps the best general analysis of the issues is contained in the Select Committee on Health Report, originally an investigation of and response to the Green Paper. This is both informative and politically astute, because it explores political judgements alongside the usual policy stuff. Paragraph 372 gets it right:
We would have liked to see all the political parties come together in that spirit to map out a programme of sustainable reform. Instead, regrettably, the Government is hastily drafting a White Paper while also rushing through Parliament a hurriedly concocted Bill that cuts across its own Green Paper, in a febrile atmosphere of unedifying pre-election party-political squabbling and point-scoring.
The Select Committee on Health Social Care Report: http://www.publications.parliament.uk/pa/cm200910/cmselect/cmhealth/22/22.pdf
The social care green paper last year was about issues broader than the funding issue, but how to fund adult social care is the big political issue. No politician cares much, unfortunately, about the many issues about the quality and availability of social care. This is in part realistic, because it is development in social care practice and professional education that will have most impact here. Let’s hope that the proposals for taking on the Task Force recommendations on social work will make a contribution, but it’s hard to imagine this in view of the fuss about the least important of these, the College of Social Work. And also not a lot will happen because nobody much is going to spend money on social care or say a lot about it in the election. Even though some of the importance that people attach to health care is partly about how they or their parents are going to be cared for in their old age, government thinking treats this separately.
Getting personal care right, and the care deficit
The Green paper offered a number of options for funding adult social care, and primarily care for older people, which led to a great deal of political and media interest. To everyone’s astonishment, the government then came forward on 25th November with a partial scheme for free care for older people in the Personal Care at Home Bill, at the same time publishing a consultation, which ended in late February, on regulations that would go with the Bill.
You can see the consultation at: http://www.dh.gov.uk/en/Consultations/Liveconsultations/DH_109139
And the report on the responses at: http://www.dh.gov.uk/prod_consum_dh/groups/dh_digitalassets/@dh/@en/documents/digitalasset/dh_113945.pdf
What they found, not surprisingly, is that most people and organisations involved supported the idea about making free care at home available to more people with the highest needs, but were worried about funding and organising it, particularly in short order. A significant feature of the proposals is an emphasis on promoting home care rather than residential care, and promoting re-ablement services, to help more with people who would be capable of a greater degree of self-care at home. You can’t disagree with this, and you can understand why the government is concerned that the funding debate, as so often before, does not degenerate into how you can fund more care home places, which on the whole are not the favoured option for many older or disabled people. This is a welcome focus on how we can use professional skills and an effective preventive service; just what I said I would like to see when talking about the development of professional social care above.
But…
The perception arises that this is another New Labour ‘stop relying on state care and taxes paying for it and get yourself together to care for yourself’ policy. Such policies are entirely reasonable in one way, because a lot more getting people towards independence would be possible than in our currently dependency-focused care services, and most older people would really like these independence and prevention priorities to be more important in social care. However, you can’t also avoid the impression that this is about trying to organise the services in such a way that the government can get out of paying for most of it, as with their policy on disabled people and single mothers – in fact anyone who is likely to be a significant drain on state resources for a longish time.
I think people just find this unacceptable: their experience of the NHS, and frankly their view of common humanity, leads them to expect that when they need care and it is absolutely clear that they need care, in addition to their own efforts and family support, they expect the state to rally round and do the business. There would be mixed views about how much they are prepared to contribute towards the cost. For most people the answer would be a fair bit if they could afford it probably, and most families would also expect to do their bit too.
But people actually expect the service to be there when they need it, and they don’t expect to be told to sort it out themselves. Neither do they expect to be punished by physiotherapy and aids and adaptations into coping at home with inadequate personal care when they’ve had their approved slice of re-ablement. Physiotherapy, aids and adaptations are valued, but they are not personal care.
The implication of this is that we need to get the personal bit of personal care right. At the moment most people, because of the ghastly stories they have heard, and with some truth, don’t believe their care will be personal and good. We all know, and it says in the Select Committee Report, that there is not enough money in the system currently for that to happen: it’s underfunded. Moreover, the country’s financial mess is likely to mean that for the foreseeable future it’s going to continue underfunded and probably get worse.
There’s a further stumbling block of all these policy statements: they assume that there is no ‘care deficit’. The care deficit is the concept that there is not and never has been in all of history enough care in the world to go round.
Do you share the following scenario? The care I want, when I’m really up against it, is my lovely wife. Unfortunately, there’s only one of her, and when I’m up against it, she will probably be older and in need of care herself. So what I really need is two people who will care for me just like her; actually what I want is for them to be just like her. In shifts, so that means four of her. For me, there aren’t four Margarets in the world. And she’s likely to be competent at it. If you ask her, she would probably say that she’d like me to be around when she’s up against it, but actually she’d like someone better than me at the hands-on personal care. In shifts, so that’s another four people as well as me. You only have to think about it to realise that the kind and quality of personal care that most people ideally want is not realistically likely to be available to them if their care needs are significant. Something more or less adequate most of the time is probably what most people expect and would put up with. But there is not enough pay and there are not enough people who want to do the job for the numbers we are talking about in twenty years time.
The BBC News account of issues about care costs (includes interviews with the main parties’ health spokesmen, a clip of a woman talking about the costs of her husband’s care and a link to the BBC’s good summary of the issues in Social Care Q & A): http://news.bbc.co.uk/1/hi/health/8593118.stm
Guardian news items: http://www.guardian.co.uk/society/social-care
The Personal Care at Home Bill
Meanwhile the Bill has been going through Parliament. I’m not going to go through this, because the debates represent the issues about paying for care looked at more generally in this post, and because I think the detail and a lot of these actual politicians are going to be lost in the election. Time enough when something actually happens later on. If you want, you can see information about the Bill and read the latest version and explanatory notes at: http://services.parliament.uk/bills/2009-10/personalcareathome.html
I list below where you can read the main debates:
(House of Commons)
http://www.publications.parliament.uk/pa/cm200910/cmhansrd/cm091214/debtext/91214-0008.htm#0912147000001
http://www.publications.parliament.uk/pa/cm200910/cmhansrd/cm100112/debtext/100112-0005.htm#10011255000002
http://www.publications.parliament.uk/pa/cm200910/cmhansrd/cm100112/debtext/100112-0020.htm#100112103000002
(House of Lords)
http://www.publications.parliament.uk/pa/ld200910/ldhansrd/text/100201-0002.htm#1002012000311
http://www.publications.parliament.uk/pa/ld200910/ldhansrd/text/100222-0002.htm#1002222000313
http://www.publications.parliament.uk/pa/ld200910/ldhansrd/text/100301-0002.htm#1003011000638
http://www.publications.parliament.uk/pa/ld200910/ldhansrd/text/100317-0002.htm#10031747001048
(House of Commons considering the House of Lords amendments)
http://www.publications.parliament.uk/pa/cm200910/cmhansrd/cm100330/debtext/100330-0026.htm#10033137000007
Death tax or national care service?
There was a political fuss about all this when the three main English parties had meetings to see if they could arrive at a political consensus about how to fund adult care, which was blown apart by jockeying for the election. The Conservatives are keen to say that the option of a levy to pay care costs on people’s estates after they die is a ‘death tax’. Actually, it’s what goes on now if your local council agrees to defer its charges until after you die. So Labour came forward with a delaying White Paper, which, aside from helping people with the ‘highest needs’ with free-ish care now, puts off the decisions for a Parliament and funding for longer.
A good Guardian report about this, which gives links to some of the political shenanigans, is at: http://www.guardian.co.uk/politics/2010/mar/30/burnham-old-people-reforms-concessions
You can read the White Paper at: http://www.dh.gov.uk/prod_consum_dh/groups/dh_digitalassets/documents/digitalasset/dh_114923.pdf
Citation: DH (2010) Building the National Care Service (CM7854) London: TSO.
The title refers to the policy wish to build a national care service that mirrors the NHS. This objective is understandable, because most people cannot understand the distinction between health and social care, and expects to see a similar approach. The aim is to achieve this by portability of assessment between local authorities which would continue to have autonomy about the care provision that they make. However, as the Law Commission consultation on adult care law, which I discussed in detail last week, makes clear, you cannot legislate for total portability because each local authority will vary in what it provides in response to an assessment brought from somewhere else. One point which politicians and policy wonks don’t seem to realise also is that a professional organising or providing a service to a vulnerable older person cannot take responsibility for a service unless they make their own assessment and judgment. So it’s not possible to give people the security that what they’ve got now in Dawlish they can get if they move to Daventry (that’s from one small town in Devon to another in Northamptonshire if you’re geographically challenged). It’s not even possible to ensure that their needs will be seen in the same way.
Another problem with this is thinking mainly about people with the ‘highest needs’, because focusing on this group ignores preventive work. Social care has never been resourced to do a lot of prevention, certainly adult social care – there’s been a bit more in child care on occasion. This plan virtually encourages not bothering with anyone until they, their carers or their family are really desperate. It’s not what people want because it does not provide that sense of security that the NHS provides: that give or take a bit of shambles from time to time, it will be there for them when they need it.
The Conservative option of a low-price voluntary insurance scheme with a one-off payment at retirement for care homes only also won’t work. As most of the comment has suggested, while some Conservative voters can probably afford it, poorer people probably can’t, so the state will end up paying for lots of care anyway. Also, most people will not pay insurance for needs that they can’t yet foresee and hope to avoid. That would be so even if they trusted the insurance companies, which because of their behaviour over the last two or three decades most people don’t. Insurance that everyone pays throughout their working life would probably be acceptable, as it is in Germany for example. However, our benighted level of political debate sees this as an unnecessary tax rather than a sensible collective provision, so this is probably not a runner. A practical problem with this Conservative proposal, like the Labour ‘highest needs’ one, is that it only focuses on a small part of the care system: most people will need home care, not a care home and this proposal will push them towards a care home.
(In parenthesis, if we’re going to get people to understand this we probably need to change the terminology, too: did you understand that last sentence? Of course you did, because you are in the system, but the distinction between care home and home care is likely to be lost on a lot of people.)
So this debate also comes back to the care deficit. There is not enough of the absolutely right personal care in the whole world. This would be so. even if you imported enough poor African and Asian women to do the rich world’s low-paid care and domestic work at the current low level of resources in the care system. Or you could export older and sick people to be cared for in situ in poor countries where the low-paid labour is available. I expect we will be doing a lot of that in future decades, in the same way that the well-off middle classes moved to the Mediterranean in the 1980s and ‘90s (and came back again when they got older without family support and the NHS).
No, what we need to do is to put enough preventive resources into the care system so that people can be helped to stagger on independently for as much of their increased time on this world as possible. Then, we need to resource services so that a reasonable proportion of them get good enough care for as much of the remainder of their time on earth as we can manage. It will not be wonderful; I don’t think anybody believes it will be. Nobody wants the experience of growing older, becoming heavily dependent on others, needing masses of personal help just to get through the day and not being able to do very much interesting with their time. So drop the rhetoric about quality of care and personal development in our third age. Right at the end of our third age, just about coping more or less adequately is about what most people expect. If people hope and plan for better many of them might well be lucky. Really demanding care needs arenot universal, so quite a lot of people will be happy with how it goes. Quite a lot of people will also make plans to leave this earth if an adequate experience in their later life is not available.
In a way, I think the Labour approach has actually been realistic. We can probably stagger on with the present system until the early baby boomers are in their mid-seventies – that’s the early-mid 2020s. By that time, let’s hope the economy and political will can ante up enough resources and caring competence to do a reasonable job for them. That reasonable job will be more preventive, more making the world older person-friendly – we can start on that now. And it will also be a mixture of state, personal and family finance and action. All of those contributors will be paying for care services through insurance and commercial services as well as state provision. All are going to have to do more and better than they currently can. This means better professional training in a whole range of professions, more family care and support (I’d better start improving my skills up towards my wife’s likely expectations) and more taxpayer money and effective state, private and voluntary sector service management and provision. That will be hard to do, but we still have a decade to get better before the real crunch comes.