sou · GOB377d1 · 2001-01-01 00:00:00 — Det gäller både de barn som är placerade enligt socialtjänstlagen och de som är placerade enligt LVU. I LVU införs en ny 13 b § och i socialtjänstlagen en ny 28 a §. Syftet med prövningen är att i så stor utsträckning som möjligt ge barn och unga kontinuitet i relationer och en familj för livet. Jag har funnit att många av de barn som placeras före tonåren blir kvar i vården . En del av dem växer upp i sina familje- hem. Så har bilden sett ut . Vi har således en lagstiftning vars intentioner inte står i överensstämmelse med den verklighet som många barn lever i, i ovisshet om sin framtid. Det visar brist på respekt för barnet och är därmed inte i samklang med . Det är också stötande ur rättssäkerhetssynpunkt. Vårdnaden bör oftare flyttas över till familjehemsföräldrarna Jag föreslår att det skall framgå av både socialtjänstlagen och LVU att socialnämnden skall bedöma om det finns skäl att ansöka om vård- nadsöverflyttning enligt 6 kap. . Jag anser nämligen att socialnämnden i betydligt högre utsträckning än vad som är fallet skall ta initiativ till att vårdnaden flyttas över till familjehemsför- äldrarna om det bedöms vara bäst för barnet. Det skall ske även om vårdnadshavarna inte ger sitt samtycke. Jag anser också att möjligheten till adoption bör utredas för barn som placerats som spädbarn och som fått hela sin känslomässiga tillhörighet i familjehemmet. Jag föreslår också att det i både socialtjänstlagen och LVU tydlig- görs att barnet kan stanna kvar i familjehemmet tills vidare. Om ett sådant beslut fattas skall det inte längre övervägas eller prövas om vår- den skall upphöra. Däremot skall socialnämnden regelbundet följa upp att barnet har det bra och utvecklas efter sina förutsättningar. Barnet har rätt att ses som en självständig individ vid bedömningen av om vården skall upphöra Jag föreslår att 21 § LVU om upphörande av vård ändras så att ett sådant beslut inte får strida mot barnets bästa. På så vis säkerställs det att de rättigheter som barnet har enligt också åter- finns i LVU. Förslaget stämmer också överens med mitt förslag till en ny 1 a §. Vid bedömningen av vad som är barnets bästa skall utgångspunkten vara att barnet skall återförenas med sina föräldrar. Men hänsyn skall också tas till den tid barnet vårdats utanför hemmet, barnets anknytning till den eller dem som vårdar det och hur umgänget mellan barnet och vårdnadshavaren varit. Barnets vilja skall enligt förslaget till ny 1 b § tillmätas allt större betydelse ju äldre barnet är. Mitt förslag om ändring i 21 § LVU innebär följande. Vård enligt lagen skall inte upphöra, om ett sådant beslut strider mot barnets bästa – trots att förutsättningarna för vård enligt 2 eller 3 § LVU är uppfyllda. Bedömningen skall inte vara beroende av om de skäl fallit bort som var vid handen när barnet placerades. Det skall finnas utrymme för att koppla loss barnets situation från föräldrarnas och bedöma om det stämmer överens med barnets bästa att barnet återvän- der hem. Yngre barn skall ha samma rätt till skydd som ungdomar Jag föreslår att det i 22 § LVU införs en möjlighet att vidta tvingande åtgärder för att hjälpa barnet på hemmaplan. Tvång för yngre barn har endast handlat om placeringar. Det är enligt min uppfattning en brist i LVU att det inte finns något steg mellan frivilliga insatser och den starkt ingripande tvångsåtgärden - ett omhändertagande enligt LVU. Det gagnar varken barnet eller föräld- rarna. Det är heller inte rimligt att yngre barn som far illa på grund av hemförhållandena inte har samma rätt till skydd som ungdomar som far illa på grund av eget beteende. Om det fanns andra möjligheter skulle det också kunna leda till att en separation från föräldrarna undviks, vilket är positivt. Jag föreslår att barnet mot föräldrarnas vilja skall kunna placeras i förskola, förskoleklass eller fritidshem eftersom det är klarlagt att dessa insatser gagnar barn. skall ha rätt att tala med barnet även om föräldrarna motsätter sig det Jag föreslår att 50 a § socialtjänstlagen kompletteras med en bestäm- melse om att har rätt att tala med barnet även om föräld- rarna motsätter sig det. När jag har analyserat hur bestämmelser om vård- nadshavarens rätt och skyldighet att bestämma i frågor som rör barnets person förhåller sig till bestämmelserna om barns rätt att komma till tals har jag funnit följande. Under vissa förutsättningar är det möjligt att tala med ett barn mot vårdnadshavarens vilja, t.ex. när barnet har nått en sådan mognad att dess vilja är avgörande. Trots detta kan det behövas en uttrycklig bestämmelse för att komma till rätta med den osäkerhet som råder hos socialnämnderna. Den föreslagna bestämmelsen går dessutom längre och omfattar även de fall där det inte är möjligt att tala med barn mot vårdnadshavarens vilja. Bestämmelsen innebär alltså en inskränkning i vårdnadshavarens bestämmanderätt över mindre barn men jag anser ändå att den bör införas för att skydda och stödja barnet. Ungdomar som har psykiska problem har rätt att få stöd och hjälp från psykiatrin I utredningens direktiv har frågan tagits upp om hur gränserna skall bestämmas för när vård skall beredas den unge med stöd av LVU eller lagen (1991:1128) om psykiatrisk tvångsvård (LPT). Jag har funnit att LVU inte skall utvidgas till att omfatta ungdomar med psykiska problem. Psykiska problem hos den unge utgör i sig inte grund för ett ingripande med stöd av LVU. Om den unge inte uppfyller kravet på en allvarlig psykisk störning enligt LPT, kan inte heller denna lag till- lämpas. Frågan har därför väckts om lagstiftningen behöver ändras för att ge dessa ungdomar behövlig vård. Enligt min mening skulle det krävas en helt annan kompetens och organisation än den som finns inom , om LVU också skulle omfatta ungdomar med psykiska problem. Dessa ung- domar har rätt att få stöd och hjälp hos den instans som har kompetens att behandla dem, nämligen psykiatrin. Jag anser heller inte att det finns skäl att utvidga LPT. LPT, som har strängare villkor för att omhänderta en person med tvång än tidigare lagstiftning, har inneburit att arbetet med psykiskt störda patienter utvecklats betydligt. De problem som redovisats för mig handlar dels om kvalitativa brister i den psykiatriska vården, dels om att samarbetet mellan social- tjänsten och barn- och ungdomspsykiatrin måste utvecklas. Detta kan inte lösas genom att utvidga tvånget mot unga människor. Regeringen har i avtal med huvudmännen inom vården och omsor- gen för åren 2002–2004 avsatt medel som framför allt skall satsas på hälso- och sjukvården där psykiatrin särskilt skall uppmärksammas. Min förhoppning är att de extra resurser som ställts till förfogande bidrar till att ungdomar i gränslandet mellan socialtjänst och psykiatri kommer att få sina behov bättre tillgodosedda utan att sam- hällets tvång mot dem ökar. My assignment consisted of several parts. I was to review the Care of (1990:52) with a view to improving the child's perspective and the rights of the child. I was also asked to examine the need for legislative or other measures in order to protect children in cases where the parents are unwilling to cooperate with the social services. I was to consider the need for legislative amendments or development projects in the social services in order to reduce the uncertainties for children living in homes for long periods. Finally I was to study the relationship between provisions in the Parental Code relating to the rights and duties of the custodian to decide over matters concerning the child's person and provisions about the child's right to express his or her views freely. A separate section describes how I conducted the assignment. I considered it especially important that as many people as possible with knowledge of these issues – both individuals with hands-on experience and researchers – were given the opportunity to express their opinions. I have also been in contact with the relevant public authorities in the Nordic countries and the UK. The parents and society are both responsible for ensuring that the child's needs are fulfilled Our knowledge of child development has grown significantly in the last few decades. Research and practical experience have taught us a great deal about children's development, what they can and cannot do at different ages and how their mental capacity develops. We also know that each child has a unique personality right from birth and that children have skills and actively seek to bond with those around them, not only their mothers and fathers, but also siblings and other key persons. New knowledge is constantly emerging, and values in our society are also in a state of change. This means that the knowledge we have today will, in time, be reappraised. There are no theories or truths in child research; the theories are often contradictory and cannot provide the answers to all our questions. The fact that there are gaps in our knowledge about children does not mean that we should avoid taking a position on children's need. But it does mean that we should be open and able to admit that we as adults do not always know what is best. We must also remember that all children are different. What is good for one child is not always good for another. Today the number of researchers and practitioners who base their work on what children have to say about the way they perceive their situation is limited. Therefore much of our knowledge is based on what adults who come into regular contact with children have related. If children were instead given the opportunity to express what they want and feel, our knowledge of their needs would change. It is therefore vital that the individual child is given the opportunity to speak and that children's opinions are met with respect. This applies, not least, in the social services. The Convention on the Rights of the Child (CRC) focuses on the child's perspective and expresses children's needs as rights. The child's need for, and hence right to, contact with both parents permeates the CRC. At the same time the child is regarded as an independent individual, which means that the concept of the family to some extent takes on a new meaning. The child is not the property of its parents but has an intrinsic value and rights of its own from birth. Several of the CRC's articles are designed to give special protection in situations where the adult world violates or fails to respect the child in some way. If the child is sexually exploited or neglected by his or her parents, it may be necessary to separate him or her from the family. However, separation may not take place against the parents' will, except if considered necessary for the best interests of the child. The CRC also points out that the interests of the child and the custodian do not always coincide. When weighing up the interests of the child against the interests of the parents, the child's interests should always come first. This is essential, since we know that some of the worst violations against children take place in the family. In conducting my assignment I have used the Convention on the Rights of the Child as a starting point in order to strengthen the position of the child both in relations with its own family and in contacts with the social services. I have also taken into account the Convention for the Protection of Human Rights and Fundamental Freedoms, in particular Article 8 which regulates the individual's – including the child's – right to respect for a private and family life. The social services are responsible for ensuring that children and young people grow up in good and secure conditions and that those who risk an unfavourable development receive adequate protection. At the same time I want to stress how important it is that society as a whole takes responsibility for the well-being of our children. Our social welfare policy is one of the most important means of ensuring that children receive adequate support and help. The rights of the child not sufficiently provided for in the Care of The Care of is a protective law. Criticism has been raised that it focuses more on examining and describing the shortcomings of parents than on analysing what is best for the child. According to the terms of reference for my inquiry, I was to propose amendments with a view to emphasising the protective nature of this law and that the main concern is the best interests of the child. The emphasis on cooperation in the Act has led to considerable changes in the sphere of social work. Today most measures can be carried out with the consent of the parties concerned, which is often the best means of ensuring that the child's needs are fulfilled. Although there are relatively few cases in which coercive measures are taken pursuant to the Care of , these children and young people are in an extremely vulnerable position, not only because of the nature of their situation, but also because of the failure to reach an agreement on how best to fulfil their needs. It is always difficult to take measures without the consent of the parents or the child, even if they are necessary for the child's well-being. I propose the incorporation of a sub-section 1a into the Care of , which sets out that the best interests of the child shall be decisive in all decisions pursuant to the act. I also discuss how to go about determining the best interests of the child. In my opinion this decision should be based on the child's perspective, i.e., what the child has expressed in combination with scientific knowledge and experience. I also propose that the right of the child to be heard should be set out in a separate subsection 1b. This will ensure the child's right to express his or her views – one of the CRC's most important and prescient messages. Here, I want to underline that special skills and knowledge are needed in order to listen to children and understand their reactions. It is essential that this knowledge exists not only among staff in the social services but also in nursery schools, schools and courts. My proposals are based on the CRC, in which the best interests of the child are a primary consideration. The idea of the best interests of the child is based on two principles: the first is the recognition of children's inherent dignity and equal worth as human beings, and the second is that children are vulnerable and should be afforded protection so they can develop fully as human beings. Abuse can be physical or mental I propose an amendment of the wording in Section 2 of the Care of to include both physical and mental abuse, since I believe that the meaning of the word mental abuse needs to be clarified. Mental abuse is difficult to define. It is not about isolated incidents but about a relationship and attitude which is demoralising and which has a detrimental effect on the child's view of itself. Children in this category include children who are viewed as a burden by their parents, who are repeatedly emotionally rejected, violated, terrorised and whose parents threaten to leave them. This category often includes the children of drink or drug abusers. It also includes children who suffer from what is known as failure to thrive, a serious – and in the worst case – life-threatening form of stunted growth as a result of mental neglect. Other than this, I have found no cause for further amendments as regards the care of young persons under the Care of . However, I do highlight the situation of children in families where one or both parents are mentally ill or intellectually handicapped, in order to draw attention to their vulnerability. Care applications should contain a detailed account of the child's situation and need for care I propose that applications to place young persons in care pursuant to Section 4 of the Care of should contain a detailed description of the child's situation and its need for care so that the court has as reliable a basis as possible on which to make its assessment. A detailed account of the child's physical and mental health is just as important as one of his or her situation at school. The account should also incorporate the child's and custodian's views on the need for care and the situation as a whole. The problems of the social services in highlighting children and their needs in their reports about them have long been known. Efforts to incorporate the children's perspective into more areas of activity are taking place in several municipalities in , but they still tend to focus too extensively on the parents' needs. Therefore, in the descriptions upon which applications pursuant to the Care of are based, the child's situation is often dealt with all too sketchily. I propose that the applications should, as a rule, contain a specified care programme. Today care programmes are not always outlined, which makes it difficult for the child and custodian to take a stand. The proposed amendment aims to make it easier for those concerned, including the courts, to form an opinion about the care proposed by the social welfare committee. Parents and young people should continue to have the right to consent to care during court proceedings In my opinion, the right to agree to care during court proceedings should be retained. The right to consent to care during court proceedings in order to avoid care pursuant to the Care of has been questioned. It has been suggested that parents and, when appropriate, young persons, who have refused care at an earlier stage should not be able to change their minds in court. In my opinion, they should retain this right. The advantages of placing children or young people in care with their parents' or their own consent are so great that they outweigh the problems that may arise from having to form an opinion to consent given in court. Doing away with this right would also conflict with other legislation in which the individual's right to have a say serves as a guiding principle. The rights of the child must be improved in court proceedings I propose the incorporation into Section 35 of the Care of of a provision to the effect that county administrative courts and administrative courts of appeal should, if necessary, be able to hear experts during oral negotiations. Children must be afforded a stronger position in court proceedings if we want to give meaning to the words the best interests of the child and children's right to life and development. The experts should be given the opportunity to address any questions to the parties concerned that may be relevant to their task. By inviting experts to participate in negotiations the courts will obtain a better basis on which to assess the child's need for help and support. In my opinion, individuals appointed to represent children in court in accordance with the Care of should fulfil certain requirements. They should have skills and knowledge relevant to the task, including the ability to communicate with children – even very young children – and to explain in a way that is comprehensible to a child what is happening and why. My proposal supports the provisions already set out in the Act on Special Representatives for Children (1999:997). The purpose of this act is to strengthen the rights of the child in cases where a custodian or someone close to the custodian is suspected of having committed an offence against the child. I propose that court decisions pursuant to the Care of should be enforced immediately, unless otherwise decided by the court. The purpose of amending Section 40 of the Care of , is to emphasise the protective nature of this act and to ensure that the care of a child is not broken off owing to error or oversight. Children and young people in public care have the right to high quality care I propose that both the Act and the Care of should specify that the social welfare committee should make regular personal visits to the child's home and conduct one-to-one conversations with the child. I also set out the considerations I believe to be necessary when monitoring the care of children and young people. Children and young people in public care have the right to high quality care. One of the social welfare committee's fundamental tasks is therefore to monitor the situation of children in care and to ensure that these children are in good physical and mental health and that they develop according to the best of their ability. At present, however, there are considerable deficiencies in the monitoring of public care for children and young people. In recent decades this has been perceived as one of the greatest problems in the care sector. Children have the right to a family for life One of the tasks set out in my terms of reference was to consider the need for legislative amendments or development projects in the social services with a view to reducing the uncertainties for children living in homes for long periods. Children who are placed outside their parental homes pursuant to the Act or the Care of should, as a rule, be reunited with their parents sooner or later, with an emphasis on sooner rather than later. Assessment after three years I propose that, after three years, the social welfare committee should make a special assessment of the arrangements for the child's future. The assessment should cover children in care pursuant to both the Act and the Care of . A new Section 13b should be incorporated into the Care of and a new Section 28a into the Act. The aim of the assessment would be to ensure that children and young people, to as great an extent as possible, can enjoy continuity in their relationships and have a family for life. I have found that many of the children who are placed in care before they reach their teens remain in care for more than five years. Some grow up in their homes. This has been the situation for decades. We therefore have a situation where the purpose of the legislation does not correspond to reality – a reality where children live in uncertainty about their future. This reflects a lack of respect for the child and is not in tune with the principles of the CRC. It is also objectionable from a legal security perspective. Custody should be transferred to parents in a greater number of cases I propose an amendment to the Act and the Care of to the effect that the social welfare committee should consider whether there is reason to apply for transfer of custody in accordance with Chapter 6 of the Parental Code. In my opinion, social welfare committees should, to a considerably greater extent than today, take the initiative to transfer custody to the child's parents if they consider this to be in the best interests of the child. They should be able to do this even without the consent of the custodians. I also believe that the possibility of adoption should be examined in the case of children who have been placed in care as infants and have formed all their emotional ties with the members of their home. Furthermore, I propose that both the Act and the Care of should clarify that the child may remain in the home for an unlimited time. If a decision to this effect is taken, it will no longer be necessary to consider whether care should be discontinued. However, the social welfare committee should regularly follow up the child's situation and development. Children have the right to be regarded as independent individuals in connection with decisions to discontinue care I propose an amendment to Section 21 of the Care of which deals with the termination of care, to the effect that a decision of this kind may not conflict with the best interests of the child. This would ensure that the rights of the child under the CRC are reflected in the Care of . This proposal is consistent with my proposal for the incorporation of a new Section 1a. When assessing the best interests of the child, the underlying assumption should be that the child will be reunited with its parents.