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The Way Forward Project Report The Way Forward Project Report The Congressional Coalition on Adoption Institute is a nonprofit, nonpartisan organization dedicated to raising awareness about the millions of children around the world in need of permanent, safe, and loving homes and to eliminating the barriers that hinder these children from realizing their basic right of a family. The Way Forward Project Report November 2011 November 2011 the way Congressional Coalition on Adoption Institute 311 Massachusetts Avenue, N.E. | Washington, D.C. 20002 forward project (p) 202.544.8500 | (f) 202.544.8501 | [email protected] The Way Forward Project Acknowledgments The Congressional Coalition on Adoption Institute (CCAI) acknowledges with gratitude the work of the following individuals on The Way Forward Project Report: Section Drafting and Compilation Working Group Chairs: Jean Geran Julie Rosicky Lorraine Sherr Kathleen Strottman Along with each of The Way Forward Project’s Working Group Participants Country Narrative Appendix written by Candace Little Editors Nicole Callahan Kathleen Strottman CCAI would like to acknowledge: Rebecca Weichhand Editing Assistant Irene Mendez Works Referenced and Consulted Susan Anamier Report Design Allison Cappa The Way Forward Project Website Design for their generous support of The Way Forward Project Tom Merrihew and CCAI’s overall mission. www.thewayforwardproject.org A project of this magnitude would not be possible without the support of many individuals to whom CCAI would also like to express our gratitude: Ambassador Susan Jacobs Tsegaye Berhe Secretary of State Hillary Clinton Stephen Adongo Senator Mary Landrieu Samuel Tushabe Senator Amy Klobuchar Harry Satumba Representative Karen Bass James Kaboggozza Pastor Rick Warren Stephen Ucembe Robert Clay Jeff Ladenson Nyanja Nzabamwita Brodin Renee Demarco Dr. Nathan Fox John Mckay Gillian Huebner Kelley Bunkers Philip Goldman Sibilu Bodja Dr. Mary Dozier Kathy Sacco Dr. Christopher Desmond Michael Wear Dr. David Tobis Sarah Gesiriech Commissioner Bryan Samuels Jedd Medefind Gary Newton Shari Cohey Claudia Cappa Brianne Riley Emily Collins The Better Care Network U.S. Mission Staff in Ethiopia, Ghana, Kenya, Malawi, Uganda and Rwanda the way forward project Dear Colleagues: Last November, the Congressional Coalition on Adoption Insti- tute (CCAI) initiated The Way Forward Project. Over the last twelve months, CCAI facilitated this project to target discussions of child wel- fare practices with six African countries – Ethiopia, Ghana, Kenya, Malawi, Rwanda and Uganda. This bold initiative brought together government officials and child welfare experts from these countries, along with representatives from international and non-governmental organizations. During this time, the project’s working groups have ex- changed information about best practices and strategies to improve the lives of children outside of parental care, and on November 8, 2011 they will present their findings and recommendations at The Way Forward Project Summit and simultaneously release the working groups’ Report. As you all know, Secretary of State Hillary Rodham Clinton is a powerful advocate for children. Under her leadership, the United States government promotes projects in all six of these countries that focus on positive change in the lives of children and their families, especially those who are most vulnerable. The Department of State is proud to host The Way Forward Project’s Summit at the George C. Marshall Center since we share CCAI’s commitment to providing a full continuum of care for children and building stronger families. Our expectation is continued cooperation with CCAI to make the goals of The Way Forward Project a reality. Sincerely, Susan Jacobs Special Advisor for Children’s Issues United States Department of State Letter from the Congressional Coalition on Adoption Co-Chairs November 8, 2011 Dear Friends, We are writing in our capacity as the four Co-Chairs of the Congressional Coalition on Adoption (CCA), the largest, bicameral caucus in Congress. The CCA began in 1985, when a small, but committed group of Members of Congress discovered that they had a common goal – to live in a world where every child has a permanent, safe and loving home to call their own. They also found that their shared commitment to eliminating the barriers that hinder children from realizing this basic right to a family was one that transcended party lines and geographical borders. We have since grown to nearly 160 Members and over the last twenty five years, Members of the CCA have led Congress in the passage of legislation that has dramatically impacted the lives of hundreds of thousands of children. Despite the effort and progress that the United States and other countries have made to support and enable families to care for their children, there are still millions of children living in orphanages or worse, on the streets. It is imperative that legislators, governments, non-governmental organiza- tions, private investors, the child welfare and protection workforces, churches, and faith-based groups work together to ensure that good policies become good practice. Initiatives like The Way Forward Project are critical to creating conversations and partnerships across these sectors to make the hope of a family a reality for all children who find themselves without one. The children of Africa have a very special place in each of our hearts, and we are proud to part- ner with the Congressional Coalition on Adoption Institute and The Way Forward Project to work toward our mutual goals of raising awareness about the millions of children in Africa and around the world in need of permanent, safe, and loving homes and eliminating the barriers that hinder these children from realizing their basic right of a family. We applaud this work and look forward to the The Way Forward Project Report and its future impact on this important conversation. Sincerely, Senator Mary Landrieu Senator James Inhofe Representative Michele Bachmann Representative Karen Bass The Way Forward Project Report CONTENTS 6 - 7 INTRODUCTION 8 Message from the Executive Director 12 Disclaimer 13 Foreword 14 Project Summary 15 Project Timeline 15 Final Report Overview 16 - 29 SECTION 1: FAMILY PRESERVATION AND REUNIFICATION 18 Overview 20 Working Group Contributors 21 Collective Findings 25 Methodology 30 - 59 SECTION 2: INTERIM CARE ALTERNATIVES AND FOSTER CARE 32 Overview 33 Working Group Contributors 34 Collective Findings 48 Appendix I 56 Appendix II 56 Appendix III 60 - 85 SECTION 3: PERMANENCY - KINSHIP, GUARDIANSHIP, AND DOMESTIC AND INTERNATIONAL ADOPTION 62 Overview 63 Working Group Contributors 64 Collective Findings 85 Separate Statement 86 - 131 SECTION 4: LEGAL AND GOVERNMENT INFRASTRUCTURE 88 Overview 89 Working Group Contributors 90 Collective Findings 95 Uganda 102 Malawi 107 Rwanda 112 Ghana 118 Kenya 122 Ethiopia 132 - 133 AFTERWORD 134 - 191 APPENDICES 136 Appendix A - Working Group Contributor Biographies 150 Appendix B - Country Narratives 156 Appendix C - Works Referenced and Consulted 192 ACKNOWLEDGMENTS The Way Forward Project 6 Section 1: Family Preservation and Reunification INTRODUCTION The Way Forward Project The Way Forward Project 8 Message from the Executive Director “And the judge turned to me and he said, ‘Mary, you are doing so well. What is it you want for your life?’ And I answered, ‘I want what all kids want, I want a family.’” – Mary, CCAI Foster Youth Intern (FYI) 2004 On behalf of myself, the CCAI Board of Directors and the nearly 160 Members of the Congressional Coalition on Adoption that we have the privilege of partner- ing with, I would like to thank you for taking the time to learn more about CCAI’s The Way Forward Project. As its name implies, this project is an attempt to drive forward the global conversation on children’s need for family-based care from universally accepted policy to everyday best practice. We were motivated to undertake this initiative by one factor alone: Despite sci- entific evidence that to thrive, children need love, attention and a secure at- tachment to an adult, the number of children living without these things contin- ues to rise. When we began this project, we believed there were several factors that might be contributing to this disturbing trend. Chief among them include a lack of understanding among international foundations, faith-based leaders and government policymakers of the importance of a family to the development of a child, and the absence of an international strategy for addressing this particular need worldwide. We feared that without these two crucial elements, U.S.-based philanthropists, policymakers and churches might be inadvertently contributing to the very problems they were hoping to solve. Kenya, Rwanda, Uganda, Malawi, Ethiopia and Ghana were chosen as the six focus countries because they had both the need (over 2 million, or 25 percent, of their population under 18 is classified as being or- phaned or otherwise vulnerable) and the demonstrated desire among public and private communities – as evidenced by new policies, funding levels and programs – to begin addressing children’s need for a family. We did not and do not intend for the findings and recommendations in this report to be viewed as any sort of mandate, or as a critique of the six focus countries. On the contrary, since leaders in each of the focus countries were already engaged in transitioning to family-based care, we hope this report will not only encourage and support these efforts, but also instruct others on this work so that they might also employ these reforms. We chose the individual members of each working group because they possessed both a deep and abid- ing passion for serving children as well as considerable experience in a wide range of fields in areas neces- sary to affect change. We did not choose members in our working groups for their similarities, but rather for their differences, in the hope that, by bringing together a diverse group of viewpoints around a common cause, they might pave the way for varied and creative solutions.
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