By Melanie Henwood. [Photo by Dominik Lange on Unsplash].
An Action Plan for unpaid carers was published in the final days of the Starmer Labour government in the United Kingdom. It may provide an important foundation for further progress or be eclipsed by other developments under the new Prime Minister Andy Burnham, but does it offer a substantive plan for carers that is more than re-badging existing commitments?
Introduction
In mid-July 2026, in the dog days of the Starmer administration a flood of policy announcements and intentions poured out of Westminster. In addition to the ban on selling energy drinks to under 16s; screening newborns for spinal muscular atrophy, and representing care workers in fair pay negotiations, the government published its latest action plan for unpaid carers. Structured around the alliterative title ‘Recognise, Refer, Reach’, the action plan sets out a commitment “to ensuring unpaid carers receive the support they need.” Of key significance is the emphasis on the need for a cross-government approach to services and support for carers (evident in the ministerial signatories from four different government departments), acknowledging the complexity of carers’ lives and their need to balance caring with other commitments.
It is important that governments recognise and support unpaid carers, and this document is the latest in a long line of evolving statements and policies, but it is incremental rather than a dramatic advance. Rather than presenting a comprehensive new strategy, much of the action plan is in fact a re-statement of activity already being undertaken, or broad aspirations for future direction.
Recognise
The diverse nature of carers is acknowledged, this includes variation by age, circumstances and intensity of caring. Too often carers are not recognised “whether in the workplace or a health or education setting.” Recognition – both by services, and by carers themselves, is vital in enabling people to access support. It is emphasised that “we have a specific responsibility to help improve the identification of young carers”, and while this is important there are also parallel risks that focusing on young carers, and working age carers, diverts attention from other groups – older carers are arguably relatively over-looked in the action plan and receive little more than passing mention. Older carers however, are also often unseen, particularly when the roles of carer and cared-for are intertwined and there is interdependency until a crisis tips the balance of support.
Refer
The thrust of the focus on ‘refer’ is that carers get the help and support they need at the right time. This acknowledges that carers often find themselves trying to navigate an opaque and confusing system when they need it most, and struggling to find their way, rather than experiencing joined up support and services. The need to integrate information and support across not only health and social care, but also in education, employment, financial support, and wellbeing, points to the challenges that carers face and the significant scope for gaps and overlaps to compound the situation.
‘Refer’ may not be the most appropriate umbrella term to capture the objectives of this part of the action plan, and it is unlikely to be one that will find much traction with unpaid carers themselves. The danger of referral as a pathway is that – like its close cousin ‘signposting’ – it often leads to a dead-end or simply passes the buck to another part of the system.
Reach
The meaning of ‘reach’ also requires some exploration to uncover. Essentially this is about ensuring carers can achieve their potential and fulfil the goals they have for themselves alongside caring. For some carers this will be about being able to combine paid employment with care (something that is especially important in avoiding poverty in later life). For young carers it is about getting the right recognition and support throughout early years, school and college, particularly if they are to have meaningful choices about future career development and opportunities.
Outside of education and employment, fulfilling potential is also about community participation and social engagement. Carers of all ages – like all other citizens – need to be able to have time and space for their own fulfilment and wellbeing.
An Action Plan or a stock-take?
Much of the action plan provides a stock-take of steps that are already being taken or are planned to improve carer identification and support. It isn’t a new model or approach, and although the components are essential to improving the experience and outcomes for unpaid carers, it is hard to pin down the essence of the approach. Eighteen years ago (in 2008), under the last Labour government, many of the same themes and issues were identified in a landmark national carers strategy which set out a vision that by 2018:
“..carers will be universally recognised and valued as being fundamental to strong families and stable communities. Support will be tailored to meet individuals’ needs, enabling carers to maintain a balance between their caring responsibilities and a life outside caring, while enabling the person they support to be a full and equal citizen.”
The vision has yet to be fully delivered, but progress has undoubtedly been made, and the aspirations of the strategy remain relevant and resonant. Perhaps this is the time for the Burnham government to re-energise the vision and finally make real the 2008 ambition to deliver what carers want: “A caring system on your side. A life of your own.”
Dr Melanie Henwood
Melanie Henwood is an independent Health and Social Care Research Consultant. She is also a visiting research fellow with the Institute of Public Care, Oxford Brookes University.
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Photo by Dominik Lange on Unsplash