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Family group conference: An innovative approach to truancy in schools. A case study

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Family group conference: An innovative approach to truancy in schools. A case study

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FAMILY GROUP CONFERENCE: AN INNOVATIVE
APPROACH TO TRUANCY IN SCHOOLS - A CASE STUDY
by
Jane Gunderson
A Dissertation Presented to the
FACULTY OF THE ROSSIER SCHOOL OF EDUCATION
UNIVERSITY OF SOUTHERN CALIFORNIA
In Partial Fulfillment of the
Requirements for the Degree
DOCTOR OF EDUCATION
August 2000
Copyright 2000 Jane Gunderson
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UMI Number: 3018086
Copyright 2000 by
Gunderson, Jane
All rights reserved.
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UNIVERSITY OF SOUTHERN CALIFORNIA
School o f Education
Los Angeles. California 90089-0031
This dissertation, written by
JANE GUNDERSON
under the direction o f Dissertation Committee, and
approved by all members o f the Committee, has been
presented to and accepted by the Faculty o f the School
o f Education in partialfulfillm ent o f the requirementsfor
the degree o f
D o c t o r o f E d u c a t io n
________________ -$ l£ /J0DO______________
r " Dean
Dissertation Committee
Chairperson
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1
Jane Gunderson Dr. Dennis Hocevar
ABSTRACT
FAMILY GROUP CONFERENCE: AN INNOVATIVE
APPROACH TO TRUANCY IN SCHOOLS - A CASE STUDY
This study involved the use of an innovative intervention in schools, called the
Family Group Conference (FGC). This intervention was used with families that had a
child identified as truant. While its use has history in other social discipline areas,
it has little history as a specific intervention for truancy in the United States. This
intervention was unique, both to the school and the families.
The families represented a low-risk group, a moderate-risk group or a high-risk
group. The low-risk group had little or no experience with school sanctioning. The
moderate-risk group had some experience with school sanctioning. The high-risk
group had significant experience with school sanctioning.
In the conferences, families experienced an atmosphere o f respect and
consideration, while they were empowered to create a family plan that addressed the
concern of truancy. When provided with the opportunity, the families identified their
strengths and utilized the conference process to come to a resolution o f the school’s
concerns. This simple, but dynamic process, had a positive effect on the children, the
families and the school, and a dramatic effect on the children’s attendance, that is
unlike any other intervention currently used as an intervention for truancy.
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ii
ACKNOWLEDGEMENTS
Mother asked, “what do you want to be doing five years from now?” In
pondering my answer, I remembered what my professors, of year’s back, said.
“Get your doctorate degree, Jane.” It didn’ t seem an achievable goal considering
there wasn’t a major University within 200 miles.
Within months o f that visit, a doctorate program came to my hometown.
From that point on, I had a goal. Once again, my professors became an important
part of my life. They inspired me. They challenged me. They acknowledged me.
Most importantly o f all, they encouraged me toward my goal. I am thankful for all
of them and for their commitment to education.
I am convinced that I have been blessed with the best dissertation
committee in the world. Dr. William Michael has been an inspiration to me and he
has been a great joy. I have listened intently to his words and I have so enjoyed his
stories about life and the pursuit of goals. Dr. Michael McLaughlin has been the
igniter of ideas and his enthusiasm and energy kept me on task and focused. He has
encouraged my vision for the future of education and the families it serves. Dr.
Dennis Hocevar, my Chair, has been invaluable to the achievement of reaching my
goal. Without his insight, direction and constant assurance, reaching this goal
might only have been a dream. These words of acknowledgement don’t begin to
express my feelings of gratitude and thankfulness.
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iii
This study could not have been done without the assistance of the principal
and other employees o f The School. Their effort and support were invaluable. As
to the families that participated, they were absolutely wonderful. They are
evidence that families have strengths and I dedicate this study to those families.
I am greatly indebted to my classmates, whom I often referred to as “those
other silly people, who in mid-life, detoured to the doctorate.” It was meant to be
that we should come together in education and become friends in life. Without
each other, we would have suffered more, lingered longer and possibly become
much older before accomplishing this goal.
Lastly, is the acknowledgement of my friends and family who encouraged
me to keep going. To say that, my friend, the late Marion Jarrard, was encouraging
would be understating what he saw as his purpose in my quest to the doctorate, hi
his intensely, loving way, he was downright pushy. No one and nothing was to get
in my way. Thank you, Marion, for watching over me then as well as now.
Without my good friend, Fay, the last few years might have been only a blur. Fay’s
love, constant support and interest in my wellbeing give meaning to the word,
friendship. There are too many friends to thank personally, but I would not have
wanted to go through this without them and their constant assurance that life is
good. As to my family, Michelle, Leah and John, and Harper and Kathy, your
loving and supportive words have never meant more to me. Hearing how proud
you are of me made me think about how proud I am o f all of you and our family.
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i v
TABLE OF CONTENTS
Page
ACKNOWLEDGEMENTS ' ii
Chapter
I INTRODUCTION..................................................................................... 1
The Problem
Statement o f the Problem
Purpose of the Study
Research Questions
Significance of the Study
Summary of the Methodology
Delimitations
Limitations
Assumptions
H REVIEW OF TEE LITERATURE.......................................................... 13
Historical Perspective
Family Group Decision Making
F am ily Group Conference
The Family Unity Meeting
Truancy Programs
HI THE STUDY............................................................................................... 54
The Selection Process
The Conferences
The Family Plans
Conferences Summaries
IV DISCUSSION, SUMMARY, AND CONCLUSION............................. 77
REFERENCES !...................... 88
APPENDICES......................................................................................... 93
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1
CHAPTER I
INTRODUCTION
The Problem
Compulsory education laws have existed in all states since 1918 and state
laws have required that all children attend school from age six to age 16 or age 18
(Grocke, 1998). Despite these laws, many parents fail to assure their children’s
regular attendance. In some cities, daily absentee rates are as high as 30% and up
to 50% may drop out of school (Garry, 1996). According to Garry, the statistics
speak for themselves. For instance, nearly 150,000 students are absent on any
given day in New York City’s public school system, the Nation’s largest. In the
Nation’s second largest public school system, the Los Angeles Unified School
District, 10% of the total enrollment or about 67,000 is absent daily and one-half of
the absences is unexcused. In a 1966 United States Department of Education
publication called the Manual to Combat Truancy, it was reported that in big-city
school systems like Pittsburgh, Pennsylvania, there is as much as a 12% absent
student population or more than 3,500 absent students daily. Seventy percent of
those absences reported as unexcused.
Truancy has become a major problem not just for schools but for society at
large. Huizinga & Jacob-Clien (1988) reported it is often the first indicator in
negative juvenile behavior. The economic burden of truancy impacts the student in
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reduced earning capacity, the school districts in Federal and State funding for
average daily attendance, and the taxpayers who pay more for law enforcement and
welfare services (Garry, 1996). David Seinhart, a senior researcher with the
National Council on Crime and Delinquency in San Francisco, (as cited in
Sommerfeld, 1992) stated that in this country every juvenile justice system views
truancy as a thorn in its side. Because these children become the “at-risk” youth of
today, it has become an important goal o f school systems to intervene on the
student’s behalf to prevent the student’s failure.
School administrators have been increasingly frustrated by their inability to
make significant changes in the incidence o f truancy. In recent years, a variety of
programs with varying results have been created to address the problem o f truancy.
A consistently effective program has remained elusive, however.
In this study, an innovative and unique intervention model was used with
participating families who have a child that had been identified as truant. The
intervention model is called Family Group Conferencing. It has a 10-year
international history in Child Protection and Juvenile Justice arenas according to
Maxwell & Morris, (1992), but research has not been located indicating its use in
education as an intervention strategy specifically for truancy. Based on the premise
that families have strengths, this model minimizes the involvement of professionals
and entrusts the family to come up with a family plan to resolve the concerns of the
school around the truancy issue.
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For this study, the definition of truancy was 3 unexcused absences or 10
days of excused absences within a school year. This criterion is consistent with the
standard o f the school district in which this research took place. One family who
participated was identified as having little or no experience with school sanctioning
and was placed in the low-risk category. Another family, with two children
identified as truant, was placed in the moderate-risk and the high-risk category.
The mother was in violation of her SARB contract with the oldest child and was on
the verge of being referred to SARB with her youngest child.
Statement of the Problem
School districts across the nation have struggled to find resolutions that will
impact the family and initiate positive change for the student. Desperate for
solutions, some school districts have initiated creative programs. Sommerfeld
(1992) reported that in Paterson, New Jersey, schools have turned to the court
system. Parents are actually “sentenced” by the Municipal Court for up to 30 days
performing service at the schools at which their children are enrolled. School
administrators in the district have given this program high marks for improving
attendance. A rural district near Eugene, Oregon has instituted a modern-day
“bounty hunter” approach where the district pays selected individuals, called
“learning opportunity coordinators,” to entice students back to school
(Portner, 1996). Again, the program results were described as encouraging.
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In California, it took legislative action to create a new program that
addresses absenteeism. California had the distinction as the only state that paid
school districts for excused absences that, in effect, became a program for gathering
parental excuses rather than reducing absenteeism (Johnston, 1998). Senator
Herschel Rosenthal’s SB 727 bill introduced in 1997, however, had the effect of
reversing that trend and school districts now receive state payments only for
students in attendance. Money has not always been used as a positive incentive to
improve attendance, however.
Many welfare programs across the nation use a reduction in welfare benefits
as a method of punishment if parents do not comply with school attendance
requirements for receiving state benefits. Sommerfeld (1992) reported that in
Wisconsin’s LearnFare (trademark) program, benefits are reduced if two unexcused
absences occur in a one-month period, hi a study by the Employment and Training
Institute at the University o f Wisconsin, Milwaukee in 1990, an improvement in
attendance was not attributable to this approach. Nevertheless, when New York’s
LearnFare pilot program, became law in 1995, a benefit reduction was instituted if
a student is absent without a legitimate excuse for five or more days in a three-
month period. California’s TANF (Temporary Assistance for Needy Families)
program also includes a reduction of the grant funds if school attendance
requirements are not met. The punitive approach is often criticized for being a
short-term fix that fells short of addressing the real problem (Sommerfeld, 1992).
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Even, though a variety o f programs have been tried with varying success,
there remains the concern that no program has been established that consistently
and uniformly effects positive change in the absentee rate in schools. The focus on
attendance has intensified as a result of National Standards where students will be
held to higher academic standards and schools will be challenged to teach to higher
academic achievement levels. The fact remains that academic learning requires
attendance at school, and in order to provide learning time to students, a way must
be found to return them to school and keep them in school.
Purpose of the Study
A major purpose of this study was to assess how the families utilized the
family conference in resolving the issue of their child’s truancy. This study
focused on the family and their process. Each parent made independent decisions
as to who would attend the conference. Each family member was motivated by
personal reasons to participate in this study, and each family approached the
process in his or her unique way. How families arrived at their family plan was not
part of the study as the professionals were not included in their private family time.
It was during this time in the process where the family designed their family plan to
address the school’s concerns. The family plan became a blue print for resolution
as well as a written record for both the school and the family members involved in
the conference.
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Another purpose of this study was to see what effect, if any, the conference
had on the child’s attendance.
Research Questions
This study was guided by three research questions:
(1) When used as an intervention for truancy, what effect did the use of the
Family Group Conference have on the child’s attendance?
(2) How did the Family Group Conference differ from the program called
SARB (Student Attendance Review Board), (Appendix A) which is the
current program used by the school in the district?
(3) How would school districts benefit by instituting the Family Group
Conference into their intervention strategies?
Significance o f the Study
Schools have struggled to develop successful programs of intervention that
address the issue of truancy. Many programs have a punitive impact on the family
that further alienates the family and children from having a positive experience in
education.
The Family Group Conference has been used in other social discipline
areas, and it has been successful as a positive intervention for families. It is a
simple yet dynamic process that creates an atmosphere of respect for the family and
the family’s strengths. Families are empowered to be the source of resolution.
Their personal involvement in the resolution also creates a personal investment in
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the outcome, and families want and desire to succeed in making things different
for their child.
No program has succeeded in becoming a nationally accepted one that
meets the needs of each unique community, but this process has universal
application in any discipline area. O f significant interest is that this intervention
can and should occur very early in a child’s education, and it can follow a family to
another district if truancy continues to be a problem, without the delay o f having
the new school establish a record. Each day saved in that process is one more day
of learning for the child.
It is anticipated that this study would generate interest in this model of
intervention, and that further use o f it in the educational arena would promote
additional research about its application with families.
Summary o f the Methodology
This research project was a case study. The study took place in a rural
community in the Western Hemisphere o f the United States. A demographic
description of the location in which this study took place would make it easy to
identify because it is atypical o f most communities. Because of the sensitive nature
of the intervention, it was decided that the state, the local area, the district, and the
school would not be identified in order to protect the families that participated. The
District Superintendent chose the school, herein called The School, from which the
participants came for this study.
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The School initiated the selection process for students who were identified
as truant The School maintained a list of students who had unexcused absences
and/or tardies in excess o f the acceptable criterion for the district as set forth by the
Student Attendance Review Board (SARB), which has jurisdiction in this area.
This County SARB was designed under Education Code 48321 that allows counties
to establish SARB to address problems of truancy as well as disruptive behavior in
school. The parent or parents of the focus student had been notified of The
School’s concern about the student’s attendance by letter, telephone calls, meetings
or all of these methods. Parents were in receipt of one, two, or three letters (See
Appendix B, C, and D) from The School regarding the attendance problem. For
this study, if a family had received one letter, that family was placed in the low-risk
category, meaning that the family had little or no experience with school
sanctioning. If the family had received two letters, that family was placed in the
moderate-risk category, meaning that the family had some experience with school
sanctioning. If a family had received three letters or had been referred to SARB
that family was placed in the high-risk category. Such placement meant that the
family had significant experience with school sanctioning. SARB was the formal
sanctioning process for The School in this district.
The Principal and the Attendance Officer, herein called The Staff, selected
potential study participants based on subjective criteria such as: Was it known or
believed that the potential family had extended family in the area that could
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participate in the family conference? Had the family not responded to traditional
school interventions? Could the family benefit from participation in a family
conference at this time? Would the conference be a “last opportunity” before a
referral for prosecution?
It was presumed that the selection process was impacted by the past and
present experience The Staff had with the parent(s), and the relationship that
existed between The Staff and the parent(s) at the time of the selection process.
For instance, if The Staffs last attempt to contact the parent was met with hostility,
The Staff may have concluded that an additional attempt would be futile or this
investigator may be at risk, thus consideration of the family was eliminated.
The Staff contacted a potential parent in person. If the parent indicated a
willingness to hear more about the process, his or her name, address, and telephone
number were provided. Initial contact by the investigator was by telephone and
the parent was informed about the conference process and advised that it was a
research study. After a decision was made to participate, the parent was asked to
pick a date and time for the conference. The conferences were held at The School.
Next, the parent was asked to decide who would be invited and to provide names
and addresses of those people who would receive invitations to the conference. An
invitation was sent to the parent(s) o f the focus child as well. Special needs of the
family were provided, such as the need for transportation to the conference or
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childcare. Once the conference date was established, The Staff was advised, and
plans were made regarding which staff from The School would participate.
The conference for each family was held on the day chosen by the parent,
and each family created a family plan to resolve the truancy concern. Each
conference participant and The School received a copy of the conference record
within five working days of the conference.
A. case study was presented for each family from the point o f the
coordination phase of the conference through the distribution o f the written record
of each conference, which was the final contact with the family by the investigator.
Each case study identified the coordination process, the family member
participants, the family conference process, and the family plan. The investigator
did not seek to obtain personal information about family members because the
conference facilitator position is essentially neutral. Personal information about a
participant was provided if it was relevant to the study and only because
participants volunteered it.
The attendance record o f the focus children was compared before and after
the conference. The attendance record was for the school year, 1999-2000. The
family was identified by number and no names were used. Participants were
identified according to their relationship to the focus child.
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Delimitations
The following delimitations confined this study:
1. It cannot be known whether families chose not to participate because it
was a research study and the investigator was essentially unknown to
the family.
2. The selection of potential families was not random and subjective
criteria were part of the selection process by The Staff.
3. In order to avoid a conflict of interest, potential participants were
eliminated if the family was involved or had been involved with the
County’s Children’s Protective Service agency because this investigator
was employed by this agency during this study.
4. It was not known whether families chose not to participate because o f
their knowledge of the investigator as a social worker for Children’s
Protective Service.
5. Potential participants were restricted to one school in the district.
Limitations
There were factors inherent in the intervention model and the design of the
study that might have affected the findings o f the study.
1. The families that participated might have been willing to have a
conference for reasons other than resolution of the truancy issue.
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2. The relationship between the family and The Staff might have
affected a family’s willingness to participate in the conference.
3. Families might not have known what to do after the conference, as they
are not used to having the power of decision.
4. The School staff was not provided with a follow-up plan and might not
have known what their responsibility was regarding family contact
after the conference.
Assumptions
There were two assumptions made for this study.
1. The family conference would have a positive result on the attendance
record of the focus child.
2. The conference would have a positive effect on the family, The Staff
The School, and the overall relationship between the family and The
School.
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13
CHAPTER 2
REVIEW OF THE LITERATURE
The Family Group Decision-Making (FGDM) process embraces the basic
philosophy that fam ilies have strengths. While the practice itself is only 10 years
old, the concept of “family-strengths” was first introduced by Otto (1962). As a
result of Otto’s (1963) work with families, other researchers began to look at
families through a strengths-based perspective (Curran, 1983; Satir, 1972;
Stinnet, 1979). As a result o f this research, two themes emerged in the literature
(Dunst, Trivette, & Deal, 1988). The first theme was that, as a way to meet needs,
the family would mobilize its “intrafamily resources,” which were the family’s
strengths and capabilities. The second theme was that the strengths and capabilities
a family has become the competencies that the family would use to create or
mobilize extra-family resources. The implications of this research were significant.
First, there was the acknowledgement that all families have strengths.
Second, the research showed that by building upon and strengthening the family’s
resources, the family unit became stronger and more able and competent to
negotiate a course of action. A body of research in the 1980s supported the notion
that the informal support systems of a family had a significant effect as an
intervention (Dunst, 1985; Patterson & McCubbin, 1983; Moos, 1986). This
finding conflicted with the traditional social systems perspective, where an
intervention would be defined at the level o f program involvement or in terms o f
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14
whether there was a specific professional therapeutic or educational treatment
(Dunst, Trivette, & Deal, 1988). This conflict resulted in the need for a broader-
based definition o f intervention.
Intervention must be conceptualized as the aggregation of the many
different types o f help and assistance provided by members o f a
family’s informal and formal support network. Second, the influences
and contributions of support from a family’s personal social network
must be recognized and fully taken advantage o f in terms of identifying
resources for meeting needs. We, as help givers, cannot overlook or fail
to recognize relatives, friends, neighbors, clergies, social clubs, and so
forth as potential sources o f support. Third, we must strive to match
resources to needs with particular attention to the increased usage of
informal sources of support. By supporting and strengthening a family’s
personal social network the probability of building long-lasting supportive
linkages will be increased significantly (Dunst, Trivette & Deal, 1988).
Along with this expanded definition of intervention, Dunst, Trivette and
Deal (1988) brought forth an expanded definition o f empowerment. Traditionally,
the social systems definition o f empowerment was (a) having access and control
over needed resources, (b) possessing decision-making and problem-solving
abilities, and (c) acquiring instrumental behaviors that are needed to interact
effectivelywithotherstoprocureresources(Dunst, 1985; Solomon, 1985). The
expanded definition of empowerment includes conditions within the environment
of the helping relationship. First, the helper should take a proactive stance that
supports the competency of people. Second, the environment should provide
enabling experiences where an opportunity to display competence is created. Last,
the change in behavior should be attributed to the help seeker’s action, with the
help seeker having acquired a sense of control about the family matters. When all
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these conditions exist, the family is considered empowered. These expanded
definitions o f intervention and empowerment presumably provided new criteria for
the practitioners o f social work.
In their 1988 book, Enabling and Empowering Fam ilies: Principles and
Guidelines for Practice. Dunst, Trivette, and Deal noted that few advances had been
made in the practice of social work since Otto’s pioneering work in 1962. This was
attributed to the “suggestive but incomplete” family-strengths literature at that time
(1980). They suggested that little had changed in the practice of social work for 25
years, in spite of the feet that researchers were enticed to learn more about families.
The new criteria that define intervention and empowerment describe the
attributes, philosophy, and principles inherent in the Family Group Decision-
Making practice. To report that the concept is new is somewhat misleading, but to
report that social systems practice is slow to change is accurate. If the strengths of
families have been overlooked since 1962, when research first suggested family
strengths were important, then for the last 37 years, the practice o f intervention in
any environment has excluded one of the most valuable resources available. When
the resolution is believed to be only at the professional level, the family
experiences “learned helplessness” and often has little, if any, opportunity to
display its competence or its strengths. The FGDM process has begun to change
the way the social system views families. The FGDM has been widely embraced.
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FGDM has captured international attention and the process itself is
practiced across a variety o f forums. Shirk (1999) stated that research on the long
term effectiveness o f FGDM is lacking. Two problems plague the FGDM research.
That the original model from New Zealand has been adapted by many jurisdictions
has made it difficult to generalize the results of one model to another model. This
circumstance is known as model drift. Additionally, proponents of the process
have not reached a consensus as to what should be considered as the measure of
effectiveness. Across model variations, it might be family satisfaction with the
process, hi child welfare, it might be decreases in the abuse reports or a reduction
in out-of-home placements. In juvenile justice, it might be the rate o f recidivism.
Judge Len Edwards of the Santa Clara Superior Court offered a counter argument
to the research dilemma. While acknowledging it as a common sense approach, he
said, “nothing that’s done in social welfare has any research behind it. It’s all
anecdotal”(Shirk, 1999, p. 20). Nevertheless, the literature offers important
information about the process and its application in social discipline areas.
In New Zealand (NZ), where FGDM originated, the Family Group
Conference emerged from the traditional practices of the Maori, the indigenous
people of New Zealand. In 1989, the NZ government enacted legislation requiring
a statutory Family Group Conference for families in child protection and juvenile
justice. There was no other precedent of its kind anywhere in the world. The
Treaty of Waitangi, considered the country’s founding document, guided this legal
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mandate. The Treaty established the partnership between the Crown and the
Maori. As a result o f the legislation, the Family Group Conference is not a social
work process in NZ. It is a legal process, which makes it unique when compared to
the process application in other countries.
In NZ, there was considerable emphasis on youth justice programs
(Doolan, 1994) where there was a disproportionate representation o f Maori youth.
These programs, referred to as the “Restorative Justice Practice,” were influenced
by the Maori concepts o f conflict resolution (McCold, 1999). In these conferences,
the offender and the victim come together, sometimes with supporting parties. The
offender gains an understanding of the consequences of the wrongdoing, accepts
responsibility, makes amends to the victim, and restitution is determined. Because
the process is designed to open up communication and to empower families to
solve their own problems, the model is referred to as “restorative.”
As a legal process in NZ, professional coordinators ran the conference with
significant representation by staff from youth services, criminal justice, juvenile
court, and the police department. It has been reported that these conferences
sometimes appeared overly focused on the offender to the neglect of the victim, and
that the victim would feel re-victimized by the process. As a result of these early
attempts, NZ has launched a nationwide experiment to bring the conferencing
process to a more restorative nature.
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In the United States, restorative justice practices have existed for the past
25 years. The existing programs were often based on Braithwaite’s (1989) notion of
“reintegrative shaming” (as cited in Morris and Maxwell, 1998). Even before
restorative justice was established, the United States used mediation as the standard
for resolution. In the mediation process, the victim and offender work through four
stages: (a) talking about the crime and its effects, (b) sharing information,
(c) developing a satisfactory written restitution agreement that is mutually agreed
to, and (d) developing a follow-up plan. A community volunteer or social work
specialist often facilitates the process. Although mediation is similar to
conferencing, it is not conferencing. Mediation uses a dialogue format to facilitate
resolution o f an issue between two parties. The conferencing format makes use of
the group process to regulate behavior, and it is believed to be more respectful of
all the participants. According to Braithwaite (1996) conferencing has been
identified as more powerful than mediation in cases o f domestic violence, because
the power imbalances between the victim and the offender are addressed.
Australia developed a version of restorative justice that provided an
opportunity for the police to use family group conferencing as a “community
justice” conference model. The model, when developed in 1991 in Wagga Wagga,
New South Wales, Australia, was referred to as the Wagga Wagga model. It was
originally designed as a police diversion program (McCold & Stahr, 1996). It
provided the police with an opportunity to have a community conference in which
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19
the only participants were those members of the community that had a direct
stake in a particular offense. Arguments were pro and con about whether the police
can remain neutral, whether family conferences will be seen as “real” police work,
and whether diversionary conferences meet the demands o f the justice system. A
greater concern was about what the consequences of the program’s co-optation
were and whether or not it would succumb to the fete of other justice reform efforts
(McCold & Stahr, 1996).
The initial evaluation, however, showed that it was possible to divert
juveniles from a formal court processing, and that the fam ilie s of the juveniles were
perceived to feel supported as they dealt with their children’s misbehavior
(Moore, 1995a). In addition to this perception, the rate of recidivism for the
juveniles did not increase. Crime victims reported overwhelming satisfaction as a
result of their involvement in the process. Equally important were the results of the
few qualitative studies done on the Wagga Wagga program. These studies
indicated that conferencing had significant effects on the attitude that evolved
regarding how the police department felt about itself and that the police found
conferencing more satisfying than their traditional alternative (Moore, 1995a).
According to McCold and Stahr (i996), Moore’s study in 1995 was the
only empirical evaluation of police-based co mmunity conferencing effects,
although the study had several weaknesses. A randomized design was not used,
and the before and after design made it difficult to generalize about offenders
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before the FGC was introduced to the offenders processed after its introduction.
The differences in re-offending appeared to be a function of processing, as they
could not be explained as a conferencing effect.
The Wagga Wagga model is now called Real Justice, and police
conferences are now being performed in communities around the world. In
Canada, the Royal Canadian Mounted Police trains officers in conferencing, and
Real Justice training has been provided to over 150 police departments in the
United States and Canada. It has been introduced in England where it is apparently
perceived to be a “natural extension” o f the fo rmal policing practiced in countries
with British-style policing (Braithwaite, 1989).
McCold (1999) reported that differentiating the conferencing models could
be confusing because all of the models can be called “family group conferencing.”
Complicating matters more is that the New Zealand model has been implemented
in the South Australian youth courts; the Wagga model is being tried in New
Zealand, and Great Britain and the United States are starting to experiment with all
three models (Wamer-Roberts & Masters, 1999). McCold (1999) reported that
many countries are initiating pilot projects in family group conferences and justice
conferencing. Some countries cited were the United States, Great Britain,
Australia, New Zealand, South Africa, Israel and Singapore. Many o f these
projects now include evaluation instruments.
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21
In the Newfoundland/Labrador Project in Canada, the family group
decision-making model was adapted to specifically address the problem o f family
violence (Burford & Pennell, 1994). From the outset, Pennell acknowledged that
there was not one model o f family group conferencing, because the requirements
that were needed to address youth crime differed from the requirements to address
child protection. In youth justice, a victim is usually from outside the household
while in child protection the maltreatment is usually within the family
The pilot project in Canada was begun in the early 1990s when there was
little research on the process of conferencing. Pennell and Burford (1996) reported
that in the situation o f family violence, the family group conference was
considerably more than a family-focused, decision-making event. They described
it as a process o f building partnerships, not only around the family, but also within
the family so that the child and adult family members were protected. It was an
opportunity for all o f the voices to be heard which resulted in culturally sound
plans that met public standards (Pennell & Burford, 1996). The model was referred
to as FGDMP (the Project) with the aim of the project being the reduction of family
violence and power imbalances in the family. A goal of the project was to protect
family members from further abuse, not necessarily to keep the family together at
any cost.
Great Britain (United Kingdom) responded quickly to the introduction of
Family Group Conferences. In 1989, the parliament passed the Children’s Act
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(England and Wales), that was designed to encourage families to assume more
responsibilities in the protection of their children and young people and also
required services to be delivered in a ‘partnership’ with the parents. Initially, the
FGC was considered a “good practice” concept, and the Government and the
Department o f Health wanted to see local development of the practice, rather than
to impose it as a national standard. The push to implement the FGC came from an
influential Family Rights Group.
New Zealand practitioners were invited to the United Kingdom by this
Family Rights Group in 1990 to talk about the FGC experience. The Family Rights
Group was an independent national charity that was working to improve the law
and the practices relating to families (Nixon, 1997). This group saw what the
potential o f the FGC was, and how its application could help with the
implementation of the principles of Children’s Act. In 1992, a National Pilot
Group was established, that connected the projects together for the dissemination of
information and sharing. This network has grown from four to over sixty since
1992. Nixon reported that the growing interest o f the FGC as a partnership model
reflected the frustrations of practitioners and agencies to work collaboradvely.
Research has shown that partnership approaches in the United Kingdom were
conspicuously absent (Bell, 1996; Thobum, Lewis, & Shemmings, 1995).
At the same time, professional concern about a family’s commitment to
being involved has hampered the progress of FGCs. Typical interventions tend to
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23
reduce the ‘family’ concept, while the FGC starts with a broad definition of
family, and the research into FGCs has shown that the professional concern is not
warranted (Lupton, Barnard, & Swall-Yairington; 1995; Marsh & Crow, 1998). hi
these research studies, FGC coordinators reported that it was more difficult to get
professionals to the meeting than family members, and that families were more
involved in the FGC than in any other type of meeting. In another study, Marsh
and Crow (1997) looked at 80 FGC’s in the United Kingdom. In 94% of the 80
FGCs, families offered some level of support, and in 3 1% of those cases, fam ilies
offered to care for the children for at least a portion o f the time. Another issue for
the professionals was the loss of control in decision-making. As social workers
have been pushed towards more social control of their cases, this baton might be
difficult to pass.
There is a strong push from the research area in the United Kingdom to
move away from services that are the reactive and investigative models of
intervention of the past to ones that are more proactive and supportive to families
(Nixon, 1997). If this doesn’t happen, the FGC may continue to remain on the
fringe o f the service option. Nixon proposed that the implementation of the FGC
must be done with the cooperation of all other existing systems and in the spirit of
the guiding principles o f the Children’s Act of 1989.
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In the United States, there has been concern about the lack of research,
about the effectiveness o f the process, and about its appropriateness in cases of
child abuse. Equally important, has been the lack of coordination of providing
information and of introducing the FGDM process to states, counties and other
interested parties. Pilot programs began, here and there, in the states in about 1996,
and since that time, pockets o f programs have sprung up in different areas of the
country.
Leading the way in the United States has been Oregon, where the Family
Unity Model (FUM) originated. This model is somewhat different in process but
similar in philosophy to the Family Group Conference. The Oregon legislature
mandated “its consideration” in all child abuse cases in 1997. The most current
statistics have revealed that, in 1998, Oregon used the FUM with 40% of its new
child abuse and neglect cases, some 4,089 meetings (Shirk, 1999). Shirk also
reported that in over half o f the states, child protection workers have received some
training in the FGDM.
Santa Clara County in California has made a significant investment in
creating a program that incorporates the FGDM process into their services to
clients. Since 1996, families involved with the Department of Family and
Children’s Services (DFCS) have had the opportunity to participate in a FGDM
process called the Family Conference. In July of 1998, the Board of Supervisors
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25
approved funding for the creation of the Family Conference Institute
(Family Conference Gazette, 1999). Santa Clara is currently at the end o f the
second year o f a three-year evaluation program that is being done by the Walter R.
McDonald and Associates, Inc., a consulting firm specializing in youth and family
services. The David and Lucille Packard Foundation are funding this $400,000
evaluation.
In Minnesota and Vermont, a form o f the FGDM is being used, most
commonly in “community conferences.” Woodbury, Minnesota began using
community conferences about four years ago with juvenile offenders. According to
David Hines, the department's community justice officer, conferences reduced the
rate of recidivism more effectively than did the courts. Additionally, he reported
that 85% o f the victims and 87% o f the offenders report a high satisfaction rate
(Shirk, 1999). In Bethlehem, Pennsylvania, where the ReaUustice (trademark)
program operates, Bob Costello, a coordinator for ReaUustice reported that, as a
communitarian model, the process brings together both the victim and offender
families who are affected by a specific incident to reflect on the harm that was
done. Costello suggested that our legal system has protected offenders from the
consequences o f their behavior, resulting in the needs of victims and the greater
community not being met.
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What is the future for the FGDM practice? Burford, a researcher from the
Newfoundland/Labrador Project in Canada, now with the University o f Vermont
School of Social Work, reported that many questions need to be answered
including such questions as: (a) how people can be kept safe when violence has
occurred in their life situations, and (b) what will the effect be of mainstreaming an
‘empowerment’ model? In 1997, at the Second World Congress on Family Law
and the Rights o f Children and Youth in San Francisco, the FGC was awarded the
Irving Cantor Award from the Association of Family and Conciliation Courts for
program innovation and its contribution to improving the lives of children
(Schepard, 1998). Judge Len Edwards of Santa Clara County Superior Court said,
“Our political leaders are delighted that something that makes such good sense
could be implemented into social policy” (Shirk, 1999, p. 18).
FGDM is a process (in practice) which originated in New Zealand in the
mid-1980s. From this practice evolved the two most common models, the FGC
and the FUM The FUM was developed in Oregon in 1989 and like the FGC, it is
family centered, culturally relevant, family-strengths-oriented, and community
based (American Humane Association, 1997). The FGC model was mandated by
the New Zealand government in 1989 for use with families who have children who
have suffered abuse or neglect. The two models were introduced at approximately
the same time which was an amazing occurrence when one considers the Oregon
developers of FUM reported that they were unaware of the New Zealand model
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until after the FUM model had been presented in Oregon. More amazing were
the historical events that led up to the practice o f FGDM becoming a reality. An
understanding of those events requires we step back into history.
Historical Perspective
The Maori were the original inhabitants of New Zealand until the 1840s
when immigration by settlers began, predominantly o f British heritage. The
immigrating culture became known as the Pakeha (European settler) and with their
coming, the term Maori originated as a way to distinguish the “first people” from
other people coming afterwards (Orange, 1987). Initially, the cultural integration
was welcomed, but the Pakeha’s institutional impact began to erode Maori culture
under the guise o f the public’s best interest. Tribal identity, cohesion, and
traditions were threatened.
The traditional Maori system is based on decentralized tribal autonomy and
organic solidarity o f kinship. Within this system, there are four organizational
levels that are descended from a common ancestor or event. The waka. which
consists of a group of tribes, forms the largest sociopolitical unit. Their ancestors
came to New Zealand on the same canoe. Members of a tribe or iwi took the name
of a common ancestor that was on one of the canoes. Although each tribe was
independent and self-governing, there was strong tribal feeling and identity. The
hapu represented tribes divided into smaller organizations. They took a common
ancestor’s name and their society is built around their respect for their ancestors.
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Within the hapu, a kin group is formed that is even closer than the iwi.
Hereditary chieftains and leaders comprise the rancatira who lead the hapu.
The extended family or whanau makes up the basic social unit of Maori
society and a respected elder o f the family called kaumatau provides direction.
The whanau include several generations and their spouses. Their local, day-to-day
decisions are made on the basis of kinship. In matters o f the child’s interest, the
tribal group is responsible for the child’s physical, social, and spiritual wellbeing
and its upbringing. A collective responsibility for the children is inherent in Maori
family life. This responsibility takes precedence over the views of the birth parents
(Sachdev, 1997).
When tribal decisions are required, the heads of each unit discuss the
concerns. Through their representatives all members make a contribution to a tribal
decision. The ancestral and spiritual ties bound tribes together, and the kinship
group absorbs a sense o f responsibility for all others. In Maori culture, kinship and
familial ties are of fundamental importance.
For the Maori, the modernization of New Zealand led not only to the
attempted destruction of their autonomy and kinship solidarity, but also to a
centralized state that assaulted their traditional society. Inherent in the
modernization movement was the belief that the Europeans possessed a cultural
superiority. An affront to their personal identity and their cultural beliefs and
values, the notion of superiority diminished their cultural importance. In their
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struggle to find a balance, the Maori vacillated between assimilation and their
attempt to retain some independence.
The greatest period o f strain in Maori society occurred between 1895 and
1930 when deprivation reached its worst level. Deprived o f clear title to their land,
the benefits of modernization and availability to assets, they became the poor
people o f New Zealand, a circumstance that reinforced their unequal status. Their
population reached its lowest level in possibly 500 years, and the culture was
dependent on the Pakeha government.
The notion o f cultural superiority is not new. A similar scenario was repeated in
other countries. In Canada, the Europeans overtook the First Nation Canadian
people and their land. In the United States, white settlers overtook the Native
Americans and their land.
From 1930 to 1950, the Maori made slight gains in their overall status, but
they possessed little power. Nevertheless, the Maori challenged the government
and sought relief. They cited that the Pakeha was violating the Treaty of Waitangi
o f 1840, which originally guaranteed their autonomy. In their challenge, they
revealed that the breakdown o f their traditional and cultural way of living occurred
because the tribal autonomy for decision making about matters of concern
(Pau-te-ata-tu, 1988) had been destroyed. In 1988 the government invited a Maori
committee to submit a report o f recommendations to the government which is now
known as The Report of the Ministerial Advisory Committee on Maori Perspective
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for the Department o f Social Welfare (Pauo-te-ata-tu, 1988). In this report they
described their traditional custom for making tribal decisions and the FGDM
practice was bom.
There was considerable debate about incorporating the practice into New
Zealand’s child welfare’s approach to families, but there were also significant
reasons for doing so. Maori children were disproportionately represented in out-of
home care and they were suffering long stays and multiple placements. New
Zealand’s practices were being criticized as abusive and racist. According to
Barbour (1992), (as cited in the 1997 study by the American Humane Association),
several political factors were influencing the development of this practice of
intervention.
In a strained economy, the traditional family structure was perceived to be
disintegrating. This deterioration resulted in the government’s desire to minimize
its interventions and encourage locally based solutions. There was a new interest in
accountability and a shift toward encouraging community involvement and there
was the need to recognize biculturalism.
In 1989, The Child, Young Persons and Their Families Act was enacted
which mandated all child welfare services to use FGDM with its families. The law
also applied to juvenile justice issues when a juvenile committed a delinquent
offense. Although the approach was designed to be used with all families, the
Maori families benefited greatly by regaining some of their cultural practices in
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matters of their children and by not having to be subjected to the disempowering
western tradition of intervention.
Family Group Decision Making
The basic philosophy behind the FGDM approach is that fam ilies have
strengths and when they are brought into the decision-making process, they can
ultimately resolve concerns. The family conference provides a forum for families
to be empowered in their own right. This forum encourages kinship participation
as well as the inclusion of significant others to the family group, thereby enlarging
the family’s support system from which the family can draw strength. Along with
the basic philosophy o f FGDM, the practice is characterized by the four basic
principles of: (a) being family-centered, (b) based on family-strengths, (c) is a
culturally sensitive model and (d) is a community based model.
As a family-centered approach, the FGDM practice encourages families to
tap their knowledge about themselves in order to make informed decisions. When
family members come together, they renew their commitment to each other and
find support in their belongingness within the family. From a strengths-based
approach, the families are empowered to make sound decisions and to take
responsibility for their decisions. Imbedded in this belief is the feet that the family
knows most about themselves. Therefore, they know most about the solutions. In
this respect, the family becomes their own resource. Additionally, they have
discovered their potential and have found their capacity to achieve their goal. As a
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culturally sensitive approach, this practice acknowledges cultural differences and
recognizes the need for personal and cultural identity. From a community-based
perspective, families are encouraged to collaborate with agencies in their
community and to utilize local resources.
Both the FGC and the FUM subscribe to the basic philosophy and
principles underlying the FGDM practice. There are, however, several differences
between the models. In New Zealand, a FGC referral is made to the “Care and
Protection Coordinator” who is an employee of the Department o f Social Welfare.
In the United States, a FUM referral is made to the “Facilitator” who can be any
person trained in the process. The Facilitator and/or Coordinator have the same
responsibility in both models. For this study, the term Facilitator is used as an
interchangeable term.
Family Group Conference
In the FGC, after a referral has been made, there is significant effort
involved in preparing for the conference. Probably, because the conference is
legally mandated in New Zealand, there is considerable emphasis on the maximum
family attendance. Although attendance is legally mandated, the Facilitator does
have an exclusion veto. If a safety issue exists or if a family member’s presence
could have a detrimental effect to the conference, the Facilitator can exclude a
family member. According to Connolly and McKenzie (1999) “exercising this
veto is considered to be an extreme use of power and is done only after careful
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consideration’ ’^). 24). The process o f preparation is the most time consuming
activity o f the conference for several reasons.
The 1997 study done by the American Humane Association (AHA)
identified a variety o f preparation activities such as:
• Ensuring safety for the child or adolescent,
• Broadening the concept of family,
• Reaching agreement with family members (a specific activity to non
court-ordered cases in the United States),
• Inviting family members and other participants,
• Involving offenders, survivors, and children,
• Clearly defining and communicating participants/ roles,
• Educating family members and support persons regarding the
process/model,
• Helping with the preparation of statements in advance,
• Managing unresolved family issues,
• Preparing professionals,
• Coordinating logistics, and
• Recontacting meeting participants
In the AHA study, it was also reported that conference preparation by
practitioners in New Zealand took three to four weeks (Wilcox, Smith, Moore,
Hewitt, Allan, Walker, Ropata, Monu, & Featherstone, 1991), while a study by
Paterson and Harvey (1991) reported an average o f 36 days for preparation time.
The conference event begins with introductions and/or greetings to all
conference participants. At this point, a family ritual is honored if the family
desires it. The conference itself has three phases; (a) information sharing,
(b) private deliberation, and (c) agreement. In the information-sharing stage, all
information relevant to the concerns of the child is presented. This phase is critical
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to the process because the family cannot be expected to make sound decisions if
any information is withheld- During this phase, conflict could arise for any number
of reasons, and the Facilitator needs to be prepared to deal with it. This phase is
also a time for clarification o f issues for the family and the professionals, as well as
time to explore resources.
During private deliberation, professionals are excluded. The family group
considers the information, discusses options, and arrives at a decision and plan.
The principle o f excluding professionals in private deliberations is strongly
reinforced within the FGC model based, in part, on the belief that family members
will engage in more honest communication with each other when the professionals
are not present. The presence of a professional in deliberation might also provide a
venue for the professional to take control of the meeting if family members are
more acquainted with deferring to authorities.
Connolly and McKenzie, (1999) reported in the agreement phase, the
Facilitator seeks to achieve a decision-making partnership, within the family group
first and then between the conference participants, the family group and the
referring professionals. Reaching agreement not only commits the family to their
plan, but also co mmits the Department of Social Welfare to providing the services
and resources needed by the family to complete their plan successfully. They also
reported that w ithin the first 12 months of legislation, only a very small
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percentage of FGCs failed to reach agreement, and in most o f those cases it was a
dispute within the family that resulted in a failed agreement.
In arranging a conference, priority is given to the family’s preference as to
date, time and location. Conferences are not to be scheduled for the convenience of
the professionals. The AHA. study cited research supporting the family scheduling
preference (Maxwell & Morris, 1993b; Paterson & Harvey, 1991). Their research
showed that the number o f conference participants (both family and support
people) increased when conferences were held outside regular working hours.
Paterson and Harvey also provided other outcome data showing that conferences
averaged six family members, support people attended about one-third of the time,
and 11 was the average number o f participants attending a conference. In the
Newfoundland and Labrador study in Canada, Burford and Pennell (1995)
indicated that 13 to 14 were the average number of participants and that the length
o f time for a conference averaged six hours
Monitoring the plan is an important component of a successful FGC.
Monitoring can be accomplished in a number of ways, from telephone contact or
written communication to a reconvening conference. The family participants
should be given an opportunity at the meeting to discuss a review process as well as
safety options if they are struggling with implementation o f the plan.
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The Family Unity Meeting Model
The FUM model was developed in Oregon in 1989 as a way to provide a
collaborative working relationship with families involved in child protection
agencies (Graber, Keys, & White, 1996).
There are seven stages in the FUM process. The first two stages,
introductions and meeting purpose, are designed to set a comfort level, to explain
the purpose of the meeting, to determine each participant’s role and to establish
goal setting. The goal o f the parent and caseworker should be consistent with the
goal of the meeting, and each participant should have an understanding of the goal.
The third stage is strengths-assessment. At this point all participants are
asked to think about and to share what they believe are the family’s strengths. The
fourth stage is to share concerns. Characteristic o f this stage is that all participants
are encouraged to use the word “concern” instead of problem. This is an attempt to
decrease the negativity o f shame and blame associated with the word problem.
Starting with the parents all participants are encouraged to share their concerns.
Personal attacks or debates are not allowed. Following this stage, a formal break
occurs.
Stage five, the options stage, is the time for brainstorming and reflection on
concerns and goals. The family should be facilitating this stage and the next two
stages. Stage six is family discussion when the pros and cons of the options are
discussed. The family should be starting to agree on a plan at this point. In the
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final stage, decisions, a plan might be modified to accommodate the
professional’s concern; otherwise the plan is documented and a review process is
developed.
The FGC and the FUM model are more similar than they are different
(American Humane Association, 1997), but they differ in three important
philosophical ways.
First is the exclusionary rule or veto power where participants can be denied
attendance from a meeting. Both models discourage excluding any family
members, but the FUM model does allow parents to veto a family member. The
second difference is the inclusion of professionals during the private family time.
The FGC model supports the theory that professionals should not be allowed to
participate during this phase o f the process. The FUM model does allow
professionals and support people to participate when families are involved in
family discussion, which is the time when they make their decisions and a plan.
The third difference between the models is the stages and processes to which each
model subscribes. In the information-sharing phase of the FGC, the authorities
associated with the case present the facts as do other professionals, but offering an
opinion or suggestion to the family is not allowed. Contrarily, the FUM model
encourages participants and professionals to share concerns and family strengths at
the beginning of the meeting. When it is time for the family to develop a plan, the
FGC model has two stages; (a) the private family time that excludes professional
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38
involvement and (b) the agreement phase. The FUM model consists o f three
stages: (a) options, (b) family discussion, and (c) decision-making. Professionals
are permitted to remain with the family.
The FGDM practice is a mere 10 years old and longitudinal studies have not
been completed. The movement was slow to start, not only, because the
“powerful” helpers were reluctant to give up their power but also because people
do not like change. Is it not ironic that in the business of “fixing” troubled families,
one expects families to change and yet one does not expect the same o f oneself?
Fullan and Miles (1992) reported that change is a learning process that is loaded
with uncertainty with the traditional message o f “plan, then do.” They also stated
that ownership of a change process cannot be achieved in advance of learning
something new, so we must do, then plan, then do and plan even more. It is time
we do something new with families who are struggling and the concept is long
overdue.
What this practice does is two very important things. It requires the
powerful “helper” to release the power to the family. In doing so, it gives hope to
the family and they learn that they have the ability to effect change. It has
significant application in many areas, child protection, youth justice and education,
where, for too long, the troubled family has been seen as incapable of being a part
of the solution. How does this practice compare to programs currently being used
in the education arena today?
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39
Truancy Programs
Some examples of programs that identified their criteria for truancy are
listed in the text to follow. The Office of Prevention, Texas Youth Commission in
Austin, Texas, provided the information about these programs (Texas Youth
Commission, 1999). Two characteristics are notable in a comparison o f the
programs. Each program involved or attempted to involve the parent or parents in
resolving the truancy issue, however, there was no consistent definition o f truancy
across programs.
The Ramsey County Truancy and Curfew Violation Center program in St.
Paul, Minnesota identified a student as truant if there had been 3 to 5 days of
unexcused absences. The Ross County program in Ohio starts alert procedures if
“several” days o f unexcused or excused absences occur. A student is considered
truant with 5 accumulated days of unexcused absences. After the 5 accumulated
days, there is a progressive schedule o f sanctioning that occurs at 10, 15 and 20
days. The THRIVE program in Oklahoma obtained support from the State
legislature in that the parents can be charged with a misdemeanor if 10 consecutive
days of school are missed by their child. In Paterson, New Jersey, the district
policy is that students must attend 160 days and have no more than 20 unexcused
absences. A progression schedule is used at the 5, 10, 15 and 20 day mark, but
with little sanctioning (Sommerfeld, 1992). Some well-known researchers in the
juvenile justice area have defined truancy as “being gone from school for some
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40
portion of at least 3 school days during a 5 day school week without a legitimate
excuse (Huizinga & Jacob-Clien, 1998). It is apparent that there does not appear to
be a uniform, nationally accepted definition for truancy. In order to develop an
effective prevention program, school districts across the nation will first need to
agree on a definition o f truancy, and then develop programs to attack the problem.
Of course, there is always the issue o f funding such an effort.
School districts are not without a lack o f funding sources for programs
designed to confront truancy. There is support for the development of programs at
the Federal level through the United States Department o f Education and the
United States Department of Justice. The Office of Juvenile Justice and
Delinquency Prevention (OJJDP) is a federal sponsor that provides considerable
funding for prevention programs. The Office of Educational Research and
Improvement in Washington, DC is involved in funding ongoing projects for
research as well as preventive programs for truancy. These programs are only a
few of the many that exist at the federal level.
At the state level, most states have a variety of grant programs that are
available to qualified programs. In California, the legislature provided $10 million
in grants to schools and school districts that could establish and operate Targeted
Truancy and Public Safety Demonstration Grant Programs (Eastin, 1997). Diane
Eastin, State Superintendent of Public Instruction in California, reported that these
programs are expected to develop an early intervention program for “high-risk”
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41
youth that could potentially become the repeat offenders for the court system,
schools and society. As a collaborative effort between probation, law enforcement,
social service agencies, and schools, the goal o f each program must be to create a
preventive and corrective strategy for these youth. The program is expected to
succeed in keeping these at-risk students in school and should give them personal
and academic success that will carry them into the future. A goal of the grant
program itself which is a 3-year demonstration project, is to identify what
strategies and practices are most successful as an intervention with these “high-
risk” youth. A final report on the grant project is expected to be presented to the
legislature by March 1, 2001.
At the county level of government, a collaborative effort between a variety
of county agencies, local law enforcement agencies, the District Attorney’s office
and the County Office o f Education has pooled resources to develop programs in
their localities. Additionally, many communities benefit from a local, community
college effort to develop and support programs with both monetary resources and
student volunteers who often work in these programs for college credit.
Beyond the government level, a variety o f funding sponsors exists. A
number of private and public Foundations have supported program design efforts.
Profit and non-profit organizations, charitable organizations such as the United
Way, fraternal groups like Big Brothers/Big Sisters and the Boys and Girls Clubs
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all have contributed monetary resources to the effort o f reducing truancy. With
this adequacy of funding, what types o f programs are being tried across the Nation?
At School On Time. Ready to Work Program
In Neosha County, Kansas, a partnership was created with citizens,
businesses, community organizations, and local government agencies to form a
program called “At School, On Time, Ready to Work.” A primary goal of this
program was to prevent a child’s removal from the home (Davies, 1995). The
program consists of a 90-day effort involving both the student and the parents.
First, a liaison person is assigned to provide intensive supervision of the child.
Second, therapy is provided to the student designed to increase self-esteem and to
build confidence in schooL Third, the parents are provided a group therapy type
experience along with a parenting training. There is a monitoring of attendance
that tracks the student’s attendance for an unspecified period o f time following
completion of the 90-day program.
This program was instituted and co-sponsored by the Kansas Department of
Social and Rehabilitation Services (SRS). In Kansas, truant children under the age
of 16 were referred to SRS or the County Attorney. Either agency, after an
investigation, could file a petition in court that might result in the child’s being
placed in State custody. The process was traumatic for families as well as an
expensive option for Kansas taxpayers. State officials were motivated to find
another way to deal with truancy. According to State officials, it has been
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43
successful in reducing truancy and has been a cost-effective alternative. This
program won the 1995 Bill Koch Community Safety Award from the Koch Crime
Institute.
Ramsey County Truancy and Curfew Violation Center Program
In St. Paul, Minnesota, the Ramsey County Truancy and Curfew Violation
Center program was established in 1994. It is co-sponsored by the St. Paul Youth
Service Bureau (YSB), the Police Department, the Ramsey County attorney’s
office, and local schools. The program is designed to reduce truancy at three
intervention points; (a) through the school, (b) through the county attorney’s office,
and (c) through the St. Paul Attendance Center.
A student is referred to YSB through the school after 3 to 5 unexcused
absences. The YSB infuses problem-solving assistance, family intervention,
counseling and other social services. Staff is to determine why the student is
truant, and then ascertain what services are needed. The county attorney’s office
provides an educational presentation to first-time truants and their parents. A
contract would be developed with the student, family, and school if truancy
continued, and a court hearing could be expedited if the contract was violated. The
St. Paul Attendance Center temporarily house truants picked up by the police. The
Office o f Juvenile Justice and Delinquency Prevention (OJJDP) provides Title V
funds for the counseling services. Since the program’s introduction, police have
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44
reported a noticeable impact on the crime rate. A positive impact on the court
system was aiso reported.
The Absentee Prevention Program (APP1
In Beaver County, Pennsylvania, the Community College o f Beaver County
Prevention Project offers the Absentee Prevention Program (APP). The program’s
target population is elementary students who are tardy or chronically absent. The
goal of APP is early identification and early intervention. On the assumption that
absenteeism is symptomatic of other problems, a school team is created. The team
uses an in-depth assessment approach to the child. The assessment includes
(a) learning about the child’s personality, (b) assessing the child’s needs,
(c) finding out about the child’s home life, and (d) learning about the child’s health
and emotional stability. Building a rapport with the child and the parents is an
important part o f the process.
Once a course o f action has been determined, the intervention may include
such activities as individual and small group student sessions, school conferences,
or individualized student or family services. School staff might do home visits or
parent phone consultations. The intervention may also include such community
services such, as resource referrals to address family problems, substance abuse
information and referrals, or parenting classes. This program has been established
in 12 school districts in Pennsylvania, four schools in New Jersey, and nine
counties in Michigan.
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School on Saturday Program fSOS)
This program in Louisville, Kentucky is an alternative to court prosecution.
The population this program targets is students who have been referred to the
Jefferson County Juvenile Court because o f truancy. The student and the parents
make a Diversionary Agreement to attend a two-hour session on Saturday mornings
from 9:00 a.m. to 11:00 a.m. At least one parent is expected to attend and to
remain the entire time. The parent and child must continue to attend until the child
has three weeks of perfect school attendance. The program, which is facilitated by
a trained social worker, focuses on topics like image, imagination, relationships,
success and responsibility. Lectures include discussions about attitudes and values
and the benefits of formal education. This project has been operated entirely by
volunteers with a minimal expense to Jefferson County.
Youth Mediation Program
This program in Hillsboro, Oregon is a program that was designed in
partnership with the Oregon Association Chiefs of Police. It serves four Hillsboro
elementary schools, three Hillsboro middle schools, and the Hillsboro alternative
school. As an adjunct program, students are trained in mediation. The student
mediators attend a two-day training that includes the basics of mediation and role-
playing. Once trained, the mediator’s goals are to participate in conflict resolution
in school conflicts and to provide a positive example to other students while being
a part of a community project. This program has had a “spill over effect” on
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46
absenteeism as students resolve their conflict one day and are not afraid to return
to school the next day. Research done by Sheverbush and Sadowski, (1994) has
shown that when students are involved in programs that teach problem solving and
conflict resolution, they often resist other types of negative behavior such as
skipping school.
Comer Drue Store (CDS')
Some schools prefer to go outside their school environment to offer
services. Such an effort has been what 11 county regions have done in a North
Central Florida area for 30 years. The CDS is a multi-programmatic agency that is
dedicated to serving youth and their families. Among the other services they
provide, for youth under the age of 18, is a program o f prevention education and
intervention services for truancy. In Alachua County, in partnership with the
School Board of Alachua County, the program does assessments and referrals as
well as extended counseling and case management with truants. This program is a
non-profit United Way Agency. The United States Department of Health and
Human Services support it with major funding by the Florida Department of
Juvenile Justice and the Florida Department of Children and Families.
Another new, up-and-coming, idea that schools have been using for
problem students is the concept o f mentoring. In 1996, a United States Department
of Education publication reported that there is a greater acceptance of mentoring,
and that mentoring results in young people doing better in school academically and
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47
socially. The publication also repotted the results o f evaluations of some
mentoring programs. In Warren County, New Jersey, the Big Brothers/Big Sisters
mentoring program called “Bigs in Blue” matches at-risk youth with police officer
mentors. According to the parents, volunteers, and youth involved in the 1995
evaluation of the program, delinquency was reduced, court involvement was
reduced and the involved youth made improvements in school attendance,
behavior, and grades. A 1990-1991 evaluation of the New York City School
Volunteer Program showed that teachers and volunteers reported their mentees
showed improvement in their self-confidence and developed a better attitude
toward school. With these positive evaluations, the Department of Justice, through
OJJDP, has provided funding for mentoring programs called Juvenile Mentoring
Program (JUMP). Evaluations are currently underway for determining the
effectiveness of the programs. In 1992, the Ford Foundation sponsored programs
in New York City and continues to be a supporter o f mentoring programs
elsewhere in the nation.
Like the rest of the nation, California school districts have their own truancy
problem. They have sought a program that best addresses their problem. Many
counties in California have chosen a program called the Student Attendance
Review Board (SARB). It was enacted by the legislature in 1976 as a mandatory
program, but the legislation has since been rescinded, allowing counties the choice
o f having a SARB program in their county (County Office o f Education, 1999b).
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The last programs to be discussed are SARB programs that school districts in
California have established.
Abolish Chronic Truancy (ACT!
Several schools in the Los Angeles area and in other jurisdictions in
California have adopted Abolish Chronic Truancy (ACT). Other states have
adopted it also. The target population is pre-high school children. These children
may have serious attendance problems or they may just be developing some bad
habits around attendance. The goals o f the program are to improve school
attendance by imposing an early intervention and to improve attendance by holding
parents and children accountable. The process starts by tracking the attendance
problems of a child and by establishing a record. If a child is considered truant, the
parents receive a letter advising them of their responsibility regarding their child’s
education- After that, a meeting with a deputy district attorney is scheduled for the
parents and the child. At this meeting, several community-based organizations are
represented and their personnel are present in order to offer services the family may
need. If attendance continues to be a problem, the parents are notified that court
action could be taken. Should the parents not respond to the first letter and not
attend the meeting, they are sent a second letter notifying them that the penalty for
their child’s truancy could be up to 1 year in jail and/or a $2500 fine under the
Education Code and the Penal Code. In the ACT program, if problems continue,
the family will be referred to a School Attendance Review Team (SAR.T).
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At this meeting, the team, which is made up of a variety of individuals,
addresses the critical issues around the child’s truancy such as the record of
attendance problems, the family’s concerns, potential legal consequences, and
referrals to supporting agencies. The SART will contract with the parents and the
child regarding their responsibility as well as that of the servicing agencies.
Continued attendance problems will result in a referral to the Student Attendance
Review Board, which comprises a broader membership than the SART. Non-
compliance with the SARB contract results in a referral to the District Attorney’s
office. It is estimated that the entire process, from the first letter to a referral to the
District Attorney’s office, takes about 8 to 12 months to complete.
Another countv (The countv in which this study took placed
Another county has developed a comprehensive program under the
jurisdiction of the SARB that has functioned since the early 1980s. Local school
districts involved in this program had early support and an on-going commitment
by the County Office of Education. This County SARB was designed under
Education Code 48321 that allows counties to establish the SARB to address
problems of truancy as well as disruptive behavior in school. In the early 1980s,
the County Office o f Education directed two SARBs. In 1999, there were seven
Local SARBs and one County SARB in operation. At the local level, SARBs are
expected to utilize any and all community resources to resolve the issue of the
student. The SARB program has been effective, in part because of extensive
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involvement by other local agencies such as the local Police Department, the
County’s Sheriff’s Office, and Probation Department as well as the Department of
Social Services. The District Attorney’s Office has been a committed partner to
SARB and the Court system has provided the venue for expedited prosecutions
when necessary.
The process resembles the one identified in the ACT program with a few
differences. The program identifies a student with attendance problems and
attempts an early intervention. After 3 days of unexcused absences or 10 days o f
excused absences, a letter is sent to the parents requesting a conference. If there
have been 5 days o f unexcused absences or 12 days of excused absences, a second
letter is mailed that notifies the parents of a SARB referral. After 7 days of
unexcused absences or 15 days of excused absences, a third letter is sent. Copies of
the third letter are also sent to the County SARB and to the County Department of
Social Services. If the family is receiving welfare benefits through the Department
of Social Services, the CALWORKS program is authorized to sanction those
benefits if school attendance requirements are not met. The third letter is one
difference between another County and ACT. While ACT does not send a third
letter, it has the SART meeting. Another County does not have a SART meeting.
Instead it chooses to send the third letter, hi either case, the family is given one
more opportunity to respond before the more formal sanctioning process of SARB
begins.
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The SARB in another county has shown itself to be an effective process
for dealing with truant students and their families. Extensive cooperation by a
multitude o f agencies within the school districts has resulted in an increase of local
SARB referrals from 192 in the 1992-1993 school year to 536 referrals in the 1998-
1999 school year (Office of Education, 1999a). An increase o f that magnitude also
shows the extent of the problem of truancy and problematic behaviors in the school
districts in another county. Besides the County SARB, many schools have in-
house processes for addressing a student’s problem.
Several administrators in another county have reported that their school has
developed a Student Study Team (SST) approach as an earlier intervention for
problem students. Within the school, a team is created that often includes the
principal, the student’s teacher, the resource teacher, the school counselor and/or
the school psychologist. Parents are encouraged to attend these meetings and to
discuss the problems their child is having in school. At these meetings, problems
are identified so that the appropriate resources can be provided to the family.
Discussion
What does the future look like regarding truancy programs? First and
foremost, there needs to be a uniformly accepted definition o f truancy. When is a
student truant? Is the definition of truant, being absent for “several” days, 3 to 5
days, 10 consecutive days, or no more that 20 unexcused absences in a school year?
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Does it matter whether the student is excused or unexcused or with or without a
legitimate excuse? With a uniformly, accepted definition, at least there is an
understanding of what the problem is. Once the problem is defined, the next task
would be to identify the existing factors that contribute to the problem.
Some factors that have been identified by students and parents are the
following: boredom, ridicule or bullying from classmates, lack of success, (both
academically and socially), frequent illness or reoccurring health-related problems,
fear, lice, peer influence, or a negative parental attitude toward the school, school
policy, or school staff. Once the reason for truancy has been identified, appropriate
services and support need to be offered to help the student. Hopefully, the
intervention will have a positive impact on the student and will prevent the
student’s failure in school, but it is important to remember that truancy is not just a
student’s problem. It is a community problem that often starts with the family.
The significance o f the family is evident in the varied services that every
program offers to the family, from intensive family counseling to problem-specific
family interventions. Not surprisingly, Sheverbush & Sadowski, (1994) found
truancy often run in families. In addition, families that are parented by a parent
who had an unsuccessful educational experience often carry the negative attitude
toward education with them This means that school systems are often dealing with
a problem that has existed for generations in the same family. Programs realize
some degree of success in reducing truancy but the concern remains that each
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program, which is community-specific, might not work as well in a different
community.
The United States Department of Education (1996) has identified five
primary elements of a truancy program as a comprehensive community and
educational strategy. First, the program must have parental involvement in all
truancy prevention activities. The program needs to be “family-friendly” and
include family-strengthening services. Second, the program must have a “zero
tolerance” for truancy and must apply firm sanctions to the student such as truancy
resulting in a delay o f the student’s ability to obtain a driver’s license. Third, the
program must create incentives that are meaningful for assuming parental
responsibility, and that each community has to determine what works best for it.
Fourth, ongoing truancy prevention programs must be established in schools.
Schools may have to provide other alternatives to traditional schooling such as
career academies, school-to-work programs, and the like. Last, school districts
need the involvement of local law enforcement to support their truancy efforts.
Legal “back-up” provides the venue to hold students and their parents accountable.
Tackling the problem o f truancy will not be an easy or inexpensive task, but
the resolution will still be more cost-effective than the alternative. When a student
is without a sound educational base, all of society endures the ongoing cost of the
failure o f that one student As a nation, we need to establish a “zero tolerance” for
failure as well.
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CHAPTER 3
THE STUDY
Because of the sensitive nature of this study, specific descriptors or
characteristics are deliberately omitted in order to protect the location, the school
district, the school, and the families. This study took place in a community in the
Western Hemisphere of the United States. The families that participated in the
study had a child enrolled in The School The School identified the focus child,
herein called “The Child,” as truant by the SARB standards established in this
county.
The Coordination Phase
The families were initially identified from a summary list o f those families
that had received notices from The School identifying the current problem with
their child’s attendance. Families were in categories of being in receipt of one, two
or three letters. Each additional letter meant that the problem had continued and
the parent(s) had not responded to the school’s attempt at intervention. The status
o f the fam ilies could literally change from day to day.
The Principal and/or the Attendance Officer, herein called “The Staff’,
together selectively chose the families referred for possible participation in the
study. Families that had history with Children’s Protective Services were
eliminated. Once a family had been identified, The Staff presented the opportunity
to participate to the family by asking them if they would like to hear about the
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Family Group Conference. If the parent(s) indicated that they would like more
information, the family’s name, address and phone number was provided to this
investigator. Initial contact by this investigator was by phone, unless a message
number was the only number available or the family did not have a phone. In that
case, initial contact was in person.
The Selection Process
In all but one case, the primary parent contact was the mother. For the first
three families referred, two families were contacted by phone and one family was
contacted in person because there was no phone. All three families were interested
and wanted to work toward setting up the conference. One parent was an only
child and the only family member available was her mother. Because she did not
want to include any friends or significant others, she was thereby eliminated as a
possible participant. Another mother wanted very much to participate, but when a
follow-up call occurred, the mother advised the investigator that she had pulled her
child out of The School because of an incident that had occurred in school. The
second family was eliminated as well. The mother of the third family wanted to
talk to her husband about participating and requested a follow-up call. When the
follow-up call was made, the mother agreed to have a conference but wanted this
investigator to come to her house to meet with her first. A date and time was
scheduled to meet, and the meeting took place in the family home three weeks after
the follow-up call. Inherent in the process is the power the family has to “control”
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the conference, therefore no time constraints were placed on the family. At the
meeting, the mother provided some names and addresses o f family members she
and her husband wanted to have included in the conference. She noted that she
wasn’t sure about some others and would need to talk to her husband again about
that issue. She asked that I call her in a week regarding other names. At the
meeting in her home, she identified nine family members to be included. At the
follow-up call, the number had been reduced to five. At this point, there is always
a risk that the family will drop out of the process because they are most likely
struggling with something that is unknown to the investigator. This family did
ultimately confirm their participation and invitations were sent to all participants.
Mother requested that childcare be provided. The conference was scheduled two
months after the initial telephone contact. This family, identified as family #00227,
will be discussed later.
The selection process continued sis only one family had been secured. The
Staffj again, reviewed their summary lists and provided the names of appro:rimately
ten other families. Four of those families were eliminated because of the existence
of histoiy with Children’s Protective Services (CPS). Of the remaining families,
two were approached, one by telephone and one in person. For the in-person
contact, the contact parent was a single father. He was very much interested in
having a conference but he also had no family in the area. He was not initially
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eliminated, because o f his enthusiasm about the prospect of a conference, but
ultimately a conference was not determined to be his best venue.
The other family was reached by phone. This investigator talked with
several family members before finally getting to talk with the mother. Two weeks
had passed and repeated calls had been made before a family member finally told
the investigator that the mother was homeless and did not have a number at which
she could be reached. This fam ily member did agree, however, to have the mother
at this residence on a certain day and at a certain time in the evening. The mother
was finally reached. Mother was somewhat defensive on the telephone although
she allowed this investigator to tell her how the conference worked, and then she
declined the invitation.
The Staff and the investigator went back to the summary lists. The Staff
were informed about the one mother’s homelessness and o f her declining the
invitation to participate. The Staff was going to attempt another contact with her,
as it was thought that she did not understand that she was on the verge of being
referred for prosecution.
The selection process continued. There had been ongoing dialogue about
attempting to communicate with one of the high-risk mothers again. The staff5 s
first contact was met with obscenities and gestures, but The Staff was willing to try
again To the surprise o f the Attendance Officer, who engaged the mother on the
street one day, she agreed to meet with the investigator. The first attempt was not
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successful. It was believed that the mother was in the home, but she did not
answer the door. The investigator left a note, identifying herself; and asking
whether mother would please tell the Attendance Officer where and when she
would like to meet. A day, time and place was decided. The investigator arrived
early and stayed one-half hour beyond the scheduled time. The mother failed to
keep the appointment.
A report to The Staff that the high-risk mother had failed to meet with the
investigator was not met with surprise. The Staff did ask the investigator to re-
contact the homeless mother, as she had changed her mind and would like to
participate in a conference. Once again, the process of arranging a day and time to
call began. The mother made herseif available to the telephone call within two
days. Mother had five family members that she wanted to invite to the conference.
She requested transportation and childcare. A date and time were set for the
conference and invitations were sent. The conference was held four weeks after the
initial contact and two weeks after the re-contact telephone call. This family is
identified as family #00325 and a discussion regarding them will follow later.
The selection process is the most intensive and time-consuming part of the
coordination phase but this phase also includes specific activities that are the “nuts
and bolts” of any meeting coordination. The room has to be secured. Setting up
the room includes the arrangement of the tables according to the anticipated
number of people. A meal is ordered and delivery is arranged for a certain time.
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Transportation and childcare arrangements are made. Refreshments are
purchased and welcoming signs are made. The School assumed the responsibility
of deciding which staff would attend the conference.
The Conference Process
Special touches are an important part of the conference. Family members
are greeted outside the meeting room with a sign that welcomes them to the family
conference of The Child or children (first name only). A floral arrangement is in
the center of the refreshment table. Family members are given time to lounge and
to greet others. The child or children are introduced to their childcare person and
are escorted to another area o f the school. The children are told that they will
rejoin their family when the meal arrives. No one is hurried or directed by the
investigator. The atmosphere is casual, friendly and respectful of all participants.
Every detail is done to show respect to the family.
As people took their seats, the investigator welcomed everyone and asked
each participant to write his or her first name on a nameplate in front of them. All
participants were told that they might help themselves to refreshments at any time
during the meeting and that their lunch would arrive at an approximate time. The
family was welcomed and thanked for coming to the conference for The Child.
Participants were asked to identify themselves by name and their relationship to
The Child or their position at The School. The investigator identified herself by
name and as a student at the University of Southern California.
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Following introductions, there was the business part o f the conference
which included advising the participants about the consent to participate in
research. Each participant was. provided a copy of the consent form. The
investigator explained that this document was for their protection and that it would
be read to them. They were advised not to sign it unless all their questions were
answered about the process. They were told that they would receive a copy of the
consent before they would leave. No participant refused to participate in the
conference process.
The consent form itself described some of the conference process, but the
investigator provided other information regarding the history o f the process and of
the way it has worked for families in other areas. A more specific definition about
the conference process was provided so that the participants knew exactly how the
conference would go. Participants were told that, following the establishment of
the ground rules for the conference, The Staff would identify the school’s concerns
and family members would contribute their concerns as well. This portion of the
conference would establish the goal. The process would, then, move into the
strength portion of the process, wherein the strengths o f the family would be
identified. Following the strength portion, a review o f the conference goal would
be done. Lunch would arrive before the family would go into private family time.
The family was to create their family plan during this time and no professionals
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61
would be present. They were told where to find the investigator when they were
ready to have the professionals rejoin the family to hear their family plan.
The first activity was to establish the ground rules for the conference.
Specific ground rules have been established for all conferences. The rules are as
follows: (a) respect the confidentiality o f the family, (b) one person speaks at a
time, (c) shaming and blaming are not part of the process, and (d) everybody at the
conference has equal importance. Participants were invited to add any ground rules
that they thought were needed. No one indicted it was necessary to add any ground
rules.
The Principal of The School started the concerns portion. The recording of
the concerns was written on an easel that was in front of the participants. Each
concern o f any participant was recorded, providing a running record. Concerns
were expressed by the Principal, the teacher if present, and participants. The list of
concerns was removed and taped on the wall.
In the strength portion of the conference, the primary parent was asked to
start with family members following. The Staff concluded with strength features
they had observed and provided positive statements about the child, the parent, and
the family. The investigator added her compliments to the family, including but
not limited to, their willingness to step outside of their comfort level to participate
in the conference. Again, the strengths were listed on the easel and kept in front of
the participants. This provided a running record. The list was removed from the
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easel and taped on the wall. Just before the lunch arrived, the family was
reminded to refer to the list of concerns, as their goal in developing their family
plan was to address those concerns. Family members were reminded to review the
list of strengths and to keep in mind the good things that they do and that they are
capable o f doing.
When lunch arrived, it was deliberately brought in on fancy serving trays.
The family was told that their family member chose this meal. The Staff and
school helpers (childcare personnel) were invited to dish up a plate. The Staff
investigator, and the school helpers then left the family with their child or children
to enjoy their meal together and to develop their family plan. When the family was
ready to present their family plan, one member came and notified the investigator,
who, along with the professionals, returned to the room.
The child or children were returned to the childcare staff and a family
member, usually the primary parent, went to the easel and explained the plan that
the family had designed. The investigator, at this point, was sitting with or near the
conference group and the parent was facilitating the meeting. All participants
contributed comments and “how to” ideas as informal discussion evolved. This
session was, also, the time when The Staff was asked about or offered information
about specific programs if that information addressed a need the family had
identified. When the parent returned to her seat, the investigator congratulated the
family on a job well done.
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Participants were advised that they would receive a copy o f conference
record within five working days o f the conference. The Staff made arrangements
for reconnecting with the parent regarding any program information that had been
requested. In concluding the meeting, the facilitator asked an informal question.
“What do you think about this process?” Virtually, every person in the room had
something good to say about his or her experience and, unlike most meetings no
one was in a hurry to leave. When the family was ready to leave, the remaining
food was sent home with them.
The Fam ily Conference #00227
Personal Family Information
In the coordination process, this investigator met with the mother in her
home at her request. The mother shared unsolicited, personal information with this
investigator that is relevant to understanding this family.
The Child is from a previous relationship in which the mother and father
had not married. Until recently, The Child’s father had been uninvolved in his
son’s life. The mother and the father were involved in a custody issue at the time
of the conference. The mother indicated that the current situation was confusing to
her son and contributed to some of the behavior problems he was having at home
and at school.
The mother reported that, when her son was young, she moved around a
great deal, including the time after her son had started school. She explained that
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because of her instability, her son was in four different schools, however, briefly.
He was expelled from his first school after threatening his teacher. He attended
that school less than four months. He remained in his second school for 1-1/2
years. He was in his third school less than six months before arriving at The
School. She said she did not realize how disruptive these moves might have been
to him and she stated that the multiple moves contributed to his behavior problems
as well. She is married now and she and her husband have a four-month old baby
boy. She was happy that her son has a more stable life. She was very much
concerned about him and she was committed to do whatever is needed to help him.
She was grateful to have the opportunity to have a conference, but she was
concerned that family members, especially her mother, would bring up her past and
blame her for her son’s problems.
The Conference
This conference was held on a Sunday because the mother considered the
maternal grandfather a key family member for the conference. The maternal
grandfather, who was employed as a truck driver, was only available that day. The
mother requested assistance with childcare. The conference started at 11:00 a.m.
and concluded at 3:00 p.m.
The Child was a seven-year old male in Grade two. The primary contact
parent was the mother. As this family had little or no experience with school
sanctioning, it represented the Low Risk Group.
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There were seven family participants: the mother, the stepfather, the
maternal grandmother and grandfather, a maternal uncle and his fiancee, and the
paternal step-grandmother. Present for The School was the principal, The Child’s
teacher, and a staff person who acted as the recorder.
The participants arrived at approximately the same time. The baby was the
center of attention for a several minutes before the group began to take their places
at the tables. The group was welcomed and the conference process began. Because
o f mother’s fear of being blamed, this investigator spent extra time on the ground
rules portion. The family was reminded that they were here for The Child and the
goal was to make a plan that would support The Child and his mother and
stepfather. Affirmative nods from family members indicated that they agreed with
the purpose.
The Principal was asked to share his concerns about The Child. The
concerns he identified were (1) The Child had been in four different schools.
(2) In the 88 days he had been enrolled in The School, he had been absent or tardy
31 times. (3) The Child was late arriving at school much of the time. The teacher
identified her concerns next. She was concerned that: (1) The Child was behind in
mathematics. (2) There were behavior problems in class, such as he does not
respect the space of other students and often used physical actions on others.
The family’s concerns were: (1) He has behavior problems with the
neighbor children whom are older than him and they bullied him. In turn, he
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bullied other children. (2) Mother had no luck getting the schools to arrange for
him to see a behavior specialist. (3) Mother did not know why he was tardy even on
days when she escorted him to school. (4) He watched a great deal of violent
television shows and mimicked what he saw. (5) He needed new ways to redirect
his energy. (6) He had other problems with the children in the neighborhood.
All family members contributed to the family strength portion of the
conference and, contrary to what she feared, the mother received praise and support
from her family including her mother. The urinating problem was an unknown
problem to the school but had apparently been an issue with the family for some
time. Family members complimented the mother and stepfather for dealing
effectively with that issue. They were recognized for staying persistent with
expectations and rules and for reinforcing The Child when he did things right. The
Staff acknowledged the family’s willingness to communicate with The Staff about
school problems and recognized the stepfather as a positive force in the life of The
Child.
The Family Plan
Conference Record (Appendix
The family spent 2-1/2 hours in private family time and designed a plan that
required the participation of all family members. The mother was the presenter of
the family plan. Mother was unaware that when a child was allowed to attend a
school on an inter-district agreement that a parent had to accompany The Child to
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and from schooL In the family plan, mother would bring him to school instead of
letting him walk by himself The mother reported that she worked with her son on
his math and that he was letting the teacher think he did not know it, but he does.
Family members would make use o f rewards for The Child so that he learned
respect for others. They would give him more encouragement instead of
discouragement. The time he spent on the television and the kinds o f shows he
watched would be monitored. Paternal step-grandmother would take him to church
on Sundays, because he likes to do that with her. His mother would write down the
“house rules” so that when he visited with his grandparents, he had the same rules
that he had at home. The grandparents would supervise him more when he was
visiting them. There would be no yelling at each other unless the house is on fire.
Conference Summary
This family was interactive throughout the conference, not only with each
other, but also with The Staff and the investigator. They seemed genuinely
concerned about The Child and each wanted to contribute his or her knowledge of
the problems he was having. The extended family members had not been aware of
the extent to which The Child had missed school but they were aware that the
mother and stepfather had been having some transportation problems because they
had one car that was, at best, unreliable. They were aware that on the days when
mother had to take the stepfather to work, The Child was probably late to school.
This concern had not been brought up during the conference, but they wanted to
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discuss the possibilities o f how they might help regarding this issue. Family
members tried to figure out who might have some free time, and at one point, they
began to compare work schedules.
The paternal step-grandmother had recently moved to the area and was just
beginning to know the family better. She expressed her appreciation for being
included in the conference and said that she has learned a great deal about the
family that she had not previously known. Her appreciation for her son was
expressed by her look toward him and his admiration for her was obvious in his
smile.
The stepfather, who was a very supportive person to the mother, stated that
he loved The Child very much. The maternal relatives acknowledged him for the
positive effect he had had on the mother and The Child. The mother also took an
opportunity to tell the group that her husband was a very good husband and a good
father to the boys. Mother was comfortable telling everyone that she loved her
husband very much as she touched and patted his knee.
When The Child rejoined the family group, he wanted to know what had
happened. His mother had told him that the meeting was a special meeting for him.
He was welcomed, greeted, and hugged by all family members and mother told him
it was a really good meeting.
The surprise of the meeting was just before The Child rejoined the family.
The maternal grandfather addressed the group and said, “This is amazing. Just
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think. Before we came here, we didn’t really even like each other very much.
Now, we’ve become the support system for the fam ily.”
The Family Conference #00325
Personal Fam ily Information
During the coordination process, this mother shared unsolicited personal
information with this investigator that is relevant to understanding this family.
In the attempt to help her identify family members that might be included in
the conference, the mother revealed that her daughter’s father was deceased and
that her son’s father was in prison. She had not maintained communication with
the father’s side of the family and although there was family that lived locally that
was related to her son, she chose not to include them Mother confirmed her
homeless status but only after a family member had already disclosed that
information. She indicated that she did not advise The School of her homeless
status because she was afraid her children would be required to leave The School.
Initially, the mother refused had to participate in a conference. After The Staff
advised her that she was about to be referred for prosecution, she changed her mind
and requested that the investigator call her back. Her only question to the
investigator prior to the conference was, “Do we have to have this meeting before
the next SARB meeting so they don’t refer me to the District Attorney’s office?”
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The Conference
This conference was held on a Saturday because the mother and other
family members worked during the week. The mother requested assistance with
transportation and childcare. The conference started at 1:00 p.m. and concluded at
3:15 p.m.
The children were a ten-year old female in Grade five and a nine-year old
male in Grade three. The primary contact person was the mother. The mother,
who was in violation of her SARB contract involving her ten-year old daughter,
was about to be referred to SARB regarding her nine-year old son. This family
represented both the moderate risk group and the high-risk group.
There were three family participants: the mother, the maternal grandmother
and the maternal uncle. Two other maternal aunts did not attend the meeting. One
aunt went to work and the family did not disclose why the other aunt had chose not
to participate. Present for The School was the principal. It was learned that a
teacher for one of the children was on campus during the conference. Not sure
about his role, he made only a brief appearance shortly before lunch. The other
teacher was unable to attend.
The participants arrived on time. Having entered the room with the family,
the children wanted family members to hear them play their musical instruments.
It should be noted that the meeting was held in the music room of the school. The
instruments were available to the children. While the children were playing their
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violins, the investigator went to find the principal and advised him that the family
had arrived. The investigator returned to the room and told the children that their
childcare people were present. The children were escorted to the office and the
childcare staff took over. Once every participant had returned to the room, the
investigator told the family about the conference process. The consent to
participate portion was completed. The principal arrived in the room nearing the
end of that portion of the conference.
The principal was asked to share The School’s concerns about each child
separately. The female child was addressed first. The principal revealed that out of
a total of 1037 days that she should have been in school since kindergarten, she had
missed 171 days or 16% of school days. This frequency of absenteeism amounted
to almost one full year of school. In this school year, 1999-2000, The Child has
had 14 unexcused absences and 38 tardies. Mother was in violation of her SARB
contract. The School’s concerns about the male child were that since kindergarten,
he should have been in school 677 days, but he has missed 79 days or 12% of
school days and this school year, 1999-2000 he has had 41 unexcused tardies.
Unlike his sister who was above her expected reading level, he was below his
expected reading level.
The family expressed concerns about the lack o f transportation. The family
automobile had not worked for a while. There were insufficient financial resources
to repair it. The family had been homeless at different times and the mother had
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not been able to find affordable housing. The family accounted for the multiple
school changes as a result o f the mother’s incarceration. When mother was in
prison, other family members, who lived in a different school district, would care
for the children. It was interesting that the children had attended only two schools,
but had moved to and from those two schools, at least, three times during the past
three years.
The strength portion of the conference was a nurturing time for the mother
who had been defensive and seemingly angry throughout the early part of the
conference. Mother was asked to identify some strengths about her family. She
was proud to report that “she was getting things together.” While working toward
her Certified Nursing Assistant certificate, she was employed at a local nursing
facility receiving on-the-job training. She said that she was willing to do what was
right for her kids. Other members reported that family members will “step-up”
when needed and they help one another. The principal commended the mother on
“getting her personal difficulties squared away” and showered her with
compliments about the children. He stated that they were bright children, they
were musical, and they were a pleasure to have in school. The principal said that
he felt the children had learned about their family value of taking care of family,
because the kids watched out for each other at school too. Mother gave praise to an
older son who was attending a local college. She stated that he was a mentor type
to the children and a great deal of help to her and the children. This son would
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have attended the conference except he ran track for the college and there was a
track meet on this meeting day. The participants reviewed what was their goal for
the conference and we were ready to break for lunch. However, the delivery of
lunch was not expected for another 15 minutes.
Grandmother took a personal break and the uncle wanted to step outside for
a while. The mother served some refreshments for her mother and the investigator
and mother talked about her job. The principal went to retrieve the children and
childcare staff. When the children arrived, the investigator went outside to wait for
the lunch delivery. The mother came out and joined the investigator. She started
the conversation with, “I owe you an apology” to which I said, “You do?” She
said, “I was really mad when I got here. I just knew there had to be a trick to this
and it wouldn’t be what you said it would be.” Then, she said, “This is wonderful.
We needed this years ago.” Lunch arrived and all returned to the room.
The Family Plan
Conference Record (Appendix F)
The family spent slightly less than an hour in private family time. The
family recognized that mother’s homelessness was a serious issue and that it was
most important for the mother to find permanent and stable housing. Mother
reported that she had a prospect that she was going to look at later that afternoon.
Childcare arrangements were also needed because the mother is working. Mother
identified that her mother was “getting up in years” and she did not need to be care-
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taking the children anymore because it was a stress on her. The family would
work toward having the car repaired so they would have reliable transportation. If
needed, the mother would like the Healthy Start program coordinator to provide
information about housing opportunities. The mother requested that The School
provide information on their after-school programs, the childcare program, summer
school, music programs, the Girl Scout program and the SHARE program that is
established at The School.
Once again, every participant had positive comments to say about the
conference process. The uncle thanked the facilitator and The Staff for providing
this opportunity. He said that he was not sure what he was assuming when he
decided to attend, but he was happy that he had come to the conference.
Especially complimentary of the conference, the mother stated that the
conference was needed a long time ago for her family. She indicated that every
family could benefit from a conference, as it was a wonderful experience. The
grandmother was equally impressed with the conference process. She commented
on how wonderful everything had been from the food on the table to the people that
transported the family to the school. The grandmother declared loudly that one of
her other daughters should have come with them. This person was not the aunt
who had gone to work, but the aunt who chose not to attend and the family chose
not to discuss it. The grandmother disclosed that the missing relative was home
and could have come.
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Conference Summary
These family members were very supportive o f each other, and it was
apparent from the beginning of the conference that they take great joy in the
children. The uncle brought his daughter to the conference meeting, as this time
was part of their weekend together. She spent her time with her cousins in
childcare during the conference. The uncle said that there was not a choice. He
would not miss the conference and he would not leave his child at home.
As the matriarch of the family, the grandmother was given the respect of
her family members. She contributed greatly to the concern portion of the
conference, and then found herself in receipt o f many compliments in the strength
portion o f the conference. She was humble throughout the conference but made
sure The School and The Staff received her gratefulness for their assistance to her
when she was caring for the children a while back.
Mother was not the same woman when she walked out of the conference.
She arrived angry and she identified later that she felt that she was being tricked.
As it turns out, the principal remembered the last time he saw mother. He and the
police went to her motel room and picked up her daughter and brought her to
school. Mother was last seen shouting obscenities at the principal and the officers
from the motel room doorway. Mother also knew that the investigator was a social
worker for Children’s Protective Services. She let the investigator know this by
leaving a message with the answering service at Children’s Protective Services on
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the morning of the conference. The message was, “(Name) called to confirm that
someone would pick up the family at their home for the conference today.” This
investigator called the home and spoke with the mother and confirmed that
transportation was arranged. Mother never said a word about her knowledge of the
investigator. This investigator presumed that it was on that basis that mother
thought there must be a trick to this offer. The mother was, however, pleasantly
surprised.
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CHAPTER 4
Discussion. Summary, and Conclusion
A comparison of the attendance record of the focus children, before and
after, the conference was done at the end of the 1999-2000 school year, or after the
first week of June, 2000. An assumption of the study was that the attendance of
each child would improve, which is to say that the number of unexcused absences
and tardies would decrease following the conference event. This investigator was
prepared to conclude that the difference in attendance for each child was primarily
a result of the family conference intervention.
Family #00227 represented the Low Risk Group who had no experience
with school sanctioning. In fact, the School reported that the family had never been
sent a first letter. In this family’s case, the response of the family to the conference
cannot be compared to the response of the family to a typical school intervention
because this family had no experience with a school intervention. It is not known,
then, how the family might have responded, had a typical school intervention been
tried.
What will be discussed here is how the family used the process and how the
family responded to their conference. The mother struggled in the coordination
process as she and her husband tried to decide whom to invite to the conference.
From this investigator’s experience, this conflict is common to families. Families
are not sure what to expect and they develop a discomfort with the possibility that
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they will be blamed or judged by family members. A variety o f family members,
who spoke with this investigator in the summer of 1999 in Los Angeles, reported
that, at times, it was easier to handle the judgment of professionals than it was to
anticipate the judgment by family members.
Initially, the mother had identified nine family members that she might have
wanted to attend, but a few weeks later, the number was reduced by four members.
The mother acknowledged to this investigator that there was a family “secret” they
were trying to protect and that the elimination of some family members was related
to that concern. She said that her son was in counseling and that they were
handling the situation. However, she was not sure she wanted others to know about
it. Mother stated that those members eliminated were on her husband’s side of the
family and that her husband was the decision-maker regarding their elimination.
He wanted his brothers to be a part of the conference but he knew they would bring
their wives. Because he did not want the wives to attend, both couples were
eliminated.
Likewise, the experience o f the mother with her own mother was one of
“being blamed” and the mother was fearful that the conference would be more of
the same behavior. These are the processes through which families go that are not
known to conference facilitators, usually. There is no question that the most
difficult time for families is when they are trying to create their list of whom to
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invite to the conference. This is one time when families are most susceptible to
withdrawing from the process as a result.
This family used the conference to gather information, to share information,
and to acknowledge one another. All family members were especially attentive
when listening to other family members and The Staff. There were few, if any,
interruptions of another person. They stayed focused on The Child and monitored
themselves with regard to issues from the past. In the judgment of the investigator,
they were considerate, loving and respectful to each other.
The attendance record o f the Focus Child was compared pre-conference and
post-conference. His attendance record pre-conference showed 31 absences or
tardies in the 88 days he had been enrolled in this school. Post-conference was a
period of 96 days, which was the first school day after the conference to the last
day of school. In 96 days, he had three excused tardies over 30 minutes, seven
unexcused tardies under 30 minutes and missed two days of school because of head
lice.
Family #00325 represented both the Moderate Risk Group and the High-
Risk Group. The mother was on the verge o f being referred to SARB regarding her
son, and she was in violation o f her SARB contract regarding her daughter. She on
the verge o f being referred to the District Attorney’s Office as a result of her
violation o f the SARB contract. A comparison can be done regarding this mother’s
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response to the family conference versus her response to typical school
interventions.
With regard to either child, the school letters did not impress this mother.
Typically, her response was to not reply to a letter, a phone call, or a meeting
opportunity. The relationship she had developed with The Staff at The School was
adversarial. As previously discussed, the principal recalled the last time he saw this
mother. She was standing in her motel room doorway shouting and gesturing
obscenities to him and the officers as they took her daughter to school in a police
car. Even though her violation of her SARB contract made her subject to
prosecution, the prospect of being charged in the courts apparently did not impress
her either. The informal and formal school sanctioning of this mother made little or
no difference in her behavior and her son was experiencing the same difficulty with
attendance that her daughter had. What inspired this mother to attend a family
conference?
Initially, this mother did not agree to come to a conference. It was after The
Staff made an additional contact with her and advised her that she was about to be
referred for prosecution that she changed her mind. What makes this second
contact important is not that The Staff provided her with information about her
possible legal difficulties, but that they had an opportunity to offer her something
else, the conference. Normally in the SARB process, that “something else” is the
risk of being charged with a crime, .being arrested or both. The prospect of the
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conference offered her another choice, whether or not she sincerely wanted to
participate.
Mother had a slow start in utilizing the conference process. This occurrence
was due, in part, to the fact that she arrived angry but she did not reveal until later
that she thought there was a trick to this opportunity. It was unclear to this
investigator how she thought she might be tricked, but she owned that feeling and
responded accordingly. She displayed her anger with both non-verbal behavior and
her tone of voice. She did not want to shake hands with the investigator. She made
little eye contact while sitting at the table with her arms crossed in front of her. Her
acknowledgement of the principal’s entry was non-existent and she responded
defensively when the principal stated the concerns of The School. It was necessary
to remind the participants o f the ground rules, especially the rule of one person
talking at a time. As a result of her behavior, this investigator chose to sit on a
stool near the family table instead of standing up in front of the family. This
position put the investigator and the family members at eye level with each other
and reduced the distance between us. It was a more casual position that was non-
threatening.
When the conference reached the strength portion of the process, the
facilitator took the first opportunity to commend the family and the mother. It was
an opportunity to let mother know that we appreciated her stepping out of her level
o f comfort to be at the school, and to let her know that an enemy was not in her
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82
midst. This mother responded with her first positive response. From there, she
used the conference to bridge differences, to acknowledge her past difficulties and
to be proud of her present accomplishments. Before she left, she gave the
investigator a kiss on the cheek and a hug. She also thanked the principal for his
time and for his being at the conference. She called him by name, by using his
formal title, and she addressed him with respect and consideration. This behavior
was a much different experience with the mother than the last one the principal
recalled.
Other family members gave mother good strokes. Moreover, they indicated
their appreciation for the praise from The Staff for the care of the children when the
mother was not available. It was significant that the grandmother and the uncle
accompanied the mother, especially in view of what mother v/as apparently
thinking about the event. Were the family members showing support of the mother
or were they there to protect her? One will probably not know. What is so curious
about this model is that there are many unknowns about the family and their
processes, but it really does not matter. What matters is, that when the family is
given the opportunity to show what they have to resolve the issues, they use the
strengths in their family to make good things happen for themselves and their
family.
The attendance record of the Focus Children was compared pre-conference
and post-conference. The attendance record of the ten-year old female pre
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conference showed 14 unexcused absences and 38 tardies in the 1999-2000
school year. Post-conference was a period of 69 days, which was the first school
day after the conference to the last day of school. In 69 days, she had one
unexcused tardy under 30 minutes, one verified absence due to illness, three
unverified absences, three tardies over 30 minutes, and one bereavement day.
The attendance record of the nine-year old male pre-conference showed 41
unexcused tardies in the 1999-2000 school year. Post-conference was also a period
of 69 days. In 69 days, he had one unexcused tardy under 30 minutes, three
unexcused tardies over 30 minutes, two unverified absences and one bereavement
day.
Summary
This model is not only effective, but it is efficient. The investigator spent
less than 30 hours of time in the coordination phase, which is the most time-
consuming part o f the process. This time estimate does not include travel time.
The total amount of actual conference time for the two families was approximately
6-1/2 hours. Designing the invitations and developing the conference record took
approximately two hours per family. The total personal hours estimated by this
investigator was approximately 40.5 hours, or 20.25 hours per family or 13.50
hours per child. The average cost of refreshments and lunch was $67.00. The cost
effectiveness of this program is obvious compared to the staff hours and the school
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84
dollars that are spent in today’s programs A t the very least, it is a cost effective
“first step” toward changing the lives of families.
This investigator does not recommend using a social worker from
Children’s Protective Services (CPS) as the meeting facilitator. In order to avoid a
conflict of interest, families who were involved with CPS or who had a CPS history
were eliminated. These school families should have the opportunity to have a
conference and would most likely benefit from the experience, just as the other
families did. This conflict was unavoidable in this study, but would be avoidable in
a school program. This dilemma could be an argument for collaboration between
agencies and schools, but when the concerns are only school-related and do not
involve other service agencies, this investigator suggests that a truly neutral party
serve as facilitator. Additionally, the coordinator and the facilitator should be two
separate positions. It has been this investigator’s experience that the contact parent
and/or family members want to “talk about things” and this jeopardizes the
neutrality of the facilitator position.
Conclusions
This model o f intervention, the family group conference, has been
successful in all areas of social discipline. It was anticipated that the model would
be equally as successful in education for issues of truancy. The focus children in
this study made significant improvements in their attendance following the
conference meeting. Perhaps, the model is even better suited for education than for
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85
other areas, because it is not necessary to exercise a “veto power’ option such as
that found in Children’s Protective Services or Juvenile Justice. The school accepts
the effort o f the family and their plan. Consequently, the school has a working
document, which outlines the family’s needs, in order to resolve the concern o f
truancy. The conference is best offered in the early years when families are
showing signs o f trouble. Unlike the current system, a longevity record of troubles
does not have to be established to prompt a conference. Conferences can be done
at anytime, for any reason, and with any family.
The impact on the attitude of the family and the staff is indescribable. This
simple process transforms families because, in the atmosphere of utmost respect,
the family members do assume their position o f power, they do feel empowered,
and they feel assured that they are capable of resolving the issue. The benefit to the
children, to the family and to the school is invaluable. Truancy is not just absences
and tardies. The face of truancy is personal and family difficulties, homelessness,
incarceration, a lack o f resources, a lack of knowledge, and most of all, a lack of
opportunity. It is all o f that, and more, but the resolution is in the family and within
their power.
The principal o f The School attended both conferences and provided this
investigator with his thoughts of the family group conference in his following
letter.
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86
“First, the differences between the Family Group Conference (FGC) and
SARB are vivid. At SARB we tend to be working with members o f families who
are there by command rather than choice. The school has determined the concerns
and addresses questions to these concerns. The family is generally on the defensive
and often combative. On the other hand, the families who attend the FGC are there
by choice. They have a large say in the determination of the concerns and the
means of resolving the concerns. This input and willingness to participate m ake
the FGC a much more positive experience for all.
In regards to our families and the FGC, I can see progress. The first family
had concerns about attendance, performance o f their child in math, and behavior.
Since our meeting, his attendance and behavior have improved.
Our second family has two children in school. Since our meeting, the
daughter has made an improvement over her pattern prior to the FGC. The son is
doing even better. The mother is in the process of moving to a location within our
attendance zone and within the bussing perimeter that will make it even easier to
get the children to school.
Since we are looking at long term change we need to revisit these two cases
later in the year. However, the cooperation and support expressed by both families
is a strong first step. The presentation of the concerns clearly pointed out the need
to change. The family’s recognition o f these concerns was clearly evident, as was
their intent to work for improvement.
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As the hearing officer for the School District SARB, I have the unique
opportunity to compare and contrast these two procedures. The FGC is clearly the
process with the greatest potential for changing the patterns within a family. The
expressions o f thanlcs and support coming from the family members clearly
indicate their willingness and support to see that the plans are successfully carried
out.”
As a final conclusion, the thoughts of Full an and Miles (1992) are repeated.
They said that change is a learning process that is loaded with uncertainty and the
traditional message is plan, then do. They also stated that ownership of a change
process could not be achieved in advance of learning something new so we must
do, then plan then do and plan even more. In education, we are there.
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88
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Reproduced with permission of the copyright owner. Further reproduction prohibited without permission.
APPENDICES
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94
A ppendix A
Procedure for Processing Requests for Prosecution
RE: Education Code 482000 and Penal Code 272
School:
Identifies student with attendance problem.
Conferences, phone calls, home visits, etc. between letters
Is t letter to parents at three unexcused/ten excused absences.
2n d letter to parents at 5 unexcused/twelve excused absences.
3r d letter to parents at seven unexcused/fifteen excused absences.
Third letter copy sent to local SARB Chair for County S ARB action.
Local SARB
Schedules SARB meeting with parents and notifies of meeting date.
Submits 3rd letter notifications to County SARB for DSS (Department of Social
Services)
action.
Receives attendance updates to monitor progress.
Submits request for prosecution to County SARB Coordinator.
SCOE SARB Office
Notifies school that referral was received.
Prepares case file and enters on database.
Reviews request for prosecution and summarize data for complaint.
Submits complete case file to prosecutor.
Notifies referring school that case has been forwarded.
Attends arraignment and other court hearings.
Communicates status of case to all parties prior to and after arraignment.
Monitors progress o f case and student attendance.
Prosecutor:
Reviews documentation submitted by SCOE Coordinator
Decides whether to prosecute for ED 48200/PC 272 or both.
Files complaint with the District Attorney.
Presents case in court.
Communicates with SCOE Coordinator on status of case.
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A ppendix B
95
Initial Notification of Truancy
To____________________ Parent(s) of_________________________
Parent/Guardian Student
Students residing in California are required to attend school from age 6 to age 18. EC
48200. Valid reasons that students may be excused from school attendance include the
following:
• Personal Illness
• Court Appearance
• Attending a Funeral
• Observing a religious holiday
• Attending an employment conference
• Caring for their ill child
Attendance records indicate that your child has missed school or been tardy without a valid
excuse on more than three days during this school year. Education Code 48260 requires
notification of the following:
1 . That your child is truant.
2. That you are obligated to compel your child to attend school.
3. That parents or guardians who fail to meet this obligation may be guilty of an
infraction and subject to prosecution
4. That you may contact the school regarding alternative educational programs.
5. That you have the right to meet with school personnel to discuss solutions to this
attendance problem.
6. That your child may be subject to prosecution for failing to attend school.
7. That your child may be subject to suspension, restriction or delay of his/her driving
privilege.
8. That it is recommended that you accompany your child to school and attend classes for
one day.
In addition, regular full-time school attendance is a requirement for public assistance
through the welfare program and benefits may be reduced or stopped for student non-
attendance.
Whether absences are excused or unexcused, missing school has an impact on student
progress and success. Please call the office to schedule an appointment to discuss this
letter and your child’s attendance problem.
________________________________ Date_____________________
Principal/Superintendent Signature
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A pp en d ix C
96
Second Notification of Truancy
To:______________________________ Parent(s) of
Parent or Guardian Student
California Education Code (EC 48624.5b) outlines specific steps that schools may
use to resolve truancy and attendance problems. Your child continues to have
excessive absences which are affection academic progress. This letter is
notification that we need to take further steps to correct this problem.
Continued absences will result in a referral to the School Attendance Review
Board. Excessive school absences can also result in court prosecution for violation
of Education Code 48200 and Penal Code 272. In addition, regular school
attendance is a requirement for public assistance through the welfare program.
Benefits can be reduced or stopped because of non-attendance at school.
To avoid any of the above sanctions, we must work together to resolve this
attendance issue and ensure that your child is regularly attending school.
Please contact the school as soon as possible to set up an appointment.
____________________________________Date________________________
Principal/Superintendent Signature
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97
A p p en d ix D
Third Truancy Letter
Dale:
Dear
This letter is to inform you that your son/daughter____________________________ , in
the
________ grade has been absent for the following reasons:
• Report of Third Truancy or unexcused absence for
• Report of Third Tardy on
Education code section 48260 — Any pupil subject to full-time education or to
compulsory education who is absent from school without valid excuse more
that three days or tardy in excess o f 30 minutes on each of more than three days
in one school year is a truant and shall be reported to the attendance supervisor
or the superintendent of the school district.
• Excessive excused absences
Truancy, unexcused absences or excessive absences, affect the student’s education
and increase the chances for failure. Tardies interrupt the classroom and interfere
with learning.
The school has attempted to work with you to solve your son/daughter’s attendance
problems. These attempts have been unsuccessful. It will be necessary to refer
your son/daughter to the School Attendance Review Board (SARB). Please call
my office at
____________________to schedule a meeting.
Sincerely,
Principal
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A p p en d ix E
Family Group Conference
# 0 0 2 2 7
SCHOOL CONCERNS
The child has been in four different schools.
There have been 31 absences or tardies in 88 days enrolled.
He doesn’ t get to school on time.
He needs to catch up in math.
Behavior problems exist.
• He doesn’t respect other people’s space.
• He uses physical actions on others.
FAMILY CONCERNS
Behavior problems with neighbor children. He’s being bullied and becoming a
bully.
Mother has had no luck in getting a behavior specialist to see him.
Tardiness to school
Violent television shows.
Gets his feelings hurt easily.
Needs new ways to redirect his energy.
Problems with neighborhood kids.
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99
FAMILY STRENGTHS
Mom and dad have worker hard to find a new way to handle his wetting, by taking
away privileges, sweets and snacks.
Reinforcing positive behavior.
Staying persistent at home.
Positive communication with the school
Step-dad has been positive and stable force for the child.
FAMILY PLAN
The child will be brought to school from now on.
The child pretends to not know his math so he doesn’ t have to do his work.
Communication with teacher and mother.
Teach the child respect for others.. Do things with him as a reward so he learns to
behave so he doesn’ t lose those privileges.
More encouragement and less discouragement.
Watch and monitor what he watches on TV and in the movies.
Paternal step-grandmother will pick him up for church on Sundays.
Weekends with grandparents to be more supervised.
Make a list of things to do and not to do where the child is concerned. This will
provide consistent expectation of him both a home and at grandparent’s house.
No yelling unless the house is on fire.
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A ppendix F
Family Group Conference
#00325
SCHOOL CONCERNS
Female child
Out of a total of 1037 days that she should have been in school since kindergarten,
she has missed 171 days or 16% of school days. This amounts to almost one year
o f school.
This year, 1999-2000, she has had 14 unexcused absences and 38 unexcused
tardies.
Mother is in violation of SARB contract.
Male Child
Out of a total o f677 days that he should have been in school since kindergarten, he
has missed 79 days or 12% of school days.
This year, 1999-2000, he has had 41 unexcused tardies.
His reading level should be at 23 and he is at 20.
Both children have been switched primarily between two schools multiple times.
FAMILY CONCERNS
Reliable transportation has not been available.
Family has experienced periods o f homelessness.
Homelessness and incarceration periods resulted in school changes.
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FAMILY STRENGTHS
Mother is getting things together.
Willingness to do what is right for the kids.
Family members “step-up” when needed.
They help one another.
These are bright children.
The kids look out for each other.
Older adult brother is a mentor type and big help in the family.
Kids are musical.
Mom is working.
Plan is to move into district and mom has a housing prospect within the district.
FAMILY PLAN
Mom to locate stable residence.
Childcare arrangements need to be made.
Family will work toward getting the car fixed.
Coordinator of Healthy Start program to provide information on housing.
Family requested additional information on after-school programs, childcare
programs through the school, summer school, music programs, Girl Scout program
and the SHARE
program.
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Asset Metadata

Creator Gunderson, Jane (author)

Core Title Family group conference: An innovative approach to truancy in schools. A case study

School Rossier School of Education

Degree Doctor of Education

Degree Program Education

Publisher University of Southern California (original), University of Southern California. Libraries (digital)

Tag education, administration,education, guidance and counseling,OAI-PMH Harvest,Social Work

Language English

Contributor Digitized by ProQuest (provenance)

Advisor Hocevar, Dennis (committee chair), McLaughlin, Michael (committee member), Michael, William B. (committee member)

Permanent Link (DOI) https://doi.org/10.25549/usctheses-c16-77364

Unique identifier UC11327436

Identifier 3018086.pdf (filename),usctheses-c16-77364 (legacy record id)

Legacy Identifier 3018086.pdf

Dmrecord 77364

Document Type Dissertation

Rights Gunderson, Jane

Type texts

Source University of Southern California (contributing entity), University of Southern California Dissertations and Theses (collection)

Access Conditions The author retains rights to his/her dissertation, thesis or other graduate work according to U.S. copyright law. Electronic access is being provided by the USC Libraries in agreement with the au...

Repository Name University of Southern California Digital Library

Repository Location USC Digital Library, University of Southern California, University Park Campus, Los Angeles, California 90089, USA