SAFETY AND SECURITY
This chapter reviews the safety and security of the Fort Worth Independent School District in three parts:
- A. Security Operations
- B. Safety
- C. Student Discipline Management
C. STUDENT DISCIPLINE MANAGEMENT
The U.S. Department of Education's publication Early Warning, Timely Response, defines a well- functioning school as one that fosters "learning, safety, and socially appropriate behaviors." These schools have a strong academic focus and support students in achieving high standards, foster positive relationships between school staff and students and promote meaningful parental and community involvement. Most prevention programs in effective schools address multiple factors and recognize that "safety and order are related to children's social, emotional, and academic development."
Texas schools are required to provide standards for conduct and discipline through the adoption of a student code of conduct. FWISD has a student code of conduct that is provided to students and parents annually. The code is accompanied by an acknowledgement that the rules were read and understood. The board also has a discipline management plan that provides guidelines and appeals processes for levels of disciplinary action. Decisions for removal to the Disciplinary Alternative Education Program(DAEP) are developed in a conference and hearings process through the Student Affairs department. Offenses, which carry a possible penalty of expulsion, receive disciplinary hearings. Other offenses receive disciplinary conferences.
The district has several levels of disciplinary alternatives. Students may be removed from regular classes to a disciplinary alternative learning area in their home school. Students may be suspended and placed in a disciplinary alternative education program in a FWISD-provided school. Suspended students may be placed in a community-based disciplinary alternative education program under contract with FWISD. For felony offenses, a student may be placed in the Juvenile Justice Alternative Education Program (JJAEP) operated by Tarrant County but staffed with FWISD teachers.
FWISD's Student Code of Conduct places offenses in four categories: general misconduct; behavior subject to removal from a regular education setting; behavior resulting in expulsion or placement in an alternative setting; and placement in the JJAEP. Exhibit 12-12 presents examples for each category of offense.
Exhibit 12-12 Source: Fort Worth Student Code of Conduct 2000-2001.
Categories of Offenses Outlined in FWISD's Student Code of Conduct
Category Examples of Offenses General Misconduct Cheating or copying the work of another;
Leaving school without permission;
Scuffling or fighting;
Disobeying school rules or failing to comply with directives given by school personnel;
Possessing matches or a lighter;
Disrupting the school environment or educational process;
Violating safety rules or the dress code;
Possessing a paging device or cellular telephone.Removal from Regular Education Setting Causing bodily injury or property damage;
Theft of any item on school property;
Hazing;
Use of force or threatening use of force on another individual;
Committing or assisting in robbery or threat (non-felony);
Verbal abuse (name calling, racial or ethnic slurs, profanity);
Inappropriate physical and sexual contact;
Possessing, smoking or using tobacco products;
Possessing or selling seeds or pieces of marijuana in less than usable amount;
Possessing, using, giving or selling prohibited substance paraphernalia;
Possessing fireworks or other pyrotechnic devices;
Possessing or selling "look-alike weapons;"
Possessing air guns, BB guns, mace or pepper spray;
Making threats or false threats regarding school safety;
Violating computer use policies.Expulsion or placement in alternative setting Vandalism;
Robbery or theft;
Extortion, coercion or blackmail;
Hazing;
Insubordination;
Profanity, vulgar language or obscene gestures directed toward others;
Fighting, committing physical abuse or threatening physical abuse;
Falsifying records, passes and other school-related documents;
Refusing to accept discipline management techniques proposed by the teacher or principal;
Possession of the following as outlined by the Texas Penal Code: firearm, an illegal knife, a club, a prohibited weapon such as an explosive weapon, a machine gun, etc.;
Behavior containing elements of the following under the Texas Penal Code: aggravated assault, arson, murder or attempt to commit murder, aggravated kidnapping, indecency with a child, retaliation against a school employee or volunteer with one of the above listed offenses.Placement in JJAEP Felony activities Unless the behavior is a major violation of the penal code or code of conduct, discipline is administered initially at the student's home school. Once certain misbehavior identified on the above chart occurs, the student is referred to a third-party conference that is administered by the Student Affairs department. The placement committee reviews case facts, prior behavior history and previous rulings on similar facts. The student can appeal a committee ruling to the superintendent. The superintendent's decision can be appealed to the board, but few cases are appealed at this level.
Exhibit 12-13 provides disciplinary activity and student referral information.
Exhibit 12-13 Source: FWISD Student Affairs Department.
Student Referrals for Serious Misbehavior
Comparison 1998-2000
Total Offenses Percent Change Offense 1998-1999 1999-2000 1998-2000 Felony Arrest 382 332 -13.1% Weapons 271 253 -6.6% Threats 136 265 +86.0% Assaults 365 470 +28.8% Gang Related Behavior 86 171 +98.8% Serious/ Persistent Misbehavior 1,061 849 -20.0% Vandalism 61 48 -21.3% Sexual Harassment 29 65 +124.1% Alcohol/ Drugs 405 363 -10.4% Totals 2,796 2,816 +0.7% FINDING
FWISD has funded a truancy intervention program with a full-time assigned prosecutor from the District Attorney's Office and a counselor from the Lena Pope Home. The Comprehensive Truancy Intervention Program (CTIP) is a collaborative effort between the FWISD, Tarrant County District Attorney's Office, FWPD, Tarrant County Juvenile Probation Department, Lena Pope Home, mental heath and social service providers and community-based organizations. The Lena Pope Home contracts with FWISD as a DAEP. The home is an established program for troubled youth in Fort Worth. FWISD provides teachers, and the home provides behavior interventionists for referred students. The Lena Pope Home also provides behavior interventionists to other district programs.
The program's goal is to reduce the number of truancies by combining law enforcement and family social services. Schools have been selected based on absenteeism. After a target number of absences, parents are sent a letter on District Attorney letterhead asking that they attend a truancy meeting. At the meeting, the Assistant District Attorney (ADA) tells parents of the legal and social consequences of truancy. Social service agencies make presentations and offer services to attendees. If a student is absent after the meeting, the ADA meets with the student, parents, vice principal and counselor in an individual session at the school. Additional absenteeism is referred for court action.
Repeated absenteeism is a criminal violation. The district treats truancy as a "gateway" crime to other more serious criminal activity. Students who miss class without authorization are frequently drawn into criminal misbehavior in the surrounding neighborhood. Keeping children in school decreases the incidence of juvenile crime and increases the chance they will successfully complete their education. Dropping out of school is a major predictor of adult criminal behavior.
The FWISD truancy program is based on the needs of high school feeder systems. In the program, the feeder systems are placed into three tracks based on truancy rates and available services. Tracks I and II schools have social service programs on-site that manage truancy issues and are considered non-target schools. Track III schools do not have on-site truancy and social service programs and are considered the target group. Exhibit 12-14 outlines the basics of the program.
Exhibit 12-14 Source: FWISD Comprehensive Truancy Intervention Program dated May 23, 2000.Comprehensive Truancy Intervention Program Elements
Step Track I Track II Track III Regular Program (Arlington Heights, Carter Riverside, Dunbar, South Hills, Southwest, Western Hills Pyramids) Regular Program (Diamond Hill-Jarvis, North Side, Paschal, Polytechnic Pyramids) III-A Program (Eastern Hills, Trimble Tech Pyramids) III-B Program
(O.D. Wyatt Pyramid)One 1-4 Unexcused Absences
School sends warning letter, programs and services1-4 Unexcused Absences
School sends warning letter, programs and services1-2 Unexcused Absences
School sends warning letter, programs and servicesTwo 5 Days Unexcused Absences
District Attorney (DA) letter #1 to parent(s)
Weekly Monday Night meeting5 Days Unexcused Absences
DA letter #1 to parent(s)
Weekly Monday Night meeting3 Days Unexcused Absences
DA letter #1 to parent(s)
Weekly Monday Night meetingThree Failure to Attend Monday Night Meeting and/or Continued Absenteeism
Social Service Agency Intervention (Access Program)Failure to Attend Monday Night Meeting and/or Continued Absenteeism
Social Service Agency Intervention (Access Program and Communities in Schools)Failure to Attend Monday Night Meeting and/or Continued Absenteeism
DA letter #2
SART Meeting*Failure to Attend Monday Night Meeting and/or Continued Absenteeism
DA letter #2
FWPD Home Visit
SART MeetingFour Continued Absenteeism
Home School Coordinator continues to monitor
Referral to Justice of the Peace (JP) courtContinued Absenteeism
Home School Coordinator continues to monitor
Referral to JP courtFailure to attend SART Meeting or Failure to Abide by Contract and/or Continued Absenteeism
Home School Coordinator continues to monitor
Referral to JP courtFive Failure to Abide by JP Order
JP CourtFailure to Abide by JP Order
JP CourtFailure to Abide by JP Order
JP Court
* SART is the term for a Student Absenteeism Reduction Team meeting. SART meetings are held at students' schools with the student, parent(s), school counselor, ADA, and Lena Pope Home Counselor. Student contractual agreements are signed outlining conditions and available resources.As shown in Exhibit 12-15, Fort Worth's attendance rates minimally improved from 1996-2000. When compared to its peer districts, Fort Worth ties for last with San Antonio and Austin in percent improvement with a 0.1% increase in attendance.
Exhibit 12-15 Source: Texas Education Agency AEIS District Multi-Year History Data Reports.
Fort Worth ISD Attendance Rate Comparisons with Peer Districts
1996-2000
District 1996 1997 1998 1999 2000 Change
1996-2000Dallas ISD 93.4% 94.1% 94.2% 94.5% 95.1% +1.7% Houston ISD 93.7% 93.8% 93.9% 94.0% 94.2% +0.5% El Paso ISD 95.0% 95.1% 95.1% 95.3% 95.3% +0.3% Fort Worth ISD 93.6% 93.6% 93.5% 93.7% 93.7% +0.1% San Antonio ISD 94.0% 93.9% 94.1% 94.2% 94.1% +0.1% Austin ISD 93.7% 93.5% 93.8% 94.1% 93.8% +0.1% Although the truancy program began in the spring semester of 2000, preliminary data shows improvement, particularly for the target or Track III schools. Exhibits 12-16, 12-17 and 12-18 show the comparison between spring 1999 and spring 2000 average attendance rates for the high schools, middle schools and elementary schools.
Exhibit 12-16 Source: FWISD Comprehensive Truancy Intervention Program Report.
Fort Worth ISD High School Attendance Rate Comparisons
1999-2000
School Spring
1999*Spring
2000*Change
1999-2000Track I Schools Average (6 schools) 90.7% 90.7% +0.0% Track II Schools Average (4 schools) 88.3% 89.2% +0.9% Track IIIA Schools Average (2 schools) 90.7% 91.6% +0.9% Track IIIB School Average (1 school) 85.0% 89.1% +4.1%
*Attendance Rates have been rounded to one decimal point from the report.Exhibit 12-17 Source: FWISD Comprehensive Truancy Intervention Program Report.
Fort Worth ISD Middle School Attendance Rate Comparisons
1999-2000
School Spring
1999*Spring
2000*Change
1999-2000Track I Schools Average (8 schools) 92.4% 93.6% +1.2% Track II Schools Average (8 schools) 92.6% 93.4% +0.8% Track IIIA Schools Average (2 schools) 91.6% 92.7% +1.1% Track IIIB Schools Average (2 schools) 91.5% 92.5% +1.0% Track I/II Alternative School Average (1 school) 95.9% 96.7% +0.8%
*Attendance Rates have been rounded to one decimal point from the report.Exhibit 12-18 Source: FWISD Comprehensive Truancy Intervention Program Report.
Fort Worth ISD Elementary School Attendance Rate Comparisons
1999-2000
School Spring
1999*Spring
2000*Change
1999-2000Track I Schools Average (31 schools) 94.7% 95.2% +0.5% Track II Schools Average (23 schools) 94.9% 95.3% +0.4% Track IIIA Schools Average (7 schools) 94.0% 94.9% +0.9% Track IIIB Schools Average (6 schools) 93.9% 95.0% +1.1% Track I/II Alternative Schools Average (3 schools) 95.4% 96.2% +0.8% Track IIIA Alternative Schools Average (3 schools) 88.0% 87.0% -1.0% Track IIIB Alternative School Average (1 school) 75.1% 82.3% +7.2%
*Attendance Rates have been rounded to one decimal point from the report.COMMENDATION
The district's truancy program provides a comprehensive approach for intensive intervention based on collaboration among school, social services, law enforcement and court officials.
FINDING
Fort Worth's unique after-school program initiative funded with $1.4 million from the Crime Control and Prevention District ($300,000 of the $1.4 million is spent on Benbrook ISD) and $1.1 million from FWISD, places educationally based programs in areas that are economically disadvantaged and that have high incidents of neighborhood crime. The program is free to qualifying applicants. Principals select the program that best meets their school's needs based on an audition by program service providers. Program examples include the YMCA, Stone Soup, Voyager, and Campfire, as well as programs designed and provided in-house by school staff. By providing children with a safe and supervised place to go after school, the program hopes to minimize the potential for criminal victimization of students. The district also hopes to keep students from the temptation of committing neighborhood crime after school by providing an interesting and educational program.
Programs are monitored to ensure they provide well-rounded activities such as life skills, educational enrichment, and physical activities. The programs also provide tutoring and other activities designed for academic improvement. Principals notify the program monitors of their satisfaction or dissatisfaction with the program providers. The program service approval is a prerequisite to payment of program invoices. The program is also developing an independent evaluation component to determine the effectiveness of the program providers. While the newly designed program has not been implemented long enough for a successful analysis of its performance, the educational components of the district after-school program and its crime prevention goals distinguish it from traditional day-care programs.
COMMENDATION
The district's after-school program initiative addresses at-risk elementary and middle school students' social and educational needs, while keeping them safe from potential victimization on the streets after school.
FINDING
The district's reporting structure for providing alternative education to students who need to be disciplined is split between two different supervisors. FWISD has two middle schools and one high school (DAEP) for students who have been suspended or removed from regular schools due to violence, possession of illegal substances or serious misbehavior that violates FWISD's standards of conduct. FWISD contracts with 11 agencies that serve students who have been expelled or suspended from school. The director of Alternative Schools, who also supervises the non-disciplinary alternative education programs, supervises the district run DAEPs. Until 2000-01 school year, contract DAEPs were under the supervision of the coordinator of Community-based Education in Student Affairs. An employee on special assignment to Student Affairs is currently providing DAEP contract administration.
No formal evaluation of FWISD's disciplinary alternative education programs (DAEP) has been conducted. An evaluation of the community alternative school sites was carried out in 1997-98, but no evaluation of the overall system has occurred. The superintendent reviews and hears all third party placements and students are assigned to the FWISD disciplinary schools or contract sites through central disciplinary action as prescribed by the Texas Education Code.
The results of the outside evaluation of the FWISD community alternative school sites, conducted by two professors at Texas Wesleyan University in 1998, show that the community sites were not able to meet students' needs and raised concerns related to: inadequate funding to cover needed support services; a need for more qualified male teachers, staff and mentors that better matched the demographics of the students; difficulties with the student data tracking system; and excessive time between third-party hearings and enrollment in the community schools. Results of their study are listed below.
- The district's use of a "brief intervention" model via the community alternative schools results in the failure to provide timely educational, psychological and other critical services to students.
- The transition from the regular schools to the four community alternative schools is problematic and is hampered by this coordination problem. Cultural and gender factors are elements in the alternative school placement process. These factors need to be more diligently examined and addressed by district policy makers, curriculum designers and educational service providers.
- The data regarding cost per student clearly indicates that community alternative schools are funded at a significantly lower rate than district alternative schools.
- The pattern of enrollment of students in the community alternative schools makes continuity of educational programs and services challenging.
- A concern among all contract alternative schools and evaluators is the problem of information exchange pertaining to students. It is difficult to plan the most effective educational program for students without specific information regarding the student's special needs and situations.
- Many of the students have an acute need for psychological support services, including assessment and individual or family therapy.
- Staff and teacher training and retention at some alternative schools are problematic.
- Each school has unique needs they want the district to supplement. In most community alternative schools, the schools need the district to extend more and/or different support services.
FWISD has three DAEPs. When these schools reach capacity or when students have been unsuccessful at these schools, placements are made at privately run DAEPs under contract with FWISD. Of the contract DAEPs, FWISD teachers staff the Lena Pope School. The JJAEP is also staffed with FWISD teachers under an inter-local agreement. The remaining contract schools do not consistently require certified teachers.
The quality of education differs between contract programs. Students told district staff that they want to go to the contract alternative schools because they get to read comic books and they attend fewer hours. The quality of facilities is also inconsistent. Some contract schools were clean; others were not. Some contract schools provided hot lunches; others did not. The district has hired a consultant to review the disciplinary alternative education programs and make recommendations for improvement.
The district has an accelerated high school for students who do not excel in a traditional school program, as well as a day program for pregnant teens. The other alternative programs are disciplinary alternative education programs. In interviews, district staff said that students or their parents have asked to be placed in the district disciplinary alternative schools even though their children are authorized for attendance in their home school. Staff said that this is because some students cannot excel in a traditional setting but have no practical alternative. Some middle school students do well with the small class and structure of an alternative setting, but the only alternative middle schools are disciplinary. Some high school students cannot attend the alternative night school, but have no day program available unless they are pregnant or misbehaving. Students who are unsuccessful in their home school may misbehave in response to the pressures of failing, resulting in a possibly preventable safety problem.
Recommendation 135:
Align the oversight responsibilities for all alternative education programs under the director of Alternative Schools.
The transfer of responsibilities to Alternative Education including the special assignment position currently monitoring the contract DAEPs will assure consistency of education delivery in both the contract schools and the district-run schools.
IMPLEMENTATION STRATEGIES AND TIMELINE
1. Board approves transfer of responsibilities and the transfer of the special assignment position to Alternative Education. June 2001 2. Human Resources makes any necessary changes to position descriptions or other organization documents. July 2001 3. The director of Alternative Education notifies contract schools of the new reporting and supervision change. September 2001 FISCAL IMPACT
This recommendation could be implemented within existing resources.
FINDING
Site-based management has resulted in variations in discipline-management procedures. The district does not review and analyze the variations to determine if certain policies or combinations of policies are more effective for student management. For example, some schools report attendance once a day. Some schools report attendance every period. The comparison of policies against truancy efforts could provide important information to administrators in developing successful procedures in their own school.
As another example, the Campus Monitor Coordinator stated that monitors are trained to identify students who are out of the classroom and in the halls each period. The coordinator observed that teachers did not always know that a student had been in the hall during their classes. He noted that the monitor provides that continuity of oversight.
One campus, however, provides students with planning notebooks. These books include the student handbook, a calendar for organizing events and due dates, and a hall pass log. Students carry the organizer as a hall pass. The organizer serves to identify students from non-students and shows every class in which a hall pass has been authorized. Each teacher can see how often a student is released from class. Not all schools use a hall pass log. Some rely on school monitors.
The associate superintendent for Instruction Area I stated that the principals meet to discuss issues and share solutions that have worked in individual schools. However, there is no formal process for benchmarking or cataloging best practices within the district.
Recommendation 136:
Develop a reporting structure to evaluate discipline management and related safety practices on a districtwide basis to identify, document and implement best practices.
IMPLEMENTATION STRATEGIES AND TIMELINE
1. The associate superintendents designate a staff member to compile best practices for each operational area. July 2001 2. Staff member schedules periodic meetings with school administrators and support departments to identify best practices and performance measurements. August 2001 3. Staff member provides information to Information Services department for placement on the Internet. October 2001 FISCAL IMPACT
This recommendation could be implemented within existing resources.