National School Climate Center Educating Minds and Hearts...Because the Three Rs are Not Enough

State Policies on School Climate and Bully Prevention Efforts: Challenges and Opportunities for Deepening State Policy Support for Safe and Civil Schools

July 2011 By: Jennifer Piscatelli and Chiqueena Lee, J.D. Acknowledgements: Terry Pickeral and Jonathan Cohen, Ph.D

he National School Climate Center (NSCC) dents’, parents’ and school personnel’s experience of recently completed a 50-state policy scan on state school life and reflects norms, goals, values, interpersonal school climate and anti- policies to better relationships, teaching and learning practices, and organi- Tunderstand the current state policy infrastructure sup- zational structures. porting the development of positive school climates. This policy brief examines the current status of school climate Four Essential Dimensions of School Climate and anti-bullying policies in each state, and provides policy examples and recommendations for policymakers, districts, schools and school climate advocates to con- Safety • Rules and Norms sider. In conducting the policy scan, we defined policies • Physical Safety as a state’s statutes, administrative code, state education • Social and Emotional Security standards and rules/regulations. Teaching and Learning The scan revealed that most states (45) currently have • Support for learning policies in place to address school bullying, while only 24 • Social and civic learning states have a policy on school climate. Details of many of Interpersonal Relationships these policies are explored in this brief. In 2006, NSCC • Respect for diversity conducted a scan of state Department of Education poli- • Social support – adults cies on school climate, which investigated state Depart- • Social support – students ment policies and programs for their alignment with Institutional Environment definitions and current research in the school climate • School connectedness/engagement field. It made suggestions for how school climate policies • Physical surroundings and programs could be better designed and aligned with what the research show effective school climate includes. Cohen, J., McCabe, E.M, Michelli, N.M & Pickeral, T. This scan, in contrast, examines the prevalence of state (2009). School Climate: Research, Policy, Teacher Education and Practice. Teachers College Record, Volume 111: Issue 1: policies on both school climate and school bullying, and pp. 180-213. what elements those policies contain.

How Do We Define School Climate? A sustainable, positive school climate fosters youth School climate refers to the quality and character of development and learning necessary for a productive, con- school life. School climate is based on patterns of stu- tributing and satisfying life in a democratic society. This

Page 1

National School Climate Center 545 8th Avenue, Rm. 930, New York, NY 10018 www.schoolclimate.org National School Climate Center Educating Minds and Hearts...Because the Three Rs are Not Enough

climate includes: State school climate policies are not typically stand-alone • Norms, values and expectations that support people policies, rather the policies that address the dimensions feeling socially, emotionally and physically safe. of school climate (safety; teaching and learning; inter- • People are engaged and respected. personal relationships; and institutional environment) • Students, families and educators work together to are often scattered within many areas of general school develop, live and contribute to a shared school vision. regulation. In most states, policies addressing school • Educators model and nurture attitudes that empha- climate can be found within their academic school ap- size the benefits and satisfaction gained from learn- proval, accountability and strategic planning policies, ing. school health and safety policies, or in a combination of • Each person contributes to the operations of the areas. These areas of regulation all seem to have a natural school and the care of the physical environment. alignment with some school climate elements, so school (The definitions of school climate and a positive, sustained climate policies tend to be scattered throughout laws and school climate were consensually developed by the National regulations in most states, rather than an organized set of School Climate Council.) cohesive school climate policies.

Why Does School Climate Matter? Many states’ policies address some aspects of school cli- The National School Climate Council found that “over mate in their school quality standards. For example, the the last two decades, there has been a growing apprecia- Standards for Alaska’s Schools include, “The school goals tion that school climate, the quality and character of and staff behavior promote equity and respect for diversi- school life, fosters — or undermines — children’s devel- ty among students, teachers, administrators, families, and opment, learning and achievement. Research confirms community members of different socio-economic status what teachers and parents have claimed for decades: a safe and cultural background” and “The school environment is and supportive school environment, in which students supportive and physically safe.” have positive social relationships and are respected, en- gaged in their work and feel competent, matters. A grow- Vermont’s School Quality Standard 2120.8.12, School ing number of reports, studies and legislation emphasize Facilities and the Learning Environment, states “Each the importance of positive school climate in reducing school shall maintain a safe, orderly, civil and positive achievement inequities, enhancing healthy development learning environment, which is free from hazing, harass- and promoting the skills, knowledge and dispositions that ment and bullying and based on sound instructional and provide the foundation for 21st century school — and classroom management practices and clear discipline and life — success.” attendance policies that are consistently and effectively enforced.” Four (4) states integrate school climate goals and assess- State Policies on School Climate ments through their school improvement standards. Where do we find state policies on school climate? Montana’s can be found in their school improvement Nearly half (24) of the states have some form of school strategic planning provisions, requiring local boards to climate policy in place within their state education poli- “encourage cooperative and harmonious relationships cies, and 8 provide another form of state support for among staff, students, parents, trustees, and community” school climate – often in the form of school climate or and “develop policies, procedures, and rules that respect climate-related guidelines. the rights of all learners, promote an awareness of and concern for the well-being of others, and address bully-

Page 2

National School Climate Center 545 8th Avenue, Rm. 930, New York, NY 10018 www.schoolclimate.org National School Climate Center Educating Minds and Hearts...Because the Three Rs are Not Enough

ing, intimidation, and harassment of students and school TheOhio School Climate Guidelines include bench- personnel” (MT Admin Rules § 10.55.801). marks and suggested activities to achieve each of the nine guidelines. (See www.ode.state.oh.us, keyword search: Two states – Ohio and Wisconsin – have developed school climate for more information.) specialized school climate standards/guidelines. While a great step that shows the value these states place on school The policy scan also found state support for school cli- climate, both are voluntary standards that districts are mate – not always associated with corresponding policies encouraged, but not required, to implement. – in the school health and safety areas. The most common is through implementation of the Coordinated School Wisconsin’s Standards of the Heart guidelines “…help Health Program (CSHP). Eleven (11) states have imple- children become caring, contributing, productive, and mented the program. With eight core elements, most responsible citizens. Schools that foster standards of the states use “climate” or “healthy school environment” as heart have high expectations for students’ behavior. They one element. For example: provide a variety of curricular, co-curricular and extra- • Maine’s CSHP is “designed to connect health (physi- curricular opportunities that build strong personal and cal, social and emotional) with educational (cogni- interpersonal skills. The result is a school climate where all tive and intellectual) programs.” One of the eight students feel safe and valued.” elements in Maine is “school climate.” It then lists seven school climate guidelines, with a rationale and TheOhio School Climate Guidelines describe how indicators for each. schools can create environments where every student feels • New Mexico’s CSHP, called Healthier Schools New welcomed, respected and motivated to learn. The nine Mexico, takes a different approach. School climate guidelines are summarized here: components are found within several elements, 1. Schools, parents and communities together bolster including “Family, School and Community Partner- academic achievement. ship” and “Social and Emotional Well-Being.” 2. Integrate students’ social and emotional needs into the district’s school improvement framework. The Role of Students in State School Climate Policies 3. Evaluate the learning environment and ensure its Most state policies on school climate focus on what ongoing improvement. schools, school administrators and teachers should do in 4. Maintain caring, engaging and well-managed class- order to foster a positive school climate. Few, however, ac- rooms. knowledge the role of students. The Ohio climate guide- 5. Deal with threats to safety for a better focus on learn- lines above include connecting students with schools by ing. empowering them in responsible roles. 6. Teach social and emotional skills to foster student success. West Virginia’s State Board of Education explicitly 7. Involve parents and families to maximize student acknowledged the critical role students play by including learning. in its Student Code of Conduct, “All students enrolled 8. Connect students with schools by empowering them in West Virginia public schools shall behave in a manner in responsible roles. that promotes a school environment that is nurturing, 9. Provide high-quality food service and emphasize orderly, safe and conducive to learning and personal-social physical activity. development…Students will help create an atmosphere free from bullying, intimidation and harassment” (WV

Page 3

National School Climate Center 545 8th Avenue, Rm. 930, New York, NY 10018 www.schoolclimate.org National School Climate Center Educating Minds and Hearts...Because the Three Rs are Not Enough

Board of Education Rule §126-99-3). ceed state policies and create a positive school climate for their students and staff. However, state policy is generally New Hampshire’s rules for school approval require in vague and/or not prescriptive on how to measure school its Culture and Climate section that policies adopted by climate. local boards of education reflect, “Shared ownership and responsibility for the success of the school among stu- Mississippi is has developed its own formal climate dents, their families, and the community” and “Student assessment. The Mississippi Safe and Orderly School leadership through involvement in decision-making” Instruments include a checklist, interview questionnaire (NH Ed 306.6 (a)). and school map. The checklist’s first assessment category “Positive Climate/Prevention” includes : • procedures to implement programs such as conflict School Climate Assessment Instruments resolution, management, communication skills, bullying prevention, tolerance training, and In addition to state-specific school climate assessment prosocial skill development instruments, states may wish to examine the follow- • plans to create a climate of ownership and school ing publications and center that has evaluated various school climate measures: pride • policies and procedures to enhance multicultural • Cohen, J,. McCabe, E.M, Michelli, N.M & Pic- understanding and consistently implements these keral, T. (2009). School Climate: Research, Policy, Teacher Education and Practice. Teachers College procedures. Record, Volume 111: Issue 1: pp. 180-213. (http:// www.tcrecord.org/Content.asp?ContentId=15220) TheCalifornia Department of Education has also • Gangi, T. (2010). School climate and faculty rela- developed a school climate assessment. The California tionships: Choosing an effective assessment mea- School Climate, Health, and Learning Survey (CAL- sure. (http://gradworks.umi.com/33/88/3388261. SCHLS), include the California School Climate Survey. html) Since 2004, all local education agencies in California are • Haggerty, K, Elgin, J. & Woollye, A. (2011). Social- required to administer the CSCS at least once every two emotional learning assessment measures for middle years as part of compliance with No Child Left Behind. school youth. Raikes Foundation. http://raikes- foundation.org/Secondary.aspx?file=Resources As a result of federal funding in recent years through • Safe and Supportive Schools TA Center: School Climate measures: http://safesupportiveschools. Safe and Supportive Schools grant (S3), more states are ed.gov/index.php?id=133 looking into school climate measurement. TheTennessee Department of Education is one state that secured an S3 grant. It requires the state to measure school climate rela- tive to engagement, safety, and environment at the school How Do States Measure School Climate? level and help intervene in those schools with the greatest If states value a positive school climate, and through needs. Beginning during the 2011-2012 school year, Ten- their policies seek to encourage positive school climate, nessee looks to adopt of an instrument to measure school it makes sense that measuring or assessing school climate climate (conditions for learning), which will include would also be important. Such measurement would pro- input from students, school personnel, and parents. vide useful data on the school’s areas of strength and areas to improve as they work to ensure they both meet or ex- More commonly, states assess and monitor school climate

Page 4

National School Climate Center 545 8th Avenue, Rm. 930, New York, NY 10018 www.schoolclimate.org National School Climate Center Educating Minds and Hearts...Because the Three Rs are Not Enough

and/or culture (or similar concepts) through their leader- ship standards. Thirteen (13) states’ leadership standards Technical Assistance: School Climate Improvement contain climate indicators. Michigan’s standards for teachers regarding learning environment state “The teach- er works with others to create environments that support In addition to state-specific school climate technical individual and collaborative learning, and that encourage assistance now provided, states may wish to examine the resources noted below: positive social interaction, active engagement in learning, Formative assessment tools: and self-motivation.” • A school climate standards self assessment tool: This tool is based on the National School Climate What School Climate Technical Assis- Standards (www.schoolclimate.org/climate/stan- dards.php) and can be ordered (at no cost) from the tance do States Provide? National School Climate Center: info@schoolcli- Twenty-seven (27) states offer some form of technical mate.org assistance to districts and/or schools on school climate • School Climate Improvement Formative Assessment generally. However, 9 states’ technical assistance is related Rubrics: http://scrc.schoolclimate.org/ only to the school safety aspects of climate. Only three • School Climate Resource Center: http://scrc.school- (3) states (Arkansas, Connecticut and New Hampshire) climate.org/ require technical assistance be provided to educators and • Safe and Supportive Schools TA Center: http://safe- administrators. Much of the states’ technical assistance supportiveschools.edu takes the form of access to resources on the state depart- ment’s website and occasional webinars or training op- portunities. New Hampshire’s rules for Minimum Standards for Public School Approval include the section “Climate and Georgia’s education laws mandate the creation of the Culture.” It requires the school administration to provide School Climate Management Program (O.C.G.A. § 20- professional development opportunities directed at un- 2-155), a state-wide program to help local schools and derstanding the policies and reporting requirements that systems requesting assistance in developing school climate support a safe and healthy school environment” (NH Ed improvement and management processes. The law states, 306.6 (c)). “These processes will be designed for, but will not be lim- ited to, promoting positive gains in student achievement Arkansas requires administrators seeking to renew their scores, student and teacher morale, community support, license to participate in a continuing education and and student and teacher attendance, while decreasing stu- professional development program that includes school dent suspensions, expulsions, dropouts, and other nega- climate (ACA § 6-15-1005(h)(3)). tive aspects of the total school environment. The state board upon request of a local school system is authorized The National School Climate Center suggests all school to provide the necessary on-site technical assistance to reform efforts need to include four overlapping imple- local schools and systems and to offer other assistance mentation processes: through regional and state-wide conferences and work- 1. Conducting “readiness” and formative assessments shops, printed material, and such other assistance as may that helpfully reveal “where are we now as a school?” be deemed appropriate under this Code section…” and “what are helpful next steps to focus on?”; 2. “Igniting” the school community in ways that foster

Page 5

National School Climate Center 545 8th Avenue, Rm. 930, New York, NY 10018 www.schoolclimate.org National School Climate Center Educating Minds and Hearts...Because the Three Rs are Not Enough

intrinsic motivation or a process whereby students, parents and guardians, school personnel and com- State Anti-Bullying Policy States (#) Components munity members become meaningfully engaged in learning and working together; Bully prevention policy 45 3. Understanding and addressing the tasks and challeng- es that shape the school improvement process; and, Regulation defines bullying 39 4. Developing and carrying out plans that promote (i) capacity building and a sustainable and successful Regulation defines being the target of 1 school improvement process. The current scan did not bullying reveal to what extent the twenty-seven states that do offer some form of technical assistance are focused on Regulation addresses cyber-bullying 31 these four overlapping processes. Regulation defines cyber-bullying 19

State Policies on School Bullying Regulation addresses harassment 37 One of the four essential dimensions of school climate is safety, including physical as well as social and emotional Regulation addresses being teased 2 safety. A common issue in American schools is bullying, which can threaten students’ physical, social and emo- Regulation addresses social, - 25 tional safety. Anti-bullying policies are often independent al and/or intellectual safety of and more prevalent than other school climate policies. Bully prevention is part of the ac- 23 Our policy scan revealed that 45 states currently have countability system anti-bullying legislation in place, and North Dakota has a pending regulation. Regulation is focused on prevention 34

These numbers aren’t particularly surprising, given both Regulation is focused on intervention 41 the publicity that school bullying has had in recent and punishment years, particularly when connected to acts of in American schools, and the anticipated passage of the There is a funding stream supporting 6 Anti-Bullying and Harassment Act of 2011 (HR 975) at the regulation the federal level. If adopted, the Act will require each state There is Technical Assistance 37 to have an Anti-Bullying and Harassment policy in place. It would also require states to report incidents of bully- There is professional development 22 ing and harassment, to report the perceptions of students regarding their school environment, and to provide assis- Of the 45 states with existing anti-bullying policies, 37 tance to districts in their efforts to prevent and respond to states already make technical assistance available to dis- incidents of bullying and harassment. It does not, how- tricts or schools. However, only 25 states’ policies require ever, contain any funding to assist states in this effort. the state or school districts to provide technical assistance at the school level.

While the numbers look impressive, a concern is that

Page 6

National School Climate Center 545 8th Avenue, Rm. 930, New York, NY 10018 www.schoolclimate.org National School Climate Center Educating Minds and Hearts...Because the Three Rs are Not Enough

11 state anti-bullying policies focus solely on interven- TheMaryland State Board of Education also developed tion, after a bullying act/incident has occurred. The more and adopted a model policy to address bullying, harass- comprehensive bullying policies also address prevention – ment, or intimidation: Section 7-424.1 of the Education designed to reduce or prevent the occurrence of bullying Article of the Annotated Code of Maryland. Maryland’s incidents. model bullying policy is one example of a state that makes explicit the link between bullying and school climate. Many states require that each local school district adopt a “This policy recognizes that the prohibition of bullying policy on school bullying. For example, South Carolina in schools and reprisal and retaliation against individu- requires each local school district to adopt a policy pro- als who report acts of bullying, as well as subsequent and hibiting harassment, intimidation, or bullying at school. standard consequences and remedial actions, cannot be The school district must involve parents and guardians, effective as prevention and intervention methods unless school employees, volunteers, students, administrators, they are included as a part of a whole-school prevention/ and community representatives in the process of creating intervention program. The whole-school program would the policy (SC Code § 59-63-140). Among the compo- include the following elements: prevention, intervention/ nents that must be in the policy: remediation, and consequences.” • a statement prohibiting harassment, intimidation, or bullying of a student; The prevention phase includes annual professional de- • a definition of harassment, intimidation, or bullying velopment for administrators and all staff; school-wide no less inclusive than the state’s definition; evidence-based anti-bullying programs implemented as • a description of appropriate student behavior; a part of a system of positive behavioral supports and • consequences and appropriate remedial actions for school improvement efforts; and school climate improve- persons committing acts of harassment, intimidation, ment efforts in order to promote student involvement in or bullying, and for persons engaging in reprisal or the anti-bullying efforts, peer support, mutual respect, retaliation; and a culture which encourages students to report inci- • a statement that prohibits reprisal or retaliation dents of bullying to adults, among others. against a person who reports an act of harassment, intimidation, or bullying; Examination of the comprehensiveness of a state’s anti- • consequences and appropriate remedial action for bullying policies and the link – or lack thereof – to other persons found to have falsely accused another school climate policies could serve as a good starting point for states seeking improved school climates and To assist local districts in developing their policies, the decreased incidences of school bullying. statute required the South Carolina State Board of Educa- tion to develop model bully prevention policies and to What Anti-Bullying Technical Assistance develop teacher preparation program standards on the identification and prevention of bullying. is Required in State Policy? Twenty-five of the states with anti-bullying policies in- The statute also required information regarding a local clude some requirements for technical assistance. Gener- school district policy against harassment, intimidation, or ally, the type of technical assistance falls into two broad bullying must be incorporated into a school’s employee categories: assistance the state is to provide to districts training program. and/or schools, and assistance the school districts are

Page 7

National School Climate Center 545 8th Avenue, Rm. 930, New York, NY 10018 www.schoolclimate.org National School Climate Center Educating Minds and Hearts...Because the Three Rs are Not Enough

required to provide to schools/staff. Where Do We Go From Here? Recom- The required state assistance is most often a requirement that the state (typically the State Board of Education or mendations for Policymakers, Districts State Department of Education) develops model policies, and Schools, and School Climate Advo- and/or make resources available to districts on bully- cates to Advance State Policies on School ing prevention. A host of states join South Carolina and Maryland in requiring the state to develop model poli- Climate cies, including Wyoming, West Virginia, Rhode Island, For State Policymakers Alabama and Mississippi. • Evaluate your state’s current policies on school climate: Are the four dimensions of school climate At least sixteen (16) states require the district or the local represented? Do your state’s policies send the message board of education to provide training to school staff on that school climate is important? the anti-bullying policy, at a minimum. Nevada’s policy • Consider adopting comprehensive school climate requires school districts to teach administrators, princi- standards or guidelines that make the connection pals, teachers, and other school personnel the appropri- between bullying prevention/intervention programs, ate methods to facilitate positive relations among pupils safety, student engagement, community engagement without the use of harassment and intimidation. School and a positive school climate. employees must also be taught methods to teach skills to • Consider incentives the state might offer to districts pupils that enable pupils to replace inappropriate behavior and/or schools that demonstrate exemplary school with positive behavior (NRS § 388.133(b)). Florida’s climate processes and progress towards improved policy states that each district is responsible for providing school climate. Incentives could include financial teachers and administrators with instruction on identify- incentives, additional technical assistance targeted to ing, preventing, and responding to bullying and harass- that district/school, or a recognition/award program. ment (FS § 1006.147(5)(l)). • Once school climate policies are established in the state, examine levels of technical assistance provided A number of states offer other support to districts – most to districts and schools to determine if additional states have, at a minimum, information and materials assistance is warranted. Work with in-state institu- posted to the state’s website for district and school per- tions of higher education to elevate the role of school sonnel to utilize. Other types of state support include: climate in teacher and administrator preparation • TheIllinois State Board of Education has a School programs. Bullying Prevention Task Force (SBPTF) that high- lights training and technical assistance opportunities For School Districts and Schools for schools to effectively address bullying. (http:// • Implement a quality school climate self-assessment www.isbe.net/SBPTF/default.htm). and work with principals to ensure all schools have • TheOregon Department of Education holds an safe, equitable, inclusive, challenging and demo- annual violence prevention institute that is partially cratically-informed school climates. Corresponding dedicated to harassment, intimidation, and bullying. data and analysis will focus on improving practice to • Tex as makes available to districts a videoconference increase student development. on bully prevention strategies.

Page 8

National School Climate Center 545 8th Avenue, Rm. 930, New York, NY 10018 www.schoolclimate.org National School Climate Center Educating Minds and Hearts...Because the Three Rs are Not Enough

• Create opportunities for students to participate in nationally-recognized school climate survey that provides leadership and decision-making roles at the school an in-depth profile of your school community’s particular and district level. Engage students in conversations strengths and needs. NSCC has education experts avail- not just about bullying, but about school climate as able to present keynote addresses, panel discussions, or well. long-term consultations with school leaders and other cli- • Implement professional development for principals, ents. For more information, write to info@schoolclimate. teachers, support staff, students, parents and commu- org and/or visit NSCC’s website at www.schoolclimate. nity partners to successfully create and sustain quality org. school climates for student development (including: district-level workshops, building-level training, com- Jennifer Piscatelli: Is an education consultant specializing in munity forums, etc.). state education policy. She served as a Legislative Aide to the NH State Senate and as an aide to the NH Governor. Most For School Climate Advocates recently, she was a policy analyst at the Education Commission • Recognize that each state is unique in its approach of the States in Denver, CO. to policy creation and in its willingness to mandate Chiqueena Lee, J.D.: Is a Policy and Practice Associate at what might be viewed as additional regulations onto NSCC. She received her B.A. in English from San Jose State schools and districts. As a result, a one-size-fits-all ap- University and her J.D. from the University of North Carolina proach will not work. School of Law. She is currently pursuing her Ed.M in Educa- • Develop materials that help state policymakers and tional Statistics, Measurements, & Evaluations with a minor in others understand what a positive school climate Special Education at Rutgers University. Chiqueena has previ- looks like and how state and district policies can bet- ously worked with the North Carolina School Board Associa- ter support school climate efforts. tion and the UNC Center of Civil Rights. • Celebrate success! Recognize districts, schools and states that are making progress toward improving Suggested Citation: Piscatelli, J & Lee, C. (2011). State Poli- school climate. cies on School Climate and Bully Prevention Efforts: Challenges and Opportunities for Deepening State Policy Support for Safe and Civil Schools. National School Climate Center (July 2011) How the National School Climate Center Available at http://schoolclimate.org/climate/policy.php Can Help The National School Climate Center’s (NSCC) goal National School Climate Council. (2007). The School Climate Chal- lenge: Narrowing the gap between school climate research and school is to promote positive and sustained school climate: a climate policy, practice guidelines and teacher education policy. New safe, supportive environment that nurtures social and York: Center for Social and Emotional Education; & Denver, CO: emotional, ethical, and academic skills. NSCC offers an National Center for Learning and Citizenship, Education Commission ever-expanding website with school climate practice and of the States. Available: www.schoolclimate.org/climate/policy.php policy information, as well as a variety of professional Wisconsin Department of Public Instruction (2002). Standards of the development programs and services to support K-12 Heart. Available: http://www.dpi.state.wi.us/sspw/pdf/soth02.pdf. schools, after school settings, educators, parent advocate groups and states to support sustained school climate improvement efforts. NSCC offers workshops, summer institutes, and a comprehensive school climate assessment, the Comprehensive School Climate Inventory (CSCI), a

Page 9

National School Climate Center 545 8th Avenue, Rm. 930, New York, NY 10018 www.schoolclimate.org