Meeting the Needs of Youth at Risk: Public Policy and Interagency Collwboration

DOCUMENT RESUME

ED 284 092 CG 020 025 AUTHOR Crohn, Leslie TITLE Meeting the Needs of Youth at Risk: Public Policy and Interagency Collwboration. Conference Proceedings (Portland, Oregon, March 4-5, 1987). INSTITUTION Northwest Regional Educational Lab., Portland, Oreg. PUB DATE Apr 87 NOTE 36p. PUB TYPE Collected Works - Conference Proceedings (021) EDRS PRICE MFO1/PCO2 Plus Postage. DESCRIPTORS *Adolescents; *Agency Cooperation; Children; Delinquency; Drinking; Dropouts; Drug Use; Early Parenthood; *High Risk Persons; *Needs Assessment; Potential Dropouts; *Public Policy; *Youth Problems ABSTRACT This document contains materials from a conference designed to examine policy issues related to potential dropouts, youth offenders, drug and alcohol abusers, teenage parents, young children at risk, unemployed youth, and compensatory education. A brief overview of the 2-day conference is followed by summaries of each of the conference's presentations: (1) "Youth at Risk: A National Concern" (Frank Newman); (2) 1-Potentia1 Dropouts" (Edward Meade); (3) "Youth Offenders" (Eugene Bayard Edgar); (4) "Drug and Alcohol Abusers" (Michael Buscemi); (5) "Teen Parents" (Joy Dryfoos); (6) "Early Intervention for Young Children at Risk" (Jule Sugarman); (7) "Unemployed Youth" (Lynn Curtis); (8) "Policy Options Related to Commensatory Education" (Alfred Rasp); (9) "Drug and Alcohol Abuse Survey Results" (Jeffrey Kushner); (10) "Serving Youth at Risk through Comprehensive State Policies" (Frank Brouillet, panel presentation); (11) "Exemplary Interagency Approaches" (Matthew Prophet); (12) "Effective Interagency Approaches to Meet the Needs of Youth at Risk" (panel presentation); and (13) "Spotlight on Exemplary Programs, Practices and Policies to Meet the Needs of Youth at Risk" (small group sessions). A conference summary, evaluation, and videotape order form are included. (NB)

*********************************************************************** Reproductions supplied by EDRS are the best that can be made from the original document. *********************************************************************** THENorthwest Regional Educational Laboratory

CONFERENCE PROCEEDINCIS

Co c0 (NI Meeting the Needs of Youthat Risk: Public Policy and Interagency Collaboration

The Red Lion Columbia River Inn Portland, Oregon March 4-5, 1987

Proceedings from a conference on youth at risk sponsoredby: Northwest Regional Educational Laboratory Education Commission of the States National Alliance of Business

U.S. DEPAWINIENT OF EDUCATION Office of Educational Award+ and Improvement "PERMISSION TO REPRODUCE THIS MATERIAL HAS BEEN ARANTED BY ED TONAL RESOURCES INFORMATION CENTER (ERIC) Prepared by Is document has been reproduced es reCeffied from the person or organisation School Improvement Coordination Unit originating it. 0 Minor changes have been made to Improve Rex Hagans, Director reProduction quality.

Pants of view or opinions Stated in this document do not nacesaanly represent official April, 1987 TO ME EDUCATIONAL RESOURCES OERI position or policy. INFORMATION CENTER (ERIC)."

Northwest Regional Educational Laboratory 101 SW Main Street, Suite 500 Portland, Oregon 97204

2 BEST COPYAVAILABLE Conference Proceedings

MEETING THE NEEDS OF YOUTH AT RISK: PUBLIC POLICY AND INTERAGENCY COLLABORATION

Cosponsoring agencies:

Northwest Regional Educational Laboratory Education Commission of the States National Alliance of Business

Prepared by: Leslie Crohn, Research Specialist for School Improvement Coordination Unit Rex Hagans, Director

April, 1987

3 CONTENTS

Page

Introduction 1

Keynote Addtess: "Youth at Risk: A National Concern" 2

Potential Dropouts 3

Youth Offenders 5

Drug and Alcohol Abusers 7

Teen Parents 8

Early Intervention for Young Children at Risk 10

Unemployed Youth 12

Policy Options Related to Compensatory Education 14

Drug and Alcohol Abuse Survey Results 15

Keynote Address and Panel Presentation: "Serving Youth at Risk through Comprehensive State Policies" 17

Keynote Address: "Exemplary Interagency Approaches" 22

Panel Presentation: "Effective Interagency Approaches to Meet the Needs of Youth at Risk" 23

Small Group Sessions: "Spotlight on Exeuplary Programs, Practices, and Policies to Meet the Needs of Youth at Risk" 25

Conference Summary 29

Conference Evaluation 30

Videotape Order Form 32

4 INTRODUCTION aides, chief state school officers, heads of national foundations, and leaders in At-Risk Youth COnference Focuses business and industry offered on Policy Issues and Decision their unique outlooks and solu- Making tions affecting young peoPle at risk during this important con- The Northwest Regional Educational ference focusing on policY issues Laboratory (NWREL) and its and interagency collaboration. cosponsoring agencies the Educa- Participants included teachers and tion Commission of the States administrators, counselors and (ECS), and the National Alliance psychologists, researchers, juve.- of Business (NAB), welcomed 437 nile justice representatives, leaders in edUcation, business, board of education members, government, and health and human business and industry services to Portland, Oregon, representatives, government March 4-5, 1987 to examine policy personnel, and many others. Thor issues related to potential drop- came not only from NWREL's outs, youth offenders, drug and six-state region but also from alcohol abusers, teen parents, Arizona and Wyoming. Participants young childten at risk, unemployed came with a wide range of youth, and compensatory educa- backgrounds and expertise and from tion. These leaders from around a number of geographic areas to NWREL's six-state region (Oregon, find ways to meet the needs of the Washington, Idaho, Montana, Alaska growing numbers of young people at and Hawaii) came together to risk in our country and throughout examine collaborative efforts by the Northwest Region. schools, community agencies, and other groups as well as to explore specific topics related to youth Overviews of the Conference at risk such as minority youth, promising practices for high risk The two-day conference began with youth, and juvenile delinquency a welcome from leaders of the prevention. cosponsoring agencies, as well aS from the mayor of the citY of Portland. Following a keynote At-Risk Youth is a National address that put the issue of Concern and Provided Impetus for youth at risk into perspective and the Conference the national context, participants were given the opportunity to In the Northwest and Pacific, much choose from among eight showcase like the rest of the country, many presentations: potential dtoP- legislators, as well as those outs, youth offenders, drug and involved in education and human alcohol abusers, teen parents, resource agencies, are struggling early intervention for young with policy issues and recent or childten at risk, unemployed proposed initiatives to provide youth, policy options related to services to youth at risk. In the compensatory education, and drug Northwest in particular, new state and alcohol abuse survey results. leaders are putting forth their These presentations were given by innovative ideas, perspectives, and policy directions. These national and Northwest leaders including legislators, governors' regional and national experts in day. These 21 presentations were each of these fields; sessions offered in two time blocks, allow- were chaired by regional leaders ing participants the opportunity with demonstrated commitment to to attend two of these sessions. young people at risk. The show- A short summary and discussion of case presentations were repeated next steps concluded the confer- once, allowing participants the ence. opportunity to hear two of the eight presentations. Ideas and information on these and related topics were plentiful and The afternoon of the first day was widely shared during the confer- devoted to a panel presentation on ence. Just as important, partici- state policy options related to pants had the opportunity to begin young people at risk. Oregon, or extend network building for Washington, and national policies continued sharing and support. to serve youth at risk were presented by panel members and Following is a summary of each reacted to by representatives from conference presentation. private industry, the school district, and the professional association. Following the panel, KEYNOTE AND SBCOCASE PRESENTATIONS participants were given the WEDNESDAY MORN/NG opportunity to ask questions of the panel members in small group Keynote Addtess: 'Youth at Risk: settings. A National Concern'

An optional dinner event was held Frank Newman, President, Education the first evening of the confer- Commission of the States, Denver, ence. Beverly Curtis, school Colorado dropout and long-time resident of the streets, and recently honored Newman opened the conference by as an outstanding citizen and reminding the audience that national adVocate for the home- education is currently undergoing less, was guest speaker. mass reform. Education is not a centralized function, Newman The second day of ; omference stated; local districts need opened with a keynol.. address creativity and flexibility to focusing on exemplary interagency design their own agendas for approaches, followed by a panel meeting the needs of young people which further defined aspects of at-risk in their own schools. effective interagency collabor- This reform movement has been ation from four diverse perspec- occurring since 1977, Newman ex- tives. The luncheon that day plained, but it has only really featured a guest speaker who been felt in the last four to five presented one state government's years. Newnan pointed out some approach to meeting the needs of characteristics of the present-day youth at risk. Presentations on reform movement: (1) reform is programs, practices, and policies state-led, not federally led; from around the region identified (2) statta are taking the leader- as exemplary were spotlighted ship role, not local districts; during the afternoon of the second (3) the movement is driven by

2 2556s political and business leaders, of youth are found to have inade- not educators; and (4) the quate skills for high technology standard of the movement is military service. The military is excellence, not participation, no longer interested in providing meaning a value shift is occur- the skills these young people ring. Newman went on to state sorely lack. The question is, that in all the educational reform Newman asked, who will "person" taking place, we have failed to our military and our democracy? address the needs of students. Newman felt there is time to turn There is a new phenomenon occur- the plight of our country around ring, he said: "students are in the next five to ten critical being 'disconnected' from the years. The United States is functions of society, not just unique, Newman stated, and we have from economic Productivity but always faced and solved our prob- from their roles as citizens in a lems. "The time is now," he democracy."ECS has estimated admonished, "to do something about that 10 percent of all youth in young people at risk." this country are "disconnected"--a number Newman feels is horren- dous. He cited the critical "Potential Dropouts" factors that lead to discon- nention: family structure, finan- Edward J. Meade, Jr., Chief cial resources, and education as a Program Officer, the Ford value. The demographics point to Foundation, New York City shrinking support for schools: there is a decline in the birth Chair: Hal Reasby, rate among professional couples as Superintendent of Public well as an increase in an aging Schools, Edmonds, Washington population out of childbearing years. This eqUals an obvious "We all have a stake in the redaction in public support for dropout problem," Meade schools, Newman said. He empha- announced. "In 1950, there were sized that schoolE must be a 17 workers behind every person factor in reducing disconnection: with a pension. By 1992, there "It is critical that students be will only be 3 workers behind each given hope, time to change, and person with a pension."Meade personal attention, the latter challenged the audience with the most of all. Students must be- following question: "What if our lieve in themselves as capable country is not productive enough human beings. This is the time to support us in our retirement for a quiet but very important years?" "The bottom line,"Meade revolution," Newman added. warned, "is that we are all in "Schools should not be implement- this together." Meade discussed ing new programs, but rather, his role as adviser to the Navy in become instrumental in incorpor- education and training. Most ating multiple agency programs low-level tasks, he said, are now into the school environment, for computerized, and the tasks left that's where the kids are found." are those demanding higher order Newman gave an example of this by thinking skills such as operating referring to the military which life support systems, programming currently rejects 600,000 out of sophisticated computers, and so 1.8 million young people applying on. Meade stressed that the for service. These huge numbers

3 7 2556s potential consequences of inef- educationally supported, ficiency are greater than ever. school success is greater "We are 'dummying down,'" he and that factor could be warned, "when we need to smarten more important than inter- up." For example, 'dummying down' vention. We must be means putting pictures on cash careful not to undermine registers at the fast food or substitute for support- restaurants. Meade noted that ive families, thereby although it costs $3000-4000 per weakening them. year to keep a young person in school, it costs $20,000-30,000 We need to get started per year to keep that same youth before problems become too in a detention setting. There- acute--early prevention is fore, Meade said, "society is at critical and we must pay risk while youth are at risk." greater attention to the Meade noted we have no choice but middle grades where the to act becauze: (1) we have the learning environment is moral responsibility to do so; less tight and the problem (2) we have the power to make a is less severe (courses difference; and (3) it's in our and curriculum dominate at own self-interest. the high school level).

Meade presented what he called the Youth at risk need more "facts" of at-risk youth: systematic and sustaining academic attention. "Down Factors that lead to time" se4:11 as the summer dropping out have multiple months should be used to sources, personal as well continue academic pro.- as school-related. There- grams; for example, the fore, we must go to the STEP program, which uses source of the problem to continuous individualized the greatest extent we can. academic attention.

Remedies for dealing with We need to find "non- the causes of dropping out school" options for those are available and are who have dropped out of found in the schools, and school and don't want to other community agencies. go back.

These remedies require The dropout culture is community commitment, be- powerful and permeates the yond the school. This spirit of those who may be means true collaboration on the verge of dropping is needed. (lk recent out. We need to relieve study of 277 dropout the dropout-prone syn- prevention programs found drome. For example, Mia- that only 12 had affili- die College High School at ations outside the school.) La Guardia Community Col- lege in New York City The family/home environ- doesn't promote a culture ment makes a difference of failure--it puts young when it is supportive. people in a community Moreover, when the home is

4 2556s college environment with committing the crime, then heor paying adults. This posi- she could continue to receive the tive peer culture rubs off benefits of special education. on others. Edgar described the major focus of his project as seeking to Meade said that only with "will" determine the answer to the can we apply these facts to question: "How do you best move eliminate the number of young all adjudicated kids from the people at risk. "It is the institutional setting back into collective the.enforced the community, the schools, and with communitywide leader- other community programs?Edgar's ship," he concluded, "that will response is to make aidau:When help us understand the issues and youth receive high school degrees create change." in jail or after they leave, their recidivism rate is much lower. In Meade concluded his session by making a plan, interagency collab- stating that the Ford Foundation oration issues must be addressed. is initiating a program in 21 To find models, Edgar's team cities to bring about community looked at the transition of young collaboration to address the needs children in Head Start programs of youth at risk. To do this, into public schools as well as however, Meade noted that the students in developmental dis- rules will need to be changed and ability prograns into public the leadership of the communities schools.Agencies that need to be engaged. considered in planning for smooth transitions of youth from detention centers into public schools "Youth Offenders" must include the county court system, the parole system, and the Eugene Bayard Edgar, Professor of public schools. Edgar enphasized Education, Child Development and that case workers and school Mental Retardation Center, workers must get together in de- Experimental Education Unit, signing plans for the transition University of Washington of youth. One key strategy, Edgar explained, is Dick Elmore's "Back- Chair: Meredith Wood Smith, ward Mapping." Policy often seems Administrator, Clackamas County to be made from the top down, or Juvenile Services Commission, as Edgar phrased it, "the bosses Oregon get together."If this pattern is traced, one can see that it takes "A percentage of kids in jail may several years to implement a spe- also need special education," cific policy. It is more effec- Eugene Edgar stated as he opened tive to work from the bottom up. his presentation. "However," he We must begin, according to continued, "the definitions of Elmore, to talk to the people at disabled kids are messy." For the service level, "where the example, in Washington, a young service meets the clients." In person is not eligible for special education if that individual has first been adjudicated. Yet if

that same person had been in a . special education program before

5 2556s his work, Elmore emphasized that the eligibility criteria "if you really want to know what of the programs to which is going on, go to the people who they want the youth sent. are experiencing the problems." Edgar agrees with this, saying Exchange of informa-, that part of the approach is "key tion--transition cannot informant interviewing."This occur without a free flow involves interviewing such people of information among all as parole counselors and public agencies concerned. school admissions personnel. Edgar stressed that it is impera- Preplanning -youth often tive to get people to think about leave one agency and are the problem. Individuals at the sent to another without service level should be asked, the staff of the two agen- "What are the problems and what do cies talking to one you suggest as solutions?"Using another. The results are this mechod, Edgar said, can disastrous for placement. "provide a view of the elephant from 18 perspectives."Edgar dis- Feedback--this is one way cussed the .....ALULZErectimsJuvr the receivers can influ- InteragenctTransition Modek, a ence the senders. Senders book written by Edgar, Sharon never know what happens to Webb, and Mary Maddox. The book the youth unless the youth contains "recipes" for facili- return to the sending tating smooth transitions.The agency. transition recipes in the book have all been field-tested; three- Family--a parent or rela- fourths of the recipes initially tive is needed as an adva- tested didn't work. Only the one- cate. Unfortunately, par- fourth that proved effective as ents are seldom invited to transition strategies are in- participate. cluded. Edgar noted that in his work, the agency which begins with Edgar concluded his presentation the client is referred to as the by explaining that the crucial "sending agency" while the agency element in all transitions and in to receive the client is referred all interagency collaboration is to as the "receiving agency." The that someone has to care about handoff of the client from one doing it--in other words, someone agency to another is the "transi- has to view collaboration as tion." Edgar presented the basic effective and state up front, "I'm problems in transition. These going to do it." include: For a copy of the Juvenile Correc- Awareness--there is a tions Interagency Transition serious lack of awareness Model, Edgar invited participants among agencies about what to contact: Networking and Eval- is going on. Finger- uation Teams, Experimental Educa- pointing among agencies tion Unit, Child Development and often results. Retardation Center, College of Education, University of Washing- Eligibility criteria--the ton, Seattle, Washington 98195. sending agency must know

6 2556s 10 "Drug and Alcohol Abusers" of the problem." "We need to build on this shared sense of Michael A. Buscemi, Chairman, responsibility" Buscemi added. National Coalition for the Preven- tion of Drug and Alcohol Abuse, Buscemi interjected a note of and Senior Vice President, the caution, however, regarding Quest National Center, Columbus, effective interagency collabor- Ohio ation. Agencies working together must not expect the same degree of Chair: Gregory Lee, Director immediacy, of immediate action or of Employee Assistance Ser- results, as they would when work- vices, St. Vincent's HospitL ing individually. "They need to Portland, Oregon set up systematic steps" Buscemi said, "and do things little by Buscemi stated up front that he little, but do those things well." has a very personal interest in the work of the Quest Center--he Buscemi considers the issue of has four teenagers at home: Quest drug and alcohol abuse to be ex- is now working in countries all tremely serious--an issue that can over the world, Buscemi noted, for unravel the fabric of society if the Purpose of preventing drug and it isn't addressed and resolved. alcohol abuse among young people. He cited estimates that 500,000 Buscemi sees the resolution to the teenagers are alcoholics, and problem in a holistic way: there another 500,000 fall into that is a critical need for collabor- category but haven't admitted it ation among all of society's yet. Busceni cautioned that we institutions. "No matter how must be careful about labeling effective school-based programs, kids: "at risk" simply means agency-based programs, or having a harder climb ahead as we corporate-based programs are" are all at risk. Buscemi said, "they won't have enough impact unless they collab- Buscemi is concerned about our orate with each other." Most of preoccupation with "pamphlet Buscemi's work has been with prevention," noting that it simply schools, and he is disappointed to doesn't work. He said we need to find that most schools know very consider the "tool box" we're little about available community going to give young people to feel services. He indicated that one better about the decisions they of the barriers to collaboration make and to help them set goals: has been the need to clearly "So few young people plan beyond define the schools' role in next week and lack responsibility prevention and intervention. In for anyone else--or even for them- the past, Buscemi explained, once selves--that telling them about schools are involved, people tend the dramatic impact drugs will to blaue the schools for the have on their lives won't work problems, which in turn, makes because they haven't had any schools reluctant to become in- experience planning for the volved in the first place. "We future.' have come a long way recently" Buscemi stated, "because educators Buscemi highly recommends Horatio and administrators are more taws Children by Richard Blum willing to say they are a part as it looks at healthy adults and

7 2556s LI tries to determine what went right "Teen Parents° in their lives. Healthy adults all seem to share the following Joy aryfoos, task force member, characteristics: "Risking the Future," National Science Foundation, and inde- Communication with adults, pendent researcher in addlescent siblings, and others in pregnancy with grants from the their lives. Rockefeller Foundation and the Carnegie Corporation, New York Stability, that is, the nearness of grandparents Chair: John Pendergrass, Youth and other important family Coordinating Council, Oregon figures. Department of Education

Good male/female role "It is only very recently," Dry- models. foos declared, "that the issue of teen parents has been addressed at Ample family time spent conferences such as these." How- together, even if in front ever, Dryfoos explained, her of the T.V. (the average presentation would focus primarily family spends less than on the Ellyention of teen preg- 15 minutes of time to- nancy, rather than on teen parents gether per day). per se. She gave some startling statistics as an opener: Association with religion. 11.6 million teenagers A family view of substance today between the ages of abuse as a human problem, 13 and 19 have had sexual not a legal one.. intercourse; of the 5 million females in thie Regularity, consistency in group, seven of every ten their lives. are sexually active by the age of 20; of the 6.5 Buscemi concluded by emphasizing million males in the group, that the community, the houe, the eight of every ten are school, and the students them- sexually active by the age selves need to work together to of 20. develop a comprehensive plan for the prevention of drug and alcohol The average age for a young abuse. woman to have intercourse for the first time is 16.2 years; for A young man, 15.7 years.

Sexual activity increased among teens in the 1970s but began to decline in the early 1980s.

Forty-nine percent of teen females aged 1S-19 who engage in sexual intercourse use some method of birth control the first time.

2556s 8 12 Only one in seven teen Those teenagers who have females attending a family intercourse before they are planning clinic does so 16 years old are nearly two before initiating sexual times more likely to get intercourse, and most delay pregnant in the first six their visits to a clinic months than those who wait for an average of 11.5 until 18 or 19 to begin months after their first sexual activity. time having intercourse. One-fifth of all premarital Of unmarried sexually teen pregnancies occur active females, aged 15-19: within the first month -- 27 percent had never after commencing sexual used any method of birth intercourse; one-half in control, the first six months. -- 39 percent had used a method, but not every Dryfoos said the major deter- time, minants of teen mothers are low -- 34 percent had used a academic achievement and poverty. method consistently. When these factors occur together, the risk of becoming a pregnant Of those teen females aged teen is very high, she warned. 15-19 who use contraception: Other high risk factors include -- 62 percent use the pill, peer pressure and lack of parental -- 22 percent use the support. condom, -- 14 percent use barrier Dryfoos emphasized that the role methods, foams, suppos- of the schools in pregnancy pre- itories, periodic absti- vention is critical and should nence, or withdrawal. include:

Four of every ten females 1) "Triage"--a case manager become pregnant before they referral system whereby in- turn twenty years old. dividual students are More than one in ten assisted by someone other teenage females get preg- than a counselor or teacher nant each year. to contact outside agencies;

Teens aged 15-19 2) A pregnancy prevention experienced 1,022,370 package that includes pregnancies in 1983, a rate multiple strategies; of 108.1 pregnancies per 1,000 girls, while girls 3) Community-based health aged 14 or younger exper- clinics in the schools; and ienced 29,000 pregnancies, a rate of 16.2 pregnancies 4) A variety of programs per 1,000 girls. (health, environment, sports, etc.) set up by Teenagers had 499,038 outside agencies in the births, 411,390 abortions, schools. and an estimated 140,950 miscarriages in 1983.

255 6s 9 13 °Early Intervention for Young want to develop economic Children at Risk" independence programa," Sugarman asserted. Jule M. Sugarman, Secretary, Department of Social and Health Becoming serious about Services, Washington State, and child development means former Associate Chief, U.S. also becoming serious about Children's Bureau, and Director, parent development. Office of Child Development, HEW In our society, we have Chair: Edward S. Singler, quite a difference in Regional Administrator, Office family structures. Some of Human Development Services, reconstruction of the Seattle, Washington family will emerge.

"Today's atmosphere may be more Sugarman recommends the conducive to thinking about book Woman of the Future children and children's needs than which suggests that the in recent years," noted Sugarman. family of the future will "We know several things about be groupings of friends and early childhood," he continued: neighbors who will gather together to raise kids. We know it's possible in "To some degree," Sugarman the first five years of added, "this exists life to get an idea of today." which kids will later have problems (health, emotion- "We have to find a lot of al, intellectual). money to make an impact on early childhood--and this We know that although early within an environment ad- identification is possible, verse to additionai tax- it rarely happens. There ing," he noted. He also are a few programs to iden- suggested a few years ago, tify these kids, but it is in jest, that we should not by any means a univer- abolish the 12th grade and sal application and not put that money into early widely available. /n this childhood programs. But in regard, Sugarman suspects seriousness, he said, "we we will soon have an organ- need to look at health and ized system of early iden- social systems." Medical tification. inflation has been double the Consumer Price Index. Child care has emerged as We have to find ways to an enormous need in every make it less expensive. On community: "it's almost the social service side, everybody's problem." Sugarman noted, we have to People want to know how to make programs such as wel- get decent, trustworthy fare more economical: "The child care for their kids: growth in the welfare case "it's a particularly impor- load must be turned around tant problem for the wel- or it will make further fare population if you cuts into money for early childhood."

10 2556s 14 Children are different from discrete as they once were, one another. The needs of Sugarman explained. How- children and families are ever, they all must be very different--yet we keep considered in order to deal designing programs that are with kids in a holistic way. the same for each child. We need a variety of pro- The real action is at the grams and approaches, par- local government level for ticularly at these age education, health, and levels. We need more indi- social agency decisions. vidual prescription, diag- We must look for ways to nosis, and activity engage local people to tailored to the individual develop a plan that makes family's needs. "Unfortu- sense for their local jur- nately," Sugarman com- isdictions. For example, mented, "it's so easy to Seattle's programs should explain it when it's the be different from Spokane's. same service everywhere." "But providing the same As we individualize pro- service for different grams, we must maintain needs," he said, "just gpality across all pro- doesn't make sense." grams--no matter how different they are. Many good programs suffer from financial instability. Early childhood programs must include a continuity "While business has a pro- component for parents as found interest and has made well as for kids. In too a limited investment, it is many cases, Sugarman noted, very unlikely that business "parents aren't welcome in will underwrite child the process." care," Sugarman asserted. "Business will not subsi- We must think about the dize child care," he con- utility of older youth tinued. "The notion of a working with younger chil- day care center at every dren such as junior high workplace is, I think, not students working with pre- viable." school children. "There's a potential there that is To create a program that does not two-way," Sugarman com- reduce the at-risk nature of mented. "Wnile the skills children, Pugarman mhde the of the younger child are following points: being built, the older child benefits from in- /t must involve the major creased self-esteem and the departments at the state development of parenting and local levels, including skills." the educational system, state superintendent, and "Which institution will local boards; physical and accomplish all this?" mental health agencies; and Sugarman asked. Public social service agencies. schools seem logical, but These areas are not as

11 2556s 15 some fear they are already Unfinished Agenda,' the videotape overloaded: 'Don't ask spotlights the programs supported teachers to do anything by the Foundation that have as a else, sone say, as their basic focus the reduction of vio- plates are alLeady too lent crimes. The Foundation, full." Sugarman admits he Curtis explained, is an outgrowth is not sure of the answer. of President Eisenhower's Violence He believes it's a factor Commission, established in 1968 of the educational leader- and headed at that tine by Milton ship in the community, not Eisenhower. of the institution itself. 'But if not schools, then The programs presented in the who?' Sugarman asked. He video included the following: thinks existing Head Start Centers could possibly be 1) Argus Learning for Living used for a range of ser- Center, South Bronx; vices. What we may need to do, he said, is create an 2) Center for Orientation and early childhood authority Services (El Centro), in a community. Head Start Ponce, Puerto Rico--the has a 4-C program: Commu- video noted that this pro- nity Coordinated Child gram is the best example of Care. Sugarman noted that community regeneration, this approach has been giving local citizens successful in such communi- respect and dignity; ties as Orlando, Florida. 3) Community Boards Program, In conclusion, Sugarman admonished San Francisco, and in other the audience that, "unless the communities--these programs major delivery systems get to- address violent problems in gether and focus and blend their the neighborhoods where efforts, we're headed for serious they occur and includes trouble down the way. There is training and the use of indeed a major part of our popula- peer 'conflict managers" in tion that is seriously at risk." the 3rd and 4th grades;

4) Rouse of Umoja, Philadel- "Unemployed Youth" phia--strengthening self- concept via a connection Lynn A. Curtis, President, the with Black Heritage in Eisenhower Foundation, Washington, Africa is the central D.C. concept of this program;

Chair: Rueben Flores, Vice 5) Around the Corner to the President, National Alliance World, Washington, D.C.-- of Business, Pacific Northwest the focus here is on envi- Region ronmental impact, crime prevention, and local em- Curtis began his presentation with powerment (with money from a videotape of the programs funded the Ford Foundation and by the Eisenhower Foundation that other sources). The com- are found in inner city communi- ponents of this program ties and which have employment as a central component. Titled "The

12 16 2556s include a housing weather - facilitate community leaders in ization business which of- creating their own solutions. fers employment for youth, Curtis called this the "bubble-up" an extended family center rather than the "trickle-down" which conducts'self -help process. The goal of the Founda- meetings and teen leaders tion is true economic and civic meetings as well as a teen empowerment of inner city minority parent self-sufficiency youth. The formula is remedial center (funded by federal education, employment training, and foundation monies). and placement in extended family supportive situations. However, Curtis commented on the work of Curtis feels that only through the Vera Institute in New York federal leadership and resources regarding youth employment. "You can we truly make a dent in the can't have programs that stick problem. kids in the secondary labor mar- ket," Curtis said. "They need the He estimates it would cost $13 opportunity for upward mobility." billion per year to reach everyone Curtis listed what he believes are who needs remedial training pro- the critical elements in dealing grams to receive such training. with the issue of youth employment: Currently, we spend only $3 billion for such programs, while Employment networks are we spend $20 billion on welfare. critical for linking high- But Curtis also noted that the risk youth to jobs. Poor private sector can do a better and white youth have more net- more effective job of implementing works than black youth. the concept than the federal government can. He cited such Family resources are very examples as Public/Private Ven- important. tures, the Enterprise Foundation, and Manpower Research Foundation. There is a need for simu- Sone federal programs, such as lated extended family Jobs Corps, have been successful, situations. however, and should be continued. Curtis related that for every $1 Peer support is a very the program spent, $1.45 was positive factor. reaped in benefits, including participants' increased ability to Education is, of course, a pay taxes, a decrease in crime major factor, but often rates, and so on. minority schools are poorly organized and disciplined. For more information! Curtis urged Therefore, community-based participants to write the programs such as the Argus Eisenhower Foundation at 1725 Center or House of Umoja I St., Washington, D.C. 20006. are necessary. These neighborhood organizations provide extended family support, motivation, nur- turing, and discipline.

The Eisenhower Foundation is focusing on finding ways to

13 17 2556s °Policy Options Related to effectively. In the class- Compensatory Education" room, we need to decrease labeling and pull-out Alfred Rasp, Jr., Director, programs. Testing, Evaluation, and Accred- itation, Office of the State We will &ways need some Superintendent of Public Instruc- specialized programs. We tion, Washington, and Nona Bailey, need to pay greater atten- Deputy Sup.-rintendent, Seattle tion to coordination and Public Schools, Washington planning, as well as to mainstreaming more youth. Chair: Ethel Simon- McWilliams, Associate Execu- We need to closely examine tive Director, Northwest assessment policies and Regional Educational Laboratory .procedures. We tend to over-identify those needing Bailey began with a brief history special help and then label of compensatory education those students. Incentives including programs for the to label are a result of educationally disadvantaged, categorical funding. migrants, bilingual and han- dicapped students. She stressed Rasp presented results of a that increasing numbers of youth Washington SPI study of students are at risk. "This means," she with special needs in terms of mad, "it is imperative that we categorical programs. Rasp felt c4refully examine our policies, the study was a good statistical pre:grams and resources." In sample. It showed that almost 95 Seattle, out of 44,000 students, percent of teachers gave no 21,000 are in need of special special help in the classroom to help, yet Seattle only directly children identified as needing serves 6,500 students. Bailey compensatory education. Pull-out said there is an enormous gap in programs for these youth were services. "What we need to look found to be the most popular. at," she emphasized, "is change." Reasons given: (1) classes are "The classroom works for 70 per- too large (average class size: cent of the students," she contin- 25-30); (2) too many behavior ued, "but 30 percent of them have problems in the classroom; and needs that are not being met." (3) too many kids with special needs. The study found that most Bailey listed what she feels are teachers choose pull-out programs priorities in compensatory as the preferred method of service education: to at risk youth, even though they noted two major drawbacks: Policy makers must give (1) compensatory education stu- local schools the dents miss too much regular flexibility to design their classroom instruction; and (2) the own programs. pull-out curriculum does not mAtch what's happening in the class- EdUcators must change their r4om. The study found that the delivery of services to ideal would be: (1) smaller class serve youth at risk more sizes;(2) consultant help from

14 25568 18 APecial education teachers; and "Dreg and Alcohol Abuse Survey (3) services delivered to students Results" in the regular classroom setting. Jeffrey N. Kushner, Assistant Rasp noted that major conclusions Director, Oregon Department of of the study include the following Human Resources for Alcohol and (made in the form of recommenda- Drug Abuse Programs tions to the state 'legislature): Chair: Kenneth Hansen, Senior Many more students need Policy Analyst, NWREL help than are receiving it. Kushner presented major findings Students with minor handi- of a study conducted for the caps are able to self- Office of Alcohol and Drug identify. This indicates Programs, Oregon Department of that perhaps there is a Human Resources. The study, Zug need for less formal diag- Use Amow Oregon Public School nostic assessment and more Students is a report on the curriculum-based assessment. prevalence and patterns of drug use among eighth and eleventh Remedial programs should be grade public school students in spread from K-12 rather Oregon for the year 1985. The than fr:mi the current 3-9 purpose of the study was to emphasis, to broLden the analyze the extent of drug range of services. involvement at early use ages (the eighth grade) and at later use For legislative purposes, ages (the eleventh grade) to pro,- "Remedial Assistance" vide guidance for policy in the should be changed to continuing development of programs "Learning Assistance." of prevention, intervention, and treatment. Kushner noted that the Rules that reduce local study looks specifically at flexibility should be eleventh and eighth graders in a eliminated. carefully chosen sample representative of public school students Financial resources need to throughout Oregon. Data were be daubled. collected during the early part of the 1985-86 school year. Kushner Pilot project :. should be also informed the audience that instituted that eliminate this was the first study in Oregon current restrictive rules which is truly representative of and that rely on long-term drug use by Oregon public school funding. students throughout the state. Some of the major findings as The State Board of Educa- discussed by Kushner included the tion should change teacher following: training standards so that all teachers can deal with Compared with high school mild remediation problems seniors nationally, Oregon in the regular classroom eleventh graders use setting. illicit drugs more frequently and begin

15 2556s 19 heavier use at an earlier alcohol is no different for age. Illicit drug use by the two groups but seniors eighth graders is also nationally use slightly high. Moreover, the pat- more than Oregon eleventh terns of illicit drug use grade students annuallo 4nd change substantially monthly.These slight dif- between the eighth and ferences probably disappear eleventh grade; for once the onset of first use example, marijuana use in senior year is taken increased markedly from the into account. eighth to the eleventh grade. Daily use of alcohol is slightly lower for Oregon Among all eighth graders, eleventh graders than for marijuana and inhalants are twelfth graders nation- the highest reported ally. However, daily use illicit drugs in lifetime of marijuana among oregon use. Cocaine, ampheta- eleventh graders is higher mines, nonprescription diet than that for alcohol. and pep pills are the drugs This is not true for next highest in lifetime seniors nationally where use. Marijuana remains the deily alcohol and marijuana most commonly used illicit use are the same. drug monthly. Cigarettes are also fre- Among all eleventh graders, quently used. One-half of marijuana is the illicit the eighth graders report drug with highest reported lifetime use as do two- lifetime use. It also re- thirds of the eleventh mains the illicit drug most graders. Females use frequently used monthly. cigarettes more than males monthly among eighth Among the licit drugs, graders and daily and also alcohol is the dtug most among eleventh graders. frequently used by both This is the same pattern of eighth and eleventh more predbminant use by graders. Compared to all females found among high drugs, alcohol is the most school seniors nationally. commonly used. Except for heavy drinking (more than More than 90 percent of five drinks on one occa- both eighth and eleventh sion) females and males graders indicate they prob- have the same incidence of ably or definitely will not use of alcohol. Males are be using illicit drugs heavier drinkers and more within five years, with the likely to consume more on exception of marijuana. each occasion. One-half of the eighth The difference between graders indicate they Oregon juniors and the probably or definitely will national average of seniors not use alcohol within five is slight. Lifetime use of

16 2556s 20 years; this figure drops to to eleventh graders; am- only three of ten eleventh phetamines are much more graders. likely to be used with other people by eleventh Cigarettes are also looked gradersin general, older at negatively in that 88 students are much freer in percent of both groups their use of these in all indicate they will probably situations. or definitely not be smoking in five years. The most common combin- ations of drugs are mari- The biggest differences juana with alcohol; cocaine appear in those students with alcohol; and cocaine who say they definitely with marijuana. will not be using marijuana, cocaine, and alcohol. Basically, there is KEYNOTE AND PANEL PRESENTATION greater acceptance of alco- WEDNESDAY AFTERNOON hol, marijuana, and cocaine by older students. Keynote Address: °Serving Youth at Risk through Comprehensive Reasons for use were given State Policies° as experimentation, personal gratification, social Frank B. Brouillet, State relationships, and good Superintendent of Public taste (alcohol). Instruction, Washington

Both groups consistently Introduction:Mona Bailey, overestimated the use of Deputy Superintendent, Seattle drugs by their friends, Public Schools, Washington except for alcohol which was relatively accurately "Assigning definitions to estimated for annual use, 'at risk' is of questionable and inhalants which were value," Brouillet observed, "but estimated quite accurately. necessary in order to obtain funding." However, there are some Because peer pressure and common characteristics of at-risk enjoyment with friends are youth, Brouillet noted, including important in these age 25 percent below the poverty line, groups, the perception that and 25 percent from single parent use is higher than actually families.Brouillet commented on reported is a cause for the importance of understanding concern. the problem. In Washington, the Business Roundtable has lent cred- Alcohol is clearly used ibility to the problem because it more frequently as a social is a group of interested indi- drug; marijuana is a less viduals from the community other hidden drug for eleventh than educators. Brouillet said It graders than for eighth is also important to understand graders; cocaine is used the background of the problem. more frequently when alone For example, the impact of the by eighth graders compared baby boom of the 1940s occurred

17 2556s 21 during a time of prosperity and Chair: mona Bailey, Deputy when most families were headed by Superintendent, Seattle Public two parents, of which the male vas Schools, Washington the primary wage earner. There is a definite shift in values today Verne Duncan: as a very large number of families are headed by a single working Duncan opened the panel by assert- parent, or both parents work out- ing that educators are doing the side the home. The problems today best job ever. He emphasized the that attribute to the growing me- following points regarding state hers of at-risk youth include policies in Oregon: poverty, a dependency on the eV:- tem, and single parent families. The primary roles of the All these factors have serious State Board of.EdUcation implications for classrooms, are bo govern, lead, set Brouillet noted. We need to; directions, observe needs, (1) re-examine the status guo, and make things happen in especially in terns of the value local districts. or merit of pull-out programs; (2) reduce the number of students 6 There are new players in per classroom; (3) mainstream the state including the, compensatory education students: legislature, the governor, and (4) eliminate labels. and the business commu- Brouillet also listed the social nity. These individuals implications surrounding at tisk and groups are more in- youth. /n this regard, he said, volved in, and more com- we need: (1) early intervention mitted to, education than in terms of child care standards ever before and feel a and increased resources; (2) C011** sense of mutual dependency. cern for the whole child from a collaborative perspective; (3) a State policy can drive the break in the poverty cycle, mean change cess. ing we need to work more with parents; (4) an understanding of Education and human re- the root causes of poverty. "In sources have previously the final analysis," Brouillet been on a collision stated, "schools can't do it course--now these groups alone--meeting the needs of youth are working together. at risk demands collaborations" One new state direction is to move out of traditional Panel Presentation: roles and explore innovative strategies for solving Verne A. Duncan, State Super- problems. intendent of Public Instruction, Oregon; Frank B. Brouillet, Sandra Jibrell: standing in for the Honorable Brian Ebersole, State Represent "The 16- to 21-year olds," Jibrell ative and Chair, House Education began, "present a five-year Committee, Washington; and Sandts dilemma: they are moving into Jibrell, Center for Policy Research, National Governors' Association, Washington, D.C. 22 2556s adulthood, and need job skills and 6) Combination of long- and sophistication." The demographics short-term planning. are scary, Jibrell noted: every day in this country, 40 teenage Jibrell said the major causes of girls give birth to their third dropping out include: child; 80 percent of these are school dropouts. A growing number 1) Chronic low achievement; of dropouts also have drug-related problems.Jibrell warned that 2) Personal family crisis; there is a basic skills crisis and along with this inability to read, 3) Teen pregnancy; write, think, and compute, comes the higher likelihood of becoming 4) Need to work to suppott parents, dropping out of school, family; and and engaging in criminal behavior. The plan of the National 5) Dislike of school - -boredom; Governors' Association, "Bringing apathy. Down the Barriers" includes the following strategies: Also listed and discussed by Jibrell were the steps to dropout Reduce incidence and prevention: consequences of teen pregnancy. Dropout prevention must become a 50-state priotity Increase the number of with a corresponding budget. those who complete high school. There needs to be unitotm reporting standards. Reduce drug and alcohol abuse. Each school needs to have a dropout prevention team; Increase literacy in the dropping out must be made adult population. more difficult for youth.

According to Jibrell, public The school year should be policy development must include extended. the following: The business sector should 1) Parenting skills training; be actiyely engaged; real, not token, involvement 2) Client-centered service should be the goal. delivery; There should be legal 3) Interagency coordination; mandates such as "Chil- drens' Impact Statements" 4) Private sector support; (like environmental impact statements) on all new 5) One-on-one counseling (this legislation. has been shown to be an tffective approach; disconnected youth can get reconnected through individual attention); i_tnd

19 2556s 23 Frank Brouillet: Robert L. Anderson, Executive Director, Montana School Boards To present Washington's approach Association. to addressing the issue of youth at risk, Broiillet discussed Martha Darling (responding from current policies in the state: the perspective of the business community), made the following $100 million is budgeted points: for schools including higher education. We must take a comprehensive view and answer Head Start programs are these questions: What do we presently budgeted at want to achieve for young $5 million, but the hope is people (i.e., what are the to double that amount. outcomes we want)?Where are we now?What do we At the Executive level, need to do? there are three bills pending at this time: A comprehensive view means: (1) school finance, (2) teacher education, and 1) Thinking of childen and (3) student centered legis- young people in terms of lation. The student cen- a continuum,comprising tered bill includes plans all ages; for: 2) Incorporating how people 1) °Even Stare--targeted learn into the school at teen parents to break structure (we do not do the poverty cycle; a good job of this now);

2) Dropout prevention; 3) Providing youth wial individual attention; 3) Drug, alcohol, and child abuse prevention; 4) Providing opportunities for more adults to work 4) Community support for with young people, not schools (e.g., each just certificated government agency and teachers: Private business would donate one executive to 5) Using technology better the schools for 20 to extend the reach of hours); and all teachers;

5) Increasing volunteers in 6) Planning for compre- schools. hensive interagency cooperation; and Reacting to the panel presentation were Martha Darling, Executive 7) Focusing on the school Director, Washington Roundtable; as the logical place for Homer Kearns, Superintendent of multiservice delivery as Public Schools, Salem, Oregon; and Unit's where youth are found.

20 2556s 24 There is an overcentral- be changed and what can be accom- ization of services in plished. State policies are not terms of state Mandates; that restrictive on schools, this calls for Appropriate Kearns pointed out, as they are deCentralization of de- interpretableand designed to ciSion making to the lowest allow for maximum local flexi- possible levels. The focus bility. should be on school-based management. To provide effective service to youth at risk, Kearns said local We should pay more atten- districts need the following: tion to evaluation of out- coMes; educators should 1) Clear public statement determine criteria and then regarding the mission of decide how those criteria the school; should be evaluated. 2) A stzong statement of The perception of the accountability; business community is that there is a lot of money 3) Collaborative efforts with spent on education with community agencies (a little apparent value. ctitical link);

The critical element above 4) A commitment to finding out all else is leadership. what works with at-risk Youth at risk is a complex youth; and isOue and a real challenge to schools and society. 5) Technical assistance from The leadership needs to the state department of target a broader audience. education.

Homer Kearns (responding from the Robert Anderson (responding from perspective of a local district), the professional association suggested that schools need to do perspective), made four specific three things: points in his response::

1) Define their own needs; Edu.:ators are currently in a second wave of reform and 2) Plan strategically; and school boards and school districts now have joint 3) Develop a mission statement responsibility for meeting and a vision of what is to the needs of young people be accomplished. at risk.

Kearns also noted that in terms of We need a concept of youth at risk; schools must take community responsibility the responsibility for many of the for raising young people. problems. Procedures such as testing, grading, placement, and The demographics of school transportation policies are all trustees (95 percent white, variables. Districts need to be 85 percent college edu- turned inside out to see what can cated, 65 percent earniN

21 25 2556s over $30,000 per year) are MOOTS ADDIMS AND PANOL not representative of the PRESSMATION nation at large; this means tnyusim MORNING the make-up of school trustees needs to change. Keynote Address: "Exemplary Interegency Approaches° Schools with more than 700 students are too large; Matthew W Prophet, Superiutendent students can remain too of Public Schools, Portland, Oregon anonymous and not receive individual attention. Introduction: Charles Rooks, Executive Virector, the Fred At the conclusion of the reaction Meyer Charitable Trust panel, the floor was opened to questions from the audience. "The reports on excellence in Among other questions to all panel education," began Prophet, "have members, the following question missed the point of equity." was directed to Martha Darling: Prophet informed his audience that "How sh.Nuld we restructure schools on May 14. 1986, Education Week based on the experiences of the ran ian article by Dr. Harold private sector?" Darling Hodoina4n who reported that by responded with the following the year 2010, California will be suggestions for schools to the firat state to have a majority consider: of minority population. "Our lives will depend on saving these Size is a critical aspect minority kids," Prophet warned, and should be carefully then added: "they are our social considered when designing security." Prophet described the educational programs. Portland Leaders Roundtable as an ad hoc groUp of local decision An organization needs to makers who are currently examining remain flexible and open to the problems of youth unemploy- change when indicated by ment. Upon/int elements in their unsatisfactory evaluation success. Prophet noted, are long- results. term planning and coordination of existing agencies. "The goal of Schools should form united the Roundtable," Prophet told his partnerships with business audience, "is to develop new and view education of young levels of collaboration." The people as a shared plan of this group is called "The responsibility. Portlend Investment" and its goals include: (1) coordinate summer youth emPioyment, (2) increase job training it the schools; (3) focus on acadersio training for 14-year olds; And (4) identify barriers faced by the commtAity to achieve goals. Prophet introduced a video "Youth Unemployment in Portland" that exp1ained the work of the Roundtable. The video focused on public/private collaboration; and showed the Partnership Program at

22 25568 26 Grant High School. The video Ryles suggested that the reasons noted that the program has had for the problems with youth today great success with job placement are complex and involve at least: and academic skills gains. Key increasing unemployment, increased players in the Portland Leaders peer pressure to drop out, youth Roundtable are Prophet, J.E. "Bud" crime, substance abuse, teen Clark, Mayor, City of Portland, suicide, and teen pregnancy.Two Vern Ryles, Chairman, Portland primary causes for youth problems, Private Industry Council, and according to Ryles, are poverty Roger Breezley, Chair, Business- and lack of parental support. Youth Exchange, Vice Chair and "These causes are not likely to Chief Operating Officer, U.S. change soon," Ryles warned, "and Bancorp. mean that agency collaboration is essential." Ryles feels that we Panel Presentation: "Effective need, in this country, systematic Interagency Approaches to Meet the societal change. "We fund systems Needs of Youth at Rif*" of war," he said, "but not of peace." "The focus needs to shift Vern Ryles, Executive Committee from remediation to prevention." Member, the Portland Leaders At the Portland Leaders Roundtable, Chairman, Portland Roundtable, Ryles explained, the Private Industry Council, and leadership rotates: "this is an President, Poppers Supply Company: important aspect of its success." Barbara Ross, Chair, Oregon Youth Coordinating Council, and Head of Barbara Ross: Oregon Governor Neil Goldschmidt's School Retention Initiative; James 'Governor Goldschmidt has mandated C. Wilder, Senior Associate, the that agencies 'wage war' on the Kettering Foundation, Washington dropout problem," Ross began. She D.C.; and Jeannette Hargroves, told the audience that the major- Community Research Associate, ity of at-risk youth can be Federal Reserve Bank, Boston helped, trained, and made employ- Massachusetts, and developer, the able, as demonstrated by the Youth Boston Compact Coordinating Council and other organizations. In Oregon, she Chair: Charles Rooks, explained, the heart of the effort Executive Director, the Fred is the "Student Retention Initia- Meyer Charitable Trust tive" which requires the collaboration of local leaders, Vern Ryles: data collection, and action plans. During this biennium, she Reiterating Prophet's remarks noted, $8 million has been regarding the Portland Leaders allocated for youth at risk. Roundtable, Ryles noted that it is Grants are available to a long-term plan which came about communities. "Now is the right from a process of collaboration. time to act," she stated, "due to Ryles emphasized that it is impor- the urgency of the problem, and tant to be specific about the the availability of good modeln." purposes for collaboration and to remain issues oriented.

27 0500w- 23 James Wilder: accomplished through dia- logue which identifies Wilder underscored Prophet's issues, clarifies choices, comments and stated emphatically prioritizes, and eliminates that we cannot have excellence options. without equity. Wilder described the Kettering process for Develop a different way to community involvement as the understand public opinion National Issues Forum which and know the difference involves a series of nonpartisan, between opinions and town hall-style meetings. "Whbt judgements. is needed," be said, "is networking of existing agencies, In conclusion, Wilder made the not new ones. In 1986, more than following point: "Formal power 200 communities were involved in manages history, public power the Issues Forums." changes history."

Wilder explained that the Jeannette Hargroves: Foundation has organized the "Youth at Risk Community Forums" Hargroves began by explaining why to look at problems more the Boston Compact was formed: in holistically. In that regard, the 1982, it was found that Boston had Foundation has developed an issues a dropout rate in excess of 44 workbook "What Do We Want for Our percent. A business-school Youth?" to help communities agreement was initiated whereby develop strategies for dealing 300 firms promised priority with youth at risk. The goal is hirings to youth. Currently, to get communities to think there are more than 600 businesses independently, yet work involved. The results of a cooperatively. The goal for follow-up survey showed of 3000 communities is to arrive at a high school graduates, one-third community-endorsed program, not a needed help beyond high school consensus (Wilder stressed that is (day care, financial aid, college almost never achieved). "Yoe funds, etc.). The study also seldom get agreement," he noted,. indicated that the black/white "but you can get infOrmed jobless gap was narrowed participation." significantly. However, from the school side, the results have been Wilder informed the audience that less encouraging: the dropout effective communities: rate is climbing. In May, a conference was held to address the critical dropout problem and to Educate their citizens encourage the school district to about community issues. plan. There now exist agreements between the university and the Have broad coalitions. school district: the business community and the university Get involved early. (endowment funds); and the trade unions and the school district. Seek a different kind of information, i.e., "What do Hargroves emphasized that it's we think?" This can only necessary to have measurable goals be

24 2556s 28 and that the program be systemwide TOM NELSON, Executive Director, and long-range (at least 10-15 Business/Youth Exchange of the years). "This is an experiment," Portland Chamber of Commerce-- she stressed, "you learn as you members of the Portland Leaders go." Roundtable Planning Team

The Portland Leaders Round- SMALL GROUP SESSIONS: "SPOTLIGHT table is an exemplary effort ON EXEMPLAR? PROGRAMS, PRACTICES, to engage leaders from all AND Poucrzs To MEET THE NEEDS OF sectors of the community to YOUTH AT RISK" counter the serious problem of THURADAY AFTERNOON rising youth unemployment by recognizing the causes of Presentations on programs, prac- school dropout and planning tices, and policies from around and implementing systemic the region identified as exemplary solutions. The day-to-day were spotlighted during the after- workings of "The Portland noon of the second day. These 21 Investment," the action plan presentations were offered in two of the Roundtable, was time blocks, allowing participants described. the opportunity to attend two of these sessions. Short summaries of these presentations are given JAMES BROUGH, Program Director, in the following: Center for Development of Early Education, Kamehameha KAROL GAMS, Coordinator, Schools/Bishop Estate, Honolulu, Student Outreach Specialist Hawaii (SOS) and Contracted Learning for Individual Pacing (CLIP) Programs, Dr. Brough focused on three Edmonds School District, Lynnwood, aspects of the at-risk Washington condition in which Native Hawaiian American children In just 3 years the EdMonds find themselves today, School District has reduced including the development of its 20 percent dropout rate to multiaggncy collaboration to less than 5 percent. The SOS address their culturally- and CLIP programs have played related educational needs. a significant role in the district's dropout retention. ROBERT BARR, Dean, Oregon State University/Western Oregon State DENNIS COLE, President, Portland College School of Education, Private Industry Council; KATHY Corvallis, Oregon HOSTAGER, Youth Employment Specialist, Portland Public Dr. Barr spoke on school Schools; FRANK MCNAMARA, strategies for meeting the Intergovernment Relations Manager, needs of young people at risk Portland Public Schools; and and related implications for teacher training.

2529 2556s PATT EARLEY, Director, Crisis in the state, the REACH Residential Center (CRC), Spokane, Program has short-term and Washington long-term programs for students depending on the A regional residential center severity of the offense. serving runaway and homeless youth in eastern Washington, the CRC is highly regarded for JEANNETTE EARGEOVES, Community' its effective, comprehensive Research Associate, Federal approach to dealing with the Reserve Bank, Boston, and many issues facing runaways. developer, Boston Compact

The Boston Compact is an JOIE KOHL, Project Director, agreement between the school Parents and Adolescents Can Talk, system and the business Montana State University, Bozeman, community to foster collab- Montana oration, improve the educational preparation and employ- Parents and Adolescents Can ability of urban students, 'and TAlk is a teenage pregnancy provide opportunities for prevention project for 5th their employment. through 12th graders and their parents. The ultimate goal of this community-based inter- MARIAN PRITCHETT, Pregnant Teens personal communications and and Teen Parent Program, Booth sexuality program is to pro- Memorial School, Boise Idaho vide a structure through which parents, organizations, agen- This program won special cies and institutions within recognition by the Gannett each community combine their Foundation in 1985-86 and was efforts and resources to selected as the only award address the pmblems related winner in the field of teen to adolescent and preadoles- pregnancy by Operation Rescue cent sexual behavior and (the National Education Assa- attitudes. Peer facilitators ciation's dropout prevention train both youth and parents program) during the summer of to be volunteers in the 1986. program.

OFFICERS CATHY GARLAND and TERESA JOHNSON, The REACH KATHLEEN PRESSLER-HALL, Youth Program, Anchorage School Services Team, Work Out Program, District, Anchorage, Alaska Pocatello Police Department, Pocatello, Idaho The REACH Program is an alternative educational The Youth Services Team is.a opportunity for students who cooperative effort of local are suapended from school for agencies and schools to co7 drug or alcohol related ordinate and maximize services violations of school district offered to youth and their' policy. Considered the best families. Work Out is a juvenile diversion.restitution

26 2556s 30 program which engages first- STAN KOKI, Foundation Program time, nonviolent youth Assessment and Improvement System. offenders in community service and VIVIAN XOG, President, projects. It is one of three Hawaii Community Education exemplary programs nationwide Association, Honolulu, Hawaii chosen for recognition at the 1987 National Restitution The Hawaii State Department of Conference. Education has focused on statewide interagency collab- WILLIAM DENNERT, Dean, School of oration including active cost- Education and Liberal Arts, munity involvement to address University of Alaska, Juneau, (now problems of youth at rist. Commissioner of Education, state of Alaska), and 870.21:LYN A. MOTLER, School Imprcvement KURT SHOVLIN, Summer Training Program, Northwest Regional and Education Program (STEP), Educational Laboratory Portland Private Industry Council, Youth Employment Institute, and This discussion focused on the EVELYN CHAPMAN, STEP and Youth findings from the effective Services Manager, Division of schooling research which apply Family and Youth Services, to strategies for assisting Seattle, Washington at-risk youth. A national dissemination program exemplifying collab- NANCY MURES CONALIN, Literacy oration among public and pri- And Language Program, Northwest vate sectors, STEP provides Regional EdUcational Laboratory; employment training for 14- to VAUNE ALBANESE, Executive 15-year-olds. Programs in two Assistant, Friendly House, Inc.; major Northwest cities were JERRY FEST, Program Director, described. Yellow Brick Road of Portland; and COMM MCWILLIAMS, Program Manager, Runaway and Homeless ALFREDO ARAGON, Director, Race Youth Services, Portland, Oregon Desegregation Assistance Center, Northwest Regional Educational Many street youth who have Laboratory dropped out of school need to improve their basic skills but Who is dropping out of school are reluctant to enter educa- and why is the subject of a tional programs. Recent re- recently completed study of search by NWREL suggests a early school leavers in strategy for re-engaging these Juneau, Alaska. hard-to-reach youth in the learning process.

27 2556s 31 CRAIG CHRISTIANSEN, Executive and works with these young Director, Youthworks, Inc., people to help them return to Medford, Oregon school. During the critical, but exciting first year, the Efforts to introduce legis- Project Return staff worked lation to address the needs of with 488 students, 60 percent the growing number of runaway of whom continued in public youth in this region were school or were placed in an described and placed in the appropriate alternative c itext of national p(licies educational program. for homeless youth.

DENNIS DECK, Evaluation and ADA ',ARCHER, Vocational Assessment, Northwest Regional Education COordinator, and JOANNE Educational Laboratory WILSON DEMOTT, PotitiVe Approach to Careers and Education (PACE), A student referzal system for Corvallis school District, identifying high-risk students Corvallis, Oregon has been an important component of the Alcohol and Drug Key business people act as Program of Portland Publio mentors and provide incentives Schools for more than two: in this program which takes a years. This past year a comprehensive approach to the ,microcomputer-,managed student many needs of high school aged tracking system was developed youth at risk, including sub- which has proved very useful ject mastery, employability in decision-making on a training, counseling on sub- variety of levels. stance abuse and problem solving. PAGE LOEB, Project Coordinator, Seattle Schools Dropout Prevention ANDREA BAKER, Promising Project, North Seattle Youth Practices for High-Risk Youth Services, and BI ROA CALDWELL, Project, Northwest Regional Principal, Whitman Middle School, Educational Laboratory, Portland, Seattle, Washington Oregon One of seven national dropout Special strategies and pro- prevention models funded grams for dealing with the through the Office of Human needs of marginal students in Development Services, U.S. middle schools and high Department of Health and Human schools throughout the North- Services, and Department of west were highlighted. Labor, this project addresses the causes of the behavior of youth at high risk of leaving ALCENA BOOZER, Director, Project school. The project is a col- Return, Portland Public Schools, laborative effort combining Portland, Oregon the resources of the Seattle Public Schools and four pri- Project Return locates vate nonprofit youth-serving habitual truants, determines agencies. the causes of their truancy,

2556s 28 32 CONIZRENCE SUMMARY 1) An expansion of viewpoints, including broader defin- IENNETH HaNOSN, Senior Policy itions of at-risk youth; Analyst, NWREL 2) More inclusive age-ranges, "Summarizing all that has happened including early childhood, over the Past two days is a pre- young adult, and parents; sumptuous and impossible task!" Hansen began, noting that there 3) Broader program options had been more than 60 speakers, including more alternatives seven major topics, and numerous such as health clinics, subtopics covered during the two changes in school structure day conference. "However," he and operations, and front- added, "a perspective can be set line attack on basic skills; forth."Hansen indicated that the conference had closely adhered to 4) More inclusive cluster of the "double-barreled" theme of participants including both public policy and interagency public and private sectors; collaboration.Within that frame- work, he said, three strands were 5) New appreciation of actors, apparent: including the governor, legislators, business and 1) The dimensions of the industry, and community problem; agencies;

2) Collaboration at work; and 6) More involvement of various levels including the 3) Promising programs. classroom, school, district, state, and Hansen also stated that the mood federal; and of the conference was positive, without being naive. In other 7) A move beyond cooperation words, Hansen found the partici- to true collaboration, pants had deep concern, incredible including an engagement to frustrations, but surprisingly commitment. little abject pessimism. There was a remarkable absence of Finally, Hansen emphasized that he blaming others or moaning about saw a new understanding of economic conditions or demographic policies that are needed to realities, he told the audience. address the critical area of youth tether, there was an intense at risk, including: examination by participants in terms of their own policies and 1) inflexible principles, or practices to meet the needs of as Frank Newman put it in young people at risk. Partici- his opening keynote, 'a pants came away with a feeling centrality of values," that that problems cannot necessarily are fixed, and non- be solved, but they can be amelios. negotiable; rated; that is, positive attitudes and programs can make A big difference. Hansen saw as net results:

29 2556s 2) Pluralistic programs, and collaboration from four diverse perspectives. 3) Multiple approaches, strategies, and Respondents were asked to identify technologies. the major strengths of the conference. The most frequently "This," Hansen, concluded, "in a cited responses included: (1) the broad perspective, appears to be opportunity for practitioner the road toward meeting the needs exchange and networking, and a of youth at risk." chance to share with other agencies; (2) the excellent caliber and variety of speakers; CONFERENCE EVALUATIC1 (3) the redefinition of youth at risk--a broadening perspective; What were the strengths and (4) the focus on interagency weaknesses of the conference? collaboration; (5) the wealth and What speakers and sessions were diversity of topics; (6) the particularly helpful?And what do practical "hands-on" techniques participants see as important next and strategies to effect real steps?These and other questions change; (7) the exposure to were asked on the evaluation form national trends and policies; provided to participants in their (8) the contacts with the private conference packets. sector; (9) the broad represen- tation of people from across the Highlights from the full eval- states! and (10) the overall uation report provide a sense of organization and conduct of the participants' responses to con- conference. ference activi`ies as well as to preferred follost-up events. Weaknesses cited included: (1) a concentration on the urban areas The three conference speakers and urban solutions; (2) not receiving the most enthusiastic enough information on programs for participant response were Prank nontraditional school youth; (3) a Newman, who gave the keynote too tight time schedule--too much address and put the topic of youth to choose from and not enuugh time At risk into a national context; to interact with presenters; and Matthew Prophet, who discussed the (4) too much focus on the school Portland Leaders Roundtable and setting. However, a large number its interagency collaboration of respondents noted there were no approach to address the needs of weaknesses to the conference. youth at risk in the city of Portland; and Vern Ryles, who Participants were also asked what shared with participants his topics or speakers they would like thoughts on effective busi- to see on the next agenda, should ness/school partnerships.Of the a second youth at risk conference sessions, the Thursday morning be held. Responses included: panel on effective interagency (1) rural youth, JTPA youth collaboration received an over- issues; (2) sharing of exemplary whelming positive response from programs on edUcation, health, participants who ranked it the training employment, and programs highest. This panel defined assist the entire family in aspects of effective interagency combating the cycle of poverty;

30 2556s 34 (3) greater involvement of the business community; (4) juvenile delinquency, learning disabil- ities; (5) regional planning; (6) greater emphasis on early intervention; and (7) state-by- state reports of what works.

Review of the input received has been very instructive and will be applied bo planning for any simi- lar events in the future.We wish to thank all those who took the time to complete and submit the evaluation form.

31 35 25566 4:1 ADDIOTAIE ORDSR FORM

°Meeting the Needs of Youth at Risk: Public Policy and Interagency Collaboration' Conference, March 4-5, 1987

60-minute Tapes

l. Frank Newman: 'Youth at Risk--A National Concern'

2. Edward J. Meade, Jr.: Potential Dropouts

3. Eugene Bayard EdgersYouth Offenders

Li 4. Michael A. Suscemi: Drug and Alcohol Abusers

5. Joy Dryfoos:Teen Parents

L__/ 6. Jule M. Sugarman: Early Intervention for Young Children at Risk

Li 7. Lynn A. CUrtissUnemployed Youth

Li B. Alfred F. Rasp, Jr., and Nona Baileys Policy Options Related to Compensatory Education

L__/9 5 10. Frank B. Brouillet, 'Serving Youth at Risk through Comprehensive State Policies,' and Panel Presentation with Verne A. Duncan, Brian Ebersole, Sandra Jibrell, Martha Darling, Romer Kearns, and Robert L. Anderson

L__/ 11. Beverly Curtis, national advocate for the homeless

I__/ 12. Matthew W. Proobet: 'Exemplary Interagency Approaches'

L__/ 13. °Effective Interagency Collaboration' Panel, Part Is Vern Ryles, Portland Investment, and Barbara Aoss, Public/Private Ventures Council

I__/ 14. 'Effective Interagency Collaboration' Panel, Part II: James C. Wilder, Kettering Foundation Community Forums, and Jeannette Eargroves, The Boston Compact

L__/ 15. Janice Yaden, Oregon Governor Goldschmidt's Human Resources Plan

Prices Single tapes $ 6.00 Mailings Single Tapes $2.00 Five tapes $27.50 Five Tapes $4.34 Set of 10 $52.50 Set of 10 $4.13 Set of 15 $75.00 Set of 15 $4.37

TAPES MAILING TOTAL

Please enclose this form and check or purchase order payable tos

Northwest Regional Educational Laboratory Finance Office Effective April 1, 1987 300 SW 6th Avenue 101 S.W. Main Street, Suite 500 Portland, Oregon, 97204 Portland, Oregon 97204

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