[Senate Hearing 111-572] [From the U.S. Government Publishing Office] S. Hrg. 111-572 ASSESSING FOSTER CARE AND FAMILY SERVICES IN THE DISTRICT OF COLUMBIA: CHALLENGES AND SOLUTIONS ======================================================================= HEARING before the OVERSIGHT OF GOVERNMENT MANAGEMENT, THE FEDERAL WORKFORCE, AND THE DISTRICT OF COLUMBIA SUBCOMMITTEE of the COMMITTEE ON HOMELAND SECURITY AND GOVERNMENTAL AFFAIRS UNITED STATES SENATE ONE HUNDRED ELEVENTH CONGRESS SECOND SESSION __________ MARCH 16, 2010 __________ Available via http://www.gpoaccess.gov/congress/index.html Printed for the use of the Committee on Homeland Security and Governmental Affairs ---------- U.S. GOVERNMENT PRINTING OFFICE 56-892 PDF WASHINGTON : 2010 For sale by the Superintendent of Documents, U.S. Government Printing Office Internet: bookstore.gpo.gov Phone: toll free (866) 512-1800; DC area (202) 512-1800 Fax: (202) 512-2104 Mail: Stop IDCC, Washington, DC 20402-0001 COMMITTEE ON HOMELAND SECURITY AND GOVERNMENTAL AFFAIRS JOSEPH I. LIEBERMAN, Connecticut, Chairman CARL LEVIN, Michigan SUSAN M. COLLINS, Maine DANIEL K. AKAKA, Hawaii TOM COBURN, Oklahoma THOMAS R. CARPER, Delaware SCOTT P. BROWN, Massachusetts MARK L. PRYOR, Arkansas JOHN McCAIN, Arizona MARY L. LANDRIEU, Louisiana GEORGE V. VOINOVICH, Ohio CLAIRE McCASKILL, Missouri JOHN ENSIGN, Nevada JON TESTER, Montana LINDSEY GRAHAM, South Carolina ROLAND W. BURRIS, Illinois EDWARD E. KAUFMAN, Delaware Michael L. Alexander, Staff Director Brandon L. Milhorn, Minority Staff Director and Chief Counsel Trina Driessnack Tyrer, Chief Clerk OVERSIGHT OF GOVERNMENT MANAGEMENT, THE FEDERAL WORKFORCE, AND THE DISTRICT OF COLUMBIA SUBCOMMITTEE DANIEL K. AKAKA, Hawaii, Chairman CARL LEVIN, Michigan GEORGE V. VOINOVICH, Ohio MARY L. LANDRIEU, Louisiana SCOTT P. BROWN, Massachusetts ROLAND W. BURRIS, Illinois LINDSEY GRAHAM, South Carolina EDWARD E. KAUFMAN, Delaware Lisa M. Powell, Staff Director Benjamin B. Rhodeside, Legislative Aide Jennifer A. Hemingway, Minority Staff Director Thomas A. Bishop, Minority Professional Staff Member Aaron H. Woolf, Chief Clerk C O N T E N T S ------ Opening statements: Page Senator Akaka................................................ 1 Senator Landrieu............................................. 2 WITNESSES Tuesday, March 16, 2010 Roque R. Gerald, Psy.D., Director District of Columbia Child and Family Services Agency......................................... 4 Hon. Lee F. Satterfield, Chief Judge, Superior Court of the District of Columbia........................................... 5 Judith Meltzer, Deputy Director, Center for the Study of Social Policy......................................................... 7 Judith Sandalow, Executive Director, Children's Law Center....... 18 Sarah M. Ocran, Vice President, Foster Care Campaign, Young Women's Project................................................ 20 Dominique Jacqueline Davis, Former District of Columbia Foster Youth.......................................................... 22 Alphabetical List of Witnesses Davis, Dominique Jacqueline: Testimony.................................................... 22 Prepared statement........................................... 98 Gerald, Roque R., Psy.D.: Testimony.................................................... 4 Prepared statement........................................... 27 Meltzer, Judith: Testimony.................................................... 7 Prepared statement........................................... 63 Ocran, Sarah M.: Testimony.................................................... 20 Prepared statement........................................... 95 Sandalow, Judith: Testimony.................................................... 18 Prepared statement........................................... 72 Satterfield, Hon. Lee F.: Testimony.................................................... 5 Prepared statement........................................... 36 APPENDIX Letter to Chief Judge Lee F. Satterfield from Nadia Moritz, Executive director, Young Women's Project, dated March 26, 2010, referring to Sarah Ocran's testimony at the hearing...... 93 Background....................................................... 99 Paul Strauss, Shadow Senator, District of Columbia, prepared statement...................................................... 104 Nadia Moritz, Executive Director and Tosin A. Ogunyoku, Senior Program Coordiantor, Foster Care Campaign, Young Women's Project, prepared statement.................................... 108 Council for Court Excellence, prepared statement................. 122 Responses to questions submitted for the Record: Mr. Gerald................................................... 126 Judge Satterfield............................................ 142 Ms. Meltzer.................................................. 154 Ms. Sandalow................................................. 161 Ms. Ocran.................................................... 169 Ms. Davis.................................................... 173 ASSESSING FOSTER CARE AND FAMILY SERVICES IN THE DISTRICT OF COLUMBIA: CHALLENGES AND SOLUTIONS ---------- TUESDAY, MARCH 16, 2010 U.S. Senate, Subcommittee on Oversight of Government Management, the Federal Workforce, and the District of Columbia, of the Committee on Homeland Security and Governmental Affairs, Washington, DC. The Subcommittee met, pursuant to notice, at 2:08 p.m., in room SD-342, Dirksen Senate Office Building, Hon. Daniel K. Akaka, Chairman of the Subcommittee, presiding. Present: Senators Akaka and Landrieu. OPENING STATEMENT OF SENATOR AKAKA Senator Akaka. I call this hearing of the Subcommittee on Oversight of Government Management, the Federal Workforce, and the District of Columbia to order. I want to welcome our witnesses to today's hearing, ``Assessing Foster Care and Family Services in the District of Columbia: Challenges and Solutions.'' I want to thank all of you for being here. I also want to recognize Senator Landrieu for her strong leadership on foster care and adoption issues. This hearing is an opportunity to examine how Congress can work together with the District Government, child advocates, and, most importantly, the families and children within the system to improve the foster care and adoption process in D.C. I am particularly interested in exploring how Congress can support D.C. as it strives to find a permanent, loving home for every child under its care. Almost two decades have passed since the D.C. child welfare system was placed under Federal court supervision. Since then, D.C. has made real, though uneven, progress reforming the system. I would like to commend Director Roque Gerald. He assumed leadership during a time of crisis, and he brought stability back to the agency. However, stability is not success, and several significant issues remain. In particular, I have three concerns I would like to address this afternoon. The first is the need for the District to set higher expectations for finding permanent homes for children in foster care. In 2009, 127 children in D.C. foster care were adopted-- only 28 percent of all D.C. foster children with the goal of adoption. While this number exceeded the District's target for the year, it is much less than previous years and it is not nearly good enough. Greater transparency about how these adoption goals are set will help us understand the challenges Child and Family Services Agency (CFSA) faces and how it is working to address them. This hearing is a good opportunity for CFSA to explain the process used to determine its adoption goals. Second, in order to meet higher permanency goals, CFSA must develop and implement a consistent approach to finding permanent homes for foster children. I am encouraged that CFSA has launched nationally recognized programs, such as the Permanency Opportunities Project. This high-impact team strategy fosters collaboration and creativity to achieve a better, faster, adoption process. I urge Director Gerald to institute a strategic plan to fully implement these best practice models and make sure they become a permanent part of CFSA operations. My third concern is financial management. The current economic recession has forced State and local governments to confront declining revenues as the need for assistance increases. Like other governments, D.C. faces significant spending pressures that will require difficult choices. At the same time, CFSA has lost tens of millions of dollars in Medicaid funds due to an inability to properly file claims. These problems are so severe that CFSA has stopped filing Medicaid claims altogether. It is critical that CFSA quickly address these issues so the agency has the funds it needs for the children in its care. It is clear that the District faces great challenges in improving its child welfare system. However, rather than be discouraged by the work remaining, I am inspired by the dedicated witnesses here today. I believe if we work together over the coming years, we will make a difference for thousands of D.C. children who deserve a loving and permanent home. I look forward to hearing from our witnesses, and I would like to call on Senator Landrieu for her opening statement. Senator Landrieu. OPENING STATEMENT OF SENATOR LANDRIEU Senator Landrieu. Thank you, Mr. Chairman, and thank you for your thoughtful opening statement on this subject and for your overall interest always in stepping up to try to help our Subcommittee, the full Committee, and Congress to be the very best partner we can be in many aspects of the District of Columbia's government, and particularly the subject that is before us this morning, and that is the subject of child welfare in the District. I thank you for agreeing to this hearing, and my request for this hearing was prompted just recently by a series of articles in the Washington Post. I just want to read for the record just a couple of short paragraphs that could cause us to focus on some of these areas. The first is from a July 20, 2009 article, the number of D.C. foster children, according to this article, being adopted is falling precipitously, frustrating child welfare advocates who say the city's Child and Family Services Agency is not doing enough to find permanent homes for the hundreds of children who are unlikely to be returned to their parents. Only 68 children were adopted in the first 9 months of the District's current fiscal year, leaving the city unlikely to reach even last year's goal of 119, which was less than a quarter of the roughly 500 children eligible for adoption. Just 4 years ago, in contrast, during a major reform push, of which I was a part, so was the Chairman, and others, 314 children--almost half of those who sought placement of adoption--were, in fact, adopted. Another article that appeared more recently, January 11, 2010, by the same reporter, says that one of the problems could be lack of funding--maybe not the only problem--some lack of funding in the budget. After a year of halting Medicaid claims so it could straighten out its billing, D.C. Child and Family Services told city officials that it faces a shortfall of about $10 million because it had not fixed all the problems and is not ready to resume claiming money from Medicaid. As the city's child welfare agency, CFSA, investigates abused and neglected children, as we know, and oversees about 2,000 children in foster care, its failings in child protection have been widely noted over the past decades, and its mismanagement of the Medicaid process has been a persistent problem as well. Auditors have found staggering errors and rejected millions in claims. Now, the hearing today, Mr. Chairman, is, as you stated, not about the financial or the audits. It is really about the bigger picture. I just want to recognize--I understand there are some financial difficulties, but what I really want to focus my questions and hear from our panelists--who I have all worked with and have a great deal of respect for--is the answers or explanations for some of this or comments about a different view if that is not your feeling at this time. And I just want to say, as the Chair of the Congressional Coalition on Adoption, how proud I am of the work of 200 Members of Congress, Republicans and Democrats, that really try our best to stay focused not just on the District of Columbia's child welfare system, but on systems all over the country and, in fact, all over the world, about trying to make sure that we have the very best practices in child welfare--preventing abandonment, reunifying families, placing children in kinship care, if appropriate, and then finding, of course, community adoptions if all else fails to provide them with the kind of care and support they need. Mr. Chairman, thank you very much. I look forward to hearing from our witnesses today. Senator Akaka. Thank you very much, Senator Landrieu. I want to welcome our first panel of witnesses to the Subcommittee: Dr. Roque Gerald, who is the Director of the D.C. Child and Family Services Agency; Hon. Lee Satterfield, Chief Judge of the Superior Court of the District of Columbia; and Judith Meltzer, the Deputy Director of the Center for the Study of Social Policy. As you know, it is the custom of this Subcommittee to swear in all witnesses, so I ask you to please stand and raise your right hand. Do you solemnly swear that the statement and testimony you are about to give before this Subcommittee is the truth, the whole truth, and nothing but the truth, so help you, God? Mr. Gerald. I do. Judge Satterfield. I do. Ms. Meltzer. I do. Senator Akaka. Thank you. Let the record note that the witnesses answered in the affirmative. Before we start, I want you to know that your full written statements will be part of the record, and I would like to remind you to please limit your oral remarks to 5 minutes. Director Gerald, will you please proceed with your statement? TESTIMONY OF ROQUE R. GERALD, PSY.D.,\1\ DIRECTOR, DISTRICT OF COLUMBIA CHILD AND FAMILY SERVICES AGENCY Mr. Gerald. Good afternoon, Chairman Akaka, Ranking Member Voinovich, and Members of the Subcommittee. I am Dr. Roque Gerald, Director of the District of Columbia's Child and Family Services Agency. I appreciate the opportunity to present the highlights of our continued child welfare reform, especially our all-out efforts to increase and expedite adoptions. I also want to point to the Director of my Youth Advisory Panel or Board, that is sitting right directly behind me and has joined me here today. --------------------------------------------------------------------------- \1\ The prepared statement of Mr. Gerald appears in the Appendix on page 27. --------------------------------------------------------------------------- In 2001, when CFSA became a cabinet-level agency, our overall goal was building a strong safety net. As a charter member of that executive team, I established a unique in-house clinical practice function. By 2007, the District's second Federal Child and Family Services Review found a strong system delivering improved outcomes. In January 2008, discovery of the tragic deaths of the four District girls at the hands of their mother shocked and saddened the community. Mirroring a nationwide trend following high-profile child tragedies, calls to our hotline skyrocketed. In response, Mayor Fenty mobilized his administration to assist CFSA. When I stepped in as the director in July 2008, CFSA was facing a daunting backlog of over 1,700 investigations. By the end of 2008, we had reduced the backlog to less than 100 and instituted numerous safety reforms. The backlog has remained in the range of 20 to 40 cases ever since, the lowest level for the longest period in the agency's history. Using the momentum of these achievements, the next area for CFSA focus was permanency. By definition, reunification with birth parents, guardianship, and adoption are all options as long as the outcome is a safe, nurturing, and permanent home. At the very least, every older youth will exit with a lifelong connection to a stable, caring adult. Innovative strategies are succeeding on two fronts. In 2009, the District reversed a 4-year decline in adoptions, exceeding the target of 125 with 128 adoptions, a 25-percent increase over 2008. At the beginning of last year, CFSA drew on input from the national experts to initiate the proven best practice of high-impact teams. Six months later, I described it to the Washington Post for their article in July. One set of teams is composed of CFSA's adoption specialists. Another is a public-private partnership with the local nonprofit adoptions together. All teams focused on finding homes for children and youth with a goal of adoption and moving those into pre- adoptive placements to finalization promptly. Main features of this approach include multi-agency teaming, barrier busting, and thinking outside of the box to find permanent homes. The second front in our push for permanence is older youth. In 2009, CFSA ended the automatic assignment of the Alternative Plan Permanent Living Arrangement (APPLA), as a goal for older youth. In a little over a year, youth with the goal dropped from 850 to 678. In the first half of 2009, CFSA reviewed the cases of 722 youth destined to age out and to explore their opportunities for permanence. We found 80 percent already had an established or potential lifelong connection, and social workers are now using this information to rekindle or create legal permanence or lasting connections for these youths. While making important strides, CFSA faces several challenges in maximizing our push for permanence. Among these are: Raising public awareness about opportunities to adopt from the public system or to provide foster care; doing more to build lifelong relationships for older youth in care for whom legal permanence is not possible; providing better preparation of children, youth, and adults for the transition to adoptive family life; implementing a differential response approach to reports of child neglect. In conclusion, the District of Columbia assures you that we are building on recent successes to ensure every child and youth in the system has a clear pathway to permanence. Thank you for your attention and for your interest in the District's children, youth, and families. Senator Akaka. Thank you very much, Dr. Gerald. And now we will hear the testimony of Chief Judge Satterfield. TESTIMONY OF THE HON. LEE F. SATTERFIELD,\1\ CHIEF JUDGE, SUPERIOR COURT OF THE DISTRICT OF COLUMBIA Judge Satterfield. Good afternoon, Chairman Akaka, Senator Landrieu, and Subcommittee staff. Thank you for convening this hearing to talk about foster care and family services here in the District. I am joined here by the judicial leadership in our Family Court, Presiding Judge William Jackson and Deputy Presiding Judge Zoe Bush, as well as the Director of our Family Court, Dianne King. --------------------------------------------------------------------------- \1\ The prepared statement of Judge Satterfield appears in the Appendix on page 36. --------------------------------------------------------------------------- We know from previous work with the Congress during the enactment of the Family Court Act how interested you are in increasing the number of children achieving permanency in the District of Columbia, and we share your commitment to this crucial goal. With your support and guidance, we have been able to make many improvements in the manner that we help children and families in our court system here in the District, and many of those initiatives I have set forth in my written testimony, so I will not talk about them now. However, I am sure you will agree that more work is necessary not only to help foster children achieve permanency quicker, but also to prepare many of our children for life after they leave the child welfare system. Dr. Gerald talked about what permanency is. I will not go into that. But this past year, the Court has worked collaboratively with the agency to increase the number of children achieving permanency through adoption, a significant increase from the previous year. This is great news, but there are still a few barriers that prevent more children from achieving permanency quicker. We are still meeting the challenge of the Interstate Compact for the Placement of Children (ICPC) that continues to slow the court's ability to permanently place children in homes of people in neighboring jurisdictions. In addition, the concern that many foster parents have about available resources after adoption is another area that slows permanency through adoption. I know that the D.C. City Council is attempting to address some of these concerns by considering proposed legislation to increase the eligible age for an adoption subsidy to 21 years of age. But the more resources that we can make available for adoptive parents, such as in-home therapy or, when appropriate, short-term residential care, the less concern many potential adoptive parents will have about providing permanent homes for more children in our foster care system. And even though I think we all agree that children should be raised in a loving, permanent home, and we will continue to work as hard as we can to make that happen for most children, the reality is that many may not have this opportunity. Each year in the District, an average of 25 percent of the referrals of children that we get in our Family Court in the area of neglect and abuse involve children 13 years and older. Therefore, we have a significant number of children entering the child welfare system each year who, due to their age, present challenges to achieving permanency by adoption or guardianship. This is especially true because DC law provides that once the child turns 14, he or she can choose not to consent to adoption. So for these reasons, sometimes neither adoption nor reunification with the birth parent may be in the best interest of the child, and we have to often prepare the child or the children for life when they reach the statutory age for independence, which is 21 years old here in the District. Over the past years, we have focused many court initiatives on preparing youth to achieve permanency through independence. These programs have helped older youth make decisions and plans for their future and involve coordination of a full range of services necessary for their success. But I think any resources that the Congress can continue to provide to help older youth, particularly in the area of housing and employment, can have a huge benefit to the children here in the District and, in fact, the children nationwide. We all know that children in our neglect system are at greater risk moving to our juvenile justice system, somewhere we do not want them to be, as well as those children in the juvenile justice system are at greater risk of moving to our criminal justice system. So our investment in foster children who will not have the benefit of being raised in loving, permanent homes is an investment that will result in many positive returns for our children, our community, and our Nation. Thank you for inviting me to testify today. I would be pleased to answer any questions you may have. Senator Akaka. Thank you very much, Judge Satterfield. Now we will hear from Judith Meltzer. Would you please proceed? TESTIMONY OF JUDITH MELTZER,\1\ DEPUTY DIRECTOR, CENTER FOR THE STUDY OF SOCIAL POLICY Ms. Meltzer. Good afternoon, Chairman Akaka, Senator Landrieu, and staff. I am Judith Meltzer, the Deputy Director of the Center for the Study of Social Policy, and I serve as the Federal court-appointed monitor under LaShawn A. vs. Fenty. --------------------------------------------------------------------------- \1\ The prepared statement of Ms. Meltzer appears in the Appendix on page 63. --------------------------------------------------------------------------- I have the advantage of working closely with child welfare systems across the country, including the District of Columbia, where there remain significant challenges to ensuring that all children and youth grow up in safe and stable families. All children--regardless of age, race, or ethnicity--need and deserve a safe and nurturing family to protect and guide them. Within the child welfare field, we call this permanency, and it can be achieved either through safe family reunification as the preferred choice, but also through kinship/guardianship and adoption. Research clearly shows that children who exit foster care to a permanent family do better than those who exit foster care to emancipation without family connections. The results for those who do not achieve permanency are often bleak. Despite improvements in child welfare services in the District of Columbia and at the Child and Family Services Agency in the last decade, reducing the length of stay in foster care and in ensuring a permanent home for every child has not been achieved. The data show painfully that too many children remain in the custody of the District far too long. The District does not meet the Federal standards on any of the permanency measures used to evaluate performance. While many children leaving foster care return to their families, many exit without a permanent home, and this has remained virtually unchanged since 2005. In fact, the number of children adopted and/or who achieve guardianship has significantly declined, as was discussed in your opening statement. Also, 80 percent of those adopted in 2009 were under the age of 12, and the permanency practice with older youth is particularly deficient. Even when you look at the combined total of exits to adoption and guardianship, the performance remains low and absolutely poor for older children and youth. Let me turn quickly to barriers and recommendations. Overall, there is a lack of citywide urgency to produce permanency results for all children, and especially older children. Since 2006, many ``best practice'' permanency initiatives and projects have been instituted, but none have been followed through to completion. While all of the stakeholders--CFSA, their private agency partners, the Family Court, children's legal guardians--have adopted the language of permanency, they do not always agree on how long it should take, to whom it applies, nor do they have clear protocols, common timeframes for case processing, and consistent ways to measure progress. First, CFSA should clearly articulate its organizational structure and internal policies and protocols for its workers and for the private agencies. Clear policy on adoption and guardianship should be aligned with CFSA's practice model and the rest of the agency's work. Second, CFSA staff, the private agency providers, and legal partners need to develop and act on shared operational protocols for tracking and achieving permanency. This means they need to jointly set ambitious outcomes for children's permanency, consistently track progress, and widely share the results with the public. Third, the District should extend adoption and guardianship subsidies to families until a child turns age 21 in accordance with the option available under the Federal Fostering Connections Act. Legislation to extend subsidies to age 21 in the District is now pending before the District Council and should be approved. As the Subcommittee is aware, Medicaid reimbursement issues are problematic for CFSA. In April 2009, the District stopped claiming for Medicaid reimbursement and shifted a portion of the Medicaid claiming to Title IV-E. Almost a year later, the District is still in the early stages of engaging a consultant with a goal of reinstituting Medicaid claiming. CFSA should be held accountable to immediately engage and use high-quality expert assistance to quickly resolve their Medicaid and Title IV-E claiming issues. A final recommendation involves Federal oversight. Currently, the data collected at the Federal level is insufficient to track outcomes for children over time, and the performance review process does not allow for comparison between States. Based on this, we believe that the Adoption and Foster Care Analysis and Reporting System (AFCARs), needs to be constructed to measure longitudinal performance and that the Child and Family Service Reviews (CFSRs), should also be reviewed to determine how better to assess a child and family's well-being. In conclusion, in the past decade the District of Columbia has moved, sometimes with fits and starts, and often without sufficiently institutionalizing short-term gains, towards establishing a child welfare system that can consistently provide for children's safety, well-being, and permanency. We cannot wait another decade and permit hundreds of additional children to grow up rootless in foster care, leaving the system at age 18 or 21 without the support of a family and without the tools to become successful adults. I appreciate the Subcommittee's interest and continued support for the District's work to fix these problems. Thank you. Senator Akaka. Thank you very much for your statements. Ms. Meltzer, as Deputy Director of the Center for the Study of Social Policy, you have expressed concern that CFSA does not have a consistent permanency practice model and adoption policy for finding children permanent homes. Please describe why a model and policy is needed and discuss what it must contain to be effective. Ms. Meltzer. Thank you. That is a very important and a very big question. By a permanency practice model, I mean that there needs to be a set of written policies and practice guidance, including training and supervision, that are clear and understood by the multiple actors that are involved in making sure a child ends up in a permanent home. Everyone, including the caseworker at CFSA, the Office of Attorney General attorney, the child's parents and/or relatives, the Guardian Ad Litem (GAL), the private agency workers, and the foster parents--they must understand the values that govern agency practice; the protocols that are used, and the time frames that are expected to get a child to permanency. And each of them have to be accountable within the timeframes for producing the end result. For example, under current practice, about half of the children in the District's foster care system are case managed by private agencies that are under contract, and we see cases frequently where there is confusion about who is ``on first'' to move the case forward to permanency. This is particularly true when an adoptive family has to be recruited. Also we see the lack of the consistent practice in the fact that often the connection between the need to support foster parents and provide them with the services that they need is not conceptually viewed as linked to the outcome of permanency at the other end. Senator Akaka. Dr. Gerald, I commend you for starting promising programs and strategies, such as the Permanency Opportunities Project. As Director of D.C. Child and Family Services Agency, you have done a good job in this respect. Do you have a strategic plan to fully implement these best practice models so they become a part of permanent operations? Mr. Gerald. Yes, Chairman Akaka, we do. As you are aware and as has been testified, the District for many years started initiatives that never were completed. I have called those the concept cars that have never gone to production. And the goal of this process was to be able to really build onto successes that we learnt through the stabilization of the agency and spread that outward. So while GALs and the court and others have not with us formulated that overall umbrella policy, as has been identified, we believe that we now have the solid base through our practice model, which is the first time the agency has a uniform guide of how we are going to approach working with families from beginning to end. That approach, we now have national experts on the ground coaching and training our workers, but that process has to also be spread to the next stage in establishing uniform expectations of our GALs, of our court, of our other partners in being able to practice. But the practice model is the core of how we are beginning to do that, and it is the first time the agency has undertaken that process in its history. Senator Akaka. Director Gerald, in 2009, CFSA finalized 128 adoptions exceeding the agency's goal of 125. This was welcome news. However, your goal was below previous years, such as 2005, when 272 adoptions were completed. Will you please discuss why adoptions have dropped in recent years and how CFSA sets its annual adoption goals? Mr. Gerald. There are two or three elements that I think are important in the discussion, not just the raw number of adoptions but the percentage of adoptions to the entire population, which is one that we have to be able to really focus on because the foster care population continues to diminish, and the number of children with the goal of adoption continues to diminish. So when you compare the number of adoptions, as has been described, to the population that it was being applied to, there is still much to be improved, but a different picture. I think clearly we have to reverse the approach that the agency had been having over the years where there had been a real decline in permanence for youth. That is undisputed. We did that coming out of stabilizing the agency, so we were not fully operational and institutionalized in the kinds of approaches we were doing. We were still testing, clearly, the Permanency Opportunities Project, which has proved to be very powerful, and we see that as now establishing much more robust targets for us going forward. Senator Akaka. Director Gerald, what is the agency's 2010 adoption goal? Do you have a strategic plan to make sure this goal is met? Mr. Gerald. Yes, we do. Our expectations clearly are to not only supersede the targets that we have had this year, of last calendar year of the 128, but also to focus critically on not just the numbers, but as Senator Landrieu had alluded to, this past Adoption Day, we had for the first time an increase in older youth being adopted and sibling groups being adopted. So the goal for us is really to improve overall the quality of the adoptions, not just the adoption numbers. So we are still modest in what we are doing in terms of adoption numbers, but we are trying to improve the overall outcomes. It is a whole lot better to have sibling groups adopted together than separately. Senator Akaka. Ms. Meltzer, do you believe the District has appropriate expectations for finding permanent homes for D.C. foster children? Ms. Meltzer. No. I think their expectations are too low. There are currently about 550 children with a goal of adoption in the District and approximately 700 youth who have the goal of Another Planned Permanent Living Arrangement (APPLA), which is basically long-term foster care and exit. And I think that the District's goals are set primarily on the basis of what they think they can achieve based on current performance, and that the District really needs to set much more ambitious goals that are tied to the number of waiting children. This is important because we are talking about people and young children, and the longer we wait, the bleaker their futures become. So we have advocated for the District to set more ambitious adoption goals and permanency goals, and then to figure out what it is going to take to achieve them. Senator Akaka. Chief Judge Satterfield, in her testimony Ms. Meltzer stated all stakeholders must develop a shared vision about the importance and urgency of permanency. Please describe the steps the Family Court is taking with various stakeholders to reach a shared agreement on the process and time frames for achieving permanency? Judge Satterfield. Thank you. I think that there have been significant steps taken during the last several years, particularly since the Family Court Act was passed, and the work that the Court has done with the agency. There has been a significant amount of collaboration, such that on at least two occasions national organizations have recognized the Court and the agency for their collaborative process and asked us to come out and really talk about how we get it done. The agency, as well as other stakeholders, have been meeting on the Child Welfare Leadership Team for many years to talk about these issues that could be barriers to permanency. They have come out with procedures out of those meetings for when to set as a goal the Alternative Planned Permanent Living Arrangements in an effort to avoid abusing that goal. They have come out with procedures for when you do not have to file a total physical response (TPR) because we wanted to make sure everybody is consistent about when one does not have to be filed because we want to make sure they are filed in the cases that they should be filed. These were all papers that have come out of the collaborative process that many, including Ms. Meltzer, were involved in with the Child Welfare Leadership Team, in addition to working with the Court on its model Court initiative with the National Council of Juvenile and Family Court Judges. So I think that there have been many collaborative efforts. I do not agree that we do not have a shared vision of where we need to go. I think it is just challenging because of the demographics and who we have coming into our system. But I do agree that we have to all make better efforts in getting older children adopted because that is the challenge that we face here in the District. Senator Akaka. Well, thank you very much for your testimony. Your testimonies have been valuable to the Subcommittee. I will not be able to stay for the entire hearing, so Senator Landrieu will take the gavel for the rest of the hearing. So let me turn it over to Senator Landrieu. Senator Landrieu [presiding]. Thank you, Mr. Chairman. And, again, thank you for calling the hearing and for your leadership on this important subject. Let me begin, Ms. Meltzer, asking you if, in your opinion, does the leadership of the District of Columbia know the ranking of this child welfare system in the sense that the information is presented in a way that helps the leadership of the District understand how this particular child welfare system is ranked in the country. Are they in the top one-third, the middle third, or the lowest, or the last? You were referring in your testimony, the reason I ask, that you think the data has to be improved. Could you comment about that? Because sometimes when it is not clear to people how dire the situation is, it prevents them from acting with the urgency that may be necessary. So could you give just a comment about the way this data is reported amongst all child welfare systems in the country, which would be 50 States plus. Ms. Meltzer. It is very difficult to have true and objective State-by-State comparisons. Each State's laws are different. The systems are different. People define things slightly differently. The best way one gets to see a State-by-State comparison these days is through the Child and Family Service Reviews and the outcomes that are established by the Federal Government. The Federal standards are primarily medians and States can see where they are in relation to the permanency measures that have been set by the Child and Family Services Review. The District leadership at the Child and Family Services Agency looks at that data and knows where they are in relation to the national standards. And, again, on those permanency measures, they are below the national standards. The collective leadership does look at data and a lot of process data is measured. Some of the process measurements have come about through the lawsuit. Some of them measure timeframes to permanency and the District does that. But there has been, in my opinion, not a lot of collective understanding of the fact that there are today 500 children awaiting adoption and 700 youth that do not have prospects for permanent connections. I want to also, if I can, comment on something mentioned previously. I agree with Judge Satterfield that it is not so much that the vision is missing. I do think all of the leadership wants and has a vision that children need homes. What they do not have in place are the protocols and the standards to measure themselves consistently about the work to achieve this vision. Senator Landrieu. Well, it gets me back to my question. I do not want to dwell too much on this, but when I said does the District know how it ranks according to other States, it would also be States/metropolitan areas that are similar, because you can measure the District basically to other metropolitan areas that have 600,000-plus, 700,000 people, the same demographics, the same income levels. And I think as a person helping to try to lead this reform effort nationally, it really helps when you have got the data in the right ways so that you can really understand and either stop fooling yourself about what you are or are not doing and you can see, or take credit for what you are doing. And you could see how whatever your position is on the work of the reform of the school system in the District, a lot of that was prompted by pretty accurate data drilled down by local committees and some committees here in Congress about actually how much money was being spent per child in the District of Columbia for education and what were those outcomes, even when compared not to States but to similar demographics in cities in America where the District and the leadership had to really understand we are missing the mark, we have to change. Now, this is very difficult. We do this work all over the country. Is there anything specific, before I move on to my other question, that you could recommend in terms of getting the data clearer in a way that could maybe prompt more efficient or effective action? I mean, if you think the vision is shared, then maybe it is the data we are not clear about. Ms. Meltzer. I think that the systems have to develop benchmarks and expected timeframes and measure the timeframes from when a child comes into care to when they achieve permanency. They need to consistently look at the data and set up the mechanisms to consistently review children's cases against those timeframes and benchmarks. One of the things that Director Gerald alluded to was that CFSA received help from the Annie S. Casey Foundation which looked at the District's data about the number of children that have the APPLA goal as compared to cities and urban areas in other areas of the country. They looked at DC in relation to New York and Philadelphia and some other cities. The data were powerful for the agency, in understanding how significantly their practice was out of line. I also think that sometimes we measure the wrong things. For example, we measure whether the agency files for Termination of Parental Rights (TPRs) in those cases where they should file for TPRs quickly, but we have not been measuring how quickly the TPRs get resolved and what the outcome is. So I think it is worth looking at the measurement and making sure that we are measuring the right things and that the data are available on a regular basis to the public. Senator Landrieu. OK. Judge Satterfield, we have worked together for many years, and I am extremely impressed with your general compassion on this issue and your attention to it, many of the court appearances that we have made together and appearances on this issue in the District, and you have always stepped up so well. Are there two or three things that maybe the city or the Congress could be doing in terms of either resources to you or reductions in regulations or additional regulations that would help the courts operate more efficiently? Because I really believe meeting many of the judges here that you all are--I mean, in some ways, in my view, advanced in the way of your understanding and appreciation and your willingness to take on this issue. But it is either a resource or a disconnect. I do not know if you want to say a word about that. And then, Ms. Meltzer, I am going to ask you from your perspective, is it something that we could be more attentive to at the court system to help them process this more quickly? Judge Satterfield. I have to say that you never want to pass up an opportunity to ask for more resources, but you all have been very generous and we are very grateful for the resources that Congress has given us. And while we always can use additional resources, I think we have the resources to continue to make a difference in the manner in which we handle these cases. Ms. Meltzer talked about data on termination of parental rights because the thought being that if the rights are terminated, the child is in a better position to be adopted. We are tracking that better now. I issued an administrative order back in October of last year setting performance standards to ensure that these motions, these hearings, are handled expeditiously, and we are going to be tracking that even more as we go into the future because, early on in the Family Court Act or right after the Family Court Act was passed, there was a significant increase in us handling termination of parental rights and that dropped, and we have addressed that drop, and we are back to increasing to make sure that we handle them in a more expeditious fashion. So we are able to do that, and we are going to continue to do that. Senator Landrieu. OK. Do the judges have overall authority, just in your given authority, or do you need any extra to determine if social workers are either consistently not appearing in your court or not stepping up when they should? What is the authority that you have over the operational professionals, whether they be full-time with the department or contract? Because I am going to ask you all how many contract employees we have and then how many full-time employees. But do the judges give a report about the X number of professionals that actually show up and do their work, the X number of professionals that might not? Help me understand that a little bit. Judge Satterfield. I have not heard that that is a problem with professionals not showing up in trying to do their jobs. I know Judge Jackson, the presiding judge of our Family Court, meets monthly with Dr. Gerald, and they can talk about and work on those systemic issues. If he has a problem with how we are processing things, he can be frank and tell us. If we have a problem with what they are doing, we can be frank and tell him. However, we do have the authority under D.C. law to order services, and the agency that we hold accountable is CFSA even if they contract with another agency, because they are the responsible government entity that---- Senator Landrieu. But when you order them to do it, they say they do not have the resources to do it, or no? Judge Satterfield. Well, usually, in most instances we are in agreement with what services are needed. In some instances where we are not in agreement and the Court orders the service, the agency does not necessarily like the fact that we order something that they do not agree with, but they comply. I have not had and do not recall--and Judge Jackson can let me know-- instances in the recent past where more action needed to be taken. I do not think that is a problem. The agency is working hard to get these things done. They are showing up. They are producing their reports. And in most instances--although I am sure you can find some instances in which it is not happening, but in most instances, I think that is working well. I go back to that we just have to find better strategies for our older kids, and we have to look into what other jurisdictions are doing, because we have a significant amount of referrals of older kids coming in. And I think that you saw a lot of adoptions early on after the Family Court Act because we were working to get some of that backlog out that had built up. And so there was that big push, and so you saw a lot of adoptions during that time. Things kind of evened out, and now we have to not just sit and just relax on that. We have to start up again to make sure that we can go back to where we are. But in terms of certain kids of certain ages, those kids were being adopted or going into guardianship. Our issue, in my view, is that we have to continue to strive to find placements for the older kids. Senator Landrieu. OK. Dr. Gerald, let me ask you, describe your agency in terms of your total budget. What percentage of it is taken up by salaried full-time personnel that work for you to accomplish this mission? And what percentage of it is in contractors? Mr. Gerald. Essentially, 80 percent or more of our budget goes directly to the services of children, and that is in two forms: About 50 percent of our cases are case-managed by private agencies, both in the District and in Maryland; but the budget sustains direct services to those kids. Senator Landrieu. But 50 percent of that work is carried out by contractors and 50 percent of the work you think by in- house personnel? Mr. Gerald. Of the out-of-home cases, just over 50 percent is by the private contracted providers, unlike in most other States, Florida has it almost 100 percent. Also the agency has several other functions. Those kids who are prevented from coming into the system, those cases that are in-home cases that we do not want to penetrate further and we want to provide the services in the home to prevent them from coming; and then our collaboratives, which provide preventive services for cases not being able to hit the agency. So the budget really is focused in that sense primarily in those three arenas, ensuring that kids that come in we can get out as quickly as possible. Senator Landrieu. I know this is difficult, but many of the foster care children that I have gotten to know complain bitterly that every time they look up, there is a new person trying to help their situation, because they seem to get passed on, like if you work with one caseworker if you are going to be reunited. Then you have to work with another caseworker if reunification is not possible. And then you work with another agency, if permanency planning or adoption is not possible. Is that the way you are organized conceptually or you are organized like we have tried to get the courts to organize, one judge, one family? Are you organized like one caseworker or one person per child? Or are you organized in a way that has them change depending on what their status is that month or that year? Mr. Gerald. I think that is a great question, and while two elements impact the consistency of one person with that child-- one is retention of social workers, which we have worked hard to be able to do, but the other is what you have described. We now more than ever have the ability--have the organization where it is a worker working with that child from start to finish. We are not perfectly set there, but that is part of the reorganization we did around permanency. The Permanency Opportunities Project provides an overall umbrella to both the private and the public sector to ensure that they are barrier busting where they need to and providing technical assistance to the front line social worker carrying the case. In the past, the adoption or permanency workers used to carry cases. We have been moving away from that. We did the same thing with our Office of Youth Development. In the past, when the children became APPLA, they would get another social worker, and they would be in that arrangement. And the goal, again, was to move away from that arrangement and to develop them to be youth development specialists providing support across the realm to all social workers. Senator Landrieu. Well, it is really good to hear that because the best practice models that are developing are all focused in that way to try to have the most consistency for these young people who have already enough disruption, in large measure no fault of their own, and they have already been disrupted in so many ways to try to keep them as consistently helped and supported with familiar faces over the longest period of time because you get to know the child and children and sibling groups, you get to know the family situation, either its promise for repair and unification, or it is fairly clear over time that possibility is not going to happen and in the course of that can identify very common-sense potential solutions to that difficulty, like an aunt or a godmother or a grandmother or a neighbor or a teacher that could step in and provide that permanency. I think when you switch workers, you just lose so much of that. The children get frustrated, and the older they get, the angrier they get, and it is just one thing--but let me show you something else. I went on the Website this morning, and I have to say, unfortunately, I was disappointed in what I saw. This is your Website, and I am sorry it is not bigger for anyone to really see. But you can go and pull up your Website. If somebody in the District went on your Website this morning to try to become an adoptive foster care parent, it looks so boring and uninviting and complicated. I spent a few minutes going around and it just did not strike me--as an adoptive mom who has already adopted two children, I have been through the process. I want to show you the Massachusetts site. Now, you cannot really tell the difference because this looks a little more boring, that looks a little more exciting. But what is different is when you hit ``About Our Children,'' what it says, or when you hit ``Adoption Facts'' or ``Adopting,'' there are actual pictures of children waiting to be adopted that come up, which is done by a great organization--I think you have probably heard of it--the Gallery of Hearts program where volunteer photographers have gone out and taken the most beautiful pictures of children that are in the foster care system, and they are actually gorgeous pictures of these children, because sometimes we communicate to people in ways that I try constantly to get over and better, that these children, while they may have had difficulty, are really extraordinarily promising young people. And we could not find any of the pictures. Now, maybe I was looking in the wrong place, so do you have them? Mr. Gerald. For me, this is one of the joys that I had this year of the progress we have made. We do have an adoption Website that--adoptusdc.org--but we are also in the midst right now of totally revamping our official Website that is including--for the first time we have asked a lot of our advocates for input of what would make the Website much more readable, attractive, and informative. Senator Landrieu. Well, I cannot impress upon you how important I think that is because people today, they just simply function on the Internet. When people want to buy, find, inquire about anything, more and more and more, over broad swaths of the population, from poor to rich, of all racial backgrounds, they hit the Internet. And if somebody says, ``I read this article, I would really like to be a foster care parent,'' they go and they try to find information. It has got to be clear, it has got to be compelling, because the need is so great. And I want those listening to go to this Website. This is just one. Maybe there are others that are better. Maybe this is not the best. But I thought it was pretty good. It is the Massachusetts Website. They had pictures of the children, sibling groups, a little description of the child. Each child had a certain registration number and a caseworker. If you wanted information, you could specifically call the caseworker, so it was very clear that they were pretty organized. Now, I am going to do, just for my own--I am going to check on a lot of Websites around the country because we have spent literally, from Congress, millions and millions of dollars trying to get technology on the side of the kids, on their side, and giving them an opportunity, respectfully and appropriately, to let their stories be told and how much they want to be a valuable member of society and give them a chance. So I cannot urge you enough, and---- Mr. Gerald. And I will make sure that we forward you our Website as well and look forward to getting any comments regarding--and it is adoptdckids.org. Senator Landrieu. OK. And I have some other questions. I will just have to submit them for the record because I would like to hear from our second panel. So is there anything that you want to add, Ms. Meltzer? Ms. Meltzer. I just wanted to respond to the question on what Congress might do. Senator Landrieu. Go ahead. Ms. Meltzer. My suggestion comes from the comment by Judge Satterfield that one of the barriers for foster parents who are potentially interested in adopting is the fear about the loss of services. Continued and expanded investment in the availability of mental health and support services to foster parents after adoption and the availability of post-adoption supports is something very concrete that could be supported. Senator Landrieu. It is a real barrier, and everyone listening should know. If you are in foster care, you get financial support. And if that same family wanted to adopt that same child, providing the same love and support, the minute they are adopted they lose that support, generally. We are very interested in getting legislation passed here-- I am working closely with Senator Grassley on this--to have basically the funding track the child, basically under the direction, theoretically, of the courts. So when the court is stepping in to make final decisions about either reunification, permanency, adoption, or guardianship, that the money in the system--which is significant; I believe it is $8 billion in the Federal system to support not just the District but all of the communities in the country--$8 billion. It is not pocket change. And if that money followed the child and the best decisions of the professionals on the ground as opposed to supporting the system, we might get better results and outcomes. And we are going to fight very hard in the next year to do that. But there are some immediate issues here with the District that are separate and apart from the overall challenges of the system nationwide. But, Judge Satterfield, the last word to you. Judge Satterfield. I do not have anything else to add. I think everything has been covered. I would just like to say to you that I know when we were going to have this hearing in February, with the snowstorm and all, but congratulations for that big weekend you had just before that with your brother and the football. Senator Landrieu. A big weekend with the Saints. Well, the city needed a lot of therapy after Hurricane Katrina, and it has been 5 years. Judge Satterfield. We were all rooting for them. Senator Landrieu. Yes, the whole city had great therapy that weekend that the Saints won, so thank you very much. Thank you all, and we will see panel two now. And if you all could stay and listen to panel two. Judge Satterfield. I am going to stay. Senator Landrieu. But stay and listen to the panel, we would really appreciate it. And I know your times and schedules are tough. First we have Judith Sandalow, Executive Director of the Children's Law Center. We are very pleased to have two foster care children with us, former foster youth children with us: Sarah Ocran, Vice President of the Foster Youth Campaign, Young Women's Project, and Dominique Davis. I really appreciate these two young ladies coming to testify because, as I have asked, in all the work that we do, we always like to hear from the young people themselves. I was actually at Ms. Davis's adoption, and I remember her. She has grown quite a bit. She probably does not remember me, but I was there and remember that adoption. Ms. Sandalow, why don't you begin with your testimony. TESTIMONY OF JUDITH SANDALOW,\1\ EXECUTIVE DIRECTOR, CHILDREN'S LAW CENTER Ms. Sandalow. Thank you. Good afternoon, Senator Landrieu. I am Judith Sandalow, the Executive Director of Children's Law Center, which, as you know, is the largest nonprofit legal services organization in the District of Columbia, and it is the only organization devoted to a full spectrum of children's legal issues. Every year, Children's Law Center represents 1,200 children and families, including 500 children in the foster care system and several hundred foster parents and relatives of children in foster care. We partner with law firms from all over the city to provide lawyers to foster parents, for example, to Dominique's foster parents so that she could adopt her. --------------------------------------------------------------------------- \1\ The prepared statement of Ms. Sandalow appears in the Appendix on page 72. --------------------------------------------------------------------------- Any serious effort to fix D.C.'s child welfare system--and to ensure that children leave foster care to legally permanent families--begins with preventing abuse and neglect, moves on to intervening wisely when abuse or neglect occurs, and continues through several critical stages, hopefully ending with reunification, adoption, or guardianship. Although there is good news to report about the District's progress at some of these stages, as you know, serious problems still remain. These problems result in the large number of District children who are growing up in foster care. In short, too little abuse and neglect is prevented, too many removal decisions are made poorly, too few foster children live with their relatives, the placement array, the foster parent array, for children in foster care is limited, efforts to ensure children's well-being while in care are too weak, and because of all of this, permanency occurs way too infrequently. My written testimony details CFSA's performance at each critical stage, but today I want to focus on efforts to help foster children who cannot return to their birth parents and who need new legally permanent families. I want to start with guardianship because that is something which Congress can play a role in. The District of Columbia deserves extraordinary credit for being one of the first jurisdictions to create the legal option of guardianship, which we did back in 2001. Children's Law Center is proud of our role in drafting that legislation. It has allowed hundreds of children to leave foster care to permanent families. The Federal Government, through your work in its 2008 legislation, Fostering Connections, also recognized the value of guardianship. In fact, just last month, the Department of Health and Human Services (HHS) issued new guidance making Fostering Connections funds available for guardianships entered into before Fostering Connections took effect, which we are very pleased about. We hope that HHS will also move quickly to define the word ``relative'' within the statute. This definition matters because a step-grandparent, for example, or the father of a child's half-sibling can have a familial relationship which should be recognized for the purposes of receiving a guardianship subsidy. Congressional support for defining the term ``relative'' broadly would help more children move into legally permanent homes. I also want to address adoption. You have heard testimony about the increased number of adoptions between 2008 and 2009, as well as the historical downward trend over the past several years. What I think is important is that we understand from Dr. Gerald that much of the recent increase resulted from removing such administrative barriers as CFSA social workers completing final adoption reports more quickly. Making the bureaucracy work more efficiently is a significant accomplishment, and I think you heard that when the Family Court first came into effect, that was one of the reasons why we were able to move so many children out. But now we need to address the deeper problems, the really serious impediments to adoption more than the bureaucracy, and I think that is why you are holding this hearing. The good news is that I think the District is well on its way to addressing the most significant barrier: The disparity between our foster payments and our adoption and guardianship subsidies. As you know, the D.C. Council held a hearing in early March on legislation which includes provisions extending adoption and guardianship subsidies to age 21 and also allowing guardianship subsidies to be granted to non-kin. Not only is this good for children, but the District's Chief Financial Officer, whose fiscal impact studies are like the District equivalent to the Congressional Budget Office, has concluded that by moving children out of foster care, these subsidy changes will result in $3.9 million in savings to the District--obviously money that can then be turned around to use to help more children get out of foster care and into adoptive homes. Now I would say that CFSA has to turn to the District's second biggest barrier to permanency: The failure to place children with their extended family. D.C. children in kinship care are more than 30 percent more likely to leave foster care to a permanent family than children living in other placements. Yet D.C. is far behind the national average of 24 percent of foster children living with kin. At the end of this past year, only 15 percent of children lived in kinship foster care. CFSA should begin to address this problem with better implementation of the tools Congress provided through Fostering Connections. First, CFSA must implement a policy, as Fostering Connections permits, to make clear what licensing rules CFSA will waive for kin. Many relatives that we work with are dissuaded from becoming kinship caregivers by the complex licensing process. Second, CFSA should more aggressively identify potential kinship placements. All too often, the attorneys in my office identify kin of whom the child welfare agency is not aware. In a better functioning system, of course, social workers would know of kin before we do. Just to wrap up, the District's foster care system faces, as I think I have said, serious, complex, and truly deeply rooted challenges. The good news is that with concerted focus and cooperation among the different entities, we can make significant progress. The best example right now is the pending legislation--developed between my organization, CFSA and the D.C. Council--to extend and expand adoption and guardianship subsidies and thus help hundreds more children leave foster care to permanent families. I look forward to future successes and to this Subcommittee playing a constructive role in helping achieve them. Thank you. Senator Landrieu. Thank you, Ms. Meltzer. Ms. Ocran. TESTIMONY OF SARAH M. OCRAN,\1\ VICE PRESIDENT, FOSTER CARE CAMPAIGN, YOUNG WOMEN'S PROJECT Ms. Ocran. Good afternoon, Members of the Subcommittee and everyone here today. My name is Sarah Ocran, and I am 18 years old, and I have been a part of the D.C. foster care system for the past 2 years. I attend Cesar Chavez Public Charter High School for Public Policy in Washington, DC. Today I want to share my story about trying to get placed in a permanent home. I would also like to voice my opinion about permanency and its connection to living in foster care. --------------------------------------------------------------------------- \1\ The letter from Nadia Moritz and revised prepared statement of Ms. Ocran appears in the Appendix on page 93 and 95 respectively. --------------------------------------------------------------------------- Permanency is important to me because I want to have a network of people that I can depend on to love me and support me for the rest of my life. Being in foster care has taken that away. For 2 years now, I have desired to live with my godmother--someone who is loving and supportive of me. The environment she creates is stress free. My godmother has a two- bedroom apartment, and she is willing to move so that I would have my own room. My godmother is very stable to take care of me. The reason why I am not with my godmother is because my old social worker never called my godmother back, and there was a lot of miscommunication going on. So my godmother became very frustrated with the Child and Family Services Agency. Because I cannot live with my godmother, I do not want to go off to college. I want to stay local because I am scared that when I come back from school, I will not have a permanent place to call my home. When my godmother first started the process to be licensed so I could live with her, I was never told how long it would take for me to transition to her house. I currently live in a Supervised Independent Living Program. Before then I lived in a group home for about a year. The Independent Living Program has both pros and cons. Living in this Independent Living Program has made it harder for me to focus on important things, such as college. I want to go out of State to college at North Carolina A&T. But I am afraid that when I return from my winter break and spring break--I mean summer break, I will not have a permanent place to call my home. If I was with my godmother, I would not have to worry about where I would live when I come back from school breaks because I can count on her to support me and love me the way a teenager should be cared for. Being in the foster care system takes away the opportunities that I should have as a teenager. At my Independent Living Program, I have to come home, cook, and also do homework for school. I should not have to do all of this. When we have new girls come to our Independent Living for overnight stays, things tend to come up missing. Sometimes I hate the fact that staff are in our apartment because they try to tell us how to live and what to do. But at my Independence Living Program, I am able to have my own room to myself. Having my own room means a lot to me because I am able to have my privacy and some alone time. I also have a good deal of responsibility that will prepare me for the ``real world.'' I like living in my own apartment, but I do not have the support I would have if I was living with my godmother. I feel that my time in the system is winding down and I am not able to live my life the way that I want to. I am growing up too fast. During the past month, I have had some time to reflect on my experience in the system and trying to find a permanent home. I have contemplated on how my social worker and I never talked once about what my permanency options are and if legal guardianship was something that I really wanted. I waited for a long time to move in with my godmother. But as time passed, I felt as though it was not going to happen. I began to think what if I move in with my godmother and things get really bad and we get into an argument and she puts me out. I wondered what would happen if she would get money for me and then decide she would not give it to me. I also thought what if she puts me out because I did not fit into her lifestyle. All of this was going though my mind, and I did not know how to deal with it. I did not know how to communicate to my godmother to tell her exactly how I felt and what I was thinking. I felt like I was wasting her time by making her go through the licensing process for me and me not even be there with her. I tried to find out what was going on from my social worker by writing to CFSA's Office of Youth Empowerment, but my social worker could not even provide me with information to let me know why I was not approved to live with my godmother and why I am still not there. I do not communicate with my godmother that much anymore. Our communication has become ``sometimey'' because I feel like I put her through all of this to get me there and I am not even at her house. I also began to think maybe the judge was right and maybe my godmother was never a good place for me. I also lost hope because of the procrastination from CFSA. I think now that maybe my Independent Living is the best place for me because it feels like everyone gave up on me. I have been told that if I do well in my current placement that I will have my own apartment and it will eventually be mine. I was given the option to move into my apartment last month, but I did not feel I was ready so I said no and I stayed--because I felt like I was not really focusing on my grades in high school. Having my own apartment now sounds OK since I was scared about moving in with my godmother. The time is slowly approaching for me to age out, and I do not have stability. I turned 18 in December. I have less than 3 years until I age out of the foster care system. It hurts because I really wanted to be with my godmother, but the system made it hard for me to be there. I have four recommendations that I would like to share with the Senate that could help foster youth like me. One, social workers should be more experienced in all aspects of foster care. Two, there should be an extension on the age when youth are aging out because there are youth like myself who are lost and do not have no one to turn to but the streets. Three, foster youth should have a transition center that will provide foster youth with resources like safety nets, education, and permanency that would be funded by money given from CFSA. And, last, CFSA should develop goals and better practice and organization for their work on permanence. If they were organized and tried harder, they would be able to get youth like me into permanent homes when they have the chance. I feel like I had the chance last year to make my transition, but because CFSA could not get their act together, that chance was wasted and now it is not an option anymore. Thank you for your time. Senator Landrieu. Thank you, Ms. Ocran. That was an excellent presentation, and thank you for your recommendations. Ms. Davis. TESTIMONY OF DOMINIQUE JACQUELINE DAVIS,\1\ FORMER DISTRICT OF COLUMBIA FOSTER YOUTH Ms. Davis. Good morning, Senator Landrieu and Members of the Subcommittee. I appreciate the opportunity to talk about my experience of being adopted from the Child and Family Services Agency. --------------------------------------------------------------------------- \1\ The prepared statement of Ms. Davis appears in the Appendix on page 98. --------------------------------------------------------------------------- My name is Dominique Davis. I am 16 years old and in the 11th grade. I like to play softball and spend time with my friends and family. After high school, I would like to go to college and become a computer specialist and work for the FBI. I was in foster care since I was 4 years old. When I was 11 years old, I went to live with my foster mom, Ms. Davis. Ms. Davis adopted me on November 21, 2009. Adoptions Together helped finalize the adoption and made sure it went smoothly. Having a permanent home is very important to me, especially changing my name so I know I belong to that family. Other kids should want to get adopted because everyone needs a family to support their future. I would also like to say that adults should adopt teenagers and not just young children because they need families too. Without that support, teenagers cannot succeed and sometimes end up on the streets. Thank you again for the opportunity to tell you my story. I would be happy to answer your questions. Senator Landrieu. Thank you, Ms. Davis. I really appreciate that. I do have just a couple of questions. You were in the foster care system, and you were adopted at 11, so that is, what, 7 years--adopted at 16. I am sorry. You were adopted at 16, and you went into the system at 4 years of age. Ms. Davis. Yes. Senator Landrieu. So you were in the system for 12 years. How many homes did you have in that 12-year period? Can you remember? Approximately, just roughly? Is it less than three or more than five? Ms. Davis. I have been in seven homes and three group homes. Senator Landrieu. Seven homes and three groups home, so in 10 different places in those years. And how many elementary schools did you go to? Can you remember? Ms. Davis. I think one. That is all I can remember. Senator Landrieu. You stayed in one elementary school. You stayed in the same school all through elementary school, or do you think you went to different ones? Ms. Davis. I started at Flowers Elementary School. Then I had to leave my foster home, and I went to a group home. Then I went to Rock Creek Academy where they had elementary up to, I think, fifth grade, and I kept moving on and on. Senator Landrieu. Well, one of the things that is very clear to me is that we have to do a much better job of trying to help the children that are in the system to stay at least in their school. And families may come and go around them and social workers may come and go around them, but if we could figure out a way to at least--I have had young people that have worked for me that have a 4.0 average and they went to 11 high schools. How they managed to keep a 4.0 average, I have absolutely no idea, but obviously they have a lot of talent. I could barely keep an A average, and I went to one high school. But, anyway, Judith, what do you want to add to this? And your testimony is very comprehensive and lengthy, but when Mr. Gerald testified about children moving from caseworker to caseworker, trying to stay with one caseworker, are you seeing that? Are you feeling that? Or is that still sort of planning in the future? Ms. Sandalow. I think that they are beginning to stabilize the social workers so that is less of a problem than it was. I think the biggest problem--and I think that Ms. Meltzer really hit the nail on the head--if there is a strategic plan, a vision, and a strategy, it is not public yet. And I am eager to have all of us who are working with children know what the plan is. We see one of the biggest problems--and I think that Ms. Ocran's testimony, although I do not know her personal situation, is right on point, which is it is very hard for relatives to stick to children in our system. We have a wealth of extended family in the District and in the neighboring suburbs. Really focusing at the early stages and helping children, especially our teenagers, connect to the relatives they do have in their lives and find a way to make that permanent I believe is one of the most important things that CFSA has to do right now. Senator Landrieu. In the law--and this is mentioned in the testimony--if a child is 14 or older, they have to give their consent for adoption. Is it also, though, required that the children 14 and over be asked what their preference is? Is that in the law? Do you know? Ms. Sandalow. You are testing my knowledge of the law. I do not know whether it is in the law. Senator Landrieu. I do not think so. Ms. Sandalow. I do know it regularly happens. But whether it is followed through on is another matter altogether. It really takes good, hard social work to make these things happen, and I think that is the piece that we are missing right now, which is there are a number of barriers to social workers being able to navigate the licensing regulations, know what the regulations are, know how to move a child successfully into a home. Senator Landrieu. Do you know what the average casework ratio is? Ms. Sandalow. It is quite low. I am sure Ms. Meltzer could answer that more easily than I could, but I think it is still about 10 or 12 kids per social worker. So I do not think it is caseload. I think it is the administrative barriers between social workers and success. I do want to echo one of the other big problems we have, and this is not CFSA's problem, but the whole city needs to address how we support families post-adoption and post- guardianship and post-reunification. Dr. Gerald's hands are tied when it comes to mental health services, substance abuse treatment, homeless services, because that is outside of his agency. But, in fact, it is one of the biggest barriers to both permanency and abuse and neglect prevention that we have. Senator Landrieu. And if you could change that, how would you suggest that we do it? Ms. Sandalow. We have a very fragmented children's mental health system. I think about 10 percent of the children who come into foster care come into foster care because of behavioral problems. Obviously, we need to support those children and their families with appropriate mental health services. So the city needs to really focus on building the network of mental health services. Senator Landrieu. Ms. Ocran or Ms. Davis, do you have anything to add to that in any way? Ms. Ocran. No. Ms. Davis. No. Senator Landrieu. OK. Let me see here. Ms. Ocran, you commented on this, but your permanency goal was recently switched from guardianship to APPLA. Ms. Ocran. Yes. Senator Landrieu. Could you describe how you were notified that your goal was changed? Did someone come to talk to you, or did you receive a document in the mail? Or how did that actually happen? Ms. Ocran. Actually, we were just sitting in the courtroom, and the judge was just basically saying that, ``Well, she shows a great level of independence, she is responsible, she goes to school, she goes to work, and she is 18 and she don't need parents, so let's just change her goal.'' And everybody agreed. Senator Landrieu. What in your experience--you must know other children in the group home. What are some of the things that they say to you about their independent living? Are they excited about it? Are they nervous about it? Are they looking forward to it? Or could you describe a little bit about some of the other young people that you get to talk with? Ms. Ocran. Yes. Actually, I work for the Young Women's Project, and so being there, we work hands on with foster youth. But in my home, I have three other roommates, and quite frankly, they are scared because they do not know what is going to happen on their 21st birthday. They do not know what to expect, and most of the time they do not have a good relationship with their social worker. And me, speaking for myself as an example, I am scared because in 3 years I will be aging out of the system, and I do not know who I can count on. My godmother, she is there, but she is not there, and I do not know if I was to get really sick, who is going to come to the hospital to bring me flowers? And I cannot even rely on my social worker because I do not even have a social worker right now. She has been on leave ever since March. And so it is hard when you are trying to go to school and you are trying to make a doctor's appointment for yourself. It is just things that you would want a parent to be around to do. And like I said, I am trying to finish high school. I will be graduating in 3 months, and I am working on a big paper. It is called a thesis paper, 15 to 20 pages. And it is difficult. And it feels good to have a parent around to say, ``you are doing a good job.'' I have none of that. I go home and it is just me. Senator Landrieu. Well, we are going to work harder to fix this because there are thousands of children, maybe not as articulate and as smart as you, but there are thousands of children that are in this same situation. I will just share, and then we are going to call a close to the hearing in just a few minutes. There are some extraordinary mentorship programs that I am aware of that are happening, and I know our President and the First Lady are very committed to strong mentorship programs. And one that I am familiar with is one that the National Guard Youth Challenge Program works nationwide, and it is an 18-month residential--well, 6-month residential, 12-month follow-up. But in order to come into the program, which is a very interesting model, they take children between the ages of 16 and 18, not foster care children--well, foster care children are eligible, but this is for all children 16 to 18 having difficulty, maybe potential high school dropout children, not necessarily children like you who are writing their papers and staying in school. But the key is this: Every child coming to that program has to sign and the program has to meet an adult that is a responsible friend or advocate for that child, and so the young person goes through the program, but the adult also receives some sort of counseling and training opportunities so that the permanent match between them can stay on after the program. And while we would love, and our goal is, for parents to be connected, the fallback is a more structured mentorship with the right support for you and your lifetime coach or lifetime mentor. We are not anywhere where we need to be, but there are new Federal laws that are incentivizing that kind of mentorship. So I hope that the child welfare community could listen up to these models that are coming up in health, coming up in education, and so there can be at least a permanency with a lifetime connection, not just a name written on a piece of paper but an actual person that has been trained and signed--at least a general understanding that this is what they are committed to do at least for some period of time. Does anybody want to add anything that we have not covered? Ms. Davis, any final thoughts? Ms. Davis. No. Senator Landrieu. OK. And were you adopted with your siblings? Did you have siblings, brothers and sisters? Ms. Davis. No. Senator Landrieu. OK. Ms. Ocran, any closing remarks? Ms. Ocran. I just want to say thank you. Senator Landrieu. OK. Well, thank you for your courage and bravery and your strength. Ms. Sandalow. Ms. Sandalow. Thank you for drawing your attention to these issues. You raised the school stability issue, and I think you are exactly right that in order for our kids to succeed, in addition to permanent families, they need school stability. And there is good legislation on this, there is funding to help children go back to their school of origin. The regulations are very limiting, and they only refer to the first placement. And I think that congressional support to expand that so that if a child gets into a foster home and then has to move, that they can at least go back to that school, would be very helpful. Senator Landrieu. Well, I am going to push it even further for a certain age for the children to go to the school that they would like to go to and give them a lot more power to--if even the system is dysfunctional, a lot of these children can make very good decisions for themselves, and we at least owe them that stability while we are figuring out their own situation. But thank you very much. I appreciate it. The meeting is adjourned. Thank you. [Whereupon, at 3:41 p.m., the Subcommittee was adjourned.] A P P E N D I X ---------- [GRAPHIC(S) NOT AVAIALBLE IN TIFF FORMAT]