A r c h i v e d  I n f o r m a t i o n

Chapter 103

I. Program Profile

Purpose: To provide financial assistance for compensatory education to State agencies directly responsible for providing free public education to children in institutions for neglected or delinquent (N or D) children, children attending community day programs for neglected or delinquent children and juveniles in adult correctional institutions.

Funding History

II. Program Information and Analysis

Population Targeting

To be eligible for Chapter 1 N or D services, youth must be under age 21, entitled to a free public education, lack a high school diploma or its equivalent, have an average stay of at least 30 days in the institution and be enrolled for at least 10 hours a week in a regular program of instruction supported by non-federal funds.

Fifty-eight percent of the participants were 17 through 20 years old; 91 percent were males; and 47 percent of the participants were black, 34 percent white, 16 percent Hispanic, 2 percent American Indian or Alaska Native, and 2 percent Asian or Pacific Islander (III.1).

The National Study of the Chapter 1 N or D Program (III.2) collected data on the N or D program in juvenile and adult correctional facilities. It found that:

• Approximately half of the eligible population in participating juvenile and adult correctional facilities receive Chapter 1 N or D services.

• Facilities most often use scores on standardized tests to determine which youth are in greatest need of services. However, there is little variation between Chapter 1 students and eligible but nonparticipating students in demographic characteristics or pre-institutional experiences.

• Close to half (42 percent) of Chapter 1 N or D participants were high school dropouts prior to receiving N or D services in State facilities. On average, the highest grade participants have completed is three years below that normally completed by other youth of their age group.

• Chapter 1 participants in juvenile facilities are more likely than participants in adult facilities to be younger, to have been in school at the time of commitment, and to intend to return to school after release.

• The average age of Chapter 1 participants in correctional facilities is 17.5. The average age of participants in juvenile facilities is 17, whereas for those in adult correctional facilities, the average age is 20.

Services

Findings from the Study of the Chapter 1 N or D program include the following:

• Chapter 1 N or D participants spend an average of five hours per week in Chapter 1 reading classes and 5 hours per week in Chapter 1 mathematics classes in juvenile facilities. In adult facilities, they spend the same amount of time in reading classes, but slightly less time (4 hours) per week in Chapter 1 mathematics classes (III.2).

• Teacher-developed materials, workbooks, practice sheets, and textbooks are used in most Chapter 1 N or D classes. The curricular sequencing and materials are matched to each student's skill deficiencies; however, the instructional methods used are the same for all students (III.3).

Program Administration

• Administration of the Chapter 1 N or D program is complicated by the number and diversity of staff and the relatively low time commitments these staff have made to administering the program. The SEA, the State agency (SA), and one or more staff at participating facilities are all involved in program administration, yet on average spend less than half of their time on N or D responsibilities.

• The SEAs review and approve SA applications, provide occasional technical assistance, and monitor the program.

• The SAs play the key role in administering the program. They develop programs, allocate funds to participating facilities, conduct on-site monitoring of programs, provide technical assistance, and oversee program operations. Facility-level administrators implement policies and procedures established by the SA.

• Juvenile facilities are more likely to participate in the Chapter 1 N or D program and to have more participants per facility than adult correctional facilities.

• Chapter 1 N or D funds account for 10 percent of total education funding at participating facilities. However, the Chapter 1 program assumes a more substantial role in the overall education program at juvenile facilities where it represents 14 percent of all education funding, than in adult facilities where it represents only 5 percent of total education funding.

• Chapter 1 is an important source of funding for computer purchases, staff training and development, and instructional aides. The Chapter 1 N or D funds provide 43 percent of the facilities' expenditures for computer-related purchases, 21 percent of expenditures for staff training and development, and 47 percent of expenditures for instructional aides.

• Program administrators at the State and facility levels report several administrative problems associated with the Chapter 1 N or D program. They include:
  • lack of fit between Chapter 1 N or D and the primary areas of responsibility of staff, at both the State and facility levels;

  • a poor fit between Federal regulations and the context of corrections education. For example, the age limit of 21 constrains services in adult facilities, where many students older than 21 would benefit from the program but stop receiving Chapter 1 N or D services when they turn 21. Also, evaluation requirements are not seen as appropriate, given the high turnover of students;

  • burden imposed by recordkeeping and paperwork requirements; and

  • inadequate funding.

Outcomes

• One-half of Chapter 1 N or D participants continue their education when they leave the correctional facility by enrolling in school. However, many of those who enroll subsequently drop out. Younger program participants and those in juvenile facilities are more likely to enroll in school and stay enrolled than older youth and those in adult facilities.

• The information provided to youth while in the facility on how to continue their education or training after release appears to have little influence on whether or not they do so.

• Following release, most participants return to their families in the community they came from prior to institutionalization.

• Most participants found jobs after being released. At the first followup, among the released youth studied, 67 percent were employed, while at the second followup, 76 percent were employed. The employment rate was virtually the same for youth from juvenile facilities and adult correctional facilities. Study data suggest, however, that the youth who find work have problems holding a job. For example, two-thirds of the youth studied who had been in the community at least 5 months had held more than one job since their release. For those who find work, the work is low-paying. The youth work an average of 35 hours a week and the average hourly wage was $4.75.

• Slightly less than 10 percent of participants had been reinstitutionalized by their second post-release interview.

Management Improvement Strategies

• Facility administrators view education as a primary institutional goal. Education administration is structured separately from corrections administration.

• State education administrators support the N or D program and facilitate communication with SA administrators. State agency administrators, in turn, facilitate communication with educational administrators at the facility level.

• Both SEA and SA staffs contribute to effectiveness by conducting regular audits, establishing and maintaining high State standards, supporting staff efforts, and assisting in preparing the Chapter 1 application.

• Chapter 1 funds are used as seed money for designing and implementing innovative programs.

• Effective programs coordinate instruction between the Chapter 1 and regular programs. Techniques used include:
  • diagnostic assessment processes involving Chapter 1 and regular program staff and joint review of test scores;

  • joint planning between Chapter 1 staff and regular education program staff and coordination of content and skills instruction;

  • additional in-class instruction for Chapter 1 students by regular education teachers, and joint development of plans for each student's learning objectives.

• Team teaching and cooperative learning strategies are used to integrate objectives for the regular and Chapter 1 students and to diminish the visible distinction of lower-achieving students.

• Motivational approaches such as awards, certificates, contests, use of high-interest materials, and promotion of students to the position of "teacher's helper" are used in effective programs.

• Effective programs continuously monitor student progress through frequent teacher-student interaction.

III. Sources of Information

1. A Summary of State Chapter 1 Participation and Achievement Information-1990-91: Preliminary Tabulations (Washington, DC: Westat, Inc., 1993).

2. Unlocking Learning: Chapter 1 in Correctional Facilities. Descriptive Study Findings: National Study of the Chapter 1 Neglected or Delinquent Program (Rockville, MD: Westat, Inc., 1991).

3. Unlocking Learning: Chapter 1 in Correctional Facilities. Effective Practices Study Findings: National Study of the Chapter 1 Neglected or Delinquent Program (Rockville, MD: Westat, Inc., 1991).

4. Unlocking Learning: Chapter 1 in Correctional Facilities. Longitudinal Study Findings: National Study of the Chapter 1 Neglected or Delinquent Program (Rockville, MD: Westat, Inc., 1991).

IV. Planned Studies

V. Contacts for Further Information

Program Operations:

Mary Jean LeTendre, (202) 260-2777

Program Studies:

Daphne Hardcastle, (202) 401-1958

[Migrant Education Program (MEP) (Chapter 1, ESEA) Formula Grants to State Education Agencies to Meet the Special Education Needs of Migratory Children, and Migrant Education Even Start Program (MEES)]

[Even Start Program]