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Prepared by:
Michigan Child Welfare Improvement Task Force
April 2009
Table of contents
Preamble ......................................................................................................................................... 1
Glossary of terms ............................................................................................................................ 3
Introduction..................................................................................................................................... 5
Vision for change............................................................................................................................ 8
Values guiding Michigan programs serving children, youth and families ............................... 10
Mission.................................................................................................................................. 10
Assumptions.......................................................................................................................... 10
Guiding Principles ................................................................................................................ 10
Urgent need for change............................................................................................................. 12
Increase in confirmed abuse and neglect investigations ....................................................... 13
Insufficient resources for prevention and transitional services............................................. 13
Growing backlog in the child welfare system....................................................................... 15
Michigan’s building blocks....................................................................................................... 16
Child Welfare Improvement Task Force ...................................................................................... 20
Composition of Task Force....................................................................................................... 21
Task force work process ........................................................................................................... 21
Work groups.............................................................................................................................. 23
Prevention, Community Services and Treatment Work Group ............................................ 24
Foster Care Work Group....................................................................................................... 24
Adoption and Permanency Work Group............................................................................... 24
Detention, Residential Care, and Treatment Work Group.................................................... 24
Transitional Support Work Group ........................................................................................ 24
Funding Work group............................................................................................................. 25
Communications Committee .................................................................................................... 25
Steering Team ........................................................................................................................... 28
Synthesis Committee ................................................................................................................ 28
Status of child welfare in the U.S. ................................................................................................ 29
Michigan’s Reality................................................................................................................ 30
Current Challenges................................................................................................................ 33
Strategies for change..................................................................................................................... 35
Change Priority #1: Create a seamless array of services that meets the full needs of children
and families in a respectful way, with emphasis on prevention and early intervention. ...... 37
Change Priority #2: Planning and provision of service should be guided by a timely
comprehensive screening and assessment of the child and family and their needs.............. 40
Change Priority #3: Secure greater funding and use it more flexibly to achieve the structural
system and service reforms................................................................................................... 42
Change Priority #4: Racial, gender and cultural equity must become a priority for the child
welfare system. ..................................................................................................................... 45
Change Priority #5: Engage and empower consumers, children and youth, birth and
adoptive parents, families, Tribes and Tribal organizations to ensure their involvement and
voice as decision-makers and respected partners in case planning, program/policy
development, service delivery and systemic change efforts................................................. 47
Change Priority #6: Foster a seamless approach to service delivery through cross systems
collaboration and community partnerships to improve the conditions of vulnerable children
and families........................................................................................................................... 49
Change Priority #7: Improve the strategic use of data collection, analysis and reporting to
improve performance of the system as measured by outcomes for families and children. .. 51
Change Priority #8: Provide opportunities for training and workforce development to ensure
that judicial officers and public/private providers have adequate skills and competencies to
effectively serve the needs of children, youth, and families................................................. 53
Leadership and implementation.................................................................................................... 55
Global system outcomes of the improvement strategy ................................................................. 57
Evaluating the Task Force process ............................................................................................... 58
Appendix A................................................................................................................................... 59
Michigan Child Welfare Improvement Task Force Membership and Consultants .................. 59
Task Force Staff and Consultants ......................................................................................... 61
Department of Human Services Staff ................................................................................... 61
Appendix B ................................................................................................................................... 62
Change Priority Implementation Plans ..................................................................................... 62
Implementation Strategies .................................................................................................... 62
Change Priority #1: Create a seamless array of services that meets the full needs of children
and families in a respectful way, with emphasis on prevention and early intervention. ...... 63
Change Priority #2: Planning and provision of service should be guided by a timely
comprehensive screening and assessment of the child and family and their needs.............. 82
Change Priority #3: Secure greater funding and use it more flexibly to achieve the structural
system and service reforms................................................................................................... 87
Change Priority #4: Racial, gender and cultural equity must become a priority for the child
welfare system. ..................................................................................................................... 98
Change Priority #5: Engage and empower consumers, children and youth, birth and
adoptive parents, families, Tribes and Tribal organizations to ensure their involvement and
voice as decision-makers and respected partners in case planning, program/policy
development, service delivery and systemic change efforts............................................... 108
Change Priority #6: Foster a seamless approach to service delivery through cross systems
collaboration and community partnerships to improve the conditions of vulnerable children
and families......................................................................................................................... 122
Change Priority #7: Improve the strategic use of data collection, analysis and reporting to
improve performance of the system as measured by outcomes for families and children. 129
Change Priority #8: Provide opportunities for training and workforce development to ensure
that judicial officers and public/private providers have adequate skills and competencies to
effectively serve the needs of children, youth, and families............................................... 135
Appendix C ................................................................................................................................. 142
Evaluation of the Michigan Child Welfare Improvement Task Force charge and process .... 142
Appendix C: Attachment 1 ......................................................................................................... 152
Evaluation Plan and Data Collection Matrix .......................................................................... 152
Appendix C: Attachment 2 ......................................................................................................... 156
Task Force Charge .................................................................................................................. 156
Appendix C: Attachment 3 ......................................................................................................... 157
Task Force Survey .................................................................................................................. 157
Appendix C: Attachment 4 ......................................................................................................... 160
Task Force Meeting Evaluation Survey.................................................................................. 160
Appendix C: Attachment 5 ......................................................................................................... 161
Work Group Meeting Evaluation Survey ............................................................................... 161
Appendix C: Attachment 6 ......................................................................................................... 162
Initial Child Welfare System Survey ...................................................................................... 162
Appendix C: Attachment 7 ......................................................................................................... 134
Post Meeting Task Force Survey ............................................................................................ 134
Appendix C: Attachment 8 ......................................................................................................... 135
Work Group and Committee Meeting Dates, Time and Locations ........................................ 135
Appendix C: Attachment 9 ......................................................................................................... 137
Work Group Survey Analysis................................................................................................. 137
Appendix D................................................................................................................................. 138
Steering Team responsibilities................................................................................................ 138
Appendix E ................................................................................................................................. 139
Bibliography of Reports Reviewed by Task Force................................................................. 139
Appendix F.................................................................................................................................. 142
Task Force Work Group and Committee Membership........................................................... 142
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“No one spelled it out for me but I kind of guessed.”
Young adult
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Preamble
On behalf of our fellow colleagues, we are honored to submit the final report of the Child
Welfare Improvement Task Force. The CWITF included a cross section of Michigan’s children
and family services leadership, including young adults and parents with direct experiences in the
state child welfare continuum, members of the judiciary, state legislators, state and local
officials, public and private agency leaders, educators, health and child welfare professionals,
philanthropic leaders and advocates for our state’s children and their families.
We know that we speak for all Task Force members in thanking the Michigan Department of
Human Services Director, Ismael Ahmed, for his leadership in establishing the Task Force, in
serving as an active Task Force member, and in his continual expression of support for our
ongoing work.
A nearly universal question raised at the inaugural meeting last May, was whether the CWITF
could make a difference? In large part, this question arose from the limited success of the
numerous special committees and taskforces that have focused on parts of the state child welfare
system in past years. Their recommendations, although thoughtful were rarely implemented. In
spite of this initial skepticism, the Task Force has been successful in bridging often significant
differences in philosophy and experiences to frame a common agenda for systemic reform; an
agenda that was adopted by consensus during the last Task Force meeting on March 23, 2009.
Our success in forming a community for change was greatly influenced by Director Ahmed’s
ongoing active participation in Task Force meetings and commitment to lead a child welfare
advisory board to design and oversee an implementation strategy for systemic change,
incorporating the Task Force recommendations.
We believe that Director Ahmed’s leadership and commitment can move this report from paper
to action and look forward to supporting the implementation of the Task Force recommendations
and tracking the progress for children and families served.
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“I should have been with my grandmother. I was safe where I was.
After I was told why I was in care, no one bothered to tell me the
steps.”
Young adult
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While several other committees and task forces have been created to examine parts of the state’s
child welfare system in the past several years, the CWITF was unique in the breadth of both its
scope and its composition. It was asked to look at all parts of the state-supported system,
inclusive of policies and programs for youth and families at risk of or experiencing maltreatment,
delinquency and teen homelessness. The 85 members of the Task Force include state and local
public officials, and leaders from all sectors of the child welfare community, including 16 young
adults with direct experience in the system. Their perspectives were complemented by a
presentation from birth parents that had also been served.
In this report, the Task Force is advancing both the values and change priorities needed to
achieve systemic reforms necessary to vigilantly promote the best interest of children and youth.
The report details specific actions and outcomes that will protect and support life opportunities
for some of Michigan’s most vulnerable young residents and their families.
These recommendations are based on recognition of the critical elements imperative for systemic
reform, including:
The vital roles and contributions of family -- both immediate and extended -- in protecting,
nurturing, and making decisions about the safe development of children and youth at risk
of/or experiencing abuse, neglect, delinquency, and/or homelessness.
The common developmental needs of vulnerable youth, irrespective of the programmatic or
legal labels that have been assigned to them, such as abused, neglected, delinquent, or
runaway.
Investment of public resources in evidence-supported statewide community-based prevention
and early-intervention services that protect children by strengthening families.
Investing in human and financial resources to prepare and to support young adults in their
transition from the child welfare system to productive independence and leadership roles in
their communities.
Restructuring a currently fragmented, confusing, and often counterproductive federal, state
and local child welfare financing system that is oriented to categorical services. It must be
creatively redesigned with a strategy that supports developmental needs of youth and their
families, and that places emphasis on in-home services, while ensuring quality treatment for
children and youth who need temporary out-of-home care.
Establishment of a clear and achievable goal of reducing out-of-home care through the
support of safe and nurturing family- and community-based environments.
Increased accountability to policy-makers, the public and equally importantly to the children
and youth and their families who receive service.
Some recommendations chart new territory. The Task Force recommends clearly-stated goals to
safely reduce the number of Michigan children in foster care, to address the needs of seriously
emotionally disturbed children in juvenile justice residential care and to address the inexcusable
disproportionally high rate of African American and Native American children in out-of-home
care, among others. Some recommendations build upon and call for reinvestment in evidence-
supported family preservation programs that Michigan has pioneered, but which have not been
fully implemented due to declining state fiscal capacity. Many recommendations deal with day-
to-day challenges inherent in effectively managing comprehensive services. Improvements are
essential to assure quality and strengthen effective partnerships between state and local
governments, and public and private agencies. Finally the recommendations recognize and build
off the work of the various special committees and task forces that have preceded us.
The CWITF recommendations also acknowledge the reforms included in the settlement of
Dwayne B. v. Granholm. We applaud both Governor Jennifer Granholm’s and Director Ahmed’s
leadership and the Children’s Rights advocacy group for reaching agreement on this landmark
settlement for reforms that will lead to improvements in protective services, foster care, adoption
and permanency. Timely implementation of the settlement is essential to the protection of
children. At the same time, the Task Force cautions that without increased attention to evidence-
based prevention and family-preservation services, an unintended consequence of the settlement
could be the investment of funds in more expensive services rather than more cost-effective ways
to safely serve families and children in community settings. In addition, the primary direction of
the settlement requirement that all children in foster care be placed in licensed settings may very
well result in the disruption of safe, stable, and nurturing placements of many children and youth
currently in state-supported and funded relative provided unlicensed foster care. As noted in the
Task Force’s recommended change priorities, it is essential that the Department of Human
Services and private agencies proactively reach out to current unlicensed family providers and
equally proactively apply federally sanctioned waivers of non-safety-related licensing
requirements whenever appropriate and in the best interests of affected children. Further, when
DHS has determined that family members, who have declined licensure, are providing safe and
nurturing foster care for their minor relatives, the children in care should have equal access to
services and financial resources needed to stabilize their placements and foster their
development, as do children in licensed foster care placements.
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“All my siblings stayed together.”
Young adult
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The provision of services should be tailored to the individual needs of children, youth, and
families within the context of community and culture. This will require the ability to make
accurate assessments that lead to individualized family service plans driven by needs rather than
resources. The service array must be developed based on needs and the most effective models
available. Focused effort must be directed at integrating service systems through shared goals,
collaborative planning, and community partnerships. Out-of-home placements, when necessary,
should be close to family and community and be focused on specific treatment or developmental
goals. Permanency services -- including reunification, adoption, and guardianship -- should start
from the day of placement. This reform strategy will allow children and families to have their
needs met in their own communities, minimize disruption to critical relationships, and promote
their long-term well-being.
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“If the system thinks you are ready, they will close your case and
leave us without support. Many of us end up in homeless shelters
after getting put out of the system.”
Young adult
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“They need to realize that it’s my first time. It’s my first time losing
my child. I’ve never done this before.”
Birth parent
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Mission
The State of Michigan is committed to ensuring that economic, health and social services are
available and accessible to vulnerable families, children and youth. Services are designed to:
Strengthen families and help parents create safe, nurturing environments for their children.
Reduce child maltreatment, abandonment, neglect, preventable illness, delinquency,
homelessness, and other risks to a child’s development and well-being.
Strengthen economic security, promote strong nurturing parenting, and improve access to
health care and safe, secure housing.
Assumptions
When children are separated from their families and familiar environments, they experience
trauma.
All services must be guided by knowledge and understanding of the developmental needs of
children, youth and their families. They must recognize that childhood is a short period of
time and interventions must be provided consistent with a child’s sense of time. All children
and youth are in their formative years and are entitled to safe, nurturing environments and
high-quality, developmentally appropriate services. Children experience the least trauma
when such environments can be provided by parents and other relatives.
Services should be provided in the homes and communities whenever safe and appropriate.
This requires the development, expansion, and coordination of a continuum of prevention,
early intervention, and placement services. All services should be accessible and focus on
safety as well as the outcomes of permanency, physical and mental health, and educational
achievement for children and youth. Services and decisions should be guided by the best
interest of the child. They should balance the needs of children and youth with those of their
families, and, above all, should do no harm.
Racial disparities in both the delivery of service and the outcomes for children, youth, and
their families must be eliminated.
Guiding Principles
A vibrant and viable public and private sector network, working in concert, is in the best
interest of Michigan’s children and families.
Michigan and its public and private provider network will strive to provide an array of
resources and services which best meet the child and family’s need in the timeliest manner –
the right service at the right time.
Immediate action is necessary to ensure that child welfare services result in positive outcomes
for children and families in Michigan.1 The Michigan Foster Care Review Board noted in its
2007 Annual Report that data collected for Michigan’s pending September 2009 Child and
Family Services Review (CFSR) indicate that the state is not in compliance with federal
permanency requirements. As a result, the state could lose millions of dollars in federal Title IV-
E and Title IV-B assistance for Michigan’s child welfare system.2 In addition, data provided by
DHS’ Federal Compliance Office and by the Foster Care Review Board of the State Court
Administrative Office indicate that Michigan’s reunification outcomes must be improved.3,4
Michigan children removed from their homes are less likely to be reunited with their families
within a year than children in other states. In Fiscal Year 2007, only 42 percent of Michigan
children left the child welfare system to re-unification in less than 12 months, compared with the
federal standard of 75 percent. CFSR data also indicated that the median length of stay for
children in Michigan’s child welfare system was 13.8 months -- more than double the federal
standard of 5.4 months. Although DHS is working to improve these outcomes through the
settlement agreement and other activities, the Foster Care Review Board’s 2007 Annual report
indicates that the local courts also play a role in the unsatisfactory permanency and reunification
outcomes. They indicate that there are four court-related issues that need attention:
1
Throughout this report, the use of the term “child welfare” is inclusive of abuse, neglect, juvenile justice, homeless
and runaway youth unless otherwise noted.
2
Michigan Supreme Court, State Court Administrative Office, Michigan Foster Care Review Board 2007 Annual
Report.
3
The Child and Family Services Review (CFSR) is a comprehensive federal evaluation of each state’s operations in
child abuse and neglect cases. These reviews are the means by which the federal government ensures that all states
remain committed to continuous quality improvement in their child welfare system.
4
Federal Child and Family Services Review presented by Carol Kraklan and Jim Novell during the August 18,
2008, Child Welfare Improvement Task Force meeting.
The state child welfare system has also experienced serious incidents, placing these already
vulnerable children and youth at increased risk. In addition, the decline of publicly supported
mental health services has increased pressure on the foster care and juvenile justice services as
more severely impaired children and youth are placed in the foster care or juvenile justice
programs.
In addition, many young adult members of the Task Force indicated sufficient services are not
being provided as they age out of the child welfare system. This is a critical period of transition
that has tremendous impact on the social, educational and professional outcomes. In order for
Michigan to have an effective child welfare system, these problems must be remedied. For that
to happen, sufficient and flexible state and federal funding must be provided.
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“I had a wonderful foster care specialist, who breathed life into
me…they believed me. They didn’t see me as a stereotype.”
Birth parent
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The average length of stay for cases in the child welfare system has steadily decreased between
2004 and 2007. While this trend appears to be moving in the right direction, it only accounts for
cases that were actually closed and does not include cases that remain open in the system. In
2004, DHS investigations resulted in 6,952 new child welfare cases. Of these cases, 18 percent
were closed within the first 12 months, 61 percent were closed between 1 to 3 years and 11
percent were closed between 3 to 5 years. Another 10 percent (696) of these cases still remained
open as of April 2009. These data indicate that a large number of youth remain in the system
after several years and are not attaining permanency outcomes in a timely manner. When
looking at cohort data over time between 2004 and 2007, the problem appears to become more
apparent and compelling. As of April 2009, there are a total of 7,811 cases represented in these
four cohorts that remain open.
When looking at the profile of the 7,811 cases in the 2004-2007 cohorts that remain open,
African American youth are disproportionately represented. According to 2007 Census
estimates, African American youth between the ages of 0 and 17 represent 20 percent of the
juvenile population6 in the State of Michigan, but they represent 42 percent of the 17,226 youth
who were in the child welfare system in April 2009 and 49 percent of the cases that remain open
for at least 3 years after coming into contact with the child welfare system.
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“I always went in with that mind state that I wasn’t going to be
there very long. I think that that is why a lot of my placements went
not so good because I went in with a negative mind state.”
Young adult
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5
DHS Children’s Services Update presented by Terri Gilbert during the January 26, 2009 Child Welfare
Improvement Task Force meeting.
6
Puzzanchera, C., Sladky, A. and Kang, W. (2008). "Easy Access to Juvenile Populations: 1990-2007." Online.
Available: http://www.ojjdp.ncjrs.gov/ojstatbb/ezapop/.
There is ongoing consideration of implementing best practices around Team Decision Making
throughout Michigan, a process that actively engages families in planning for the safety and
well-being of their children and promotes family-centered services. Some jurisdictions have
instituted parent-advocacy programs to assist parents in working with the child welfare system;
model courts which expedite permanency decision-making; and local collaboratives to better
integrate services across systems. Additionally, there are programs such as the Michigan Youth
Opportunity Initiative (MYOI) that support young people who are aging out of the foster care
system.
The potential for achieving the changes identified in this report is heightened, by the recent
commitment of the state to resolve the class action litigation, Dwayne B. v. Granholm. The
consent decree requires:
Improvement in the processes for receiving and evaluating complaints of abuse including a
statewide hotline and new medical policies and staffing.
Improvement in outcomes for children through:
o Increased adoptions
o More support for children placed with relatives
o Concurrent planning
o Improved access to medical and mental heath service
o Increased recruitment of foster and adoptive families
The agreement also increases staff qualifications, training, and supervision to ensure that the
frontline staff has the knowledge and skills needed to serve children, youth and families
effectively. The state has also agreed to implement an improved management information
system, which will provide regular management reports and track compliance with policy and
the settlement order. This change agenda is complementary to the recommendations of the Task
Force.
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“I own a small business right now, and that is exactly how the system
has helped me.”
Young adult
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The Department of Human Services itself has also established some foundations for progress in
improving Michigan’s child welfare system. Previous and ongoing improvements include:
The state has recently participated in a pioneering qualitative study of racial equity issues7 and
has received a set of recommendations that have been considered in the development of this
report. A focus on racial equity will be critical to achieving the proposed systems outcomes for
this effort. Among the recommendations:
Build the internal leadership capacity to ensure that the agency functions in a fair and
equitable manner.
Use data to manage for racial equity.
Clarify policies related to kinship care and termination of parental rights.
Re-evaluate the risk assessment tool and its implementation.
Collaborate with courts to improve decision-making and establish policies for assisting
youngsters who are wards of both the child welfare and juvenile justice systems.
7
CSSP, Ibid
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“I would like to recommend that when you are considering placing
a child in a foster home and what would be the best placement,
please talk to the parent. He’s my son. I know what’s best for
him.”
Birth parent
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Provides direct IV-E funding for Native American Tribes and Tribal organizations, and in so
doing recognizes Tribal sovereignty and provides resources to help families and children.
Requires agencies to make reasonable efforts to keep siblings together and when that is not
possible assure visitation between brothers and sisters.
Gives states the option to further assist older youth aging out of foster care by extending care
to age 21 with federal participation.
Requires that youth have transition plans within 90 days of exiting care.
Makes additional federal training funds available for court and private agency staff.
Finally, adoption assistance is de-linked from pre-1994 AFDC eligibility criteria, making more
children eligible for federally matched adoption subsidies. The adoption incentive program has
been extended for five years, with additional payments for states that increase their rate of
adoption. It will be important for Michigan to examine the changes in federal policy and funding
and utilize these new provisions to advance the reform agenda. The combination of state history
of managing system improvement, the settlement agreement and the new federal law contribute
to the potential for systemic reforms.
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“I did not receive clothes for months.”
Young adult
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8
Geen, R. (2009).The Fostering Connections to Success and Increasing Adoption Act: Implementation Issue and a
Look Ahead at Additional Child Welfare Reforms: Working Paper. Child Trends: Washington D. C.
The Task Force was established to provide recommendations to the director of the Michigan
Department of Human Services about the essential outcomes necessary to determine the efficacy
of Michigan’s child welfare services in the development and transition of children at-risk of, or
receiving, child welfare services.
The scope of the Task Force included developing measurable outcomes for the full continuum of
state-supported services for children and their families. This includes community-based
services for families to protect children from abuse or neglect, temporary placements such as
shelter and detention, foster care, relative and other court-ordered home-based placements,
residential care, adoption, independent living, and youth transitional services.
Building upon the recent work of the advisory committees and task forces noted previously, the
Task Force was tasked with:
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“Technically after they close your case you have a year to get into a
housing program. Many kids do not hear about this, or there is a
waiting list. Not every youth is informed about everything.”
Young adult
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“The referee pushed my court hearings back due to lateness of
court workers.”
Young adult
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9
The reports of the Governor’s Task Force on Children’s Justice were included in the 2002-2007 Annual Reports of
the Michigan Citizen Review Panels.
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““We need to support prevention services.”
Birth parent
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The goal of each work group was to develop child welfare improvement recommendations
within its area of focus. Each group identified and prioritized major issues and recommended:
Work groups
The Task Force relied on smaller work groups to study specific areas and report their progress
during monthly Task Force meetings. To avoid working in silos, the work groups included
leaders from the area of focus as well as a cross-section of the Task Force. Task Force staff
helped identify cross-cutting themes that applied to multiple areas. The work groups are listed
below, along with the Task Force members who co-chaired the groups and a description of the
issues that were analyzed.
Copies of the reports and recommendations that were produced by each work group can be found
on the Michigan Child Welfare Improvement Task Force Website at http://michigan.gov/cwitf.
Click on the “Work Groups” link and select the report you would like to review.
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“My lawyer didn’t show and my court proceedings were postponed.”
“I had never met my lawyer before my court hearing.”
Young adult
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Communications Committee
The communications committee convened frequently as a whole and in work groups over a
seven-month period to develop strategies to publicize the Task Force’s work, communicate its
recommendations and build public will to support vulnerable children in Michigan. It worked
with DHS staff to improve the Task Force’s web site to better inform Task Force members and
the public of the Task Force’s progress. The committee solicited advice from leading
professional and academic marketing experts, who advised that the key to sustaining the Task
Force’s ambitious agenda is to educate, engage, and empower the public with a strong call to
action. The central message: Every Michigan resident has a stake in every child’s future. The
committee studied campaigns in other states and found the most effective ones combine
aggressive, limited-term public service media campaigns, a robust web site that links people to
action in their communities, and strong “earned media” efforts to tell the story. The committee
carefully examined the Casey Family Foundation’s Raise Me Up campaign, launched last year in
Austin, Texas, and believes it is a best-practices model that would be ideally suited for Michigan.
The foundation is expanding its campaign to a small number of other states in 2009, and the
committee urges DHS to aggressively pursue a partnership to begin a campaign in southeast
Michigan.
Michigan is at a crossroads and has a unique opportunity to improve the lives of thousands of
children. The recommendations of the Michigan Child Welfare Improvement Task Force provide
a road map for reform. If the recommendations are adopted, implemented and sustained, fewer
children will wind up in foster care, families will be nurtured and preserved, and youth in the
juvenile justice system will find paths to success.
The Task Force offers its recommendations against a backdrop of tough economic times and
harsh budget restraints. It believes the reforms are nonetheless vital and doable, but that they will
only come if there is a strong public will that not only supports but demands protection of
children in the child welfare system.
The key to success will be to engage, educate and empower the public about the
recommendations and the importance of investing in children in the child welfare system and
Other states are undertaking similar efforts. Illinois and Texas, for example, have effectively
used media campaigns, earned media and robust websites to build support for vulnerable
children.
Over the past several weeks, the communications committee and DHS staff met with the Casey
Family Foundation to discuss the "Raise Me Up" campaign that it launched in Austin, Texas, last
fall.
A paid media campaign to build public will and encourage people to "raise your hand" to
help. It drives people to the website, raisemeup.org
An earned media campaign engaging the newspapers and television stations and encouraging
news coverage.
An empowering website that provides information and makes it easy for the public to get
involved.
The "Raise Me Up" campaign is a best-practices campaign that would be ideally suited for
Michigan. The Task Force encourages DHS to continue to work with the Casey Family
Foundation to become a partner as the foundation expands its efforts to other states.
The Task Force has examined DHS’s own web site and recognizes that it contains a wealth of
information to educate the public about child welfare issues, but the information is not always
organized in a consumer-friendly fashion. DHS has indicated a commitment to revamping its
web site, and the Task Force strongly encourages that effort.
As the Task Force submits its report, it believes that this must only the beginning of the
conversation. The voices for children must be heard often and loudly as lawmakers and other
policy-makers make tough decisions about the future. Our children deserve no less.
The Task Force urges the department to post this report on its web site and allow and encourage
other organizations to do so as well. It believes that public forums – supported by DHS and the
organizations that Task Force members represent – can play a vital role in building and
maintaining momentum.
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“I was in foster care for three months before I knew why I was in
foster care.”
Young adult
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“That intervention saved my life.”
Birth parent
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Synthesis Committee
The Synthesis Committee included at least one representative of each work group and reflected
the diversity of the Task Force. The committee included both Task Force Co-Chairs, Task Force
members from each work group, DHS staff and contracted staff. The committee convened in
January 2009 and met five times. Members were able to participate in all meetings via
conference call as well as in person.
The committee developed the format of a draft report for consideration at the February 23 Task
Force meeting and the protocol for the committee’s assessment of work group recommendations.
The Synthesis Committee then analyzed each work group’s findings, recommendations, and
proposed outcomes to identify systemic cross-cutting outcomes and action steps for inclusion in
the draft Task Force report. The committee had the discretion to add, modify, or delete
recommendations to develop a final set of cross-cutting issues, measurable outcomes, and
concise recommendations.
Following review by the Steering Committee, the Synthesis Committee redrafted its
recommendations and forwarded a report to the Task Force for consideration at the February
2009 meeting.
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“When my social worker came to get me I didn’t know what was
going on, I was in class and they called me to the office and told me
I was leaving.”
Young adult
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Among the common challenges are: improving the outcomes for children, youth and families;
making sure there is an adequate array of services: strengthening the workforce by providing the
practical skills needed to help families; consistently seeking and using feedback from those
served; and working within a limited fiscal framework that makes major investments in out-of-
home placement and substantially smaller investments in earlier interventions. There is a general
recognition that government alone cannot provide all of the resources that families need. Efforts
are under way to build partnerships with not only the private sector but with other public
agencies (e.g. mental health, education, disabilities services) and with communities.
For children, youth, and their families, these challenges result in removals from homes when
community-based services might stabilize families. Children are kept in placements for
unnecessarily long periods of time because family problems are not adequately addressed. Too
many children and youth spend significant portions of their childhoods in care and age out
without the emotional, educational, and financial supports needed to promote their continued
development. Nationally, there continue to be large numbers of children and youth bereft of
permanent caring families. Children and youth of minority backgrounds are more likely to
experience these disadvantages, as evidenced by higher rates of entry and out-of-home
placement and lower rates of exit to permanent, safe family situations.
---------------------------------------------------------------------------------------
“The MYOI…is a program that has done so many things in my life…it
allowed me to change into the successful contributing member of
society that I’ve always wanted to be.”
Young adult
--------------------------------------------------------------------------------------
As a result of the economic downturn, funds available for human services have been cut
significantly. Michigan’s proposed Fiscal Year 2009-10 human services budget contains
significant cuts for family preservation and prevention services, including:
On top of this, families have experienced increased need due to loss of jobs and homes as well as
the effects of these stressors on family relationships. The erosion of the safety net and the loss of
jobs and benefits cause families to be more vulnerable. The percentage of children in poverty is
19.4 percent and affects an estimated 486,400 children.12 Nearly half of these children live at 50
percent of the poverty rate.13 For families receiving cash benefits from TANF, the cap for a
family of three is $459. Over half a million children receive food stamps, which provide $29 per
week for food for each individual.14 In addition to poverty, family structure influences the well-
being of children. Kids Count reports that in 2007, 32 percent of Michigan’s children were being
raised in single-parent families and 36 percent of children and youth were being raised in
families in which no parent had a full- time, year-round job. About 4 percent of Michigan
children lived with grandparents.15
In 2007, nearly 68,000 reports of maltreatment involving almost 187,000 children were
investigated.16 Some 27,000 children were found to be abused or neglected.17 The
10
Michigan Labor Market Information retrieved from www.milmi.org/?PAGEID=67&SUBID=200 .
11
http://www.michigan.gov/DELEG/0,1607,7-154--210172--,00.html
12
Children’s Defense Fund. Children in Michigan: Fact Sheet. Washington, D.C.: November 2008
13
Ibid
14
. Personal communication. Ismael Amhed. Director Department of Human Services, November 2008
15
Kids Count 2008. Annie E. Casey Foundation, Baltimore, MD. Retrieved from:
http://www.kidscount.org/datacenter/profile_results.jsp?r=24&d=1&c=9&n=1&p=5&x=116&y=9
16
Child Maltreatment 2006. U.S. Department of Heath and Human Services, Administration for Children and
Families, Administration for Children, Youth and Families, Children’s Bureau. April 2008; Michigan Child
Protective Services 2007 Trends Summary Report. Submitted to the state Legislature on February 20, 2008, by DHS
Director Ismael Ahmed.
17
Ibid. Table 3-6.
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“In the very beginning, we are judged. We are looked at as guilty.”
Birth parent
--------------------------------------------------------------------------------------
At the end of 2008, the number of children under placement orders because of child abuse and
neglect was 17,696, with 15,794 living with someone other than their parents. Thirty eight
percent of these children were with relatives. Of the non-relative placements: 6,251 were with
foster families; 1,266 were in institutions (including shelters), 43 were in jail/detention or court
treatment; and 949 were in independent living settings.22 DHS placed 2,722 children in adoptive
homes in FY 2008.23 Despite this accomplishment, there are over 6,000 children whose ties to
parents had been legally terminated, of which 4,300 had a goal of adoption. The remaining
children were described as “youth satisfied with their placement and not wishing to be adopted
or youth in other living arrangements where adoption was not appropriate.”24 External studies
have documented persistently low rates of reunification for children who are placed out of their
homes.25
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“I didn’t get to go to any of my court dates because I was younger,
but I wanted to go because I wanted to hear more about what was
going on because I still feel like I haven’t heard the whole story.”
Young adult
---------------------------------------------------------------------------------------
18
Ibid Children’s Protective Services 2007 Trends Report.
19
Ibid, Table 3-11.
20
See: Center for the Study of Social Policy (2009). Racial Equity Review: Finding from a Qualitative Analysis of
Racial Disproportionality and Disparity for African American Children and Families in Michigan’s Child Welfare
System. Washington DC.
21
Age data was missing for 12 percent of the children.
22
Foster Care Fact Sheet: December 2008 retrieved from:
www.Michigan.gov/doc/DHS-FosterCare-factsheet-131252-7pdf
23
Michigan Department of Human Services, AFCARS Adoption Reporting System, “State Ward Finalized
Adoptions by Age Group,” report run March 2009.
24
Adoption Facts, Michigan Department of Human Services Retrieved from:
http://www.michigan.gov/dhs/0,1607,7-124-5452_7116-104564--,00.html
25
Final Report; Michigan Child and Family Services Review (2002). Department of Health and Human Services,
Administration for Children and Families, Administration for Children, Youth and Families, Children’s Bureau.
Washington DC:
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“I didn’t have to go at first but later on when I was moved to
Wayne County they made us go through family therapy. I felt like it
helped. We went every week.”
Young adult
---------------------------------------------------------------------------------------
Fragmented service delivery approaches that are organized around social issues (e.g. mental
health, housing, substance abuse treatment, special education) rather than around the
individualized needs of a family.
To achieve the recommend reforms, multiple strategies must be undertaken. The Task Force has
organized its approach to change around eight key areas that will be discussed in detail below.
(See Appendix B for a detailed implementation plan for each change priority.)
---------------------------------------------------------------------------------------
“Aging out sucks.”
Young adult
---------------------------------------------------------------------------------------
---------------------------------------------------------------------------------------
“The system helped me tremendously.”
Young adult
--------------------------------------------------------------------------------------
Concise recommendations
Foster care workers and court staff shall be well informed and shall work with collaborative
agencies to develop a continuing plan of care and aftercare. It should be developed with
children, youth, and families and document the resources that are available for child welfare
services.
Develop a comprehensive array of services, accessible to children and families throughout
the state, designed to safely reduce the need for out-of-home placement and to improve
outcomes for children who must be placed outside their family homes. The full array of
services needs to be universally accessible statewide. The services included in the array must
address the needs of:
o Abused and neglected youth.
o Youth in transition.
o Youth in the criminal/juvenile justice system.
o Families in need of preventive services and/or early intervention.
o Families in need of services to promote timely reunification.
Improve educational and workforce opportunities and outcomes for children served by the
child welfare system. This should include replicating higher educational programs such as
the Seita scholarship and giving youth in the foster care system preference in AmeriCorps.
Improve support services for all youth, ages 15 to 24, who are transitioning from foster care,
from juvenile justice, and from youth homelessness (including those with, or without, a
history in child welfare or juvenile justice).
Use residential and other institutional placements only when essential to the needs of
children and youth or to public safety. When these placements are essential, the safety,
permanency, reunification and well-being outcomes for children served must be improved.
Implement the best practices and lessons learned from the Michigan Prisoner ReEntry
Initiative (MPRI) for youth to help with the reduction of recidivism.
Key actions
Conduct comprehensive child welfare needs system assessment and gap analysis that
includes consultation with all key players. Identify options and priorities for changes in the
Expected results
A full continuum of services is accessible to every Michigan community, including but not
limited to:
o Prevention services
o Home and community based family centered services.
o Behavioral, mental health and substance abuse services.
o Physical health and dental care.
o Individualized educational services.
o Workforce development and support services.
o Residential services.
o Transitional services for youth.
26
Juvenile lifers include inmates serving active life sentences for which all of their relevant life sentence crimes
were committed while they were under age 18, regardless of their current age.
Concise recommendations
Establish and use a prescribed set of validated, standardized screening and assessment tools
that are culturally normed, appropriately administered, and available across the various
stages of child welfare intervention from intake to case closure.
Key actions
DHS and the Legislature should work together to secure additional funding to either purchase
an existing, or contract for the development of a comprehensive approach to screening and
assessment. DHS will include the contractor in its partnership with other state agencies and
the Tribal-state partnership in the development effort.
Implement a minimum of five pilot comprehensive screening, assessment and case-planning
programs. Resolve obstacles encountered in the pilots, and collect process and outcome
evaluation information. Analyze process and outcome information, publish results, and use
results to make revisions to the model that improve its effectiveness. Target Wayne County
as a pilot site.
For all children taken into custody, DHS should require professionally staffed, objective
diagnostic assessment of the child, the nuclear and extended family to determine:
o The feasibility of family preservation as compared to out-of-home placement.
o The level of placement needed, including consideration of the availability of a licensable
relative placement.
o The service needs of the child and family regardless of the placement.
DHS will conduct a comprehensive assessment of the family’s current medical, emotional
and social strengths and needs.
Assessment will be mandatory for youth under juvenile court jurisdiction, using a uniform
assessment tool administered by trained staff. Target Wayne County as a pilot site.
Expected Results
Improve the precision of identifying who needs services, which services, and how much.
Increase the timely implementation of quality treatment plans by utilizing
holistic/comprehensive view of the child and family, and multiple levels of assessment.
Increase availability of research-based, outcome-driven best practices throughout the array of
services, including behavioral, physical, educational, and mental health services.
Increase utilization of existing services through assessing available services and developing a
set of tools for screening and assessment across systems.
Increase the use of prevention and diversion services.
---------------------------------------------------------------------------------------
“Me being removed from my home, I think that was a good idea
because it wasn’t a safe environment for me.”
Young adult
--------------------------------------------------------------------------------------
Concise recommendations
Request that the state address the structural deficit that contributes to cutting safety net
programs for children, youth and families; revenues continue to decrease and the need for
programs continue to increase).
That the Governor support and the Michigan Legislature amend Section 436.1409 of the
Michigan Compiled Laws to increase the excise tax on beer by five cents per 12oz can or
bottle ($16.53 per barrel). Revenues raised by this amendment will be deposited in the child
abuse/neglect prevention, family preservation and juvenile justice community treatment fund.
Annual appropriations from the fund in any fiscal year will be contingent upon an annual
legislative appropriation from state funds for child abuse/neglect prevention, family
preservation programs, 0-3 programs, and juvenile justice community treatment programs at
least equal to state general fund and TANF expenditures for these programs in fiscal year
2008-09, adjusted for inflation (amendment to Funding work group report by Task Force
action at the March 23rd meeting; reservation noted at the end of Appendix B by Justice
Maura D. Corrigan).
Improve coordination of fiscal planning and funding of services across systems for children
and families involved in the child welfare system.
That Michigan provide the required state match, starting in 2010, to draw down the funds
made available by the Fostering Connections to Success and Increasing Adoptions Act.
Institute comprehensive change in Michigan’s funding system for services that support the
safety, permanency, and well being of children and families. This change anticipates
expansion of funding, along with a reduction in the number of children placed in out-of-
home care. Funds saved as a result should be reinvested in front-end services to preserve and
support families. The new funding arrangement will provide for:
o Effective community services for prevention of abuse, neglect, delinquency, and
homeless youth.
o Effective family preservation services.
o Post-placement and post-permanency services for child abuse and juvenile justice.
o Medical, mental health, dental, and substance abuse treatment services.
o Transitional services for children and youth exiting foster care, juvenile justice, mental
health and homeless youth.
o Educational services for children during and after exiting foster care, juvenile justice,
mental health and homeless youth.
o Reinvestment of state funds freed up by the temporary federal stimulus adjustment of
FMAP into community-based prevention and early intervention for at risk families.
DHS should support the expansion of the capacity of federally recognized Tribes and Tribal
organizations to protect children by facilitating the planning and funding of services and
coordinating state and Tribal programs.
Target specific funding changes and advocacy efforts to enhance critical program needs.
Key actions
Conduct annual interagency budget hearings with DHS, the Department of Community
Health, the Department of Education, the Michigan State Housing Development Authority,
and the Department of Energy, Labor and Economic Growth, DCH and MSHDA, focusing
on child welfare services and treatments. Hearings should include Tribal representation.
Charge special child welfare advisory board recommended under Change Priority #6 with
coordination of budget, planning, and development with state government branches and
agencies.
Institute a university consortium in partnership with the special child welfare advisory board
recommended under Change Priority #6 (using the Michigan Public Health Institute model)
to provide an objective, independent clearinghouse to serve as a resource to all branches and
levels of government.
Enhance funding by maximizing federal funds and reinvesting state savings in
improved/expanded services:
o Use IV-E funds where possible to pay for placements of delinquent youth.
o The Legislature should authorize and DHS pilot an enhanced reimbursement percentage
for the In-Home Care portion of the Child Care Fund (from 50 percent to 75 percent).
o DHS should work with the Congressional Delegation to seek federal approval to utilize
medical assistance and Title IV-E funds more flexibly to pilot alternative methods for
delivering services to children and families.
o Improve process for approving out-of-state placements to ensure child benefits from the
placement.
o Revise Medicaid policy to increase availability of mental health treatment for children.
o As appropriate, use existing DHS counseling funds to draw down additional Medicaid
funds for mental health services.
o Create a reinvestment fund to carry forward savings in state and private funding
dedicated to serving children and families.
Expedite direct federal funding for Tribal organizations.
Expected results
Increased use of flexible funding so resources can follow the child throughout the continuum.
Increased collaboration around funding between state, Tribal and local partners.
Decreased funding barriers, allowing for flexible funding and leveraging of all possible
revenue sources to maximize available funds.
Increased use of data to help with decisions about how funds and resources are deployed.
Increased use of incentives through performance-based contracts that focus on family
reunification.
---------------------------------------------------------------------------------------
“Workers are not aware of the Y.I.T. funds that are available for
the youth in the system. This limits us from getting things like
money for prom and college financial assistance.”
Young adult
---------------------------------------------------------------------------------------
African American families do not receive necessary supports that could prevent or divert
their involvement with the child protective system. Once involved in DHS, African American
families often experience the services offered to them as irrelevant, difficult to access, or
inadequate to support and strengthen their families.
African American families experience child welfare systems as intrusive interventions that
do not fairly assess and appreciate their unique strengths and weaknesses and fail to
adequately explore the least restrictive placement options for children.
African American youth and families are negatively characterized or labeled by workers in
the child welfare system. Some of these labels follow them through their interactions with
various new workers and ultimately negatively affect the outcome of their cases.
Advocacy on behalf of African American families and children is insufficient in helping
them participate in, challenge, and negotiate the child protection system.
There are inadequate mechanisms for African American parents and youth to hold DHS,
providers, and advocates accountable for equitable treatment and quality services.
Racial and cultural equity will focus on the reduction of disproportionate representation in out-
of-home care and disparities in outcomes that affect families and children of color.
Concise recommendations
Provide the top leadership and managers of the organizations with the knowledge and skill
needed to address institutional policies and practices that disadvantage girls and African
American and Tribal children, youth and families.
Clarify and implement existing policies and procedures in a manner that better serves diverse
populations.
Ensure that effective public and purchased services are available to families of color and to
Tribes in their communities for prevention, early intervention as well as out-of-home
placement services.
Track and report to the public progress made reducing disproportionality and disparate
outcomes.
Key actions
Build the capacity to address disproportionality and disparate outcomes.
27
See: Center for the Study of Social Policy (2009). Racial Equity Review: Finding from a Qualitative Analysis of
Racial Disproportionality and Disparity for African American Children and Families in Michigan’s Child Welfare
System. Washington DC.
Expected Results
Reduced disproportionality and disparities in the child welfare and juvenile justices systems.
Increased access to culturally/racially responsive and appropriate services.
Increased competency of staff to practice in a manner that appropriately reduces
disproportionality.
Effective use of data to track and manage the reduction in disproportionality.
Increased presence of preventive and early-intervention services in over-represented
communities.
Establishment of community partnerships to protect and support children and families.
Decrease in the disproportionate number of female youth held in residential facilities for
status offenses.
Compliance with the Indian Child Welfare Act.
---------------------------------------------------------------------------------------
“Funding for the Michigan Youth Opportunity Initiative should not
be cut. The program has helped us so much.”
Young adult
---------------------------------------------------------------------------------------
Family and community engagement creates opportunities for consumers to provide critical
feedback to inform service planning. It engages communities in the efforts to keep children safe
and promote their well-being. Planning should elicit and acknowledge the child’s preferences,
choices and abilities, as well as identity and build upon the child’s, youth’s and family’s
strengths.
Concise recommendations
Strengthen staff intervention and response network at first point of contact with youth,
children and families in order to respond to needs and build trusting relationships.
Ensure that youth, children and families are provided with:
o Solutions to remove barriers such as:
• Opportunities to actively participate in statutory hearings.
• Timely information from workers (such as written reports) so that youth can
participate, in an informed manner, in their statutory hearings.
• A means to transportation to attend their statutory hearings.
• Appropriate attire when participating in statutory hearings.
o Opportunities to provide feedback through survey feedback.
o Adequate enforcement of legal representation.
DHS and SCAO should work together to establish training for jurists that provides an
appropriate protocol for actively engaging youth “on the record” in statutory hearings.
Once permanent placement has been established, seek to terminate court jurisdiction when
appropriate.
Recognize and prioritize the role and contributions of families as service providers.
Fund a kinship association that will serve as a critical stakeholder in the development of case
planning, program, and policy development.
Fund parent and youth partners to serve as system navigators and peer mentors.
Maximize the use of family-preservation and reunification services and wraparound funding
to reduce the number of children entering foster care and increase the timeliness of exits from
care.
Review Michigan termination-of-parental-rights policies and recommend legislative
amendments and executive actions to ensure that all appropriate actions for family
preservation or kinship placements (licensed and unlicensed) have been fully considered
before termination-of-parental-rights action is considered.
Revise foster care licensing policy to strengthen outreach to kinship caregivers and to
proactively apply federally authorized waiver of non-safety-licensing regulations.
Key actions
Establish Quality Assurance process that ensures public and private child welfare workers are
trained and prepared to engage children and families in a positive and collaborative manner.
Involve stakeholders in planning of prevention efforts and family services at the macro and
micro level.
DHS and the Department of Community Health should:
o Seek funding to support system navigators and peer mentors.
o Establish a practice that involves system navigators in case management, programming
and the court process to assist children, youth, and families as peer mentors.
Expected results
Better decision-making and therefore better outcomes for youth, children, and families.
Increased frequency with which families are used as viable service providers.
Decreased trauma experienced by children, youth, and families.
Increased use of kinship care.
---------------------------------------------------------------------------------------
“We were split up and then reunited, then separated, never
reunited.”
Young adult
---------------------------------------------------------------------------------------
The experiences of Tribal youth illustrate the systems’ discontinuity. Tribal representatives have
observed a lack of understanding about the requirements of the Indian Child Welfare Act and
failure to correctly implement provisions of the Act. Tribal representatives also note a failure to
demonstrate respect for Tribal sovereignty when planning programs and services that affect their
children and families. The lack of resources for Tribal services continues to be a challenge.
Collaborations and partnerships to promote seamless service delivery will allow for the
development of shared goals and outcomes, and collaborative strategies that reduce redundancy,
and improve access and responsiveness to clients.
Concise recommendations
As a member of the state Children’s Cabinet, the Director is in a key leadership position to
support collaboration with other state departments and agencies that are identified as having
significant roles in achieving the outcomes that are recommended in the eight change priorities.
To assure sustained system wide collaboration, integration of the work of other specialized
committees and task forces, and accountability in implementing the change priorities, we also
recommend that the Director appoint and chair a special child welfare advisory board, consisting
of key public, Tribal, private and community stakeholders, including young adults and parents,
that is charged with assisting the department implementing the strategy for reform and reporting
on its progress. The child welfare board will advise the Director, and through his/her office other
state officials on planning, funding or delivery of services to children and families involved in
the child welfare system, including:
Reviewing and acting on improvement recommendations included in statutorily required
reports related to child welfare issues.
Directing the development and enhancement of collaboration in relationship to planning,
funding and delivery of child welfare services. Specifically, the special child welfare
advisory board will:
o Establish a model for statewide and local collaboration on child welfare issues.
o Facilitate the development of evidence-based models of collaboration.
o Establish standards for coordinating case processes and case flow among state- level and
Tribal entities.
o Establish a shared strategic focus across all organizations serving families and children.
Key actions
Concurrently plan and define complementary models for collaboration and seamless service
delivery.
Pilot the implementation of the models.
Clarify policy and implementation related to risk assessment, kinship care, Indian Child
Welfare Act and termination of parental rights.
Expected results
Increased community-level coordination and integration of services, thereby eliminating silos
and duplication of efforts, while addressing the needs of youth being served by multiple
systems or providers (e.g. dual wards or dually diagnosed youth).
Increased development of collaboratives that review and approve strategies, and hold each
other accountable.
Increased draw-down of public and private funds (better use of Title IV-E funds, increased
Medicaid federal share dollars to support mental health and substance abuse services).
Increased ability of DHS to serve as an agent of systems change.
Increased consumer access to services, and improved continuity of services.
Compliance with the Indian Child Welfare Act.
---------------------------------------------------------------------------------------
“Though I was adopted and sent to Illinois, which I didn’t want,
and my adopted parent was an evil person to me, I feel that the
system saved my life.”
Young adult
---------------------------------------------------------------------------------------
Strategic use of data to manage performance and accountability will provide critical feedback by
focusing on building the Management Information System and the capacity to use the resulting
information to manage for results and increase support front-line staff.
Concise recommendations
DHS and the courts must build a Management Information System that:
o Supports decision-making at the case, program and system level.
o Allows for the tracking of progress on race equity.
o Identifies Native American youth immediately.
o Identifies services and resources by geographic area for service planning.
o Allows for the ongoing evaluation of all programs including the Reunification and the
Michigan Youth Opportunities Initiative.
o Links child welfare, juvenile justice, court, and private agency data.
o Supports the development of a public report card on agency and judicial performance,
shifts in the service delivery system, and outcomes for children and families.
o Uses validated instruments.
o Meets standards for quality and accuracy of data.
o Includes, and works in collaboration with, private sector services.
o Interfaces with other state data maintained by DHS, the Department of Education, the
courts, and other public data sources.
DHS and the Supreme Court/State Court Administrative Office must issue an annual report
card with outcomes for children and families, racial equity and progress on achieving
performance standards outlined in the Task Force report.
DHS and SCAO will work with local counties, Tribes and Tribal organizations, and
providers (with an emphasis on Wayne County due to the large number of children who
reside in that county) to establish data-sharing agreements to improve the state’s ability to
establish a statewide child welfare, juvenile justice and homeless and runaway youth
database.
DHS should take the lead and collaborate with appropriate data collection partners to
establish an integrated, state-wide child welfare, juvenile justice and homeless and runaway
youth database (SACWIS plus).
Expected Results
Increased use of data to:
o Manage the system.
o Inform public stakeholders on the state of child welfare and current efforts.
o Improve accountability and effectiveness of programs.
o Determine the long-term impact of policy and program changes.
Increased access to data at the case level to improve the quality of case practice (private
agencies currently don’t have access to data).
Increased data sharing and case planning among service providers to improve quality, create
better service outcomes and establish benchmarks and standards.
Increase collaboration between the Department of Information Technology, the State Court
Administrative Office, Tribes and Tribal organizations, courts and DHS in order to
implement critical system enhancements that will improve access to and analysis of data.
Increase the capacity to leverage funding streams.
---------------------------------------------------------------------------------------
“Foster parents have to be more understanding. Foster parents
need to be parents and not babysitters.”
Young adult
---------------------------------------------------------------------------------------
Workforce development and training must focus on ensuring that staff has the knowledge, skill
and supervision needed to work effectively with families and children consistent with the values
and desired outcomes.
Concise recommendations
DHS should implement a statewide child welfare training consortium, including agency
directors, supervisors, federally recognized Tribes and Tribal organizations, and private
agencies. This consortium will assess and address the training needs for Michigan’s child
welfare system and ensure that relative caregivers, foster families and public/private
providers are provided the necessary training to move cases to safe and timely permanency.
DHS will collaborate with the State Court Administrative Office, Michigan Supreme Court
and Legislature to ensure that judges, referees and attorneys, assigned to child welfare cases,
have the necessary training to move cases to safe and timely permanency. Comprehensive
training regarding requirements of the 1997 Adoption and Safe Families Act (ASFA) and
Indian Child Welfare Act (ICWA) should be required and provided upon appointment.
Training should be expanded for relative and fictive kin caregivers (reflecting the cultural
definition of family members; e.g. godparents or clan members).
DHS should comply with the Children’s Rights settlement provisions regarding
qualifications, training, and supervision to ensure that children and youth are provided with
high-quality case management services.
Measures of judicial performance should be established by SCAO and utilized as a tool for
training and improving outcomes for children and youth.
DHS should facilitate and participate in cross-training opportunities with the Department of
Community Health/Community Mental Health, the Department of Education and other
groups on such subjects as evidenced-based practice interventions and even sub-specialty
content for early childhood development, health care integration, parents with disabilities and
children with disabilities.
Key actions
The DHS Child Welfare Training Institute (CWTI) should establish and implement a training
and workforce development consortium to serve court and legal personnel, and public and
private service providers.
Expected results
Increased number of lawyer guardians ad litem, other attorneys, judges, relative caregivers,
and jurists who are trained on critical issues related to child welfare law and policy.
Increased quality of service and care provided by judges, relative caregivers, foster families,
jurists, public/private providers, attorneys, and lawyer guardians ad litem.
Improved outcomes for children and families in the areas of safety, timeliness of
permanency, youth rehabilitation and child and family well being.
---------------------------------------------------------------------------------------
“I was put into care at the age of 4, nobody wanted a cute little 4
year-old.”
Young adult
---------------------------------------------------------------------------------------
Strong leadership and effective ongoing management will be necessary to implement the change
strategies in a way that achieves the expected results. As a member of the state children’s
cabinet, the director of DHS is in a key position to support collaboration with other state
departments and agencies that are identified as having significant roles in achieving the
outcomes that are recommended in the eight change priorities.
Michigan’s child welfare services are complicated with many often competing demands and
expectations. The Task Force which included members from all sectors of Michigan’s child
welfare leaders, including young adults and parents, has recommended change objectives that
address the system or the “big picture" for reform. We recommend the Director of DHS assume
primary responsibility to lead the implementation strategy for these change objectives. To assure
sustained system-wide collaboration, integration of the work of other specialized committees and
task forces, and accountability in implementing the change priorities, we recommend that the
Director appoint a child welfare advisory board, consisting of key public, private and community
stakeholders, including young adults and parents, that is charged with assisting the Department
implementing the strategy for reform and reporting on its progress.
---------------------------------------------------------------------------------------
“When you age out, it seems like you lose everything. That’s how
foster kids end up on the street.”
Young adult
---------------------------------------------------------------------------------------
Review the Task Force implementation plan. The leadership group should review the
recommendations and make a commitment to use it as a document to guide change and
progress. Timelines should be established to measure the progress of reform and expected
changes in outcomes. The initial review process should allow readers to become familiar
with the:
o Change priorities.
o Concise recommendations.
o Expected results.
o Implementation plans.
Convene and facilitate a series of regional forums among key staff and stakeholders to
discuss the report and the implications for various sectors.
Post the final report on the DHS website and issue periodic reports to the public which
includes a discussion of actions taken and the outcomes for children, youth and families.
Allow Task Force members to post the report on their websites to inform the general public
of the state’s commitment to improving the system.
---------------------------------------------------------------------------------------
“I was happy that my brother and I were able to be adopted and
grow up together.”
Young adult
---------------------------------------------------------------------------------------
The proportion of children, youth and families safely served in family and community- based
settings will increase.
o More families will receive prevention and early intervention services.
o More children families and youth will receive community-based placement diversion
services.
o Communities will increase their capacity to meet the needs of families using a mix of
public, private, voluntary and sectarian resources.
Out-of-home placements will decrease by 2020.
For children and youth in need of placement the following outcomes should be expected:
o The number of children placed in licensed family foster care will increase.
o The number of placement changes will decrease.
o Re-entry rates will decline for children and youth in the child welfare system.
o The length of time in care will be reduced.
o The number and proportion of children reunited with their families and relatives will
increase.
o The number and proportion of children who are adopted or placed in legal guardianship
arrangements will increase.
o The number and proportion of children aging out of foster care will decrease.
o Inappropriate congregate-care placements will decrease.
Recurrence of maltreatment and delinquency will decrease.
An increased number and proportion of vulnerable youth transitioning (out of homelessness
and the child welfare system) to adulthood will have the educational, occupational,
emotional, and social resources needed to promote long-term well-being.
An increased proportion of services will be tailored to respond to racial, cultural and gender
and other diversities.
Racial equity for children and families will increase as it relates to:
o Substantiation of maltreatment.
o Access to community-based services.
o Placement rates and type of setting.
o Length of stay in care
o Safety and permanency (reunification, adoption and guardianship) outcomes
o Aging out
Transparency will increase as evidenced by annual reporting on the safety, permanency and
well-being outcomes of children, youth, and families.
State and federal funding for community-based services will increase.
---------------------------------------------------------------------------------------
“My family may have not been the best place to place me because
the family member that neglected me was easily able to reach me
and cause more harm.”
Young adult
---------------------------------------------------------------------------------------
*Deceased
Implementation Strategies
Commitment to complete tasks in progress - Action steps in this category are already in progress and DHS has made a commitment to accomplish
these tasks with existing resources. It will be important for the Department to oversee these initiatives to make sure that they are maintained as
priorities and that the expected outcomes are achieved within specified timeframe.
Reinvestment strategies - Action steps in this category are also supported by DHS departmental leadership, but will require a significant shift in the
way the Department currently utilizes existing staff and monetary resources. It may mean spending more time on new initiatives and focusing
energies in areas that have not been seen as priorities in the past. These action steps will require additional planning efforts to realize the expected
results within the recommended timeframe.
Reform strategies - Action steps in this category are also supported by DHS departmental leadership, but will require statutory changes and/or
additional funding to accomplish the associated outcomes. To accomplish the outcomes associated with these action steps, the Department will have
to engage in ongoing reform efforts to secure resources that are not currently available. Initiation of the reform/funding proposals should occur within
the recommended timeframes.
State partnerships - Action steps in this category are also supported by DHS departmental leadership, but cannot be accomplished without partnering
with other branches of the state government. To accomplish the outcomes associated in this area, DHS will have to establish ongoing collaborative
relationships that provide opportunities to impact statewide programming, training and policy within the recommended timeframe.
To assure both transparency and inclusion of the insights of the multiple parties engaged in child welfare policy and service delivery, it is
recommended that stakeholders with a primary interest in the recommendations included in each of the following change priorities be consulted on a
regular basis. While the grouping may vary by change priority, key stakeholders in Michigan’s child welfare system include, but are not limited to,
Tribal governments, local courts, local multipurpose collaborative bodies, Michigan Association of County Social services, Foster Care Review
Boards, local courts, state judicial associations, private children agencies, community mental and public health agencies, state and local united ways,
community foundations, MYOI, CIAO, University schools of social work, MAFAK, and kinship associations.
Concise Recommendations
1. Develop a comprehensive array of services designed to safely reduce the need for out-of-home placement and to improve outcomes for children
who must be placed outside their family homes. The full array of services needs to be universally available and accessible to children and
families throughout the state. The services included in the array must address the needs of:
a. Abused and neglected youths.
b. Youths in transition.
c. Youths in the juvenile/criminal justice system.
d. Families in need of preventive services and/or early intervention.
e. Homeless and runaway youth.
2. Improve educational and workforce opportunities and outcomes for children served by the child welfare system. This should include replicating
higher educational programs such as the Seita scholarships and giving youths in the foster care system preference in AmeriCorps.
3. Improve support services for all youth ages 15 to 24 who are transitioning from foster care, from juvenile justice, and from youth homelessness
(including those with or without a history in child welfare or juvenile justice).
4. Use residential and other institutional placements only when essential to the needs of children and youth or to public safety. When these
placements are essential, improve the safety, permanency, and well-being outcomes for those served.
5. Foster care workers and court staff shall be well informed and shall work with collaborative agencies to develop a continuing plan of care and
aftercare. It should be developed with children, youth, and families and document the resources that are available for child welfare services.
Expected Results
1. A full continuum of services is available to every Michigan community, including but not limited to:
a. Prevention services.
b. Home and community-based family-centered services.
c. Behavioral (mental health and substance abuse) services.
d. Physical health and dental care.
e. Individualized educational services.
Time Frame:
1st Quarter FY 2010: DHS initiates planning process.
Time Frame:
2nd Quarter, FY 2010: Educational issues partnership team established by
Dept Directors and led by MDE.
4th Quarter, FY 2010: Partnership team completes implementation plan for
Dept. Directors approval.
Time Frame:
3rd Quarter, FY 2010: Workforce issues partnership team established by
Dept Directors.
1st Quarter FY 2011: Partnership team completes implementation plan for
Dept. Directors approval.
Time Frame:
1st Quarter FY 2011: Implement revised policies.
Time Frame:
1st Quarter 2010: Policies issued by DHS & SCAO.
Time Frame:
1st Quarter 2010: Monitoring procedures developed.
2nd Quarter 2011: County level monitoring agreements implemented.
Time Frame:
4th Quarter FY 2009: Request recommended legislation. Ongoing
monitoring of policy
Time Frame:
4th Quarter, FY 2009
Concise Recommendations
1. Establish and use a prescribed set of validated and standardized screening and assessment tools from intake to case closure that are culturally
normed, appropriately administered, and available across the various stages of child welfare intervention.
2. For all children taken into custody, DHS will require professionally-staffed, objective diagnostic assessment of the child, the nuclear family,
and the extended family to determine:
a. The feasibility of family preservation, as compared to placement
b. The level of placement needed, including consideration of the availability of a licensable relative placement
c. The service needs of the child and family, regardless of placement
3. DHS will conduct a comprehensive assessment of the family’s current medical, emotional and social strengths and needs. Assessment will be
mandatory for youth under juvenile court jurisdiction using a uniform assessment tool administered by trained staff.
4. Implement a minimum of five pilot comprehensive screening, assessment and case-planning programs. Resolve obstacles encountered in the
pilots, and collect process and outcome evaluation information. Analyze process and outcome information, publish results, and use results to
make revisions to the model that improve its effectiveness. Target Wayne County as a pilot site.
5. Assessment will be mandatory for youth under juvenile court jurisdiction, using a uniform assessment tool administered by trained staff.
Target Wayne County as a pilot site.
Expected Results
1. Improve the precision of identifying who needs services, which services, and how much (i.e., who is at risk and what do they need).
2. Increase the timely implementation of quality treatment plans through utilizing a holistic/comprehensive view of the child and family and multiple levels of
assessment.
3. Increase availability of research-based, outcome-driven best practices throughout the array of services, including behavioral, physical, educational, and
mental health services.
4. Increase utilization of existing services by assessing available services and developing a set of tools for screening and assessment across systems.
5. Increase the use of prevention and diversion services.
Concise Recommendations
1. Improve coordination of fiscal planning and funding of services across systems for children and families involved in the child welfare system.
2. Institute comprehensive change in Michigan’s funding system for services that support the safety, permanency, and well-being of children and
families. This change anticipates expansion of funding, along with reduction in the number of children placed in out-of-home care. Funds
saved as a result should be reinvested in front-end services to preserve and support families. The new funding arrangement will provide for:
a. Effective community services for prevention of abuse, neglect, and delinquency, and homeless youth.
b. Effective family preservation services.
c. Post-placement and post-permanency services for child abuse and juvenile justice.
d. Medical, mental health, dental, and substance abuse treatment services.
e. Transitional services for children and youth exiting foster care, juvenile justice, mental health and homeless youth.
f. Educational services for children during and after exit from system.
g. Reinvestment of state funds freed up by the federal stimulus adjustment of FMAP into community-based prevention and early intervention
for at-risk families.
3. Advocate with Congress and federal agencies for expanded federal funding to increase the availability of community-based, in-home services
for children and families.
4. Expedite planning and funding for Michigan’s federally-recognized tribes to directly access and administer federal Title IV-E funds, rather than
requiring the funds to flow through a Tribal/State agreement (e.g., special child welfare advisory board, joint hearings by House and Senate
appropriations subcommittees regarding cross-departmental system issues (HS, ED, DCH, DOC, Ombudsman, etc.) affecting youth/families in
child welfare programs).
5. Target specific funding changes and advocacy efforts to enhance critical program needs.
6. That Michigan provide the required state match, starting in 2010, to draw down the funds made available by the Fostering Connections to
Success and Increasing Adoptions Act.
7. DHS should support the expansion of the capacity of federally recognized Tribes and Tribal organizations to protect children by facilitating the
planning and funding of services and coordinating state and Tribal programs.
8. Establish a State child abuse/neglect prevention, family preservation and juvenile justice community treatment fund supported by an increase in
Expected Results
1. Increase the use of flexible funding so resources can follow the child throughout the continuum.
2. Increase collaboration around funding among state, Tribal and local partners.
3. Decrease funding barriers to allow for flexible funding and to leverage all possible revenue sources to maximize available funds.
4. Increase the use of data to help with decision making regarding how funds and resources are deployed.
5. Increase the use of incentives through performance-based contracts that focus on family reunification.
6. Increase the utilization of federal resources to preserve state and local resources; can be helpful for subpopulations like
a. Dual wards
b. Foster care
7. Increase the ability of the system to meet the immediate needs of families whose children have been placed into out-of-home settings.
c. Establish a relationship with the Office of Foundation Liaison to explore DHS should initiate and provide information and
how foundations and other forms of philanthropy can assist in those assistance to a Children’s Cabinet to review
communities with a significant percentage of youth and families at risk of policies, outcomes, funding, budgeting, blended
abuse and neglect. funding, development of strategic plan. May
require additional staff resources.
Time Frame:
3rd Quarter FY 2009
Time Frame:
3rd Quarter FY2009: DHS initiate planning session with leaders of the child welfare
consortium.
4th Quarter FY 2009: DHS coordinate with the Office of Foundation Liaison to
Time Frame:
2nd Quarter FY 2009: DHS seek executive and legislative support to amend the FY
2010 budget to include this item.
Time Frame:
2nd Quarter FY 2009: DHS seek executive and legislative support to amend the FY
2010 budget to include this item.
Time Frame:
2nd Quarter FY 2009: DHS seek executive and legislative support to amend the FY
2010 budget to include this item.
e. The state Medicaid policy should be revised to ensure that all DHS
children identified as needing mental health services, through screening
and assessment using standardized validated tools, receive effective
and appropriate mental health treatment.
Time Frame:
3rd Quarter FY 2009: DHS seek executive and legislative support to amend the FY
2010 budget to include this item.
Time Frame:
3rd Quarter FY 2009: DHS seek executive and legislative support to amend the FY
2010 budget to include this item.
Time Frame:
3rd Quarter FY 2009: DHS initiates communication with MI Congressional
delegation re the implications of these changes to MI children.
Time Frame:
3rd Quarter FY 2009: DHS develop a strategy with the state – tribal partnership.
Time Frame:
3rd quarter 2009: Identify legislative sponsors to draft and introduce bill. Develop
stakeholder coalition to support legislation.
Tribal representatives have observed a lack of understanding about the requirements of the Indian Child Welfare Act and failure to correctly
implement provisions of the Act. Tribal representatives also note a failure to demonstrate respect for Tribal sovereignty when planning programs
and services that affect their children and families. The lack of resources for Tribal services continues to be a challenge.
Concise Recommendations
1. Provide the top leadership and managers of the organizations with the knowledge and skill needed to address institutional policies and practices
that disadvantage females and African American and Tribal children, youth and families.
2. Clarify and implement existing policies and procedures in a manner that better serves diverse populations.
3. Assure that effective public and purchased services are available to families of color in their communities for prevention, early intervention as
well as placement services.
4. Track and report to the public progress made reducing disproportionality and disparate outcomes.
5. Ensure compliance with the Indian Child Welfare Act.
6. Provide state financial assistance to tribes for non federal match required under Title IV-E
Time Frame:
July, 2009: Work plan will be initiated.
Time Frame:
Ongoing, see change priority # 7 action step 2.
Time Frame:
4th Quarter FY 2009: The DHS Director appoints a
departmental policy review team with representation from
SCAO and FRCB to review these policies with make a report
detailing policy revisions and implementation steps within
nine months.
Time Frame:
2nd Quarter FY 2010: Initiate inter-agency policy planning with
report to director DHS and Director SCAO by end of 4th
quarter, 2010.
Time Frame:
4th Quarter FY 2010: First DHS report.
Concise Recommendations
1. Strengthen staff intervention and response network at first point of contact with youth, children and families in order to respond to needs and
build trusting relationships.
2. Ensure that youth, children and families are provided with:
a. Solutions to remove barriers such as:
i. Opportunities to actively participate in statutory hearings.
ii. Timely information from workers (such as written reports) so that youth can participate, in an informed manner, in their statutory
hearings.
iii. A means to transportation so that they can attend their statutory hearings.
iv. Appropriate attire when participating in statutory hearings.
b. Opportunities to provide feedback through survey feedback.
c. Adequate enforcement of legal representation.
3. DHS and SCAO should work together to establish training for jurists that provides an appropriate protocol for actively engaging youth “on the
record” in statutory hearings.
4. Once permanent placement has been established, seek timely termination of court jurisdiction when appropriate.
5. Recognize and prioritize the role and contributions of families as service providers.
6. Fund a kinship association that will serve as a critical stakeholder in the development of case planning, program and policy development.
7. Fund parent and youth partners to serve as system navigators and peer mentors.
8. Maximize the use of family-preservation and reunification services and wraparound funding to reduce the number of children entering foster
care and increase the timeliness of exits from care.
9. Review Michigan termination-of-parental-rights policies and recommend legislative amendments and executive actions to ensure that all
appropriate actions for family preservation or kinship placements (licensed and unlicensed) have been fully considered before termination-of-
Expected Results
1. Facilitate better decision-making and therefore better outcomes for youth, children, and families.
2. Increase the frequency with which families are used as viable service providers.
3. Decrease trauma experienced by youth, children and families.
4. Increase the use of kinship care.
Time Frame:
4th Quarter FY 2009: DHS and SCAO review of contract
provisions and procedures. Revise PAFC & adoption
contracts. Issue field instructions.
FY 2010: Ongoing monitoring of policy and practices.
Concise Recommendations
Appoint a special child welfare advisory board that reports directly to the Director of DHS to include representation from all branches of
government and all agencies within each branch and the Tribal social service organizations having responsibility for planning, funding or delivery
of services to children and families involved in the child welfare system. Membership should include the director and a point person (responsible
for implementing decisions) within each agency to be charged with:
1. Reviewing and acting upon on improvement recommendations included in statutorily required periodic reports related to child welfare issues.
2. Directing the development and enhancement of collaboration in relationship to planning, funding and delivery of child welfare services in
Michigan. Specifically, the advisory board will:
a. Establish a model for statewide and local collaboration on child welfare issues.
b. Facilitate the development of evidence-based models of collaboration.
c. Establish standards for coordinating case processes and case flow across among state level and Tribal entities.
d. Establish a shared strategic focus across all child and family serving organizations.
Expected Results
1. Community level coordination and integration of services is increased, thereby eliminating silos and duplication of efforts and addressing the
needs of youths who are being served by multiple systems or providers (e.g. dual wards or dually diagnosed youth).
2. Increase the development of collaboratives that review & approve of strategies, and hold each other accountable.
3. Increase draw-down of public and private funds (e.g., better utilization of Title IV-E funds, increased Medicaid federal share dollars to support
mental health and substance abuse services).
4. Increase the ability of DHS to serve as an agent of systems change.
5. Service consumers experience increased accessibility to and continuity of services.
Time Frame:
FY 2011 – 12: Pilot counties
Time Frame:
FY 2012: Education session in non pilot counties.
Concise Recommendations
1. DHS and the courts must build a Management Information System that:
a. Supports decision making at the case, program and system level.
b. Allows for the tracking of progress on race equity.
c. Identifies Native American youth immediately
d. Identifies services and resources by geographic area for service planning.
e. Allows for the ongoing evaluation of all programs including the Reunification and MYOI.
f. Links child welfare, juvenile justice and court data as well as private agency data.
g. Supports the development of a public report card on agency and judicial performance, shifts in the service delivery system and outcomes for
children and families.
h. Uses validated instruments.
i. Meets standards for quality and accuracy of data.
j. Includes, and works in collaboration with, public sector services
k. Can interface with other state data maintained by DHS, Department of Education, the courts, and other public data sources.
2. DHS and the Supreme Court/SCAO must issue an annual report card with outcomes for children and families, racial equity and progress on
achieving performance standards outlined in the Task Force report.
3. DHS and SCAO will work with local counties, Tribes and Tribal organizations, and providers (with an emphasis on Wayne County due to the
large number of children who reside in that county) to establish data-sharing agreements to improve the state’s ability to establish a statewide
child welfare, juvenile justice and homeless and runaway youth database.
4. DHS should take the lead and collaborate with appropriate data collection partners to establish an integrated, state-wide child welfare, juvenile
justice and homeless and runaway youth database (SACWIS plus).
Time Frame:
The state child welfare information system (SACWIS) will be
in full compliance by FY 2012.
Concise Recommendations
1. DHS will implement a statewide child welfare training consortium, including agency directors, supervisors, federally recognized Tribes and
Tribal organizations, and private agencies. This consortium will assess and address the training needs for Michigan’s child welfare system and
ensure that relative caregivers, foster families and public/private providers are provided the necessary training to move cases to safe and timely
permanency.
2. DHS will collaborate with the State Court Administrative Office, Michigan Supreme court and Legislature to ensure that judges, referees and
attorneys, assigned to child welfare cases, have the necessary training to move cases to safe and timely permanency. Comprehensive training
regarding requirements of the 1997 Adoption and Safe Families Act (ASFA) and Indian Child Welfare Act (ICWA) should be required and
provided upon appointment.
3. Fictive Kin/Relative caregiver (reflecting the cultural definition of family members; e.g. godparents or clan members) training should be
expanded.
4. DHS should comply with the settlement provisions regarding qualifications, training and supervision to ensure that children and youth are
provided with quality case management services.
5. Judges, jurists and attorneys will be trained on ICWA
6. Attorneys who represent youths in the juvenile justice system will be trained in how to provide better legal representation to those youths.
7. Measures of judicial performance should be established by SCAO and utilized as a tool for training and improving outcomes for children and
youth.
8. DHS will facilitate and participate in cross training opportunities with MDCH/CMH, the Department of Education and other groups on such
subjects as evidence-based practice interventions and even sub-specialty content for early childhood development, health care integration,
parents with disabilities and children with disabilities.
Time Frame:
4th Quarter FY 2009: Consortium established.
1st Quarter FY 2010: Enhanced workforce development and
training program initiated.
Time Frame:
4th Quarter FY 2009: Cross training project planning initiated.
Prepared by:
Richard D. Robinson, Ph.D.
Prepared for
Ismael Ahmed, Director
Michigan Department Human Services
April 2009
Background
Michigan's child welfare system assumes the responsibility for protecting the state’s children
who are most at risk. Working with families and their communities, the Department of Human
Services investigates more than 16,000 substantiated, and more than 100,000 unsubstantiated,
child protective services cases annually. Through its various agencies, foster care and adoption
programs, as well as the juvenile justice system, DHS delivers services directly to tens of
thousands of vulnerable children each year.
The Task Force was created by DHS Director Ismael Ahmed. On April 22, 2008, Ahmed, along
with former Director C. Patrick Babcock and Carol Goss, president and CEO of the Skillman
Foundation, formally launched the Michigan Child Welfare Improvement Task Force.
The purpose of the Task Force was to assess the full continuum of state-supported services for
children and their families and to develop specific recommendations to improve the services
delivered by the child welfare system. The recommendations were to include measurable action
steps and outcomes. In the charge document (see Attachment 2) the DHS director and staff
designated the specific direction for the final work products of the Task Force. The evaluation
process was created to assist the Task Force in achieving its goals.
Evaluation objectives
The charge document delineates the fundamental principles for the construction of the evaluation
plan and objectives (see Attachment 2):
This evaluation report documents the specific processes that were chosen by the Task Force and
its work groups to accomplish their goals and objectives, and to develop their required work
products.
In consultation with the Task Force co-chairs, and with reference to the stated purpose of Task
Force in the charge document (see attachment 2), the following core objectives of the evaluation
plan were identified:
This formulation anchored the evaluation plan in the basic assumptions of the charge document,
which was essential to the development of an accurate and effective evaluation plan. The
evaluation plan identified a number of questions specifically related to the achievement of Task
Force goals and objectives, which formed the focus of the analysis, such as: Did the Task Force
members represent a diversity of background within the child welfare system, and did they
perceive that the meeting goals were being achieved; or, were work group meetings comfortably
designed and managed; and did the Task Force develop its stated work products?
Evaluation methodology
The evaluation plan incorporates both quantitative and qualitative methods. It utilizes three
specific methodologies to accomplish its objectives (see Attachment 1: Evaluation Plan and
Data Collection Matrix):
Archival analysis: The review of all documents and literature presented to, or generated by,
the Task Force and its work groups that relate to the evaluation questions.
Survey analysis: The development and use of three separate instruments to gather
information about the experience and interests of Task Force members. The three
instruments are an initial Task Force survey (see Attachment 3, copy of survey), a post-
meeting Task Force survey (see Attachment 4, copy of survey), and a post-meeting survey
for work groups (see Attachment 5, copy of survey).
Participant observation: Participant observation is a qualitative research technique that was
used throughout the Task Force, work group, and staff meetings. Participant observation
required participation in the activities under observation, informal interviews with
individuals, and direct observation to collect the necessary information. Information from a
sampling of participants was used to generalize the findings.
Do Task Force members represent a diversity of background within the child welfare
system?
Do a majority of Task Force members think that the goals are being achieved?
Did the work groups develop their requested work products?
Archival
The archival information that was reviewed represents an array of sources. It includes records
and archival documents that contain relevant information to verify the assorted evaluator
research inquires as defined in the evaluation plan, e.g. completion of tasks and work products.
Survey
The survey data collection process employed separate instruments (see above). The initial Task
Force survey was administered one time to the entire Task Force. This survey gathered specific
information about Task Force members regarding their experience with the child welfare system,
their roles, and their issue interests. For example, Question 2 of the survey requests that
Advocate 51.0%
Administrator 46.8 %
Case worker 25.5%
An analysis of the Task Force member list provided another perspective of the diversity of the
membership, based upon members’ present organization affiliation:
Advocate 10
Professional/public-private 47
Young adults 16
Parents 4
Judicial 3
Public officials 5
This initial survey verified that the Task Force represented opinions of the diverse community
served by the child welfare system (see Attachment 6, Initial Child Welfare System Survey
Summary).
The post-meeting survey for the Task Force was administered on five occasions (see Attachment
7, copy of the summary) to all members in attendance at Task Force meetings. The instrument,
which included both closed and open-ended questions, measured members’ perceptions of the
meeting process. Answers to open-ended questions yielded much detail and were especially
useful in providing comments about alterations to the process and suggestions for improving the
Task Force process. These responses provided a core of information that was shared in summary
form with the Task Force co-chairs, steering committee members, and staff.
The information gathered from this instrument enabled the leadership to make cogent decisions
regarding the necessity and form of on-going improvements to the Task Force meeting format
and function, as well as to facilitate the communication of essential information. The ability to
make mid-course adjustments enhanced the Task Force process itself and helped the Task Force
remain on track and achieve its objectives. Informally, regular Task Force members
acknowledged the effectiveness of these efforts to improve communications and meeting
protocol.
The Task Force work group post-meeting survey was administered a total of 14 times (see
Attachment 9, summary of work group meetings). This survey included both closed and open-
ended questions and was administered to members of each of the work groups at sampled
meetings. The results of these surveys show a high agreement response in both the “slightly
agree” and “strongly agree” categories.
The combined rates of approval in these categories across all seven of the work groups are:
Question 1 84.6%
Although the information gathered was not regularly shared with the work group leaders, the
results of the survey were discussed on a case-by-case basis whenever it was indicated that an
adjustment to the work group process might be productive.
Participant observation was used throughout Task Force and staff meetings and at a sampling of
work group meetings. The participatory approach was especially useful to validate information
provided by the surveys and to develop a sense of how well specific issues were being addressed
in the Task Force and work group meetings.
In Task Force meetings, only members or their alternates could vote. In work group meetings,
all members of the work group, which included Task Force members and invited individuals
with expertise, could vote. Typical meeting composition for each of the committees:
Committee of the Whole included all members of the Task Force, invited participants,
observers, support staff and consultants.
Work groups were composed of Task Force members, invited non-Task Force individuals
with related expertise, support staff, policy researchers and consultants.
Steering committee included work group chairs, Task Force co-chairs and senior staff, and
consultants.
The Youth Group committee, which represented an informal assemblage of young adults,
was designed to secure their comments on specific issues as well as to encourage their
continued involvement in the process.
To gather and communicate information from multiple sources to members; the shared
information took the form of individual and group presentations, panels and discussions of
meetings, generating thoughts and proposals.
To serve as a forum to discuss varied perspectives, concepts, ideas and approaches for the
resolution of issues.
To help build consensus around issues.
The Task Force instituted a final report decision process to ensure that consensus would be
reached on the final Task Force work products. The Task Force acted by consensus on final
policy and practice recommendations. The recommendations were developed by the work
groups and those in plenary discussions. The process assumed that a majority of Task Force
members would support the recommendations as drafted. The Task Force finalized all aspects of
the final report. Recommendations required a minimum of two-thirds’ vote of voting members
to be accepted in the final report. If a recommendation did not reach the two-thirds threshold but
was still an area of concern and under discussion, it would be considered later.
Work groups, during their deliberations, used a modified logic model to assist with the
development their specific issues, recommendations, action steps and outcomes. A basic logic
model is a general framework that can be used for describing activities and processes in an
organization. A logic model analyzes activities and processes into four categories: inputs,
activities, outputs, and outcomes. These represent the logical flow from:
As used in this context, outcomes are observable or measurable changes resulting from the
activities or processes required by the recommendations and their action steps.
The work groups often developed unique and effective approaches. For example, the work
groups first identified cross-cutting issues, e.g., issues that were present and in need of
adjustment in each of the service delivery areas under review. The work groups held 35 meetings
over a period of five months (August through December 2008), in order to fulfill their charge.
The Youth Group Committee was composed of young adults (under 22 years of age) and their
adult handlers. The comments from this committee represented a unique perspective on issues
relating to the child welfare system from within that system.
The Synthesis Committee was formed late in the process to assist in the coordination and
synthesis of information from the work groups. In addition, the committee was charged with
ensuring that the recommendations and outcomes conformed to the standards set by the Task
Force.
The deliberative process of the Task Force and work groups, as it relates to final work products,
was consistently based upon simple majority group consensus with considerable effort to include
all viable perspectives in the final resolution of the issue, i.e., recommendations and issue
priority.
The general process for the Task Force and its work groups was both direct and efficient. The
Task Force developed and disseminated information, provided direction for the other
committees, and worked toward Task Force consensus. The work groups carried out in-depth
analysis of issues and developed recommendations, including measurable action steps and
outcomes to correct the issues.
Findings
The following findings are based upon the research questions and the methodologies used. In
general, the Task Force structured and implemented processes that functioned to produce their
stated goals and required work products.
The Task Force achieved a diversity of membership representing a broad opinion base.
The Task Force structure enhanced the achievement of Task Force charge goals.
The Task Force process used mid-course adjustments to enhance its ability to meet its goals.
A majority of members considered the Task Force process useful.
The Work group structure and process were successful in enhancing the achievement of Task
Force charge goals.
The work groups used modified logic models for the development of recommendations and
outcomes.
The work group process was considered useful and productive to a large majority of
members.
The final work products of the Task Force satisfied the requirements of the charge document:
Developed recommendations that included action steps, specific outcomes, and global
systemic changes.
Developed an implementation plan, which included high-yield actions for the achievement of
the necessary outcomes.
Formative Task Force Has the Task Force • Analysis of charge Review completed • Identification of
Evaluation and Work Charge been documentation prior to Task Force Task Force Charge
Group communicated to the • Analysis of Task Force formation
processes Task Force? communications
regarding charge
• Identify supporting
resource document s
for final
recommendations
• Verify final work
products
Work Did the Work Groups • Participant Evaluation will • Development of
Groups produce their required Observation initiate upon recommendations
work work products? • Survey data completion of that support the
product • Analysis of meeting Work Groups development of
achievement archival data activities work products by
• Review Work Group the Task Force
final report‐outs that comply with
concerning issues, Charge Document
desired out comes, requirements
action steps, and
outcomes
• Identify supporting
resource document s
for final
recommendations
• Verify final work
products
Final • Summarize and Completed at final • Completed Final
Evaluation analyze final data draft of Task Report Document
Report • Draft evaluation Report
section of final report
www.michigan.gov
(To Print: use your browser's print function)
The Michigan Child Welfare Improvement Task Force (MCWITF) is established to provide
recommendations to the director of the Michigan Department of Human Services about the
essential outcomes necessary to determine the efficacy of Michigan's child welfare services in
the development and transition of children at-risk of, or receiving, child welfare services.
The scope of the Task Force will include developing measurable outcomes for the full
continuum of state-supported services for children and their families. This includes:
• Community-based and child protective services for families.
• Temporary placements such as shelter and detention.
• Foster care, relative and other court-ordered home-based placements.
• Residential care.
• Adoption.
• Independent living and youth transitional services.
Building upon the recent work of the advisory committees and Task Forces noted previously,
the MCWITF will:
• Examine the DHS Child Welfare Philosophy:
o To provide advice concerning its clarity and sufficiency for system-wide
direction.
o To develop and recommend guiding principles to determine the type and
choice of services provided to children and their families.
• Review and assess the implications of current federal and state standards in developing
state child welfare system outcomes.
• Develop and recommend clear, achievable and measurable performance and process
outcomes for the comprehensive state child welfare system and for each sub-system
(prevention, community-based family services, out-of-home family-based care,
adoption, residential care, independent living and transitional services).
• Recommend the essential high yield actions that state government should take to
address the program and process outcomes.
The MCWITF will include representation from youth, families, state legislative and executive
policy makers, child welfare and health professionals, public and private service providers and
advocates, as well as members of the other Task Forces on overrepresentation, children's
justice, youth in transition and the youth opportunities initiative.
The MCWITF will meet monthly, may appoint work groups (which may meet more than
monthly) and issue a report to the Director of the Department of Human Services in March
2009.
Question
5 Most Important Function of CWS
Ensure the physical safety
of children in foster and 37
residential care
Assure that case workers
are adequately trained and
30
have manageable
caseloads.
Assure that out-of-home
placements are nurturing 26
and stable.
Provide individualized
community based services
23
for families at risk for
abuse/neglect
Provide tailored transitional
services, such as and
education, health care,
jobs, financial services and
23
mentors, for youth who are
aging out of either the
Foster Care or Juvenile
Justice System
Provide adequate levels of
community based services
and supervision for 21
delinquent children and
youth at risk.
Foster Care and Court Ordered Placements – Joan Jackson-Johnson and Sylvia Murray
Detention, Residential Care and Treatment – Sue Hamilton-Smith and Michael Williams
• Wednesday, August 27 8:30 – 10:00 a.m. State Capitol, Room 161, Lansing
• Wednesday, September 10 12:30 – 3:00 p.m. State Capitol, Room 161, Lansing
• Thursday, September 15 10:00 – 12:00 p.m. State Capitol, Room 161, Lansing
• Thursday, October 16
• Thursday, December 12
• Thursday, December 18
Ahmed, Ismael. Director, Department of Human Services. Speech given at Michigan Child
Welfare Improvement Task Force meeting. Youthville, Detroit, MI, 17 Nov. 2008.
Annie E. Casey Foundation. 2008 Kids Count Data Book. Baltimore, MD, 2008.
Center for the Study of Social Policy. Racial Equity Review: Finding from a QualitativeAnalysis
of Racial Disproportionality and Disparity for African American Children and Families
in Michigan’s Child Welfare System. Washington DC, 2009.
Children’s Defense Fund. Children in Michigan: Fact Sheet. Washington, D.C., November 2008.
Department of Health and Human Services, Administration for Children and Families,
Administration for Children, Youth and Families, Children’s Bureau. Final Report;
Michigan Child and Family Services Review. Washington, DC, 2002.
Department of Heath and Human Services, Administration for Children and Families,
Administration for Children, Youth and Families, Children’s Bureau. Child
Maltreatment 2006. Washington, DC, 2006.
“Foster Care Fact Sheet.” Michigan Department of Human Services (December 2008).
<www.Michigan.gov/doc/DHS-FosterCare-factsheet-131252-7pdf>
Gilbert, Terri. DHS Children’s Services Update. Child Welfare Improvement Task Force
meeting (January 26, 2009).
Michigan Citizen Review Panels. Annual Report. Lansing, MI, 2002, 2003, 2004, 2005, 2006,
2007.
Michigan Department of Human Services. AFCARS Adoption Reporting System. “State Ward
Finalized Adoptions by Age Group,” report run March 2009.
“Michigan’s January Jobless Rate Up Sharply.” Department of Energy, Labor & Economic
Growth (2009). <http://www.michigan.gov/DELEG/0,1607,7-154-210172--,00.html>
Michigan Office of Juvenile Justice Services. Michigan Comprehensive Plan forJuvenile Justice
Services. Lansing, MI, 1977.
Novell, Jim and Carol Kraklan. Federal Child and Family Services Review. Child Welfare
Improvement Task Force meeting (August 18, 2008).
Simon, Sandy. “Re: Juvenile Life Sentence Data.” Statistics on Michigan inmates serving life
sentences for crimes committed while under age 18. 25 March 2009.
State Court Administrative Office. Michigan Supreme Court. Michigan Foster Care Review
Board 2007 Annual Report. Lansing, 2007
State Court Administrative Office. Michigan Supreme Court. Michigan Foster Care Review
Board 2006 Annual Report. Lansing, 2006.