This is part two of a two-part series. Read part one here.
Around four months ago, Benjamin Knuckles’ 16-year-old son tried to escape from the Dermott Juvenile Treatment Center. As punishment, he was driven up the road to the Dermott Juvenile Correctional Facility, a nearby facility for 18- to 21-year-olds, and placed alone in a single-cell unit. He remained confined there for more than 24 hours.
“It’s supposed to be a treatment center,” Knuckles said. “As far as I’m concerned, my son is not in treatment. He’s in jail. That’s the bottom line, he’s just locked up. I’m the one who turned him in to the police. I was trying to save my son. I regret it every day. Now all I’ve done is turn him into more of a criminal. He ain’t done nothing but learned to be locked up.”
The two facilities at Dermott are among eight juvenile lockup facilities overseen by the Arkansas Department of Human Services’ Division of Youth Services, all of which are intended to be rehabilitative rather than punitive. Scott Tanner, state juvenile ombudsman at the Arkansas Public Defender Commission, noted the practice in Dermott that Knuckles’ son experienced in a recent letter to DYS director Betty Guhman that expressed concern about the use and oversight of isolation at DYS facilities. Tanner described children being confined at the Correctional Facility in cells for “indeterminate periods with ill-defined supports and services.”
In one extreme case last year, a 17-year-old youth at Dermott was confined in isolation for 23-24 hours per day for a period totaling more than 90 days, according to records examined by Disability Rights Arkansas, an advocacy group that does regular observations at the juvenile lockups. More typically, youths would spend a day or a few days confined, according to DRA observers, let out only to shower and use the bathroom.
The practice of confining someone alone to a cell or room has many names — isolation, room confinement, segregation, seclusion, restrictive housing, solitary confinement — and definitions can vary. Tanner’s letter notes the definition of isolation used by a toolkit developed by the Council of Juvenile Correctional Administrators: “any time a youth is physically and/or socially isolated for punishment or administrative purposes.” Youth advocates say that the use of isolation in juvenile facilities should be strictly limited, arguing that the practice is counterproductive, disrupts education and therapy services that facilities are required to provide, and can potentially be dangerous. According to federal data, more than half of suicides in such facilities occur while youths are isolated alone in a room. “It has a detrimental effect on a youth’s treatment, education, physical health and mental health,” DRA executive director Tom Masseau said.
The two facilities at Dermott, along with five other juvenile lockup facilities, were abruptly turned over to direct state control in January after efforts by the state to contract them out to a new vendor were blocked in the legislature late last year. The governor announced in August that the state would solicit contractors and they would be placed back in private control as soon as next July.
The Arkansas Juvenile Assessment and Treatment Center, the eighth and largest facility, is currently run by a for-profit company — Tanner’s letter, as well as emails he sent throughout the summer, also raised concerns about room confinement at that facility. The communications were acquired from the Public Defender Commission by a Freedom of Information Act request; Tanner declined to comment for this story. The Arkansas Nonprofit News Network previously reported on the practice of room confinement at AJATC, which typically occurs in a building described by one youth as “like the prison.”
Since the Arkansas Nonprofit News Network first asked DYS officials about isolation in May, the division has made efforts to streamline practices and standards around room confinement at all facilities, state officials said.
“We can’t deny that things in the past have been done, behaviors and management practices that had we been more involved in the day-to-day running probably wouldn’t have continued,” said DHS spokeswoman Brandi Hinkle. “Since we have taken over seven of the facilities, it’s been very eye-opening.”
According to DRA, the practices they observed at Dermott continued after the DYS took over the facilities. But DYS officials said that the division has established clearer protocols at Dermott over the last few months in order to limit the frequency and duration of isolation. They said that while youths at Dermott may “perhaps” have been confined for days at a time without adequate services previously, that is not the current practice.
The DYS relies on American Correctional Association protocols for the facilities it oversees. ACA standards limit room confinement for juveniles to five days, stating that “the time a juvenile spends in disciplinary confinement is proportionate to the offense committed,” and establish parameters for administrative review. The DYS does not have an official policy on isolation; a policy was drafted more than two years ago, but, despite urging from youth advocates, it has never been promulgated. The lack of an official policy has caused confusion and inconsistent practices at facilities, Masseau said.
Nevertheless, that draft policy — which discourages isolation lasting longer than four hours but leaves open the possibility of confinement lasting up to five days — is used as a set of guidelines by which the DYS expects facilities to abide. Though there is still no timeline to promulgate it, on Aug. 18, Amy Webb, chief communications officer at the DHS, wrote in an email, “DYS is making the [draft policy] standard at all facilities.”
In his letter to Guhman, Tanner called for data tracking — in line with national standards for juvenile justice — to ensure best practices around the use of isolation and enable more intensive monitoring and review. The DYS does not track aggregate data on room confinement and was unable to provide information about how often the practice has been used at Dermott, but DRA observers said it has been fairly common.
The practice of moving kids who commit infractions at the Dermott Treatment Center to the correctional facility in order to confine them in single-cell units there raised an additional red flag, Masseau said: the placement of younger youths at a facility mandated by the state to house 18- to 21-year-olds. Asked whether this was a concern, Webb wrote, “Determined on a case-by-case basis.”
In some cases, a room where an older resident normally sleeps has been used as a cell to put a younger child in isolation. DRA observers have seen older youths with their bedding dragged into a common area, where they sleep for the duration of the younger child’s stay in isolation. Meanwhile, isolation has also been used for the 18- to 21-year-old youths at the correctional facility; in that case, they would typically be confined to their regularly assigned rooms.
At one DRA observation this year, several younger children were confined in isolation in rooms at the correctional facility, and the lights in these rooms were turned out in the middle of the day so that the children were confined in darkness. Staffers told DRA observers that the children were napping, but the observers could see them through the slit in the door, staring back at them in the dark, wide awake. Asked about such a practice, Webb said that while it “perhaps” happened in the past, it was not happening now. “We are not OK with that approach,” she said.
Before the DYS takeover in January, the nonprofit South Arkansas Youth Services ran the facilities at Dermott. Last year, one youth was placed into room confinement for a period totaling more than 90 days. The youth, who had a disability, did not receive educational instruction or programming, according to a letter sent by DRA in August 2016. According to logs pulled by DRA, the youth was isolated for 23-24 hours per day; some days he got recreation time out of the cell, some days he did not. In a response letter, South Arkansas Youth Services defended the practice of room confinement and disputed the accuracy of DRA’s information.
“He was identified as being violent,” said Marq Golden, the DYS assistant director for residential programs. “They made several attempts where they tried to move him back and he was still identified as violent. They provided him services [while confined at the correctional facility].”
While Masseau said that a situation involving near total isolation over three months was an outlier, DRA staffers both this year and in previous years have observed room confinement at Dermott lasting for significant periods of time. Youths put into isolation would often sleep in the cell overnight, Masseau said, sometimes for multiple nights. “We’ve seen them up there for as little as a few hours, but the usual is going to be between one night and four nights,” he said. “If it happens on a Friday, they almost always keep them over the weekend up there.” Youths given this punishment have typically been in the room the entire time, with little to no services provided, let out only to use the restroom or shower (and not necessarily let out to shower every day).
Webb said that this description of room confinement “perhaps” happened previously, but is not happening currently. The DYS has now implemented an approach, she said, in which staff members at Dermott call on-call DYS staffers at the central office to notify them of the decision to use room confinement.
“Our staff has been told not to simply say OK, but to have a more substantive discussion about this decision to ensure it is not being done out of anger or irritation and to ensure youth are confined for the shortest amount of time possible to address the issue,” Webb said.
Webb said that DYS facilities, including Dermott, should now be following the draft policy in terms of what services are provided to youths who are put in room confinement. Following ACA protocols, the draft policy states, “Residents must be afforded living conditions and privileges as the general population.” Asked specifically about what sorts of education, therapy, recreation or other services youths in room confinement receive at Dermott, the DYS did not provide any additional information.
Room confinement on site has been much rarer at facilities other than AJATC and the two at Dermott, according to DRA observers, likely because most lack highly secure single-cell rooms. However, they may use mechanical restraints in response to major infractions. According to DRA observers, at least one facility, at Lewisville, has placed shackled youths outdoors for hours at a time, regardless of weather, as punishment for severe misbehaviors. Webb said that “placing restraints on youth and placing them outdoors … is unacceptable and that was made very clear to staff back in March. That is one of the things we learned was happening once we took over the day-to-day operations, and it is not an approach or technique that we approve.” Webb added that the DYS prefers alternative de-escalation interventions rather than using mechanical restraints at all, and next month the division will commence training all staff on safer crisis intervention and behavior management techniques.
Facilities may also remove a youth from the site to be temporarily placed for a few days in one of five county-run juvenile detention centers with which the state has agreements — a practice referred to as a “timeout.” In that case, the youth could be confined to a cell at one of the JDCs, which operate under a standard that allows room confinement for up to 23 hours per day if the youth is deemed a safety or security risk. Golden said that JDCs should follow the same expectations that the DYS had for its own facilities in terms of room confinement and noted that the DYS Quality Assurance team does conduct some oversight, but added, “We have agreements with them, but we don’t necessarily tell them exactly what they have to do.”
According to Tanner’s Aug. 23 letter, there were 11 youths housed in JDCs due to behavioral timeouts. The strategy of using JDCs to separate youths who commit behavioral infractions comes with pitfalls, Tanner wrote. “Youth placed in isolation, especially in a county detention center, can be subjected to revocation of privileges such as reduced family visitation and limited access to educational programming and clinical services,” he wrote. “Youth placed in detention centers in Arkansas can also be subject or witness to pepper spray.” Youth subjected to JDC timeouts also tend to end up having longer stays at the DYS treatment centers, Tanner wrote. “All of those identified consequences are counter to the interests of the youth we serve, to the communities to which they will return, and to the taxpayers of Arkansas.”
In a 2015 report, the Council of Juvenile Correctional Administrators advised that “isolating youths … as a consequence for negative behavior undermines the rehabilitative goals of youth corrections.” In his letter, Tanner noted that the CJCA report “summarizes research demonstrating that isolation … actually has negative public safety consequences, does not reduce violence and likely increases recidivism.” In addition to better data tracking, Tanner suggested a number of strategies to reduce the use of isolation, including developing clearer policies for the use and monitoring of the practice, developing alternative behavior management options and responses, and conducting additional training and development for staff toward policies and principles regarding the use of isolation.
In the interim, Tanner wrote, “DYS must improve its monitoring and accountability when youth are removed from the general population.” He proposed that any removal for disciplinary purposes, especially from a school setting, should be approved by the DYS; that each individual case of separation from the general population should be monitored, including the reasons for the removal, its duration and what interventions were attempted; that the division needed to better assess and monitor the conditions of rooms or cells where children were confined in isolation; and that the division needed to analyze data on room confinement to identify patterns and ensure best practices.
“These practices must be governed by strong policy and effective monitoring,” Tanner wrote. “We, as a state, are failing at both.”
In an accompanying email, Tanner wrote that he hoped that “by further examination of these and other issues, DHS will be better positioned in determining what it needs to ask in its upcoming [request for proposal] process” in contracting out the seven facilities currently under direct state control.
“Broadly speaking, running the facilities has taught us an important lesson that we have taken to heart,” Webb said. “Once these go back out on contract, our monitoring needs to be more robust to ensure policies and procedures are being followed. We are committed to doing that.”
This reporting is courtesy of the Arkansas Nonprofit News Network, an independent, nonpartisan news project dedicated to producing journalism that matters to Arkansans. Find out more at arknews.org.
This is part one of a two-part series. Read part two here.
In April, a 15-year-old boy housed at the Arkansas Juvenile Assessment and Treatment Center spent the entire day alone in a small cell. Michael (the names of juveniles in this story have been changed to protect their anonymity) was put in a hold by a guard and taken out of his classroom at the facility's school. As he repeatedly said, "I am not resisting" and "no aggression" — a phrase used at AJATC to indicate compliance — Michael was brought across campus to Building 19.
Once used as a maximum-security facility to house a program for serious juvenile offenders, part of Building 19 is now used to temporarily segregate youths from the regular population at AJATC, in some cases confining them in single-cell units. Michael was immediately locked in one of these units, empty other than a metal bed with a mat on it and a wool comforter. Typically, he said, youths confined to a cell in Building 19 may only be let out to use the bathroom. This time, he was not let out at all from around noon until nighttime, when he was taken back to his regular living quarters.
"I was in my cell the whole time," he said. "I was calling the staff's name and they wouldn't let me out. I had to pee in my dinner tray after I got done eating."
Rite of Passage, the Nevada-based, for-profit company that contracts with the state to run the facility, declined to respond to specific stories like Michael's, citing privacy concerns.
AJATC, located near Alexander, houses more than 100 youths. It is the largest of eight juvenile lockup facilities in the state overseen by the Division of Youth Services, part of the Arkansas Department of Human Services. These facilities, known as treatment centers, are intended to provide therapy and rehabilitation rather than being punitive, and are required to provide education that meets state standards. AJATC has a long history of trouble, including mistreatment of children in its care. When Rite of Passage was brought in as a new contractor in 2016, it promised a fresh start, telling the Arkansas Democrat-Gazette, "We're not interested in running jailhouses. We're interested in running schoolhouses."
According to multiple youths, former staffers and others, confining a youth alone in a cell in Building 19 or in another room on campus has been regularly used at AJATC as a disciplinary response to nonviolent misbehavior in class, as well as for more serious misconduct, with the youth sometimes staying there for much of the day. If a youth is deemed to be a danger, the practice is sometimes used for a period of multiple days. According to Rite of Passage, the facility ended the practice of room confinement as a response to classroom misbehavior in June. Under current policy, the company's attorneys said, room confinement is only used for certain major infractions, for a maximum of 72 hours. They said that youths in room confinement still have access to services such as education and therapy.
In a letter in August to Division of Youth Services director Betty Guhman, Scott Tanner, the state juvenile ombudsman at the Arkansas Public Defender Commission, raised alarms about the practice and oversight of isolation in the state's juvenile lockup facilities. "These practices must be governed by strong policy and effective monitoring," Tanner wrote. "We, as a state, are failing at both." Tanner cited research that for juveniles, "isolation ... actually has negative public safety consequences, does not reduce violence and likely increases recidivism."
"It's a very risky, dangerous practice," said Jennifer Lutz, an attorney for the Center for Children's Law and Policy in Washington, D.C., and the campaign manager for Stop Solitary for Kids, a partnership between four national juvenile justice reform organizations. The research, Lutz said, shows that putting youths in such situations can cause serious psychological and emotional harm, exacerbate mental illness or post-traumatic stress responses and increase risk of self-harm. She pointed to federal data published by the U.S. Department of Justice that found that more than half of suicides in juvenile facilities occur while youths are isolated alone in a room, and more than 60 percent of youths who commit suicide in custody had a history of being subjected to the practice. There is no evidence, Lutz said, that isolation improves the safety and security of juvenile lockup institutions, and may actually increase violent behavior.
Tanner's letter follows months of communication with the DYS and Rite of Passage staff in which he expressed concerns about the use of room confinement at AJATC. In emails, Tanner described the practice as "essentially social isolation." The communications were acquired from the Public Defender Commission by a Freedom of Information Act request; Tanner declined to comment for this story.
Referencing one youth with severe behavioral problems, Tanner wrote, "Finding a way to effectively engage him is key. Keeping him locked in a room is only adding fuel to his rage." Tanner repeatedly expressed the concern that Rite of Passage's internal policies were not addressing the practices he had witnessed. "There is nothing in this policy that adequately describes what I have observed of youth being placed in a locked unit, in a single room cell behind a locked door away from the general milieu," he wrote.
An email Tanner sent in August shows that he attempted to access individual records of youths he had seen confined in Building 19 during recent visits to the facility — two of them for longer than 72 hours — to assess how Building 19 was functioning in practice, including whether youths sent there were being provided appropriate education and therapy.
Tanner found few answers, the correspondence indicates. The records were months out of date or nonexistent. (Tanner wrote that these gaps in the records "caused concern beyond my initial scope of inquiry.") There was no information about what caused youths to be sent to Building 19, the amount of time they spent in room confinement or what services were provided to them. In some cases, despite the fact that these youths were assigned disciplinary room confinement in July, the most recent incident report on file was in May; in other cases, there was no incident report at all. One appeared to have therapist progress notes before and after the period of confinement, but none during. Another, identified as a student with special education needs, only had a note indicating that the student was not present in group therapy due to being placed in Building 19.
Although Rite of Passage operates AJATC, the DYS is ultimately responsible for the youths at the facility. DYS facilities abide by a protocol in accordance with the American Correctional Association, but the division itself does not currently have an official policy on room confinement; a policy was drafted more than two years ago, but it has never been promulgated.
In his letter to Guhman, Tanner called for data tracking of room confinement — in line with national standards for juvenile justice — to ensure best practices around the use of isolation and enable more intensive monitoring and review. Currently, DYS does not track aggregate data on room confinement and was unable to provide information about how often the practice is used at AJATC or other locations. Any situation that results in room confinement should be noted narratively on an incident report sent to the DYS, but the practice itself is not tracked in the agency's data system.
"The lack of data collected by DYS has been an ongoing issue," said Tom Masseau, executive director of Disability Rights Arkansas, an advocacy group that does regular observations at the juvenile lockups.
"We are having a number of conversations about changes that should happen within the Division of Youth Services and reviewing all policies, and that may be among changes we make," said Amy Webb, chief communications officer at the Department of Human Services. "But because there is not a separate tracking report, that does not mean that we don't monitor this. All incident reports are reviewed by our staff."
Thus far in 2017, DYS staff have yet to identify a single improper use of room confinement requiring further investigation or review.
The practice of confining someone alone to a cell or room has many names — isolation, room confinement, segregation, seclusion, restrictive housing, solitary confinement — and each term can have varying definitions.
"One of the major problems with advocacy in this area is there isn't one single nationally accepted definition of solitary confinement," Lutz said. "In the juvenile justice system, that term sets off alarm bells for the folks who work in facilities and run those agencies because they're concerned that it's associated with harsher adult practices." Stop Solitary for Kids defines solitary confinement as "involuntary placement of a youth alone in a cell, room, or other area for any reason other than as a temporary response to behavior that threatens immediate physical harm."
Rite of Passage objected to terms such as "isolation," preferring the phrase "room time." The company also objected to referring to a cell in which a youth is confined alone as a "solitary" room. By email, Rite of Passage's legal counsel wrote, "solitary confinement and isolation are not practices used by RoP in its operations at AJATC. ... There are serious and negative connotations attached to both of those terms, none of which apply to RoP's treatment of the youth in its care." While youth are sometimes locked alone in a cell in Building 19, Rite of Passage noted that staffers and other youths would be present in the building. A youth confined in Building 19 would still have access to normal programing, such as education, recreation and therapy, the company said. Asked specifically what that programming would entail in the context of room confinement, Rite of Passage did not respond.
"The purpose of the removal and placement of the youth in Building 19 is not to isolate them, but to change their environment based upon clinical or behavioral program needs," Rite of Passage attorneys wrote in an email. They described Building 19 as "a dorm-like setting but with enhanced staffing."
Some youths housed at AJATC have a different view. "It's like the prison," said Jason, another 15-year-old resident. Both Jason and Michael, the teenager put in a cell in April, said they had been confined in a cell that had blood and urine clearly visible on the floor and wall.
"It's everywhere," Jason said. "It was just disgusting in there." When the boys complained, they were moved to another cell, but they said that nothing was immediately done to clean up the problem cell. Jason said that if he winds up in a cell in Building 19, he just tries to sleep. "There ain't nothing else to do," he said.
Michael said that in March, over a period of two weeks, he spent at least five hours a day confined to a cell in Building 19 as punishment for refusing to have his hair cut. He was exploring Islam and associated letting his hair grow out with his interest in the faith. On school days, he said, he would be brought to the cell after classes, from 4:30 p.m. to 9:30 p.m.; on weekends, he would be confined to the cell all day. Although Rite of Passage declined to comment on specific stories, it disputed that a youth would ever have been subjected to room confinement for refusing a haircut.
The boys said that over the past year, the most common use of room confinement came in response to classroom misbehavior (unless a more serious infraction is involved, that practice has now been discontinued after a policy change in June, according to Rite of Passage). Students who were seriously disruptive in class might be sent to an in-school suspension classroom. If they continued to misbehave in ISS, they could be sent to Building 19, where they could be confined to a cell. Rite of Passage said that aggregate data on the number of times room confinement was used in response to such scenarios was not available.
In a telephone interview in May, Michael Cantrell, executive director of the southeastern region for Rite of Passage, acknowledged this practice, which he described as a last resort, but denied that the purpose was punitive. He described it as an effort to remove kids from an audience. "I wouldn't call it punishment. That's draconian," he said. "It's a space that kids can go for an hour, two hours, chill out, relax, get themselves together and get back to class."
However, a pair of therapists who left their positions at AJATC earlier this year (before the June policy change), said that room confinement was used as a standard punishment for acting up in class, and that once a student was taken to Building 19, he would generally not return for the rest of the school day.
"They absolutely used it as a punitive measure," one therapist said. "If you piss off staff members or act a fool in school, you go to Building 19. If you get kicked out of class, out of ISS, you go directly to Building 19 and you sit in a cell all day. You don't really come out except to go to the bathroom. Then whenever school is over, group [therapy] is over, everything is done, then you go back to your cottage [the regular living quarters] and you would typically have early bedtime. They'll bring you dinner to your room but you'll stay in your room the rest of the night."
Sometimes, the former AJATC therapists said, guards would pull the bed mat out of the cell in Building 19 so that youths only have the metal frame of the cot to sit or lie on. The therapists said that, during their time working for Rite of Passage, Building 19 was overused. "If you have a kid who is being extremely aggressive and violent, then to calm down is not necessarily a bad thing," one said. "I think that is excessive when you don't allow the kid to recover, when they can't go back to school for the rest of the day. If this happens at 8 o'clock in the morning, you're SOL."
As with the statements made by the youths above, Rite of Passage, through its legal counsel, declined to respond directly to any specific allegations. "Those who work from the standpoint of misinformation, rumors and inadequate information harm the process and ability to keep all safe," the company's attorneys wrote.
Removing a youth from the classroom to confine him in Building 19 or elsewhere could create a federal legal issue under the Individuals with Disabilities Act if he has a disability, Masseau said. "If [the misbehavior] is a manifestation of disabilities, you can't just change his placement because he's acting up. You need to put in behavior supports or modify his programming in whatever way allows the child to obtain their free and appropriate public education."
"If a youth has a disability the Special Ed department will ensure his or her needs are met, and may include the use of services within Building 19," Rite of Passage attorneys stated.
Whatever name it goes by, youth advocates argue that room confinement should be strictly limited in juvenile facilities, and even short periods of confinement can be counterproductive and harmful for children. "It has a detrimental effect on a youth's treatment, education, physical health and mental health," Masseau said. "Every national standard I've read says that it should never be used as a punitive measure, that it should only be used when the kid's actively a danger to himself or others, and even then calls for frequent review. It's all geared toward minimizing the amount of time a kid is removed from the normal environment."
"It's not helping kids emerge from facilities better equipped than when they entered," Lutz said. "Unfortunately, it's been the tool that's been used for so long that staff and facilities can no longer see how ineffective it is."
Regulation on the issue of room confinement for juveniles in the state has long been murky. DHS administrative code, which has the force of law, contains more stringent limits than what has been the practice at some facilities ("it's unclear who, if anyone, actually enforces this code," Masseau said).
While the DYS has no official policy on the use of room confinement, the division did develop a policy in 2015 at the prompting of Disability Rights Arkansas. Although it was never promulgated, Marq Golden, the DYS assistant director for residential programs, said the draft policy nonetheless served as a baseline set of expectations for both outside vendors and state staff.
Golden also said that the DYS requires facilities to comply with American Correctional Association (ACA) standards. Those standards limit room confinement for juveniles to five days, stating that "the time a juvenile spends in disciplinary confinement is proportionate to the offense committed," and establish parameters for administrative review. "They have to be accredited by ACA so that kind of secures us in that aspect," Golden said. Although the contract requires it within one year of the start date, Rite of Passage, which took over in August 2016, has not yet secured ACA accreditation for its management of AJATC; it is expected to be accredited by April 2018.
The DYS draft policy notes the five-day maximum on room confinement for juveniles set by ACA standards, but states that even emergency isolations (a term that is not defined) should generally be limited to four hours. It leaves open the possibility of disciplinary room confinement, but suggests it should be brief, without specifying precisely what that means.
"Our bottom line is this: Room confinement should not be done out of anger or simple irritation," Webb said. "It should be done out of necessity."
However, Rite of Passage policy on the duration of room confinement is markedly different than the DYS' recommendation that room confinement typically shouldn't exceed four hours. The company's current policy is that room confinement will last a minimum of four hours and a maximum of 72 hours, Rite of Passage counsel said. The company could not provide any information about the average duration of such room confinements or how often they lasted more than 24 hours.
Golden said that the DYS draft policy was "written broadly to address a wide variety of scenarios, and those vendors such as RoP have to address the protocols beneath that to address those types of scenarios. When you write a policy like this, it is written more as a general guideline and then those who abide within that have to create the specific rules."
Masseau said it was necessary for the DYS to promulgate an official policy on room confinement and isolation. "The failure of the Division to do so has resulted in confusion and inconsistent practice throughout the facilities," he wrote in an email. "Staff are untrained in the appropriate response methods in the event a youth needs a time out, often triggering further incident. Without an official policy, there is no requirement that the staff and facility officials follow generally accepted guidelines to protect the health and safety of the youth. And in turn, there is no method for enforcement of or accountability for those staff who deviate from those generally accepted guidelines, because that is all that they are — guidelines."
Webb said that the DYS "recognizes that it needs to be promulgated and we are in the process of getting that going." Asked about a timeline, Golden said, "I don't know a specific timeline within a year."
National standards are generally moving away from punitive isolation practices. "In very rare situations, a juvenile may be separated from others as a temporary response to behavior that poses a serious and immediate risk of physical harm to any person," a 2016 U.S. Department of Justice report recommended. "Even in such cases, the placement should be brief, designed as a 'cool down' period, and done only in consultation with a mental health professional." The Juvenile Detention Alternatives Initiative, which is supported by the Annie E. Casey Foundation, states that even in an emergency situation, isolation should never exceed four hours; at that point, a youth should be transferred to a mental health facility or medical unit. A 2015 report developed by the Council of Juvenile Correctional Administrators (CJCA) advised that "isolating youths ... as a consequence for negative behavior undermines the rehabilitative goals of youth corrections."
Ron Angel, who served as director of the DYS from 2007 to 2013, said he should have discontinued the use of Building 19 (at that time used to house sex offenders) altogether. "I should have gone ahead and done away with that concept, because it was prison," Angel said. "You can quote me on that — if I could go back in time, I would shut that building down. Or remodel it into something that was more of a therapeutic setting." Angel said that he tried to minimize the use of room confinement as anything more than a cool-down period of less than an hour. "I don't think a prison cell is right for young kids, and I never did," he said.
Asked in May whether Rite of Passage had any internal policies or protocols governing under what circumstances room confinement is used as a response, Cantrell said, "There's not really a policy that spells that out, because every kid is so different. You start trying to put XYZ [triggers room confinement], then what happens is I have a reporter saying, 'Well, the kid didn't do XYZ.'"
Asked whether there were policies or protocols governing how long a youth would be confined in isolation, Cantrell said, "It really depends on their behaviors and when they're calm and ready to rejoin the program. ... Generally, our goal is that the kid is not there more than 24 hours. I mean, that's our goal. Has there been an instance or two where that's been longer? Yes."
When the Arkansas Nonprofit News Network reached out to Cantrell again in July, he declined to speak by telephone, and Rite of Passage's attorneys provided written responses to further questions.
It was in the intervening month that Tanner, the juvenile ombudsman, began to express concern about Building 19 and room confinement at AJATC.
Golden, the DYS official, soon arranged a meeting with Rite of Passage, on July 10. "I provided them the [draft policy] and informed them that they would have to follow that," he said. "I told them that they could not use that facility in that manner if they were using it improperly. They were in agreement."
On July 25, Tanner wrote in an email, "Rite of Passage has yet to furnish adequate policy supporting these practices ... This practice, as we discussed, exposes the state and your program to risk. ... I will continue to broad stroke this intervention as social isolation and an unacceptable practice until it is demonstrated to me to be supported by adequate policy, practice and monitoring." Golden responded to Tanner, "I am in agreement that they should be drafting an internal policy."
On Aug. 5, Rite of Passage provided Tanner with a June-dated policy on in-school interventions that contains the following language in bold text: "Being removed from school and placed in the cottage/building 19 DOES NOT warrant a student being locked in his or her room all day." However, the newer policy does not appear to otherwise provide clear parameters for the use of room confinement; Tanner later wrote that none of the policies provided address some of the practices he has observed at AJATC.
Attorneys for the company told the Arkansas Nonprofit News Network that as of June 20, Rite of Passage no longer used room confinement in response to misbehavior in class and ISS and described that practice as a holdover from G4S, the for-profit company that previously ran AJATC. Rite of Passage, which took over in August 2016, eventually determined that the practice "lacked the consistency and disciplinary value RoP sought to provide its youth." Company policy, according to Rite of Passage counsel, now dictates that room confinement at AJATC can only be used as a response in four situations: when the youth is a danger to self or others (including fights), destruction of property, committing a class A felony, or possession of harmful contraband. It could also be used if a youth requests room confinement "due to emotional stressors."
Although Rite of Passage does not keep aggregate data, it estimated that over the course of a typical month in the past year, less than 6 percent of the AJATC population — around half a dozen youths — were sent to room confinement in response to an emergency situation. The current policy described by Rite of Passage could allow for the use of room confinement in certain situations that do not involve immediate risk of harm to self or others; Rite of Passage did not provide an estimate of how often it has been used in such situations.
"We know that when young people are in isolation, there's lots of needs that aren't being met," Lutz said. "They're sent to facilities by judges to receive rehabilitation and treatment. Maybe they're there for drug and alcohol treatment, or mental health counseling. Every minute in solitary is a minute they're not getting that treatment.
“Many of these kids have serious educational deficits, and they have a constitutional right to an appropriate education. They're not getting it when they're in solitary confinement. What we often see — in a best-case scenario — assignments are slid under the door, and it's come and collected later."
Rite of Passage did not respond to specific questions about how the daily schedule or programing would operate for youths in room confinement. (For example: Would a student work on schoolwork alone in the cell, or interact with his regular teacher?) "Youth in reassessment adhere to the same daily schedule as the rest of the youth on campus," Rite of Passage counsel said. "Building 19 has a schedule that supports school, meals and programs."
It's time for facilities to develop alternative approaches to locking kids in a cell, Lutz said. "Imagine you heard about a neighbor who locked their 15-year-old with mental health issues in a small linen closet for six hours and then removed them," she said. "No. 1, would you think that would solve anything? And No. 2, that would be child abuse. Why is it any different for these kids? It's harmful, it's damaging, it's abusive, and it doesn't solve anything."
This reporting is courtesy of the Arkansas Nonprofit News Network, an independent, nonpartisan news project dedicated to producing journalism that matters to Arkansans. Find out more at arknews.org.