SAFETY AND SECURITY
This chapter examines San Angelo Independent School District's (SAISD's) safety and security operations in two sections:
- A. Discipline Management
- B. Security and Safety
A. DISCIPLINE MANAGEMENT
Safe schools foster socially acceptable behavior that promotes learning. They focus on and reward academic achievement, identify and articulate expected requirements, encourage positive social relationships and promote community involvement. Good discipline management programs set clear expectations, define penalties for misconduct and administer discipline consistently.
Chapter 37 of the Texas Education Code requires school districts to adopt a discipline plan and a student code of conduct. Specifically, the law requires a school district to set standards for acceptable student conduct and identify the reasons a student may be removed or transferred from a classroom, campus or alternative education program.
The law also requires counties with populations of more than 125,000 to create a Juvenile Justice Alternative Education Program (JJAEP) to provide an educational setting for expelled students so they can continue their education and turn their lives around.
FINDING
SAISD has several alternative campuses and programs, each created for students with different kinds of special needs:
- Preparing Area Youth for Success (PAYS) is designed to meet the needs of at-risk students who have dropped out of school or are in danger of doing so and to provide an opportunity for students to earn a high school diploma. Students must have a critical need that is not being met in a more traditional setting. Programs are individualized and self-paced as long as students make suitable progress. PAYS has been recognized nationally and on the state level for its innovative teaching strategies. PAYS' first graduate received a Presidential Award at the White House and SAISD also received a Governor's Excellence Award. Due to the district's financial crisis in 2000-01, the district has decided to relocate the PAYS program to other space that will not be as costly. Students will still be accommodated but in a school-with-in-a-school, rather than a separate "facility."
- Several programs have been established to help students who violate the district's code of conduct. Students may be assigned to On-Campus Suspension (OCS) for certain violations or to the Student Adjustment Center (SAC), located at the Carver Learning Center (CLC), for more serious offenses. The Carver Learning Center is also the location for the SAISD's Discipline Alternative Education Program (DAEP) for students who are academically behind and behaviorally challenging. Initially established in 1993 for grades 7 through 12, the elementary grades were added in 1995. In 2000-2001, the total population at the CLC varied from more than 40 at the beginning of the year to 117 on the last day of class in long-term programs and 40 to 70-plus students in the short-term SACS program.
- Alternative Classroom for Expelled Students (ACES) addresses the needs of middle school and high school students who have been expelled because they have committed unlawful acts and/or have failed to comply with the rules of traditional or other alternative campuses. Although SAISD is not required to have a Juvenile Justice Alternative Education Program (JJAEP) because the city's population is less than 125,000, the ACES program is designed to meet the needs of expelled students. The program is designed to instill self-discipline and offers intensive instruction, counseling and supervision in a military-like environment. It is a last-chance option for students who need a tightly structured learning environment.
Exhibit 12-3 presents the total enrollment in SAISD alternative education programs for the past two years.
Exhibit 12-3 Source: SAISD director of Pupil Services, May 2001.
SAISD Discipline Placements in Alternative Education Programs
1999-2000 through 2000-01
School 1999-2000 2000-01 PAYS 245 294 SAC at Carver 847 756 DAEP at Carver 184 272 ACES 28 22 Total 1304 1344 COMMENDATION
SAISD's alternative education program is comprehensive and addresses the broad range of needs of at-risk students.
FINDING
SAISD's student code of conduct is well organized, thorough and covers the district's expectations for behavior and the district's authority to impose discipline. It also describes prohibited conduct and the disciplinary consequences for anyone over age six. Procedures for appeal and due process also are included. The code is multi-layered and comprehensive, and the discipline administered depends upon the seriousness of the infraction. Students may be subject to any of the following:
- Corporal punishment;
- Detention;
- In-school suspension including On-campus Suspension (OCS) and Student Adjustment Center (SAC);
- Suspension from school, not to exceed three school days at a time;
- Removal to a Discipline Alternative Education Program (DAEP), except for children under age six;
- Extension of a DAEP removal term;
- Expulsion; and
- Placement at the Alternative Campus for Expelled Students (ACES).
In addition to being well designed, the student code of conduct uses questions to foster discussion and clearly spells out the kinds of discipline that can be imposed for each offense. Exhibit 12-4 lists the consequences of some of the misbehaviors listed in the code.
Exhibit 12-4 Source: SAISD Student Code of Conduct 2000-01.
SAISD Student Code of Conduct
2000-01
Disciplinary
ConsequencesProhibited
ConductCorporal Punishment At the discretion of the campus administrator Detention Two or more classroom rule violations Cutting class; leaving school without permission Truancy; loitering Cheating; copying another student's work Dress code violation In-School Suspension
(OCS - On-Campus)Repeated behavior warranting detention; failure to attend detention or comply with rules Use of offensive language or physical gestures Possession of tobacco products Fighting Gang-related behavior (including membership) Accessing prohibited Internet sites on a school computer Using any school supplies to threaten harm Suspension
(SAC - Student Adjustment Center)Repeated conduct warranting OCS placement; failure to attend OCS or comply with rules Threatening to harm another person Possession, use or distribution of drugs or alcohol; use of tobacco products Sexual misconduct or harassment Stealing, theft Possessing knives, razors, chains, or other objects that can be used to threaten or harm Discipline Alternative Education Program (DAEP) Conduct punishable as a felony Assault that results in bodily injury Terrorist or bomb threat First offenses (marijuana, drugs, alcohol, glue, volatile chemicals, or aerosol paint) Indecent exposure; public lewdness Robbery or extortion Graffiti Off-campus commission of Title 5 Offenses (e.g., murder, manslaughter, kidnapping, sexual assault) Alternative Classroom for
Expelled Students
(ACES)Use or possession of a prohibited weapon Aggravated sexual assault, arson, murder, kidnapping Felony-punishable use, possession or sale of prohibited substances Serious or persistent misbehavior in DAEP Commission of an unlawful act and non-compliance in traditional or alternative school settings SAISD's student code of conduct has been published in both English and Spanish, which enables parents and students to read and understand its contents. The code also includes a "definitions" section, which describes each type of violation in detail. Both parents and students must sign and return the "acknowledgement" page, indicating their responsibility for ensuring that the code is understood and followed.
COMMENDATION
SAISD provides students and parents a comprehensive, well-organized student code of conduct in both English and Spanish.
FINDING
To respond to student and parental comments that discipline is not consistently administered throughout the district, the director of Pupil Services and several school principals have developed the SAISD Student Code of Conduct Reference Chart, a matrix that is designed to visually depict the consequences of nearly 100 inappropriate behaviors. The matrix lists the consequences across the top of the chart and the violations alphabetically down the left side as shown in Exhibit 12-5. Principals have a copy of the chart in their offices and go over it with students and parents when an infraction has occurred. Each violation refers to the page number in the code of conduct where the violation and punishment are described and, in some cases, specific statutes and penal codes are also designated. All principals have been trained in using the chart.
Exhibit 12-5 Source: SAISD director of Pupil Services, April 2001. Copyrighted by SAISD.
Excerpts of Student Code of Conduct
Reference Chart
VIOLATIONS Detention OCS SAC CLC Expulsion ACES Page
#Statute Notes Arson X X 19 37.007 Penal Code 20.02 Blackmail X 15 Bus Violations X 9 Cheating X 8 Criminal mischief X 37.007 Graffiti Firearms X X 19 37.007 Indecent Exposure X X 14 37.006 Felony: Penal Code 21.08 Stealing; theft X 11 Vandalism X 11 Includes employee property To be effective, discipline must be consistently applied. Although administrators can exercise discretion to ensure consequences are appropriate to the circumstances, there should not be wide disparities between consequences for similar fact situations.
COMMENDATION
SAISD has developed a student code of conduct reference chart to help ensure discipline is administered fairly and consistently and that students and parents understand the consequences of misbehavior.
FINDING
SAISD offers several programs to help prevent disciplinary problems, including drug and gang resistance programs.
The federal Title IV Safe and Drug Free Schools and Communities Act provides state and local education agencies funds to develop educational programs to combat violence and prevent drug abuse. Daily programs at SAISD focus on prevention, intervention and rehabilitation. The act's funding pays for a substance abuse counselor as well as several educational programs designed to deter violence and drug use.
All counselors and school service workers are involved in educational programs to prevent drug abuse and violence from kindergarten through grade 12. SAISD currently drug tests 3,000 students per year, with parental permission, and counseling is provided for those who test positive.
The district also supports Positive Role Models in Drug Education (PRIDE), for students in grades six through 12. This program sponsors schoolwide events that showcase role models. Volunteer teachers serve as PRIDE sponsors, and a substance abuse counselor is involved in training peer mediators on elementary and junior high campuses.
"Practical Parent Education," which is available at the elementary school level, and "Positive Steps" for parents at Edison Junior High, are programs that help parents understand drug education, prevention and intervention. SAISD also has an active volunteer program called Volunteers in Public Schools (VIPS). A group of 26 volunteers serve as campus coordinators who encourage parents and the community to become involved in their schools. Coordinators are trained and meet monthly. They may work in the classroom or library, assist office staff, facilitate field trips, work with children, greet new families or help in other ways as needed. In 2000-01, more than 1,250 volunteers provided nearly 50,000 hours of service to the district.
Red Ribbon week is celebrated each year in October on all campuses. Several organizations sponsor activities, guest speakers and a districtwide PRIDE rally during the week in support of safe and drug free schools. As appropriate, teachers also work substance abuse prevention into their curricula during the week. Wednesday is "red day," and students across the district wear red in addition to special wristbands declaring themselves drug-free. On Friday, students have an opportunity to listen to a motivational speaker, whose presentation is co-sponsored by a local hospital.
SAISD fifth graders also participate in the Drug Abuse and Resistance Education Program (DARE) in partnership with area law enforcement. The curriculum, presented by two San Angelo police officers and one Department of Public Safety officer, is a full semester in length. The Drug Abuse and Violence Education (DAVE) of Texas curriculum has been implemented districtwide in elementary through high school.
All programs are evaluated regularly, and information is shared with key personnel who monitor incident data. In addition, in the spring, 2001, the districtsurveyed students in grades four through 12 on substance abuse and violence, using the Texas Schools Survey offered through Texas A & M University. Results, which should be available in August, will be used to help evaluate program effectiveness.
COMMENDATION
SAISD targets problem discipline areas with innovative prevention, intervention and communications programs.
FINDING
In spite of SAISD's efforts to combat violence, substance abuse and misbehavior, reports show that certain kinds of incidents are increasing, particularly those related to substance abuse, gang violence, student assaults, vandalism and weapons possession. Unfortunately, this increase is not uncommon in Texas. According to the Texas Education Agency (TEA) and the Texas School Safety Center, there have been alarming increases in these kinds of violations statewide.
Exhibit 12-6 lists the types and number of incidents reported by SAISD to TEA for a three-year period from 1996 through 1999. Review of the data reveals that the number of out-of-school suspensions appears to have increased seven-fold in one year, and that the number of students referred for disciplinary action related to substance abuse and assaults against students has doubled. Reports also appear to show that incidents of violence increased over a three-year period, and that vandalism rose dramatically in 1998-99 over the previous year.
Exhibit 12-6 Source: TEA, 1996-97 through 1998-99, Student Support Programs.
SAISD Incidents of Violence or Drug Activity
Type of Incident 1996-97 1997-98 1998-99 Students referred for disciplinary action related to possession, sale or use of tobacco, alcohol or other drugs 83 102 200 Student arrests for offenses related to possession, sale or use of tobacco, alcohol, or other drugs 0 197 133 Incidents of school-related gang violence 11 20 36 Students placed in alternative education due to possession, sale or use of tobacco, alcohol or other drugs 83 4 3 Other students placed in AEP (other than above) 513 78 186 Out-of-school suspensions related to possession, sale or use of tobacco, alcohol or other drugs 10 3 21 Other out-of-school suspensions (excluding line 6 above) 101 95 738 Expulsions related to possession, sale or use of tobacco, alcohol or other drugs (excluding those in an alternative to expulsion) 0 0 0 Other expulsions 19 33 17 Assaults against students 67 77 149 Assaults against teacher/staff 0 15 4 Acts of vandalism/criminal mischief against school property 47 100 72 Acts of vandalism/criminal mischief against student property 94 5 79 Acts of vandalism/criminal mischief against teacher/staff property 0 2 0 Number of firearms confiscated 1 2 0 Number of other weapons confiscated 28 33 43 Total Number of Incidents 1,057 766 1,681 SAISD officials said several factors explain the apparent dramatic increases:
- As recording procedures have been refined, more incident data are captured and reported;
- As staff and students have become more aware of potential safety and security dangers, they more readily report incidents, which has resulted in more disciplinary actions; and
- Increased incidents are, unfortunately, a sign of the times, in spite of substance abuse and anti-violence programs. Reversing this trend will take collaboration among agencies and more general acceptance of zero tolerance policies.
Principals receive data reports every six weeks and forward them to the director of Pupil Services. Reports are checked for critical needs and trends, and information is used to revise practices as appropriate. However, the incidents continue to grow in number, indicating a more pervasive problem that needs aggressive action.
Recommendation 110:
Establish a discipline management committee to review incident data routinely and develop a strategic plan to combat escalating occurrences.
Although SAISD officials have explained why incident data appear to be increasing in key areas, data are still erratic. Principals, key counselors and others concerned with discipline management should work together to combat the problem, reviewing incident data regularly, sharing ideas about influences and practices that could make a difference and developing a long-range plan to reduce the number of occurrences.
IMPLEMENTATION STRATEGIES AND TIMELINE
1. The superintendent appoints a discipline management committee, which is chaired by the director of Pupil Services and includes several principals, counselors, service workers, the truant officer, a member of law enforcement, a health official and parents. September 2001 2. The committee begins meeting each month to review incident data, assess trends and brainstorm solutions. October - December 2001 3. The committee develops a strategic plan to reduce the number of incidents, complete with goals, objectives, activities, assignments and costs. January 2002 4. The committee shares the plan with the superintendent, who makes recommendations for revision. February 2002 5. The plan is revised, and the superintendent, along with committee members, discusses it with staff. March 2002 6. Portions of the plan are implemented as appropriate and affordable. April 2002 - Ongoing 7. Committee members evaluate the discipline management plan at least twice a year, reviewing it in light of changing data. Ongoing 8. Committee members continue to meet every six weeks when incident data are available to assess if the plan is making a difference and to make adjustments when needed. Ongoing FISCAL IMPACT
This recommendation can be implemented with existing resources.