Abuse and Neglect — A Glance into New York’s Child Welfare System
By Alexis Gooding
Introduction
Children are, arguably, the most vulnerable demographic. They are nurtured by medical professionals, family members, and friends from the time they are in a woman’s womb. Throughout their development, their innocence is protected by loved ones and childcare professionals. Rights over a child typically lie with their parent(s) or guardian(s); however, the rise in child abuse and neglect cases, often caused by underlying socio-economic issues within the family, has led to increased intervention by government agencies and human service professionals on behalf of the child.
The New York State Office of Children and Family Services (NYSOCFS) Child Protective Services Department (CPS) operates to ensure that children are not subject to abuse and maltreatment in their homes. Under the state’s authority, each county in New York has its child administration that governs child protective services in their respective jurisdictions (New York Assembly, 2001). Both agencies adhere to legal statutes and guidelines executed by New York state legislators and the federal Administration for Children and Families (ACF). These agencies work cooperatively with state and local human service organizations to provide social welfare services, family intervention strategies, and other types of need-based assistance employing interagency collaboration and multidisciplinary approaches.
Child abuse and neglect each have straightforward definitions and criteria; however, the lines are often blurred when determining what constitutes abuse or neglect across different cultures with distinct values. Therefore, the principles set forth by government agencies were established to guide families, professionals, and even children through the child welfare system by distinguishing what permissible behavior is and how various actors address impermissible behavior from the beginning of a CPS case through the end.
Overview: Child Abuse and Neglect
Child abuse occurs when a parent or legal guardian imposes “serious physical injury, creates a substantial risk of serious physical injury, or commits an act of sexual abuse against the child.” Neglect, often used interchangeably with maltreatment, occurs when a parent or guardian “harms a child, or places a child in imminent danger of harm by failing to exercise the minimum degree of care in providing the child with food, clothing, shelter, education, or medical care” (NYSOCFS). Abuse can take multiple forms — emotional, psychical, and sexual. Emotional abuse entails damaging a child’s emotional stability through verbal assaults, belittling, and isolating; physical abuse involves physical injury or risk of harm to the child; sexual abuse involves any sexual activity including fondling, oral and genital intercourse, and pornography. (Mayo Clinic Child and Family Advocacy Center). Child abuse is known to cause adverse long-term effects. Children are often damaged psychologically, thus, causing issues with both romantic and platonic relationships in adulthood. Many of them go on to live in fear of abuse, and some of them become more likely to grow into abusers themselves; therefore, causing an unfortunate cycle.
On the other hand, neglect or maltreatment is sometimes challenging to diagnose because the standard of “minimum care” varies. For example, minimum care to one parent may be ensuring that a child has five school uniform shirts for every weekday, while minimum care to another parent may be ensuring that a child has three school uniform shirts in which two can be repeated for the remaining weekdays. Nonetheless, it is agreed that adequate housing and food, access to education, adult supervision, and proper medical care are essential to caring for children (Mayo Clinic Child and Family Advocacy Center). In addition, poor housing could include gas leakage, broken windows, and exposure to mold or lead, all of which can put a child in harm’s way. However, some complex cases where a parent or guardian may not be aware of housing impairments such as mold or lead. Consequently, it may be difficult to impose liability of neglect. A child should also be fed multiple times a day to prevent malnourishment and ensure that they receive the necessary nutrients to aid their development.
Depriving a child of access to education is a serious form of neglect in that it sets a child back intellectually and it defies’ s the New York Compulsory Education Law, which deems education as a fundamental right; thus, requiring children between the age of six and sixteen to attend a school or have some equivalent instruction (Find Law). Lack of adult supervision is deemed neglectful because children are known to be exploratory in nature due to the inability to fully comprehend the dangers of some activities or behaviors. Lastly, medical neglect is another critical issue because children need access to preventative care and responsive treatment when they are ill. However, the increase in medical expenses and various eligibility restrictions often causes discrepancies for many families.
While many children hide their scars, mask their feelings, and some of them are not cognitive that they are being abused, there are common indicators associated with different types of abuse and neglect that will signify a red flag. Emotional abuse carries indicators including social withdrawal, low self-esteem, and desperation for affection (Mayo Clinic Child and Family Advocacy Center). Children who are emotionally abused isolate themselves and begin to show feelings of emptiness and self-doubt. Physical abuse carries signs including bruises or bodily injuries and subtle indicators including aggressive or disruptive behavior; sexual abuse has indicators including genital injuries, the display of sexually transmitted infection symptoms, and sexual expression toward other students (NYSOCFS). In some cases, parents send these children to school with extra clothing to hide the injuries, and some parents do not send their children to school until the injuries subside. Therefore, the compulsory education law also ensures that children are not missing too many days of school for reasons including hiding abuse.
While abuse is often straightforward, neglect and maltreatment have a variety of grey areas. Signs of neglect and maltreatment can also vary in terms of identifiability. Indicators of neglect include stealing or begging for food, malnourishment, poor hygiene, dirty clothes, frequent absences from school, and untreated illness (NYSOCFS). One prevalent argument against many of these indicators is that a parent or guardian may love their children and have no intentions of engaging in these forms of neglect, but their financial circumstances may be hindering how much they can do for their child. For instance, a single mother may have lost her food stamps because she missed a recertification meeting with her caseworker due to being called into work. Therefore, she may have difficulty supplying food for her child for a specified time until she can get a day off work to see her caseworker.
Legal Principles
Child abuse and neglect issues are overseen by several government entities, including local/jurisdictional, state, and federal child protective service agencies. Each agency has provisions to establish its role, set standards for relevant parties involved, and govern the procedures of abuse and neglect cases from beginning to end. The Child Protective Services Act of 1973 set numerous unprecedented standards of child protection in New York State. It authorized the establishment of CPS agencies in every county, it sanctioned the New York State Office of Children and Family Services to maintain a Statewide Central Register of Child Abuse and Maltreatment, and it set forth a set of professionals who were deemed “mandated reporters” of child abuse and neglect (NYSOCFS).
Decentralized child protective agencies increase access to services, minimize jurisdictional issues with law enforcement, and allow faster report handling. There are over forty local CPS agencies, including The New York City Administration for Child Services (ACS), which oversees CPS for the five boroughs, and the multitude of other local agencies, including but not limited to Suffolk County Department of Social Services, Westchester County Department of Social Services and Ulster County Department of Social Services (New York Assembly, 2001). The Statewide Central Register entails a 24-hour hotline for people to conveniently make reports and a registry of those found guilty of child abuse or neglect (NYSOCFS). The registry acts as a background check and serves as a safety precaution if abusers seek to adopt children, become foster care providers, or enter the child education system. In some cases, individuals remain on the registry only for a specified amount of time to grant parents or guardians a second chance, and in other mild cases, they aren’t reported to the registry at all (NCSL, 2019).
While all people are encouraged to report child abuse and neglect, as it is often perceived as a matter of morality, various professionals are designated “mandated reporters” who could be penalized if they do not report their findings. These professionals include but are not limited to doctors (of all fields, such as dentists, medical, and psych), teachers, district attorneys, nurses, and police. These professionals often interact with children and families, and they are held to high ethical standards. Child abuse and neglect are not always easy to confirm but underreporting due to a lack of 100% certainty is discouraged to avoid missing out on life-threatening cases. Inevitably, some reports may be inaccurate or misinformed; hence, individuals (both mandated and unmandated) are immune from civil and criminal liability unless they knowingly file a false report (New York Assembly, 2001). Therefore, New York State only requires “reasonable suspicion” when reporting, and mandated professionals who fail to report are subject to a class A misdemeanor (New York Assembly, 2001).
If a report is investigated and found to be accurate, family court usually mediates the investigation. The New York State Family Court was established by the New York Family Court Act, which gives the court jurisdiction over abuse and neglect proceedings. Their powers include termination of parental rights, determinations of custody, guardianship proceedings, and sharing jurisdiction with the New York State Criminal Court over offenses committed against children liable for criminal prosecution (Find Law). Some abuse and neglect cases do not end with the child’s removal from the home; these cases are milder than others. The court can authorize in-home services through public or private social service organizations (ACS). These services come in the form of parent support and family intervention strategies.
Per the sixth amendment of the United States Constitution, individuals have a right to counsel. Though it is often perceived as a right only guaranteed in criminal proceedings, it applies to civil matters, including child abuse and neglect. Parents and guardians are afforded attorneys in these proceedings, and children are given “law guardians” (New York Assembly, 2001). The assignment of a separate legal appointee for the child reduces a conflict of interest, enabling them to speak more freely about their experiences.
Though the child’s best interest is the court’s priority, parents and guardians do retain some rights throughout the legal process. During an investigation, a parent does not have to speak to a caseworker who visits the home to collect preliminary information, nor do they have to let them into the home without a court order (like a search warrant). (New York Assembly, 2001). However, the investigator is authorized to get a court order for both a parent’s statement and a child’s statement. If the investigator finds a case of abuse or neglect, they can recommend that authorities remove the child from the home (New York Assembly, 2001). If a child is ordered to be removed from the home by the court, the child will be taken into the CPS agency’s custody. At that point, the parent or guardian must be notified in writing of who is removing the child and who is assuming temporary custody (New York Assembly, 2001).
The parent’s rights are upheld throughout the investigation; however, the child’s safety takes priority. In some instances, during the preliminary stages of an investigation, a caseworker will ask to speak to the parents and the child without the court order under the threat that they can obtain an order either way; therefore, it is advised by professionals that parents cooperate if there is not anything to hide (Rise Parent Leaders, 2017). Investigators employ these strategies to respond quickly to reports and prevent a potentially bad circumstance from turning worst. Some children end up with permanent damages, and others lose their lives when their cases go unreported, unnoticed, or improperly addressed by the child welfare system.
At the federal level, child welfare is overseen by the Administration for Children and Families (ACF), the Children’s Bureau, and the Federal Interagency Work Group on Child Abuse and Neglect; this network operates under the United States Department of Health and Human Services (Child Welfare Information Gateway). Federal legislation to address child abuse and neglect issues is the Child Abuse Prevention and Treatment Act of 1974 (CAPTA). CAPTA authorizes the distribution of federal funds to states, nonprofits, and tribal organizations to prevent, investigate, prosecute, and treat child abuse and neglect cases (Child Welfare Information Gateway). It requires states to train child protective service workers how to assess and investigate abuse and neglect cases, have plans in place for infants born with substance withdrawal symptoms, and authorize federal funding for states to outsource services to other relevant agencies (Child Welfare Information Gateway). Federal funds play a crucial role in administering child protective services. As with many federal statutes, most CAPTA sets guidelines for state CPS agencies and details how the national child welfare agencies play a role in executing child abuse and neglect provisions. However, the federal government gives a great deal of authority to the states regarding child abuse and neglect, and the states pass this authority to local agencies because of local and county jurisdictional proximity to citizens.
Cultural Values
What constitutes abuse and neglect vary across different cultures. Immigrants often face obstacles when transitioning into the United States and becoming accustomed to the values of American society. Their countries of origin have distinct traditions and ways of life, leading to how they discipline their children. In many Caribbean countries, children are handled physically (Fontes, 2005). Many of them are beaten by their parents, relatives, and even teachers. Consequently, they are left with injuries and bruises, but it is a common belief among these individuals that physical discipline is the most effective. Therefore, when they practice these values in the United States, they do not see any wrongdoings in their methods. In many African countries, young girls have their clitorises removed to prevent promiscuity and dominance when they reach a certain age (Fontes, 2005). Though Americans would argue that this is a form of sexual abuse due to their tampering with the genitalia of a minor, it is not perceived as a form of sexual abuse in these countries because it is tradition.
In addition, many Asian countries practice herbalism, and they develop their remedies for various illnesses (Fontes, 2005). Hence, they do not engage in “mainstream medical care.” In America, annual and bi-annual preventative care doctor visits are advised, and prescription medicine is often sought to be an “effective” solution to most illnesses. Thus, the issue of medical neglect comes into play for some Asian families. Abuse and neglect cases involving families of different cultures require a unique approach, as it is vital to consider these cultural variations.
Cultural factors also cause discrepancies in reporting abuse and neglect. The “norm” to one individual may not be normal to the next. For example, a teacher of Caribbean descent may be less inclined to report symptoms of physical abuse because of their cultural values. CPS workers of Caribbean descent may be more lenient during these types of investigations. Therefore, (Fontes, 2005) urges professionals to be aware of their own biases to be more effective reporters. On the contrary, some individuals may be more inclined to report because of their biases. Minorities and immigrant families are more susceptible to CPS cases due to their disproportionate representation among the low socio-economic population (Fontes, 2005). Therefore, professionals may file more reports against these groups due to prejudice and stereotypical beliefs. Cultural competency training is emphasized in the social services sector to combat these reporting issues.
Professional Cooperation
To maximize the effectiveness of child protection laws and aid children who are victims of abuse or neglect, CPS agencies need to work cooperatively with human service professionals. In cases where children are removed from the home and in cases where they remain in the home under court supervision, families receive services to remedy their issues. Human service workers are trained as generalists to be equipped for families’ various issues (Harris, Maloney, & Rother, 2004). They must be knowledgeable of a range of services that can aid their clients, including job training, childcare, public assistance, and substance abuse services. Job training can improve underlying financial issues which may be leading to neglect; childcare can afford parents or guardians the time to find stable jobs without worrying about supervision for their children; public assistance such as food stamps and cash assistance can also improve financial issues; substance abuse counseling can help parents who suffer from alcoholism and drug addiction, which can increase the likelihood of child abuse and maltreatment in the home. These services are often combined as treatments for families who are dysfunctional and in jeopardy of losing, or may have lost, custody of their children.
Sociologists and psychologists are also deemed human service workers. Human service is a broad field that encompasses a variety of occupations, all of which “serve” the needs of humans. The distinction between these professions regarding child abuse and neglect rests in addressing these issues. Sociologists primarily approach child abuse and neglect by conducting social research and developing theoretical methods. For example, they study the family as a social institution. Social institutions comprise three criteria: there are shared ideas, standard practices, and arrangements outside the control of the institution (Loseke, 2005). A shared idea can be as simple as the parents are the leaders of the household; practices can include economic dependence of the children on their parents, and arrangements outside of the family’s control include laws such as those imposed by CPS (Loseke, 2005). When the family, as a social institution, engages in neglect and child abuse issues, their ideas and practices become flawed. Therefore, they are then governed by legal arrangements made to enforce corrections within the institution.
Psychologists and mental health professionals approach child abuse and neglect through family counseling services and evaluations. Child abuse intervention and neglect treatment are subspecialties for these professionals (Peterson & Urquiza, 1993). They offer abuse-focused therapy, which explores the relationship between the abuse and subsequent behavior of the child and their psychological functioning (Peterson & Urquiza, 1993). Some of these professionals specialize in treating adults, while others specialize in treating children. On the adult end of the treatment spectrum, mental health professionals help parents with problem-solving skills, provide cognitive and behavioral counseling, and help parents identify why they are at risk of abusing or neglecting their children (Peterson & Urquiza, 1993). Often, parents are unaware of threats, including substance abuse and financial hardships. Substances cause mental impairments and sometimes invoke angry or emotional outbreaks, leading parents to make poor decisions such as physical or emotional abuse of a child.
On the other hand, those specializing in treating children provide therapeutic intervention, which involves preventing the harmful effects of abuse and maltreatment (Peterson & Urquiza, 1993). Children can become depressed, fall into isolation and even begin practicing abusive or neglectful behavior themselves. Therefore, professionals aim to prevent or remedy these effects to help the child lead a healthy life going forward.
An Example of Abuse: Parental Alienation Syndrome
Parental Alienation Syndrome (PAS) is a seldom discussed and informally recognized type of child abuse. PAS occurs when a parent seeks revenge upon the other by manipulating and exploiting the child to turn against the other parent, often seen during hostile divorces or separations. The American Bar Association found that PAS abuse “occurred to at least some extent in nearly 60% of divorces” (Zwolinski, 2011). Inevitably, one parent must assume the primary care of the child after the parents decide to separate. This parent usually spends more time with the child taking responsibility for their daily needs.
The abusive parent is referred to as the alienating parent, and the “maligned parent” is called the target parent (Zwolinski, 2011). The alienating parent often deceives the child and influences their perception of the target parent. This form of abuse can range from telling the child the other parent left them because the do not love them to encouraging the child to exhibit abusive behavior to the target parent. In this case, a child might hit or curse at the target parent, and they can even go as far as to stop speaking to them for the sake of loyalty to the alienating parent. After witnessing a divorce, children are faced with various emotions and tasks associated with readjusting to a single-parent home. PAS adds more fuel to the fire. In some cases, children do not speak to the target parent until they become adults themselves (Zwolinski, 2011). They may carry grudges and family dysfunction into their adult lives, impacting their relationships and influencing their decisions in the families they create.
PAS must become officially recognized so that professionals can diagnose this type of abuse and develop approaches to preventing it and solving it. While New York acknowledges the issue in some custody battles, a codified law is necessary to act as a deterrent, consider punitive consequences depending on the severity of the case, and encourage research development.
Discrepancies in the System Due to COVID-19
The global COVID-19 pandemic ignited an influx of unprecedented socio-economic issues. Unemployment applications hit a historic mark, employers were forced into the virtual workforce, and face coverings became a daily part of life. For children, virtual learning became the norm, hobbies and extracurriculars were put on hold, and social interaction became a thing of the past. Consequently, the child welfare system experienced unforeseen challenges.
The shift to virtual learning meant the need for students to have access to a laptop or tablet, Wi-Fi, and even a printer in some cases; for many low-income families, this was not the case. Many of them could not afford these luxuries, while it was the standard part of living for other families. As a result, students were not logging into their classes — which constituted an absence. Typically, when students are absent from school for undisclosed reasons, teachers, as mandated reporters, are required to contact child services. Therefore, reports were filed against the parents and guardians when students were not logging on. In fact, “public and private educators in the city filed more than 900 reports of child abuse or neglect to the State Central Registry between April and June” (Grench, 2020). While these reports were protocol, as consecutive absences could indicate a red flag, the circumstances differed due to the pandemic. Increased discretion was necessary to mediate this issue because some families simply could not afford the virtual learning experience.
As a standard procedure, child services investigated the reports. Of the 900 statements, 626 were for educational neglect, and 336 were deemed unfounded (Grench, 2020). While some students were deliberately not logging on, others did not have the resources to do so. To aid the families experiencing the latter, the Department of Education (DOE) released a memo stating, “Before calling in a report to the SCR, school staff must make every effort to confirm that lack of access to technology is not the primary reason for a child’s failure to participate in remote learning” (Grench, 2020). The DOE assumed responsibility for these expenses by purchasing more than 320,000 Wi-Fi-enabled iPads and distributing them to families (Amin, 2020), fair considering the financial strains on the parents. Nonetheless, teachers and school staff still had a legal obligation to fulfill if they suspected child abuse and neglect for other reasons.
Recommendation
The decision to provide immunity from civil and criminal liability when reporting child abuse and neglect, unless it is found that a false report was purposely made, is commendable. However, I recommend that New York State go a step further with its reporting laws. Everyone should be a mandated reporter. This system is already in effect in Indiana Reporting is even required by individuals younger than eighteen years old (Indiana Chapter of National Children’s Alliance). Like in New York, all reporters are exempt from prosecution if the report is made in good faith. Since reasonable suspicion is the only prerequisite for reporting, it is considerately assumed that some reports may be inaccurate.
Indiana’s decision to mandate individuals younger than eighteen is tactical. Some victims of child abuse may feel more comfortable confiding in their peers. While an adult may notice subtle signs, a child may give their friend a more detailed account of the abuse. In many cases, children contact each other outside of school through various social media and gaming networks. Therefore, peers may have first-hand knowledge of the circumstances of the child being abused. In addition, enforcing this reporting system for the younger crowd trains them to be well versed in the reporting arena by the time they reach adulthood. By then, they may be able to encourage their younger relatives to fulfill their duty, and they may feel more comfortable reporting their suspicions as it may feel more normalized as time progresses.
Some minors may be afraid to file a report. However, we must teach our children that reporting is in everyone’s best interest. On the other hand, it is equally essential that we maintain confidentiality throughout the reporting process to prevent retaliation, leading to a decline in the number of reports made. Thus, New York should develop and implement mandated reporter training into the school system. While some parents and guardians may argue that this will add pressure or increase exposure to the students, professionals should consider a system in which children can be educated while maintaining their innocence. Everyone, not just professionals, should have a moral obligation to ensure a child is receiving adequate care. It is not justifiable for someone to turn a blind eye to child maltreatment because they do not have a legal duty to report it.
Conclusion
Overall, child abuse and neglect are social issues taken very seriously by lawmakers and professionals. Over time they have developed legal principles, professional guidelines, and methodological approaches to mend the concerns for both children and adults. They often face discrepancies when addressing child abuse and neglect cases involving families of diverse cultures, which fosters the need to create unique solutions. Along with lawmakers and professionals are other human service workers such as caseworkers and social workers who aid with treatment and services. Together, these actors work cooperatively to investigate and assess child abuse and neglect cases. Some child abuse issues, like Parental Alienation Syndrome, still aren’t formally recognized. Therefore, professionals are working diligently to raise awareness for these matters. Nonetheless, there is still work that needs to be done to maximize the effectiveness of the efforts put forth by the actors involved.
References
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