Part I:
Introduction
A Vision for a Community-Based Approach to Child Abuse and Neglect Prevention
The reauthorization of the Community-Based Family Resource and Support Grants (CBFRS) legislation, Title II of the Child Abuse Prevention and Treatment Act (CAPTA), on June 25, 2003 as part of the Keeping Children and Families Safe Act 2003, presents a unique opportunity to build upon the strong foundation of the program developed by the States over the last several years. During the reauthorization, the CBFRS program was renamed to the Community-Based Grants for the Prevention of Child Abuse and Neglect. For administrative convenience, we will refer to it as Community-Based Child Abuse Prevention (CBCAP) grants.
This legislation has a rich history, beginning with the Child Abuse Prevention Federal Challenge Grants Act in 1984 — the first law to direct Federal funds specifically to assist State efforts in preventing child abuse and neglect. Amendments to the law in 1992 and 1994 broadened the earlier legislation to include the provision of community-based child abuse prevention activities and family resource services. The 1996 amendments provided States with additional incentives to create Statewide networks for ensuring the safety of children in their families and neighborhoods.
The most recent changes in 2003 place an emphasis on supporting community-based efforts to develop, operate, expand, enhance, and where appropriate to network, initiatives aimed at the prevention of child abuse and neglect, and to support networks of coordinated resources and activities to better strengthen and support families to reduce the likelihood of child abuse and neglect. There is also a strong emphasis on demonstrating a meaningful commitment to parent leadership, including parents of children with disabilities, parents with disabilities, racial and ethnic minorities, and members of other underrepresented or underserved groups.
The legislation builds upon the previous program by maintaining many of the core provisions of the CBFRS program, while also emphasizing some additional elements to strengthen and support the health and well-being of families and to build the capacity of the State lead agencies. Although the emphasis on the Statewide network is no longer mandatory in the CBCAP program, the lead agency's role in maintaining and supporting the prevention network in the State is still considered a critically important function. The new legislation includes provisions requiring that lead agencies have the capacity to support community-based and prevention focused programs and activities that (1) are based on State and community interagency partnerships, and (2) are implemented through an interdisciplinary, collaborative public-private structure that includes parents as full partners. Another prevailing theme of this legislation which has been maintained is that lead agencies are to seek innovative approaches to coordinating funding streams and leveraging additional resources to augment the Federal funds. The legislation continues to recognize that individual child abuse and neglect prevention programs cannot stand alone. They are part of a larger statewide and national system of care for families, of which prevention is a key component.
The reauthorization of the program comes at a time when the Children's Bureau is also working to help States improve child welfare services by examining outcomes for children and families who receive services and assessing the systemic factors that affect a State's ability to achieve positive outcomes for children and families. Through the Child and Family Services Reviews (CFSR), the Children's Bureau is promoting practice principles believed to support improved outcomes for children and families. These principles include family-centered social work practice, community-based services, individualized services that respond to the unique needs of children and families, and strengthening parental capacity to protect and provide for their children. Findings from the States that have completed their reviews thus far indicate that many States and communities lack adequate prevention and community-based services for families. There is also a need for comprehensive family assessments and for greater engagement of parents in the case planning process. Since the provision of prevention services and the emphasis on parent engagement have always been strong components of the CBFRS/CBCAP program, coordination between the State's CFSR process and the development and operation of the CBCAP program greatly contributes to the overall child welfare system improvement.
The Administration has developed several major initiatives in areas that it feels will benefit children, adults, and society and help to strengthen families. The Department's Healthy Marriages, Responsible Fatherhood, Positive Youth Development, and Faith-based and Community initiatives are consistent with the overall goals of safety, permanency, and well-being of children. The CBCAP program provides opportunities to advance these areas within the field of child abuse prevention. Emphasis should be placed on identifying ways to incorporate these priorities into CBCAP programs in the States. (See Attachment 4 for an overview of these initiatives.)
The most effective way to meet the challenge of preventing child abuse and neglect is for all child abuse prevention and treatment programs - public and private - to work together in partnership with families and other disciplines such as social services, health and mental health, education, law enforcement, and other advocacy groups in the community to achieve their common goals.
The CBCAP grantees are in a unique position of leadership as they assume responsibility for directing, leading and evaluating the network of public-private partnerships and the continuum of preventive services for children and families in their States. Our children's safety and well-being will be best ensured when Federal, State, and faith-based and community agencies work collaboratively to better coordinate programs and services and be responsive to the needs of all families.
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Legislative Background
On June 25, 2003, President George W. Bush signed the bill to reauthorize CAPTA through the Keeping Children and Families Safe Act of 2003 (Pub. L. 108-36). This legislation, among other things, amended Title II of CAPTA and reauthorized and re-named the program previously known as the Community-Based Family Resource and Support (CBFRS) Grants program. The program is now known as the Community-Based Grants for the Prevention of Child Abuse and Neglect or, for administrative purposes, the Community-Based Child Abuse Prevention (CBCAP) program.
The purposes of the CBCAP program are: (1) to support community-based efforts to develop, operate, expand, and enhance, and where appropriate to network, initiatives aimed at the prevention of child abuse and neglect; (2) to support networks of coordinated resources and activities to better strengthen and support families to reduce the likelihood of child abuse and neglect; and (3) to foster understanding, appreciation, and knowledge of diverse populations in order to effectively prevent and treat child abuse and neglect.
A weblink to Title II of CAPTA, as amended by P.L. 108-36 is included in Attachment 1.
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Use of Funds
Section 201(b) of the Act provides that funds made available to States under the CBCAP program must be used for:
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Developing, operating, expanding, and enhancing community-based, prevention-focused programs and activities designed to strengthen and support families to prevent child abuse and neglect (through networks where appropriate) that are accessible, effective, and culturally appropriate, and build upon existing strengths that —
- Offer assistance to families;
- Provide early, comprehensive support for parents;
- Promote the development of parenting skills, especially in young parents and parents with very young children;
- Increase family stability;
- Improve family access to other formal and informal resources and opportunities for assistance available within communities;
- Support the additional needs of families with children with disabilities through respite care and other services;
- Demonstrate a commitment to meaningful parent leadership, including among parents of children with disabilities, parents with disabilities, racial and ethnic minorities, and members of underrepresented and underserved groups; and
- Provide referrals to early health and developmental services.
(Note: The previous provision which included the purpose of "decreasing the risk of homelessness" has been removed from the law.)
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Fostering the development of a continuum of preventive services for children and families through State and community-based public and private partnerships.
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Financing the start-up, maintenance, expansion, or redesign of a variety of specific community-based and prevention focused programs and activities that have been identified as unmet needs, and integrated with the network of child abuse prevention and family support programs in the State, to the extent practicable.
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Maximizing funding through leveraging of funds for establishing, operating, or expanding community-based and prevention-focused programs and activities designed to strengthen and support families to prevent child abuse and neglect.
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Financing public information activities that focus on the healthy and positive development of parents and children and promotion of child abuse and neglect prevention activities.
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Availability and Distribution of Funds
The appropriation act enacted by Congress makes $33.2 million available for the CBCAP program in Federal fiscal year (FFY) 2004.
A certain amount must be set aside for specific legislative purposes, including: (1) one percent of the total appropriation "to make allotments to Indian tribes and tribal organizations and migrant programs;" (§203(a)) (2) continued funding for a National Resource Center for CBCAP, and (3) continued funding for program support.
The remainder of the 2004 appropriation will be distributed to the States and Territories, as described below:
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Grants to States:
A State1 is eligible for a grant under the CBCAP program if, in accordance with the eligibility requirements of §202, the State's Chief Executive Officer (CEO) has designated a lead entity to administer funds under this program and provided certain assurances. (The eligibility requirements are described in detail in Part II of this PI.)
Section 203(b)(1) provides that the funds available for distribution to the States under the CBCAP program will be allotted as follows:
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Seventy percent (70%) of the funds will be allotted proportionately among the States based on the number of children under age 18 residing in each State2, "except that no State shall receive less than $175,000"; and
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Thirty percent (30%) of the funds will be allotted proportionately among the States based on the amount of private, State or other non-Federal funds leveraged and directed through the currently designated State lead agency in the preceding fiscal year (i.e., FY 2003, 10/1/02 to 9/30/03). If the aggregate of the amounts of leveraged funds claimed by the States exceeds 30% of the amount appropriated, that part of the grant award will be reduced for each State on a pro rata basis. The requirements for leveraged funds are discussed in Part III-F.
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Grants to Territories:
The following Territories are eligible to receive funds under the CBCAP program: the Virgin Islands, Guam, American Samoa, and the Northern Mariana Islands. These Territories are eligible to submit either: (1) a consolidated grant application in accordance with 45 CFR Part 97, OR (2) an independent application that meets all of the requirements set forth in this Program Instruction.
Consolidated Application: If a Territory chooses to submit a consolidated grant application, it need not submit an application under this Program Instruction. An eligible Territory that applies for a consolidated grant will receive the base amount of $175,000 authorized under the CBCAP program. These grant funds will be included in the Territory's consolidated grant.
Independent Application: If an eligible Territory submits an independent application that meets the requirements of this Program Instruction, the Territory is also eligible to submit a claim for its leveraged funds in accordance with §203(b)(1)(B) above, and receive its proportionate share of those funds, in addition to receiving the base amount of $175,000 for its population. If a Territory's independent application is approved, the designated lead agency of the Territory must ensure that the CBCAP grant funds it receives will be used only for the purposes set forth in Part I of this Program Instruction.
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Coordination and Collaboration with Existing Prevention Organizations
The CBCAP program is specifically authorized to foster the development of a continuum of preventive services for children and families through State and community-based collaborations and public-private partnerships. States have already established a broad range of Federal, State, and locally funded programs to support the prevention of child abuse and neglect and to provide community-based (and in several States, faith-based) resources to families. It is the responsibility of the lead agency to use the funds awarded under this authority to support programs and activities designed to strengthen and support families for the prevention of child abuse and neglect. Funds can also be used to provide leadership for networks of coordinated resources that will integrate existing services to address unmet needs that have been identified in the State. There are a range of programs that CBCAP may want to coordinate and integrate programs and activities as part of their prevention network. Given the limited funding available for prevention services, lead agencies are strongly encouraged to find ways to partner with other public and private organizations serving the same populations and sharing the same goals and objectives. Please see Attachment 2 for a listing of some of these programs and initiatives.
The examples of programs are not meant to be all-inclusive. A strategic plan for the development of a network of prevention and family support programs should include existing child welfare, education, vocational rehabilitation, disability, health, mental health, job readiness, self-sufficiency, child and family development, community action, juvenile justice, domestic violence prevention, youth development, teen pregnancy prevention, housing, faith and community-based programs, fatherhood and healthy marriage programs, and other human service organizations within the State.
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Coordination with the IV-B Child and Family Services Plans and the Child and Family Services Reviews/Program Improvement Plans
Title IVB, subpart 1, Child Welfare Services and subpart 2, Promoting Safe and Stable Families (PSSF), provide funds to State child welfare agencies for prevention services. PSSF, in particular, provides for community-based family support programs, services to families at risk or in crisis (family preservation programs and time-limited family reunification services), and adoption promotion and support services. Funds for these programs are directed toward State and local child welfare service delivery in order to achieve improved well-being for vulnerable children and their families, particularly those experiencing or at risk for abuse and neglect. In addition, States are required to develop a strategic plan with goals and objectives for a continuum of care in a five-year comprehensive Child and Family Services Plan (CFSP) with annual updates on their progress. The plans must include:
- Current State information on the well-being of children and families, the needs of children and families, and the nature, scope and adequacy of existing child and family and related social services.
- An extensive consultation process with a wide array of representatives of State, local, Tribal, and both public and private community-based agencies and organizations (this may also include faith-based organizations), with experience in administering programs for infants, children, youth, adolescents, and families.
- A description of the ongoing service coordination process to improve access and deliver a range of services to children and families.
- Descriptions of training, technical assistance, evaluation, and quality assurance activities.
By June 30, 2004, States will need to submit a new five-year CFSP to ACF. CBCAP programs can play a key role in providing input into this process.
The Child and Family Services Review (CFSR) process is another area in which CBCAP lead agencies are strongly encouraged to become more actively engaged. The CFSR process is a major effort to change child welfare systems at the Federal and State level. All States will have completed an initial review by March 31, 2004. The CFSR process measures a State's substantial conformity with the State plan requirements in titles IV-B and IV-E of the Social Security Act. It identifies State performance on outcomes for the safety, permanency and well-being of children and reviews the systemic factors leading to child welfare outcomes. This process includes three major steps: (1) an assessment based on aggregate data and a State self-assessment completed in collaboration with a broad range of stakeholders (many of whom also collaborated on the CFSP), (2) an onsite review of cases and stakeholder interviews conducted with a Federal/State partnership team, and (3) a Program Improvement Plan (PIP), if necessary, addressing the findings of the onsite review and statewide assessment.
Recent Program Instructions (PIs) ACYF-CB-PI-02-05 and ACYF-CB-PI-03-05 discussed the requirement for States to integrate the CFSRs with their CFSP/APSR process. Findings from the States that have completed their CFSRs thus far indicate that many States and communities lack adequate prevention and community-based services for families. There is also a need for comprehensive family assessments and for greater engagement of parents in the case planning process.
Since the provision of prevention services and the emphasis on parent engagement have always been strong components of the CBFRS/CBCAP program, greater coordination between the State's CFSR and the CFSP/APSR process and the development and operation of the CBCAP program are greatly encouraged. Please see Attachment 3 for some suggested ways in which CBCAP lead agencies can work with these other planning efforts.
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Definitions
It is expected that lead agencies will require local service providers to describe their services and programs according to the definitions outlined in the legislation so that there are common frames of reference within and across States in the implementation of this program. The following terms used in this Program Instruction have the same meaning given those terms in §209 of the Act: (1) "children with disabilities"; (2) "community referral services"; (3) "community-based and prevention-focused programs and activities designed to prevent child abuse and neglect"; (4) "outreach services"; and (5) "respite care services". (See Attachment 1.)
The term "community-based and prevention-focused programs and activities to strengthen and support families to prevent child abuse and neglect" includes organizations such as family resource programs, family support programs, voluntary home visiting programs, respite care programs, parenting education, mutual support programs, and other community programs or networks of programs that provide activities that are designed to prevent or respond to child abuse and neglect.
1 In the absence
of a definition in Title II, we have interpreted "STATE" as having
the meaning given the term in CAPTA, §111 (5)[42 USC 5106g
(5)], (i.e., "State" means each of the several States, the District
of Columbia, the Commonwealth of Puerto Rico, the Virgin Islands,
Guam, American Samoa, and the Commonwealth of the Northern Mariana
Islands.) back
2 The calculation of
that portion of a State's award under paragraph (A) of the formula
will be computed by ACYF, using the most current population data
provided by the Bureau of the Census, Department of Commerce. back
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