Job Corps: Preliminary Observations on Student Safety and Security Data
Released: 2017-06-22T00:00:00

Letter

Background

Job Corps’ Eligibility Criteria and Program Services

To be eligible for the Job Corps program, an individual must generally be 16 to 24 years old at the time of enrollment; be low income; and have an additional barrier to education and employment, such as being homeless, a school dropout, or in foster care. Once enrolled in the program, youth are assigned to a specific Job Corps center, usually one located nearest their home and which offers a job training program of interest. The vast majority of students live at Job Corps centers in a residential setting, while the remaining students commute daily from their homes to their respective centers. This residential structure is unique among federal youth programs and enables Job Corps to provide a comprehensive array of services, including housing, meals, clothing, academic instruction, and job training.

Job Corps’ Structure and Operations

ETA administers Job Corps’ 125 centers through its national Office of Job Corps under the leadership of a national director and a field network of six regional offices located in Atlanta, Boston, Chicago, Dallas, Philadelphia, and San Francisco. Job Corps is operated primarily through contracts, which according to ETA officials, is unique among ETA’s employment and training programs (other such programs are generally operated through grants to states). Among the 125 centers, 99 are operated under contracts with large and small businesses, nonprofit organizations, and Native American tribes. The remaining 26 centers (called Civilian Conservation Centers) are operated by the U.S. Department of Agriculture’s (USDA) Forest Service through an interagency agreement with DOL. Job Corps center contractors and the USDA Forest Service employ center staff who provide program services to students. According to ETA officials, the primary responsibility for ensuring safety and security at Job Corps centers resides with center operators. Also, according to ETA officials, the Office of Job Corps has oversight and monitoring responsibility to ensure that contract operators are in full compliance with their contract and that both contract centers and USDA-operated Civilian Conservation Centers follow Job Corps’ Policy and Requirements Handbook.

In September 2015, as part of its overall effort to improve safety and security for students, ETA established the Division of Regional Operations and Program Integrity within the national Office of Job Corps. This division is responsible for coordinating regional operations and activities, including efforts to strengthen communications between the national and regional offices, strengthen quality assurance, and promote continuous improvement. The division is also responsible for reviewing the results of all risk management data, center safety and culture assessments, and responses to safety and security deficiencies at individual centers. For example, this division is to monitor the safety and security of Job Corps centers through ongoing oversight by regional offices, including daily monitoring of SIRS data.

Requirements for Job Corps Centers Related to Incident Reporting

Job Corps’ Policy and Requirements Handbook requires centers to report certain significant incidents to the national Office of Job Corps and to regional offices in SIRS within 6 or 24 hours of becoming aware of them, depending on the incident. Specifically, centers are required to report numerous categories of incidents, including deaths, assaults, alcohol and drug-related incidents, serious illnesses and injuries, and hospitalizations (see appendix I for definitions of these categories of incidents). Centers must report incidents involving both Job Corps students and staff, and incidents that occur onsite at centers as well as those that occur at offsite locations. Offsite incidents include those that occur while students are participating in program-related activities, such as off-center training and field trips. Offsite incidents also include those that occur while students are not participating in program-related activities, such as when they are at home during breaks.

In some cases, the incident categories in SIRS are related to the specific infractions defined in the Policy and Requirements Handbook, which are classified according to their level of severity. Level I infractions are the most serious, and include such infractions as arrest for a felony or violent misdemeanor or possession of a weapon, and are required to be reported in SIRS. Level II infractions include such infractions as possession of a potentially dangerous item like a box cutter, or arrest for a non-violent misdemeanor. The majority of these infractions are required to be reported in SIRS. Minor infractions—the lowest level of infractions— include failure to follow center rules, and are not required to be reported in SIRS.

Within the Policy and Requirements Handbook, ETA establishes a Zero Tolerance Policy, which specifies actions that centers must take in response to certain incidents. ETA implemented changes to this policy effective on July 1, 2016, which impacted the categorization and number of reportable incidents. Under the prior Zero Tolerance Policy, there were fewer infractions categorized as Level I, which are the most severe and result in termination from the program. The July 2016 policy changes broadened the types of infractions categorized as Level I. For example, ETA elevated several infractions previously classified as Level II to Level I, and added several new categories of reportable incidents. According to ETA officials, they made these changes to reflect a heightened emphasis on student safety.

Job Corps Student Satisfaction Survey

ETA currently surveys all students enrolled in Job Corps in March and September each year to collect information on a variety of topics, including their perceptions of safety at Job Corps centers. The current student survey contains 49 questions on various aspects of the Job Corps program, including career development services, interactions between students and staff, access to alcohol and drugs, and overall satisfaction with the program. The survey includes 12 questions on students’ perceptions of safety at centers. ETA has been conducting this survey since 2002, and in recent years has administered it twice a year. ETA officials told us they plan to survey students more frequently beginning in July 2017. Specifically, they plan to survey students on a monthly basis regarding their perceptions of safety, and on a quarterly basis regarding their overall satisfaction with the program. ETA uses the responses to the safety-related survey questions to calculate a center safety rating, which represents the percentage of Job Corps students who report feeling safe at each center, as well as a national safety rating, which represents the percentage of Job Corps students who report feeling safe nationwide.

Job Corps Centers Reported a Variety of Types of Incidents between January 2007 and June 2016, Many of Which Occurred Onsite

The Most Common Types of Reported Onsite and Offsite Incidents Included Serious Illnesses or Injuries, Assaults, and Drug-Related Incidents

Our preliminary analysis of ETA’s SIRS data shows that Job Corps centers reported 49,836 safety and security incidents, including those that occurred both onsite and offsite, from January 1, 2007 through June 30, 2016. During this time period, approximately 539,000 students were enrolled in the program, according to ETA officials. Three types of incidents represented 60 percent of all reported incidents: serious illnesses or injuries (28 percent), assaults (19 percent), and drug- related incidents (13 percent). The remaining 40 percent of reported incidents included theft or damage to center, staff, or student property (12 percent), breaches of security or safety (6 percent), and all other types of incidents (22 percent). During this time period, Job Corps centers reported 265 deaths, including 61 deaths that occurred onsite and 204 that occurred offsite. Most of these reported deaths were homicides (25 percent), due to medical causes (23 percent), and due to accidental causes (22 percent). In figure 1 below, 246 of these deaths are captured in the “Other” category, and 19 of these deaths are captured in the “Assault” category.

Most Reported Incidents Occurred Onsite at Job Corps Centers, but the Majority of Reported Deaths Occurred Offsite

Our preliminary analysis showed that from January 1, 2007 through June 30, 2016, 76 percent of the reported safety and security incidents occurred onsite at Job Corps centers, and 24 percent occurred at offsite locations (see fig.2). While most reported incidents occurred onsite, our preliminary analysis showed that the majority of reported deaths occurred offsite. During this time period, of the 265 reported deaths, 77 percent occurred offsite, and 23 percent occurred onsite. The vast majority of homicides reported during this time period occurred offsite, and very few occurred onsite. Of 65 reported homicides, 61 occurred at offsite locations and 4 occurred onsite.

During this time period, the most common types of reported onsite incidents were generally different from the most common types of reported offsite incidents, although reported assaults were common in both locations. The most common types of reported onsite incidents were the same as the most common types of incidents overall: serious illnesses or injuries (33 percent), assaults (20 percent), and drug-related incidents (16 percent). Of all reported offsite incidents, the most common types were thefts or damage to center, staff, or student property (23 percent), motor vehicle accidents (15 percent), assaults (14 percent), and serious illnesses or injuries (14 percent) (see fig.3).

Most Reported Onsite and Offsite Violent Incidents Involved Job Corps Students, and Considerably Fewer Involved Program Staff

Our preliminary analysis showed that from January 1, 2007 through June 30, 2016, most reported violent incidents—specifically assaults, homicides, and sexual assaults that occurred both onsite and offsite— involved Job Corps students, and considerably fewer of these incidents involved program staff. During this time period, Job Corps centers reported 10,531 violent incidents, which represented 21 percent of all reported onsite and offsite incidents. Students were victims in 72 percent of these reported violent incidents, while staff were victims in 8 percent of these incidents. Similarly, students were perpetrators in 85 percent of these reported violent incidents, while staff were perpetrators in 1 percent of these incidents (see table 1). Each of these reported violent incidents involved at least one victim or perpetrator who was a Job Corps student or staff member, but some of these incidents also involved victims or perpetrators who were not associated with the Job Corps program.

Students Generally Reported Feeling Safe, but Reported Feeling Less Safe on Certain Safety and Security Issues

Our preliminary analysis of ETA’s student satisfaction survey data from March 2007 to March 2017 showed that while students generally reported feeling safe at Job Corps centers, they reported feeling less safe on certain safety and security issues. Overall, across all 12 of the safety- related survey questions, an average of 72 percent of students reported feeling safe during this time period. However, the average percentage of students who reported feeling safe on each individual survey question ranged from 44 percent to 91 percent. For 7 of the 12 questions, student responses were above the 72 percent average, which indicates students felt more safe; however, for 5 of the questions, student responses were below the average, which indicates students felt less safe (see table 2). For example, an average of 44 percent of students reported that they had never heard students threaten each other, or had not heard such threats within the last month. The remaining 56 percent of students, on average, reported hearing such threats at least once in the last month.

ETA uses students’ responses to the safety-related survey questions to calculate a safety rating for each Job Corps center and a national safety rating for the program overall. According to ETA officials, the center safety rating represents the percentage of students who report feeling safe at a center, and the national safety rating represents the percentage of students who report feeling safe nationwide. Throughout the period of March 2007 through March 2017, the national safety rating remained above 82 percent, according to ETA data. ETA officials said they use these ratings as management tools to assess students’ perceptions of safety at individual centers and nationwide, and to determine whether ETA needs to act upon these results to better address students’ safety and security concerns.

Chairwoman Foxx, Ranking Member Scott, and Members of the Committee, this concludes my prepared remarks. I look forward to answering any questions you may have.

GAO Contact and Acknowledgments

For further information regarding this testimony, please contact Cindy Brown Barnes at (202) 512-7215 or brownbarnesc@gao.gov. Contact points of our Offices of Congressional Relations and Public Affairs may be found on the last page of this statement. Individuals who made key contributions to this testimony include Mary Crenshaw (Assistant Director), Caitlin Croake (Analyst in Charge), David Chrisinger, Alexander Galuten, LaToya Jeanita King, Rebecca Kuhlmann Taylor, Grant Mallie, Sheila McCoy, Meredith Moore, Mimi Nguyen, Lorin Obler, Matthew Saradjian, Monica Savoy, Almeta Spencer, Amy Sweet, Walter Vance, Kathleen van Gelder, and Ashanta Williams.

Appendix I. Categories of Incidents in the Significant Incident Reporting System (SIRS)

Appendix I. Categories of Incidents in the Significant Incident Reporting System (SIRS)

Table 3. Categories of Incidents in the Employment and Training Administration’s (ETA) Significant Incident Reporting System (SIRS) and Related Definitions, as of December 2016

ETA’s Definition An incident involving the discovery of alcohol on center, or involving any student found in possession of alcohol or charged by local law enforcement agencies with illegal alcohol consumption or possession. Incidents which require medical treatment due to the physical effects of drug use (alcohol poisoning, etc.) should be reported under the “Medical Incident” Primary Incident Code.

This code applies when a student is arrested for an incident that occurred prior to his/her enrollment in Job Corps.

These are acts that are commonly known as assault, battery, or mugging; any assault with a weapon or object; or any altercation resulting in medical treatment for injuries. Mugging (robbery) is included in this category because it pertains more to an assault upon a person than on property. Homicide has been removed as a Primary Incident Code and is now listed under Assault as a Secondary Incident Code.

This code applies to any incidents that threaten the security and safety of center students, staff, and property which may result in injury, illness, fatality, and/or property damage. Examples include arson, bomb threat, gang-related incidents, possession of gun, possession of an illegal weapon, unauthorized access to center buildings, grounds, or restricted areas, and verbal threats.

Attempted suicide is a deliberate action by student to self-inflict bodily harm in an attempt to kill one’s self. Centers need only report a suicide threat (suicidal ideation) if it results in evaluation by a physician or mental health consultant.

Centers must report the death of any student who is enrolled in Job Corps regardless of his/her duty status. Centers are only required to report the death of a staff member if the death occurs while on duty, either on center or off center.

Incidents involving any student or staff found in possession of or charged by local law enforcement agencies with a drug offense (e.g. the illegal use, possession, or distribution of a controlled substance), or the discovery of drugs on center. Incidents which require medical treatment due to the physical effects of drug use (overdose, etc.) should be reported under the “Medical Incident” Primary Incident Code.

ETA’s Significant Incident Reporting System (SIRS) Technical Guide does not provide a definition of this category.

Sexual misconduct includes the intentional touching, mauling, or feeling of the body or private parts of any person without the consent of that person. Sexual harassment or unsolicited offensive behavior such as unwelcome sexual advances, requests for sexual favors, and other verbal or physical contact of a sexual nature is also included.

ETA’s Significant Incident Reporting System (SIRS) Technical Guide does not provide a definition of this category.

ETA’s Significant Incident Reporting System (SIRS) Technical Guide does not provide a definition of this category.

ETA’s Significant Incident Reporting System (SIRS) Technical Guide does not provide a definition of this category.

ETA’s Significant Incident Reporting System (SIRS) Technical Guide does not provide a definition of this category.

ETA’s Definition ETA’s Significant Incident Reporting System (SIRS) Technical Guide does not provide a definition of this category.

ETA’s Significant Incident Reporting System (SIRS) Technical Guide does not provide a definition of this category.

Motor vehicle accidents involving any Job Corps student, on duty staff member, and/or center- owned vehicle should be reported using this code. Incidents in which a pedestrian is struck by a motor vehicle should be reported under the “Medical Incident” Primary Incident Code.

Safety/Hazmat are incidents involving hazardous materials/chemicals in any solid, liquid, or gas form that can cause harm to humans, plants, animals, property, or the environment. A hazardous material can be radiological, explosive, toxic, corrosive, biohazard, an oxidizer, an asphyxiant or have other characteristics that render it hazardous in specific circumstances. Hazmat/toxic-mercury, gasoline, asbestos, lead, used syringe, blood Hazmat/non-toxic-water, oxygen (can become hazardous under specific circumstances)

Medical incidents include any diagnosis of injury, illness, or disease which is serious or widespread among students and/or staff, (e.g. communicable disease outbreak, reaction to medication/immunization, emergency surgery, hospitalization, emergency room treatment, etc.). Incidents which require medical treatment due to the physical effects of drug and/or alcohol use (drug overdose, alcohol poisoning, etc.) should be included in this category.

Sexual assault includes any alleged non-consenting sexual act involving forceful physical contact including attempted rape, rape, sodomy, and others. If forceful physical contact is not used, the incident should be reported as a Sexual Misconduct.

Property incidents are any incident by students or staff that involve the destruction, theft, or attempted theft of property; this includes but is not limited to automobile theft, burglary, vandalism, and shoplifting. If any type of force is used against another person, the incident is to be reported under the “Assault” Primary Incident Code. Property incidents also include natural occurrences/ disasters or any other incident threatening to close down the center or disrupting the center’s operation (e.g. hurricane, flooding, earthquake, water main break, power failure, fire, etc.).

These incident categories were added to SIRS in June 2016. Some of these new categories previously existed in SIRS, but were renamed in June 2016. Others were entirely new categories as of June 2016. Centers were not required to officially report data in these new categories until July 1, 2016.

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