Child-on-child abuse reports exceed estimates

Legislation tracked juveniles with problem sexual behaviors

The estimates were low.

When Missouri lawmakers were talking last spring about a bill allowing the state Children's Division to investigate complaints of child-on-child sexual abuse, no one knew for sure how many complaints might be added to the division's caseload.

Emily van Schenkhof, deputy director for the group Missouri KidsFirst, estimated there might be approximately 600 cases each year - although she also predicted giving the state the ability to count actual complaints likely would result in a higher number.

"Since Aug. 28, 2015 - the effective date of this legislation - through Nov. 30, 2015, the Children's Division has received 1,270 reports of juveniles with problem sexual behaviors," Rebecca L. Woelfel, the state Social Services department's communications director, told the News Tribune last week. "Reports are received in every region of the state.

"We have not experienced a geographical pattern to the calls."

If that pattern were to hold for the full year - and there's no way of predicting that - the state would handle between 5,000 and 5,100 calls in the first year.

Until this year, state officials or local law enforcement were authorized to take action on a complaint only when the person accused of causing abuse had "care, custody and control over" the victim.

Since juveniles don't fit that definition, no one had the authority to investigate complaints that one child had abused another.

Kelly Schultz, director of the state's Office of Child Advocate, told the state Senate's Seniors, Families and Children Committee in a letter last March: "Currently there is no standardization in our response to allegations of juveniles with problem sexual behaviors. ...

"If a child sexually harms another child, it is coded as a "non-caretaker referral' by Children's Division and sent to law enforcement, (which) may respond and interview the children.

"However the focus is typically on identifying an adult that may have committed a crime causing the juvenile's sexual behavior."

Now, under the new law, the Children's Division immediately must tell the appropriate local office about any report received alleging a juvenile with a problem sexual behavior.

Then the local office is to use a "family assessment and services approach" to respond to and investigate the report.

Supporters told lawmakers last spring the family assessment and services approach is intended to find ways to treat a problem and heal a family, not create a criminal record for a juvenile with a problem.

And, they said, addressing the problem earlier in a child's life likely provides better chances for changing behaviors and healing.

Woelfel said last week: "We respond to all reports which are then sent to the field for assessment, to determine services that are needed. ... We do believe early intervention into this process is essential."

Julie Donelon, executive director of the Kansas City-based Metropolitan Organization to Counter Sexual Assaults (MOCSA), said: "This supportive approach to youth with sexual behavior problems breaks down the isolation parents often feel when faced with this issue, debunks the myths that stigmatize these children and provides resources to help them overcome the problem and emerge stronger - creating a safer community."

Van Schenkhof said: "The numbers of assessments performed has far exceeded our projections and expectations.

"It clearly speaks to the need for this service to children, but the volume has greatly strained the capacity of Children's Division."

And Donelon said: "As you can see from the number of referrals to the Children's Division, youth with sexual behavior problems is a significant issue in our state.

"I am grateful to the leadership of our legislature in passing this law that assists families and children in need."

As with other kinds of hotline calls, there is a potential for abuse or false reporting.

Woelfel said: "We do not have a specific number of reports received that fall outside the category of "juveniles with problem sexual behaviors.'"

Schultz' office is part of the Office of Administration, and OA spokeswoman Ryan Burns said: "We are starting to receive some calls that could qualify as "false alarms,' but it is too early to see a pattern."

KidsFirst's Van Schenkhof noted: "Certainly, some of the calls have been cases of consensual activity between young people and not problem sexual behaviors."

Supporters of the new law said last spring, and again during the summer, that parents and investigators have to learn the difference between children being naturally curious about their own and others' bodies - and doing things that are abusive.

"We expected that there would be some transition issues as we learn what needs intervention and what does not rise to the need," van Schenkof said. "This is not a black and white issue-so it often isn't as clear, "yes, this child needs help and no, this child doesn't need help.'"

Burns said: "I am very happy with the progress we have made as a state, though there is still work to be done."

Even with only three months' experience, Donelon and van Schenkhof already see a need for some tweaking to the new law.

"We have learned that more training needs to be done to educate professionals across the state - including law enforcement, prosecutors, court personnel, mental health providers and teachers - about this issue and how to effectively intervene," Donelon explained. "More training is needed for counselors to ensure that all children in need have access to evidence-based treatment models.

"Unfortunately, there is a deficit in Missouri of providers with this specific training. We must increase our capacity so that all youth with sexual behavior problems have access to quality, evidence-based treatment."

Van Schenkhof added: "The largest issue is that Children's Division does not have adequate staff to meet the demand for assessments.

"The five caseworkers that were allocated last year had full caseloads within a few weeks of the law going into effect.

"We are going to have look at the need to increase Children's Division staffing if we want to ensure that the safety needs of all Missouri children are met."