| GROWING UP IN HOUSTON: 2007 INTERIM REPORT |
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The Status of Houston's Children
Executive Summary
CHILDREN AT RISK has developed a model of 130 quality of life indicators that delineate how children are doing in Houston and Harris County. We have used this model as a tool for the last 17 years. This publication is the first Growing Up in Houston: Interim Report. Twenty-three indicators have been selected to measure the progress our community is making in the well-being of its children. National goals for the year 2010 were selected as standards to be used in comparison to the baseline data for the year 2000.
Basic Needs
Air Quality
Air pollution is composed of many types of gases and particles as well as hundreds of hazardous chemicals. Among the most common and harmful to children are ozone pollution, carbon monoxide, nitrogen oxides, lead, sulfur oxides, and diesel emissions. These airborne toxins are not only inhaled but can contaminate soil, plants, and water.
The quality of air in the Houston area has a direct effect on the health of Houston’s children. The effects range from bronchitis, asthma, and allergies to more serious consequences such as cancer, heart and respiratory disease, and cognitive impairment.
• Houston ranked 5th in the 25 most ozone polluted cities in the U.S. (2007)
• Houston ranked 5th in the nation for the percentage of Summer Days Dangerous for children with asthma (2007) .
• About 78,000 children in the Houston area attend school within two miles of a chemical refinery plant.
• There were 27 days that Harris County’s air quality was designated unhealthy or unhealthy for sensitive groups by the EPA’s Air Quality Index (AQI).
In Houston, Mayor Bill White is aggressively working to reduce air pollution. He has been pushing forth plans to improve air quality by offering bonus incentives to city contractors to use clean construction equipment and by reviewing all city ordinances relating to air pollution to ensure maximum effectiveness. Despite some setbacks, the number of unhealthy air quality days are continuing to decrease.
During the 80th Texas Legislative Session CHILDREN AT RISK worked closely with other advocacy organizations to improve environmental standards for Houston’s children. While air pollution in general impacts the health and welfare of Houston’s population, children who ride school buses are at even greater risk of the negative effects of air pollution. Diesel pollution levels can be five times higher inside school buses than outside air levels. In partnership with Environmental Defense, CHILDREN AT RISK urged legislators to allot funding to the Texas Clean School Bus Program and achieved success in gaining substantial funding. Rider 28 for the Texas Commission on Environmental Quality (TCEQ) allotted $3,750,000 during each fiscal year over the biennium to implement the Clean School Bus Initiative. The funding will allow the installation of “cleaner” closed crankcase filter systems on about 60% of eligible buses.
Parks and Green Space
Parks offer opportunities for physical and cultural activity for children. The benefits of parks are numerous, and they serve as democratized space open to everyone regardless of socio-economic class offering walking trails, gardens, playgrounds, open space, and more. The Urban Land Institute recommends that cities maintain approximately 25 acres of parks and open space per 1,000 residents. Harris County, however, is below the national average with respect to this goal, with approximately 6 acres of parks and open space per 1,000 residents. According to the Harris County Parks Department, park acreage has been steadily increasing from 21,593 acres in 1998 to 24,664 acres in 2007. Although there is still a need for equitable and adequate green space, the City of Houston has made great strides in increasing green space acreage and improving urban connectivity.
• The City of Houston recently unanimously passed the Parks & Open Space Ordinance. The ordinance requires developers to pay a $700 fee for every 1.8 acres developed or to dedicate park land.
• Harris County Precinct 4 joined Montgomery County Precinct 3 to develop an 8,000 to 12,000 acre preserve along the border between the counties with a projected completion date of 2013.
• Discovery Green, downtown Houston’s $93 million park, is set to open in early 2008. This 11.78 acre site will include a jogging trail, amphitheater, fountain, and vast green spaces available for small events and children’s festivities.
Poverty/Near Poverty
Poverty is one of the most far-reaching and widespread problems. It is particularly debilitating for children, as poverty’s harmful consequences can persist for their entire lives. In 2004, 22.9% of children living in Harris County lived below the Federal Poverty Level (FPL). Since 2004 the FPL slightly increased for a family of three from $15,670 to $17,170 in 2007. Consequences associated with poverty include problems like physical health, cognitive abilities, poor school achievement, emotional and behavioral outcomes, and teenage out-of-wedlock childbearing. In general, the physical health of non-poor children is vastly superior to that of poor children: 37.4% of poor children are reported to be in excellent health, compared to 55.2% of non-poor children.
On average, families need an income of about two times the federal poverty level (FPL) to meet their most basic needs. Therefore, those living below 200% of the poverty level, which is $34,340 for a family of three, are considered low-income by the U.S. Census Bureau.
• 54.2% of the student population in the Greater Houston area was economically disadvantaged (2006-2007 school year).
• 47% or 3,027,646 of Texas children lived in low-income families, which is significantly higher than the national average of 39% (2006).
• Young children (under the age of 6) are even more likely to live in low-income families, with a rate of 51% (2006).
Hunger
In Harris County, childhood hunger continues to be a real and persistent problem. The Food Stamp Program (FSP) plays a vital role for children living in homes where food insecurity is an issue by helping families purchase food for nutritious diets. Children make up over half of the population receiving benefits; therefore under-participation in the program remains a serious problem. Nationally, Harris County is one of the lowest five counties for food stamp enrollment percentages, with only 40% of those eligible participating. With 60% of the eligible population not participating, the county lost out on over $227 million dollars in 2003.
The United States Department of Agriculture (USDA) Food and Nutrition Service (FNS) administers and finances the School Breakfast Program, School Lunch Program, and Summer Food Program.
• In Harris County, the average daily number of children who received free breakfasts numbered 135,661 during the 2005 school year and 136,128 during the 2006 school year, approximately 17% of the county’s population between ages 5 and 18 for both years.
• 39% of eligible students received free or reduced-price breakfasts (2006)
• 73% of eligible students received free or reduced-price lunch (2006)
• Harris County increased the number of summer food sites from 688 in 2005 to 734 in 2006.
Physical and Mental Health
CHIP
Texas has the highest rate of uninsured children; approximately 10% of the nation’s uninsured children reside in Texas. In 2007, the 80th Texas Legislature successfully increased access to health coverage through the Children’s Health Insurance Program (CHIP) program. CHIP provides access to quality health care for many low-income working families. However, an estimated 700,000 children are eligible for CHIP or Medicaid in Texas, but are not enrolled. It is important to note that 90 percent of uninsured children have at least one working parent.
Perinatal Care/Infant Mortality
In January, 2007, Texas implemented the CHIP Perinatal Program. The purpose of the program is to provide unborn children of low-income mothers access to health coverage. Enrollment for the program has significantly increased in Harris County from 83 in January, 2007 to 11,226 in November, 2007. This program is extremely significant because premature delivery, low birth weight, infant mortality, and growth retardation are associated outcomes with mothers who do not receive adequate prenatal care. The most current data available for infant mortality dates to 2004. While the national, state and local numbers and rates remain largely unchanged, racial disparities in infant mortality rates are significant. African Americans continue to have higher rates of infant mortality which are more than double that of their Anglo or Hispanic counterparts. In light of the CHIP Perinatal program, we anxiously await the outcomes regarding access to prenatal care.
Immunizations
The percentage of Harris County children receiving timely vaccinations significantly decreased from 76.6% in 2005 to 69.9% in 2006. Harris County remains below the national average of 77%. Timely vaccinations protect children against potentially deadly diseases and also prevent large-scale disease outbreaks. Parent and provider education is a vital step in raising immunization coverage. During the 80th Texas Legislative Session, there were small wins regarding immunizations which includes legislation that establishes a public school immunization awareness program beginning in the 2007-2008 school year. School districts that maintain a website will be mandated to list immunizations that are required for admission to school, recommended immunizations for school-age children, and health clinics in the district that offer the influenza vaccination. Another significant piece of legislation involved the expansion of the Texas immunization registry to include immunization data for registrars over the age of 18. Permitting people to keep their records beyond 18 will help keep track of immunizations that are needed for entry into college and other advanced degree programs, and eliminate revaccination costs.
Childhood Obesity
The increase in the number of American children who are overweight or are at-risk for becoming overweight is an alarming public health epidemic of this generation. As an epidemic, childhood obesity affects not only the health of our population, but also our economy. Poor nutrition and inadequate physical activity are the fundamental causes for childhood obesity.
• 21.6% of children in 4th, 8th, and 11th grade are overweight or obese.
• 16.1% of children in 4th, 8th, and 11th grade are at risk of being overweight.
• While the prevalence of obesity is high for children from all racial and ethnic groups, it significantly impacts female non-Hispanic black and all Mexican-American children and adolescents.
The Texas State Legislature prioritized childhood obesity in recent years. The 80th Legislature focused at the school and student level by legislating minimum physical education requirements for students in grades K-8. Lawmakers passed other bills that mandate the second full week in September as ”Obesity Awareness Week” and created an interagency council between state departments to monitor programs that prevent and treat the epidemic for both children and adults.
Mental Health
The prevalence rate of children and adolescents with mental illness is staggering with an estimated 212,478 children needing mental health services. Approximately, two-thirds of young people with mental health needs are being left untreated. If children are not treated for mental illness, expenses will increase for families, communities, and the health care system. In addition, children not treated for mental health problems are more likely to drop out of school and come in contact with the juvenile justice system. While funding has slightly increased, the mental health system still focuses on crisis treatment during the stage where children’s mental illness is severe and most costly, instead of prevention.
State and national studies consistently demonstrate that untreated mental health issues in both children and adults result in high emergency room utilization, incarceration, and increased risk for involvement in the child welfare system.
• In 2004, 44% of children committed to TYC were diagnosed as needing or receiving mental health services.
• In 2006, Texas ranked 49th in funding for outpatient children’s mental health services.
• The 80th Texas Legislative Session appropriated $82.3 million new funding to community mental health crisis services.
Safety and Security
Child Abuse and Neglect
Child abuse and neglect is a serious problem in Harris County. Caseloads and timely assessments remain a challenge; however, the number of cases reported to CPS has not significantly increased. One improvement impacting investigations is that as of September, 2007, Priority II investigations must be initiated within 72 hours of the report, a significant change from 10 days made by the 79th Texas Legislature through Senate Bill 6 in 2005.
• In FY 2006, the Houston Region investigative caseworkers completed investigations for 31,417 cases of child abuse and neglect, but only confirmed child abuse and neglect in 6,873 cases (21.9%).
• In FY 2006 there were 44 deaths in Harris County CPS and 13 children died in foster care.
• In FY 2006, the number of alleged victims of abuse and neglect were 51,191 in the Houston Region, 35,033 in Harris County and 275,539 in Texas.
Human Trafficking
Human trafficking in Texas is a continuing and sobering problem that, despite law enforcement’s efforts to date, continues to worsen. It is estimated that thousands of Texans, hundreds of whom are under the age of 18, are currently working in Texas because of debt bondage or in a situation of involuntary servitude. Human trafficking is a modern-day form of slavery. Regardless of the arrangement, many of these children are performing labor (sexual, domestic, agricultural, or other forms of labor) for another because of force, the fear of force, or threats (actual or implied) to themselves or loved ones.
The U.S. Department of State estimates 14,000-17,000 persons are trafficked into the United States each year. However, because of the difficulty of identifying victims, some sources estimate the number of trafficked individuals to be 30,000. In 2006, the 1-10 corridor between El Paso and Houston was identified as the main human trafficking route. Children who are sexually exploited often face significant problems and become victims of violent crime. Human trafficking victims are at greater risk of substance abuse, depression, suicide, psychiatric disorders, pregnancy, and physical health issues. After drug dealing, human trafficking is tied with the illegal arms industry as the second largest criminal industry in the world today, and it is the fastest growing. To better understand the impact on Houston, CHILDREN AT RISK is in the beginning stages of collecting human trafficking data.
With the support of CHILDREN AT RISK, Rescue and Restore, and TABC, the following are some successful steps taken during the 80th Legislative Session to address human trafficking:
• Bars are mandated to post signs in both English and Spanish defining forced labor and a toll-free referral number for victims of trafficking.
• The definition of human trafficking was expanded to include threatening bodily injury, restraining the person, and destroying or threatening to destroy the person’s identification documents.
Texas Youth Commission (TYC)
TYC was originally developed to rehabilitate juvenile offenders rather than punish them. However, it is uncertain whether this objective is being achieved. In early 2007, there were several reports including sexual and physical abuse surfaced that called into question the safety and well-being of incarcerated youth. The accusations were shocking and many Houstonians were concerned because of the high number of local children detained in these facilities.
• The percentage of commitments from Harris County increased from 16% in 2002 to 23% in 2006 – an approximate increase of 50% for the county.
• There were 630 new commitments to TYC from Harris County in 2006.
• 26% of the commitments in 2006 were for misdemeanors.
During 2007, lawmakers instituted sweeping changes to the Texas Youth Commission to address longstanding institutional problems affecting some of Texas’ most at risk children. CHILDREN AT RISK and other advocacy groups’ reform recommendations were successful, including the creation of an independent ombudsman’s office to monitor the agency. Other salient provisions include (1) no longer committing youth 19 years of age and over to TYC facilities; (2) no longer committing youths with only misdemeanors to TYC; and (3) increasing training of TYC guards to 300 hours and maintaining a ratio of at least one guard for every 12 youth in TYC. Monitoring the effectiveness of these sweeping changes will be of primary concern to lawmakers and child advocates.
Education
Graduation Rates
One of the most serious issues affecting children and adolescents in the Greater Houston area is the shockingly low graduation rates. Houston is experiencing a dropout crisis. Dropouts cost a state in many different ways – through higher crime and incarceration rates, increased welfare, more dependence on public health care, and most significantly, the future economic benefits of earning a high school diploma.
• The median income for high school dropouts age 25 and over in Harris County was $17,054 in 2005.
• 27.4% of the dropout population 25 and over lives below the poverty line.
• For the class of 2004-05, TEA reported a 73.8% graduation rate for HISD.
• CHILDREN AT RISK’s freshman to senior graduation rate for HISD was 50.1%.
In order to improve graduation rates, the inadequate method of calculating graduation rates must be addressed. Once the dropout crisis has been realized, programs and funding can be implemented to support students in their academic achievements. During the 80th Legislative Session, CHILDREN AT RISK advocated for legislation that would implement a clear and transparent methodology to eliminate the nearly 25% discrepancy in TEA’s reported graduation rates. While the legislation did not pass, CHILDREN AT RISK created awareness, discussion, and momentum to improve the education system.
Alternative Education Programs
Alternative education programs (AEPs) are designed to offer unconventional curriculums and resources to children struggling in the mainstream academic environment. However, there has been some concern that children are being referred at an undesirable rate. There are two major types of alternative education programs: campuses of choice and disciplinary institutions. Choice campuses offer accelerated instruction and credit recovery for at-risk students who choose alternative instruction. Disciplinary institutions include Disciplinary Alternative Education Programs (DAEPs) and Juvenile Justice Alternative Education Programs (JJAEPs). Unlike choice campuses, such as dropout recovery programs, students at disciplinary programs are required to attend because of misconduct.
• In 2006, six of Harris County’s 22 alternative education programs were JJAEPs.
• During the 2005-2006 school year, 1,320 Harris County students were enrolled in JJAEPs, with an average length of enrollment per student of 70 school days and an average attendance rate of 82%.
• DAEPs have five times the dropout rate of mainstream schools.
• DAEPs have come under criticism, partly because research shows that children with mental illness and intellectual disabilities as well as Latino and African-American young men are overrepresented in the programs.
In light of the concerns regarding JJAEPs and DAEPs, the 80th Legislature was successful in enacting legislation that will require minimal standards for referrals, teacher training and certification, track academic outcomes, and improve curriculum. The purpose of the reform was to avoid over-referrals to AEPs, strengthen the education system, and increase graduation rates.
Recommendations
The twenty three quality of life indictors under analysis in this report illustrate the quality of life for children in the Greater Houston area. The research conducted by CHILDREN AT RISK reveals that children continue to be at risk for poor outcomes. Policymakers can improve the quality of life for our children by making responsible decisions that will result in positive results for the children of Harris County and Texas.
CHILDREN AT RISK applauds the advocates and policymakers who are working hard to improve the quality of life for children. Through continued collaboration and public education we will work throughout the interim to insure that children are a policy priority for Texas.
In order to strengthen policies that impact outcomes for children in the Greater Houston area policymakers must:
Air Quality: Reduce air pollution by offering bonus incentives to city contractors to use clean construction equipment and by reviewing all city ordinances relating to air pollution to ensure maximum effectiveness;
Alternative Education Programs: Reduce enrollment in alternative education programs by improving education and supporting treatment and rehabilitation programs for affected youth;
Child Abuse and Neglect:Decrease the rate of child abuse and neglect cases by improving case management and accountability mechanisms in Child Protective Services offices;
Childhood Obesity:Lessen the prevalence of childhood obesity by promoting awareness and recognition of the public health problem through all channels, and recognizing that thwarting the epidemic will take efforts from the whole community and state, not simply individuals and families;
Commitments to the Texas Youth Commission: Policy reforms implemented during the 80th Legislature will impact the number of Harris County committed to the Texas Youth Commission. Enhancing community based programs in Harris County that focus on prevention and rehabilitation will improve public safety and reduced recidivism;
Graduation and Dropout Rates:The vital connection between education and prosperity necessitates that public officials should work to improve graduation rates. Officials must implement an accurate and transparent system of monitoring dropout and graduation rates, even where these rates are attached to accountability;
Food Stamp Program: Increase participation through outreach, education, and innovation to improve program enrollment, resulting in fewer children going hungry and strengthening the local economy;
Human Trafficking: Minimize the prevalence of human trafficking by strengthening data collection and policy. Increase community awareness and outreach services to victims;
Infant Mortality: Decrease the prevalence of infant mortality with improved investigations and focused research by local review teams. Additional information will enhance the knowledge of city or county leaders about the overall health and health environment of mothers and infants and how to improve these at the community level;
Immunizations:Increase childhood immunizations and strengthen available information for families regarding required and recommended immunizations for school admission;
Parks and Green Space:Increase green space acreage and improve urban connectivity by linking public transportation to parks and green space;
Physical and Mental Health: Many children treated for physical and mental health problems have secondary conditions due to physical and sexual abuse, and behavioral adjustments. Adequately funding preventive health care and treatment programs can minimize the prevalence of problems associated with physical and mental health. These needs must be adequately addressed to improve graduation rates, reduce CPS case loads, and reduce juvenile justice case loads. Access to mental health services must be a priority of Texas;
Poverty/Near Poverty: Expand eligibility and income requirements and strengthen the application process for income assistance. Poverty can be reduced by encouraging personal responsibility and addressing issues like teen pregnancy and low graduation rates. Additionally, an accurate picture of the poor needs to be acknowledged by enhancing the poverty level methodology and including expenses that cover housing, food, child care, health care, and other basic needs; and
School Food Programs: Strengthen participation in breakfast, lunch, and summer food programs. This is critical to insuring that low income students do not experience hunger. School programs can be enhanced by encouraging universal breakfast and lunch initiatives that use alternative delivery methods like breakfast or lunch in the classroom. Additionally, addressing physical access to summer food sites can improve participation during summer months.
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