Link to the Paper:
EVAN B. DONALDSON ADOPTION INSTITUTE
Listening to Parents: Overcoming Barriers to the Adoption of Children from Foster Care
March 2005
Funded by: The David and Lucile Packard Foundation
Prepared by: Jeff Katz, Senior Fellow, Evan B. Donaldson Adoption Institute in Collaboration with Harvard University & the Urban Institute
This blog post is based on something I originally posted to the Soul of Adoption forum. It's in response to a fascinating paper from the Evan B. Donaldson Adoption Institute that analyzes the attrition rate in prospective state adoptive parents. This is an emotional subject for a host of reasons. The knowledge that my country has "waiting children" that have to be marketed to prospective parents is very disturbing. In fact, we have so many waiting children that some are adopted internationally into Canada. Is it a national shame that we export? Or is it a good thing -- ignoring national borders for the sake of the children? I feel conflicted on this subject. For now, I'm happy that there are Canadian families in the pool of prospective parents. But the pool should really be bigger here in America, and the paper gives some concrete recommendations on how to do that. In this post I'm going to quote big chunks of the paper and relate the sections to my experiences with state adoption and the opinions I have been developing on the subject.
Please keep in mind that my terminology may be confusing. "Special needs" doesn't necessarily mean a disability, and its definition changes from state to state. Here is Georgia's definition of special needs from the GACRS website:
a. Any child eight years of age or older.
b. Any child of African-American heritage who is one year of age or older.
c. Members of a sibling group of three or more who are placed together.
d. Members of a sibling group of two where one is over the age of eight or has another special need.
e. Any child with documented physical, emotional or mental impairments or limitations.
State adoption has all kinds of jargon. For example, the paper talks about "general" adoption, which I have usually heard instead called "straight adoption". This means direct adoption of a waiting child, either photolisted or not, through a county agency or agency licensed to place children by that county. There is no fostering period in general adoption.
Here goes!
While people may decide not to adopt for many reasons, the bottom line is that only a fraction of those recruited to call a child welfare agency actually do adopt.
Many people are initially very attracted to adopting a child from foster care. You can see pictures of the children on websites or TV. They need homes, and it costs nothing to adopt them! But the attrition is enormous.
The first informational call is key. People adopt for many reasons. For some callers, their first inquiry about adoption comes at the end of a painful journey that may include illness, infertility, degrading medical procedures, or unbearable loss. When making their first inquiry, applicants noted they wanted to obtain accurate information and to be treated well. Workers also mentioned the need for sensitivity.
Agencies often do not handle that first call well. Parents reported their initial contacts with agencies were the most difficult aspect of the process for two reasons: First, callers often had difficulty reaching the right person, being sent to voice mail or transferred from one person to another. Second, agency personnel answering the first call are often clerical staff with inadequate knowledge of the process, or the focus of the initial call is to screen out “inappropriate” applicants rather than to welcome prospective adoptive parents. Applicants who made a strong initial connection with a worker were best able to tolerate the inevitable frustrations of the process. This connection was often the “make or break” factor for prospective parents.
The emphasis is too often on weeding out applicants rather than recruiting them. Some agencies have procedures that are far more heavily weighted toward screening out inappropriate applicants rather than recruiting, and supporting, good prospective parents. Two examples: multipage questionnaires that must be filled out before callers may attend informational meetings; and informational meetings that begin with fingerprinting and focus on technical restrictions about who can adopt, rather than on the rewards and challenges of adopting a child from foster care.
Parents are generally satisfied with training and homestudy. Adopting a child who has been placed in foster care because of abuse or neglect is inherently challenging. The great majority of parents who completed the adoption training process reported being pleased with the preparation they received. Although some said their trainings portrayed the children in an overly negative light, most felt they had a better understanding of, and greater sensitivity toward, the children they would be adopting.
The attrition rate rises sharply as prospective families go from initial call to adoption. The research indicates states annually receive about 240,000 inquiries a year from prospective parents regarding the adoption of a child from foster care. Complications in data collection result in significant numbers of “general applicants” being classified as foster parents who adopt their foster children. However, using the state definition of general applicants, only one in 28 people who call for information about the adoption of a child from foster care eventually adopt such a child. Even under a broader definition of “general applicant,” the percentage that complete the process clearly is very small.
The recommendations are pretty commonsense: handle initial calls better, separate screening and training, try to work out a buddy system. I didn't think before about the screening and training issue. Basically, prospective parents fear their social worker may be the one who judges whether they are good enough to receive a child. It's a tricky situation because they may not honestly express their hopes, fears and expectations for fear of being judged not good enough. It makes more sense to have two stages. Once you are screened, you are assured you are "worthy" enough and then you can feel more secure about communicating what you can and can't handle.
My experience: the paperwork is pretty daunting, and I am going through a private agency that holds our hands much more than the country office would. The agency has been very welcoming and informative. From the very beginning they were inclusive and said that things like marital status or being a same-sex couple or home-ownership status did not disqualify you. Minor criminal records/youthful indiscretions would not disqualify you, and neither would illness, although they would be taken into account during the process. Our experience may have been very different if we had dealt directly with a state agency.
The written application process has been extremely stressful and emotional, and I consider myself a fairly articulate person who enjoys writing. It would be an order of magnitude more difficult for someone who had less experience in writing and less education. This is one aspect that needs serious improvement. I believe state agencies maybe should have special sessions between classes -- application workshops -- to help people work on writing about their family. I don't believe being articulate in written form is strongly correlated with good parenting.
The study mentions that most potential applicants do not have a college degree. Given the horrendous state of public education in Georgia, that means they are frequently semi-literate. I taught Comp 101 at a tech college once and was shocked at the level of writing skills. I'm not even talking about the proper use of a colon... I mean knowing what nouns and verbs are and how to put together sentences. These people may be extremely articulate in their speech and debate the most advanced concepts, but poor education has crippled their writing. I think that the state adoption process scares off a lot of people who don't have a college education, and in the process removes some people who might have been great parents. I've heard anecdotes from other prospectives that here in Georgia, during some classes, social workers need to "hand-hold" parents and almost ghost-write their applications because their writing skills are so poor.
I believe people should be forced to confront tough questions while in the adoption process, but if they communicate better verbally, they should have someone interview them to help them translate that into written form. This should be budgeted as a regular procedure, not a last-ditch resort by an agency desperate to get more qualified parents.
Here are some demographics on who is interested in using the system.
Data from the NSFG describe the women who reported they were currently seeking to adopt as disproportionately married (82 percent) and either sterile or with impaired fecundity (73% sterile). Two-thirds (67%) of these women were 35 or older and roughly the same number (67%) had had a prior birth. Less than a quarter of them (22%) had a college degree. The majority of women seeking to adopt were white (51%); 21% were Hispanic and 19% were black.
I noticed from our classes that a lot of the couples are "second-nesters". They have grown children who have just left the home and are ready to start again, but don't feel the need to adopt a small baby.
Given the demographics of inner Atlanta, more than 2/3 of our class is black and the rest are white except for me. There are no Hispanics. There are actually a lot of Hispanics in Atlanta, and I believe Georgia has the fastest-growing Hispanic population in the U.S., but they are such new arrivals that they have not really integrated into the city services yet.
Most respondents to the NSFG who were currently seeking to adopt reported that they would prefer to adopt a single child who is young and has no physical or mental disability (Chandra et al. 1999). However, a substantial share of respondents reported that they would “accept” a child who looks similar to children available from the foster care system. For example, 56% of persons seeking to adopt said they would accept a child aged 6 to 12 and 37% a child 13 years old or older. Of those seeking to adopt, 83% reported they would accept a child with a mild physical or mental disability and 33% a child with a severe disability. Two-thirds (66%) of adoption seekers reported they would accept a sibling group. Moreover, the vast majority of adoption seekers reported they would consider adopting minority children. Of all women seeking to adopt, 79% reported they would accept a black child and 90% other non-white children.
Very little information has been published on the characteristics of persons adopting foster care children. AFCARS data indicate that two-thirds (67%) of the foster children who are adopted, are adopted by married couples. Data from a small-scale study of persons adopting special needs children found that the majority were white (69%), married (84%), had not graduated from college (72%), and were either the child’s foster parent (43%) or relative (10%) (Rosenthal, Groze, and Curiel 1990). Children adopted by minority adoptive parents were more likely to be adopted by relatives, foster parents, single parents, or mothers who did not graduate college (Rosenthal et al. 1990).
About two-thirds of the class are straight couples. Out of a large class we have only a few singles, one man and one woman. We have both types of same-sex couples. Because Georgia is in many respects a regressive state these couples have no right to dually adopt; they are officially treated as single men or women who just happen to live with someone that also needs to be certified and go through all the classes. All of the adoption workers are very inclusive, it's just that the state law is not.
Some parts of the adoption process are particularly vulnerable to worker unresponsiveness. For example, early studies documented the failure of adoption agencies to implement culturally sensitive recruitment strategies and eligibility standards for potential minority adopters. In the past, African American adoption seekers frequently did not meet income, housing, marital status, or other standards that qualified people for adoption (Day 1979; Herzog et al. 1971). Even when adoption standards were not culturally insensitive, researchers noted that most social workers dealing with adoption were white and that these workers frequently used white, middle class norms (i.e., size of home, family structure, education, and income needed to be “good” parents) to evaluate prospective parents. While many agencies addressed these issues and made significant improvements to their practices with minority adoption seekers, researchers continue to identify barriers to the recruitment
We went to one other agency orientation that specializes in recruiting minority parents. The orientation was very informative and I'm glad we went, but we didn't really fit in there because it was really laser-focused on African-Americans. I felt like it would almost hold up the classes to be inclusive of us... "oh, except for atlasien and atlasien's husband..." We thought about signing up anyway, but the dealbreaker was that the agency was located much farther away than the agency we ended up with.
At least in Atlanta, I think there has been a huge amount of improvement done in recruiting African-American parents. Even though officially African-American children above the age of 1 are considered "special needs", in reality this is changing. A healthy infant to toddler of any race will be placed very quickly, and the workers will have a choice of several homes. They will not really have to wait. This sounds to me like a great indicator of success in recruiting African-American parents.
It is not the case in Atlanta that social workers dealing with adoption are mostly white. I have only dealt with a few that are white; the large majority are black.
More information on where and why people drop out of the process:
In most states, officials estimate that a smaller number of persons who begin the home study process fail to complete it; in 23 states, fewer than 25% drop out at this point and in 8 states, between 25 and 50 percent drop out. States offered many reasons why applicants fail to complete the home study process. These reasons tend to fit into four categories: 1) Applicants do not want the children available for adoption or decide they cannot handle special needs children (22 states); 2) Applicants experience a change in their lives such as the birth of a child or a divorce, or the spouses cannot agree on the decision to adopt (14 states); 3) Applicants were eliminated due to agency concerns (11 states); and 4) Applicants found the process to be too burdensome (11 states). Of interest, states estimating that a low proportion fail to complete the home study process are more likely to contract out home studies (13 of the 23 compared to 3 of the other 13). It may be that financial incentives encourage private agencies to find ways to increase the completion rate or to select parents who are most likely to complete the process.
This makes sense to me. I don't believe the government should outsource things out of general principle, but in this case it sounds better to separate certain functions in the adoption process. The state should be able to concentrate on the needs of the child, not on balancing them with the needs of the adoptive parent. Likewise the potential adoptive parent, after being screened, needs to have someone they know is in their corner and understands their needs. An overloaded worker who doesn't separate functions might get to the point where they think "Well, this couple has some issues but there is one of my children who just really needs a home so badly now, if I fudge the home study just a tiny bit I could make a match" and then the match is bad and ends up disrupting.
The hazy lines between "general" adoption, relative adoption and foster-to-adopt:
States’ reliance on foster parents, relatives, and general applicants as adoptive resources varies greatly. As reported in the 1999 AFCARs data:
• In 11 of the 43 states (including the District of Columbia as a state) that provided data, foster parents accounted for more than 75% of foster care adoptions in FY 1999. In another 11 states, foster parents accounted for fewer than half of foster care adoptions.
• In 12 states, relatives accounted for less than 5% of children adopted but more than one quarter of all adoptions in 10 states.
• In 9 states, general applicants accounted for less than 10% of all children adopted, but in 9 other states, they accounted for more than 40%. The true extent of this variation is difficult to assess because of the practice in some states of converting general applicants to foster parents to enable the adopting parents to take advantage of adoption subsidies and the likelihood that general applicants will become foster parents because they believe it will improve their chances to adopt. In response to our survey of states, adoption officials estimate that:
• In 11 states, less than 25% of general applicants become foster parents to adopt.
• In 11 states, officials estimated this percentage to be between 25 and 50.
The number one problem I hear online potential adopters express with the foster care system is that they cannot handle the lack of permanence. I think public agencies do a horrible job of explaining that people can adopt children whose parental rights have already been terminated: once placed in your home, they will NOT be taken out again. On the other hand, general or straight adoption is a hard path. As the study shows, some people will end up converting to foster-to-adopt. Our agency does a few legal risk placements where TPR is scheduled very soon. This means that the period of uncertainty would be measured in weeks and months, not years. We have still not decided whether to do legal risk or not, but it has been explained that this is often the only way to get very young children placed with you.
State agencies should more clearly delineate and explain the different statuses prospective parents can have: Adoption, Foster to Adopt, Foster with prospect of Adoption. Some people will want to be able to move around within those categories, some people will want to move around but not really have the psychological/emotional resources to do so, and others will strongly prefer to stay in one category only.
Ending Note:
Last night my mother observed me beating my head against the table over the paperwork. She told me it was making her angry. "You shouldn't have to go through this. Of course you'll be perfect parents! They should just give you a baby... and RIGHT NOW!!"
I told her that entitlement perspective is becoming foreign to me after being enveloped in "Adoption World"! My mother raised the interesting point that someone could "game the system" and put all the right answers on paper, but still be a terrible parent. Ideally the home study and interviews weed out those people. Yet as we've seen in recent horror stories like the Holland murder, they don't work 100% of the time and some really unfit parents can slip into the pool.
Prospective parents in the middle of the process tend to start thinking of the social workers as fearsome almighty telepathic gatekeepers. In reality they are just human beings with specialized education, experience, and fortitude. I have to remind myself of this sometimes!