[Federal Register Volume 59, Number 178 (Thursday, September 15, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-22876]
[[Page Unknown]]
[Federal Register: September 15, 1994]
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Part VI
Department of Justice
_______________________________________________________________________
Office of Juvenile Justice and Delinquency Prevention
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Office of Justice Programs; Missing Children's Assistance Act; Fiscal
Year 1994 Competitive Discretionary Grant Program: Second National
Incidence Studies of Missing, Abducted, Runaway and Thrownaway Children
(NISMART II); Notice
DEPARTMENT OF JUSTICE
Office of Juvenile Justice and Delinquency Prevention
Office of Justice Programs; Missing Children's Assistance Act;
Fiscal Year 1994 Competitive Discretionary Grant Program: Second
National Incidence Studies of Missing, Abducted, Runaway and Thrownaway
Children (NISMART II)
AGENCY: Office of Justice Programs, Office of Juvenile Justice and
Delinquency Prevention, Justice.
ACTION: Notice of Issuance of solicitation for applications for the
Second National Incidence Studies of Missing, Abducted, Runaway and
Thrownaway Children (NISMART II).
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SUMMARY: The Office of Juvenile Justice and Delinquency Prevention
(OJJDP) is publishing this Notice of a Competitive Discretionary Grant
Program and announcing the availability of the OJJDP application kit
under section 404(b)(2)(D) of the Juvenile Justice and Delinquency Act
of 1974, as amended (the Act), 42 U.S.C. 5773(b)(2)(D). An OJJDP
Application Kit containing a copy of the Guidelines, application form
(Standard Form 424), standard and special conditions, the OJJDP Peer
Review Guidelines, OJJDP Competition and Peer Review Procedures, and
other supplemental information relevant to the application process can
be obtained by calling the Juvenile Justice Clearinghouse, toll-free,
24 hours a day, (800) 638-8736.
DATES: All applications must be received by 5 p.m. e.s.t., October 30,
1994. Applications received after the deadline date will not be
considered.
ADDRESSES: Applications must be mailed or delivered to: NISMART II,
Research and Program Development Division, OJJDP, Room 782, 633 Indiana
Avenue, NW, Washington, D.C., 20531. (202) 307-0586.
FOR FURTHER INFORMATION CONTACT: Pam Cammarata, Research and Program
Development Division, OJJDP, Room 782, 633 Indiana Avenue, NW,
Washington, D.C., 20531. (202) 307-0586.
SUPPLEMENTARY INFORMATION:
Purpose
Pursuant to the Missing Children's Assistance Act, Title IV,
section 404(b)(3) of the Juvenile Justice and Delinquency Prevention
Act of 1974, as amended, 42 U.S.C. 5773(b)(3), OJJDP is required to
conduct periodic studies of the incidence of missing children. The
first such study was published in May 1990, providing national
estimates of the numbers of children who were abducted by family or
non-family members, runaway, thrownaway, lost or otherwise missing
during 1988. OJJDP is now conducting the second National Incidence
Studies of Missing, Abducted, Runaway & Thrownaway Children (NISMART
II). The purpose of NISMART II is to develop reliable and valid
statistics on the incidence of children who are missing, abducted,
runaways or thrownaway.
Background
``Missing, Abducted, Runaway and Thrownaway Children in America,
First Report: Numbers and Characteristics,'' (NISMART I) published in
May 1990, was developed in response to the statutory mandate, section
404(b)(3) of the Juvenile Justice and Delinquency Prevention Act of
1974, as amended, 42 U.S.C. 5773, which requires OJJDP to conduct
periodic national incidence studies to determine for a given year the
actual number of children reported missing, the number of children who
are victims of abduction by strangers, the number of children who are
victims of parental kidnappings and the number of children who are
recovered each year. The studies funded by OJJDP had two primary
objectives: (1) To develop valid and reliable national estimates of the
numbers of children reported and/or known to be missing in the course
of a given year as well as the number of these children who are
recovered; and (2) To establish profiles of missing children and
characteristics of the episodes.
NISMART I developed a comprehensive strategy to respond to the
specific requirements of the legislation and to the unique problems of
defining and counting these children. Five distinct categories of
problems that children experience were examined in the study in order
to seek evidence of missing children. Each involved certain situations
in which children were missing or displaced in some manner that
appeared to put them at risk of harm. The five populations include:
(1) Family Abductions (children abducted by parents or other family
members)
(2) Non-Family Abductions (children abducted by strangers and other
non-family members)
(3) Runaways
(4) Thrownaways
(5) Lost or Otherwise Missing Children
The NISMART I studies included:
(1) A Household Telephone Survey
(2) A Juvenile Facilities Survey
(3) A Returned Runaway Study
(4) A Network Study
(5) A Police Records Study
(6) An FBI Data Reanalysis Study
(7) A Community Professionals Study
Subsequent to the NISMART I project, OJJDP funded a planning effort
to support methodological and conceptual activities in preparation for
the second national study of the incidence of missing children. The
major purposes of the planning effort were to examine conceptual,
methodological, policy, cost, and other factors in connection with
NISMART II, and to make recommendations for the design of this second
study. Major planning activities included:
(1) An assessment of NISMART I;
(2) A Key Informants Survey to identify NISMART II information
needs and sources of information;
(3) A Planning Symposium which brought together knowledgeable
individuals to comment and make recommendations for NISMART II;
(4) An exploration of additional data sources and methodologies
that may improve NISMART I;
(5) Development of draft definitions, and draft screening and
survey questions for a household survey;
(6) An analysis of the Police Records Study conducted in NISMART I;
and
(7) Recommendations for NISMART II.
The results of the planning effort are presented in the report
entitled ``Planning the Second National Incidence Studies of Missing,
Abducted, Runaway & Thrownaway Children,'' which is available at the
Juvenile Justice Clearinghouse (1-800-638-8736), along with related
references cited later in this announcement.
Goals
OJJDP undertakes this project to provide crucial information to
parents, legislators, judges, police, social workers, and many other
related professionals. The project will build upon the conceptual and
methodological experiences of NISMART I, and will build upon the
activities of the NISMART II planning effort in order to conduct a
sound, valuable, cost-effective study focusing on the classification
and estimation of missing children incidents.
The project will allow for a better understanding of the extent of
missing, abducted, runaway, and thrownaway youth, and other
victimizations of children, by focusing more sharply than NISMART I on
the incidence of missing children.
Objectives
To develop valid and reliable national estimates of the
numbers and characteristics of the incidents and children who are
missing, abducted, runaway or thrownaway, and the number reported to
the police and/or known to be missing in the course of a given year as
well as the number of these children who are recovered;
To develop valid and reliable national estimates of the
incidence of sexual assault and exploitation of children and youth by
non-family members;
To improve the validity and reliability of incidence
estimation regarding the number of children who are missing, abducted,
runaway, or thrownaway;
To improve identification of eligible incidents, and to
accommodate recommended changes in the definition of case types;
To respond to the legislative requirements, the strengths
and weaknesses of NISMART I, the comparability between NISMART I and
II, and the recommendations of the planning effort for the conduct of
NISMART II;
To develop a single estimate of missing children that is
methodologically sound and meaningful for interpretive and policy
making purposes; and
To refine survey methods for interviewing youth about
victimization and other high-risk experiences.
Program Strategy
The organization selected to conduct this research project will be
responsible for all aspects of the project, whether carried out
directly or contracted to other organizations or individuals.
Applicants should familiarize themselves with all relevant NISMART
materials listed in the Reference Section.
The following discussion of program strategy summarizes some of the
recommendations from the planning process. Applicants are expected to
describe in their application how the recommended strategy may or may
not result in achievement of the stated objectives. Furthermore,
applicants are also invited and encouraged to submit alternative
methods for carrying out the goals and objectives of this research
project. Regardless, applicants are expected to expand upon their
strategy by providing a discussion of the issues and more detail
regarding the methodology.
The proposed program strategy includes seven components:
(1) A project advisory board
(2) A household survey
(3) A police records study
(4) A juvenile facilities study
(5) An analysis of the community professionals study conducted under
NIS-3
(6) The development of a single estimate of missing children
(7) A project implementation plan
Project Advisory Board
A core program advisory board of at least three outside experts and
three Federal agency representatives will be selected to provide
substantive and technical advice to this program. OJJDP also encourages
seeking input from additional scholars, practitioners, educators and
policy makers. The board will provide advice, guidance and overall
direction of the project, and to review project plans, and draft and
final reports of the grantee.
Household Survey
A nationally representative household survey consisting of
interviews regarding 40,000 children will be conducted for the major
purpose of collecting data to support incidence estimates for non-
family and family abductions, runaways, thrownaways and lost, injured
or otherwise missing children. The study will focus on the
classification and estimation of incidents; however, the study will
retain sufficient detail about the cases, children, and perpetrators in
order to provide useful information for prevention, policy and program
development.
The NISMART II household survey would differ from NISMART I in the
following areas:
(1) Greater focus on the classification and estimation of
incidents;
(2) An increase in child sample size to at least 40,000;
(3) Interviews with 12-17 year old youth for all categories of
children;
(4) More extensive screening questions;
(5) Use of a standard incident report form integrated for all child
case types; and
(6) National estimates of the incidence of sexual assault and
exploitation of children and youth by non-family members.
NISMART II will consist of a telephone survey yielding 40,000
interviews with youth age 12-17 as the primary respondents. Parents/
caretakers will serve as proxies, as appropriate, and for children
under age 12.
Discussions among researchers and practitioners indicate that
definitions of missing, abducted, runaway, and thrownaway children need
to be reviewed and revised accordingly. Several suggestions and
alternative definitions are provided in the referenced material. Also,
NISMART I provided two estimates for each of the five categories based
on study definitions for ``broad scope'' (broad definition) and
``policy focal'' (more serious) cases. Alternative definitions for
policy focal runaway and thrownaway youth are also provided in the
referenced material.
Additional screening questions are needed to identify missing
events. Screening questions for all case types will be revised and
enhanced to improve respondent recall, i.e., more direct cues about
places or situations. Screening questions will also be developed that
use different terminology for children to associate with and
understand.
Additional screening questions will also cue for non-family
abductions involving sex offenses. Research indicates that abductions
involving sex offenses appear to be a relatively frequent occurrence,
and therefore, may be better identified through a household survey
rather than police records which have been documented as lacking the
necessary information to classify such events.
Police Records Study
Experiences of NISMART I confirmed that the original sample size
and methods of the household survey would not identify enough cases of
non-family abduction to produce a reliable estimate. The police records
study was conducted to accommodate this problem; but not without its
drawbacks. A significant amount of information on key criteria
necessary for classifying and counting a case as a non-family abduction
was not available in police records on homicide, abductions, and sex
offenses. Although a number of non-family abduction cases were
identified in the police records study, the study was labor intensive
and expensive, and offered little information about the details of the
incident.
However, a police records study may offer a source of information
on stereotypical kidnappings and stranger abduction homicides. A police
records study may also be used to validate pre-testing activities,
i.e., seeding a sample for pre-testing a new survey instrument.
Applicants are requested to describe how a police records study may
assist in developing estimates on stereotypical kidnapping and stranger
abduction homicides, in validating pre-test activities, or in achieving
other stated objectives of this project.
Juvenile Facilities Study
The NISMART I study also included a juvenile facilities study which
identified juvenile runaways from nonhousehold settings. This
subpopulation is believed to be substantial in size and different in
characteristics from other runaway populations. Failure to include this
subpopulation will result in undercoverage, particularly of the
population that has frequent encounters with the juvenile justice
system. Consequently, NISMART II will include a juvenile facilities
study to capture the portion of the target population comprised of
runaways from facilities. Facilities will include: shelters, juvenile
correctional facilities, group homes, boarding schools, and residential
mental health facilities. The study should include:
(1) A sample of 30 counties
(2) A sample of 75 facilities within the counties
(3) Survey on all children running away from the facilities in the
previous 12 months.
Facility officials will serve as survey respondents and will be
asked for information about the institution, number of children in
residence, type of facility, and the number of children who have
runaway from the facility in the previous 12 months. Detailed
information about specific recent runaway episodes will be gathered on
a specified number of children.
Analysis of the Community Professionals Study
The thrownaways who are most difficult to identify are abandoned
children, whose parents or caretakers have gone off and left them.
NISMART I identified thrownaway children by capitalizing on the
availability of national data from the National Incidence Study of
Child Abuse and Neglect (NIS-2) study. The NIS-2 study surveyed
professionals in agencies likely to come into contact with such
children in a nationally representative sample of 29 counties. A NIS-3
study is planned for 1994, and therefore the data will be available in
1995 to provide thrownaway incidence information in a manner timely for
NISMART II, using a methodology similar to that used in NISMART I. The
NIS-3 data will provide a thrownaway incidence estimate to augment the
data collected by the household survey on thrownaways.
A Single Estimate of Missing Children
The NISMART I incidence estimates for abducted, runaway,
thrownaway, and lost or injured or otherwise missing children were not
aggregated to produce a single estimate of missing children. The
different case types were not summed for a variety of reasons: they
represent very different phenomena, many of the children were not
really missing, and the various NISMART I methodologies produced
estimates that were not appropriate to aggregate. However, the
legislation requires that OJJDP attempt to develop a single estimate of
missing children.
The applicant must discuss the legislative requirement, and develop
procedure and criteria for arriving at a single estimate of missing
children that is methodologically sound and meaningful for interpretive
and policymaking purposes.
Project Implementation Plan
The applicant must develop and provide a detailed time-task plan
that covers all activities and includes expected dates for the delivery
of products to OJJDP. The time-task plan should clearly identify major
milestones related to each activity.
Project Activities
The major activities to be undertaken for this project are outlined
below:
Refine definitions and measures for all NISMART case
types, taking into consideration all the suggestions and alternatives
provided in the referenced material.
Develop survey/screening questions for interviewing both
children age 12-17 years old and parents/caretakers. This activity
includes developmental pre-testing to ensure that questions elicit
reliable and valid answers from the appropriate respondents, and to
ensure that questions are appropriate for the mode of interviewing.
Develop and pre-test an integrated incident report
instrument for all case types.
In accordance with legislative mandates, develop criteria
for arriving at a single estimate of missing children.
Establish and convene advisory board meetings.
Establish methods of quality control of the data.
Prepare the information collection package for submission
to the Office of Management and Budget for clearance.
Recruit, hire, and train data collectors.
Collect data and assure its quality.
Perform data cleaning and processing tasks.
Analyze data and compare to NISMART I, as appropriate.
Write draft and final reports.
Develop a marketing, product, and dissemination strategy
for both the study results and the data set.
References
Juvenile Justice and Delinquency Prevention Act, Section
404(b)(3), as amended, 42 U.S.C. 5773 (b)(3).
Finkelhor, D., Hotaling, G., & Sedlak, A. (1990). ``Missing,
Abducted, Runaway & Thrownaway Children in America, First Report:
Numbers & Characteristics, National Incidence Studies,'' OJJDP,
Washington, DC.
Collins, J., Messerschmidt, P., McCalla, M., Iachan, R., & Hubbard,
M. (March 1994). ``Planning the Second National Incidence Studies of
Missing, Abducted, Runaway & Thrownaway Children. Final Report.
OJJDP Grant 92-MC-CX-0018.
Plass, P. (June 1993). ``Distinguishing Between Keepings and Takings
in the Definition of Family Abductions: Lessons from NISMART I and
Advice for NISMART II.'' Paper presented following planning
symposium in Washington, DC.
Mead, K. (February, 1993). ``NISMART II Planning Grant Literature
Review''. Research Triangle Institute: North Carolina.
Dietz, P. (June 1993). ``Assessment of the Definitions of Runaway
and Thrownaway Episodes used in NISMART I, and Recommendations for
NISMART II''. Paper presented following planning symposium in
Washington, DC.
Dietz, P. (June 1993). ``Summary of the Discussion Regarding Runaway
and Thrownaway Definitions for NISMART II''. Paper presented
following planning symposium in Washington, DC.
* References are available from the Juvenile Justice
Clearinghouse, 1-800-638-8736.
Eligibility Requirements
Pursuant to the provisions of title IV (The Missing Children's
Assistance Act) of the 1974 Juvenile Justice and Delinquency Prevention
Act, as amended, 42 U.S.C. 5775, applications will not be accepted from
for-profit agencies. In submitting applications that contain more than
one organization, the relationships among the parties must be set forth
in the application. As a general rule, organizations which describe
their working relationship in the development of products and the
delivery of services as primarily cooperative or collaborative in
nature will be considered co-applicants. In the event of a co-applicant
submission, one co-applicant must be designated as the payee to receive
and disburse project funds and be responsible for the supervision and
coordination of the activities of the other co-applicant. Under this
arrangement, each organization must agree to be jointly and severally
responsible for all project funds and services. Each co-applicant must
sign the SF 424 and indicate its acceptance of the conditions of joint
and several responsibility with the other co-applicant.
Applications which include non-competitive contracts for the
provision of specific services must include a sole source justification
for any procurement in excess of $25,000. The contractor may not be
involved in the development of the statement of work. The applicant
must provide sufficient justification of not offering for competition
the portion of work proposed to be contracted.
Applicants must demonstrate sufficient experience in conducting
research and data analysis to complete this project. Extensive
knowledge of survey research methods is essential. The successful
applicant must have experience in designing and carrying out research
that presents difficult challenges for conceptualizing the research,
defining and measuring the phenomenon, administering the study and
conducting data analysis. The organization must have personnel with the
necessary communications skills and organizational ability to carry out
this project effectively and in a competent and timely manner. Further,
applicants must demonstrate adequate substantive knowledge in the areas
of missing children and child victimization, which require special
study methods to produce reliable, valid data. Applicants must also
have an understanding of related law enforcement and social services
operations.
Applicants must demonstrate the management capability, fiscal
integrity, and financial responsibility to carry out this project. This
includes but is not limited to having an acceptable accounting system
with sufficient internal controls, compliance with grant fiscal
requirements, and the capability to implement a project of this nature.
Selection Criteria
1. Statement of the Problem. (10 Points)
Each applicant must describe the problem addressed in this program
in a clear problem statement. The applicant must demonstrate an
understanding of the substantive and technical issues related to
NISMART II and for future periodic studies.
2. Definition of Objectives. (10 Points)
The applicant should provide a clear and definitive statement of
the applicant's understanding of the goals and overall objectives of
the project.
3. Project Design. (35 Points)
The overall program design must be appropriate, methodologically
sound, and constitute an effective approach to meet the goals and
objectives of this project. The applicant must provide adequate
justification for research strategy, and demonstrate the
appropriateness of the methods for achieving the project's objectives
and goals.
4. Management Structure. (15 Points)
The management of the project must be consistent with the project
goals and tasks described in the application. The project
implementation plan will be evaluated to determine: the adequacy and
appropriateness of the project management structure and activities
specified in the project implementation plan; the extent to which the
applicant has demonstrated in the time-task plan and program design
that it will complete the major milestones of the project on time; and
evidence of commitment or collaboration and cooperation with other
related research projects.
5. Organizational Capability. (25 Points)
Both the personnel of the organization as well as the technical
capabilities of the organization must be sufficient to accomplish the
tasks of the project. Staff members must demonstrate that they have
sufficient substantive and technical experience. The clarity and
appropriateness of position descriptions, required qualifications and
staff selection criteria relative to the specific functions set out in
the project implementation plan must also be demonstrated. The
organization must demonstrate, based on its past experience and current
capabilities, that it has adequate management and personnel resources
to ensure the successful completion of the project.
6. Reasonableness of Costs. (5 Points)
Budgeted costs are reasonable, allowable, and cost effective for
the activities proposed, and are directly related to the achievement of
the project objectives. All costs must be fully justified in a budget
narrative.
Award Period
Funding will be for 2 years of this 3-year project.
Award Amount
The award amount will not exceed $1,500,000 for the first 24
months.
Due Date
Applications must be received by mail or delivered to OJJDP by
October 30, 1994, at Room 782, 633 Indiana Avenue, NW, Washington, DC,
20531.
John J. Wilson,
Acting Administrator, Office of Juvenile Justice and Delinquency
Prevention.
[FR Doc. 94-22876 Filed 9-14-94; 8:45 am]
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