CHILD WELFARE MANUAL

Section 4, Chapter 4 (Working with Children), Subsection 8 – Missing Person Report Procedure

Effective date:  02/17/2022

4.8.1 Understanding Runaway Youth with a Trauma Based Focus

Children in the custody of the Children’s Division, particularly considering their trauma history, are at increased risk than other children for running away. Children may run away from any placement type, but their risk is lowest for runaway episodes when placed with family. Risk factors which increase the likelihood that foster children may run away include: frequent placement changes, entry into care as a teenager, a familial history of abuse and neglect, and a documented history of behavioral health problems. When children run away, they are at higher risk for perpetrating crimes, using drugs/alcohol, and being victimized by others. Youth who have run away are especially vulnerable to recruitment into human trafficking.

Running away is often a coping mechanism or an impulsive response which may be triggered by the child’s trauma history. It is important to understand what happened prior to the runaway episode and view that through a trauma lens. For example, if a child feels unsafe, that may prompt a flight response. Some children will run away FROM something; some children will be running TOWARDS something. Engaging with the child to try and understand the underlying causes of the behavior may help the child recognize triggers. The focus should be on increasing the child’s safety, not punishing the child through restrictions that could be counterproductive. If the child ran away as a flight response to feeling threatened, assigning consequences to the child could send an unintended message that control is more important to staff than our concern for the child to resolve triggers in a healthy way.

Based on the above, it is important to conduct a supportive assessment of the child’s time away from their placement as well as gain an understanding of what prompted the elopement so these factors can be addressed. Staff should make clear to the child that staff are glad they are safe and staff view the runaway episode as a signal that the child’s needs, particularly safety needs, may not be met. When conducting this assessment, provide the youth with some space and time to calm down before participating. The conversation should be held in a safe, relaxed, neutral, non-threatening environment. The questions should be open-ended, and feel relaxed and conversational, preferably conducted by someone with whom the youth has a rapport or trusts. If possible, allow the child to have others present if it would make them feel more comfortable. Staff should be caring, empathetic, sincere, nonjudgmental, and trustworthy. Youth need to feel they are being heard. The information obtained should be integrated into the child’s plan as well as the permanency plan.

Integration into Service Planning

First, any safety concerns while the youth was on run status should be addressed. For example: Is a medical exam needed immediately; if any illegal behavior towards the youth was experienced, does law enforcement need to be contacted? Please see Section 4.8.5 for more information about procedures when children return from run status.

Additionally, research has shown that incorporating the information garnered from this dialogue into the youth’s service plan can reduce the risk of running away and reduce the frequency of placement disruption. By understanding the cause of the behavior, changes can be made to support the child’s needs. For example, staff may have restricted access to family yet the child still desires a relationship with family members. How can staff ensure safety while still increasing family contact? If the child is attempting to avoid restrictions inherent in some placements or being in state custody, staff should assess the restrictions.

Risks for Runaway Youth

Children who have run away multiple times are at an increased risk for involvement in human trafficking. Traffickers prey on and target vulnerabilities in their victims in order to make promises aimed at addressing the needs of their victims. The following are common risk factors for trafficking in children/youth:

  • Being in foster care
  • Chronically missing or frequently on the run
  • History of childhood sexual abuse
  • History of physical and emotional abuse
  • Single parent home
  • Minimal supervision
  • Low self-esteem
  • Lacks a strong social network
  • Unsupervised online time
  • Seeks online friendships and connections
  • History of substance use issues or those living with someone with substance use issues
  • History of school truancy

4.8.2 Definitions

Missouri statutes 43.400 – 43.410, RSMo., contain provisions for reporting missing persons to the State Highway Patrol.

A missing child/juvenile is defined as “any person who is under the age of seventeen years, whose temporary or permanent residence is in the state of Missouri or who is believed to be within the state of Missouri, whose location has not been determined, and who has been reported as missing to a law enforcement agency.”

A child/juvenile may be considered missing if they meet one of the following characteristics:

  • If they have run away from the residence of a parent, legal guardian, or custodian;
  • If they are missing under circumstances indicating that the person was or is in the presence of or under the control of a party whose presence or control was or is in violation of a permanent or temporary court order and fourteen or more days have elapsed, during which time the party has failed to file any pleading with the court seeking modification of the permanent or temporary court order.

Anyone over the age of seventeen years is considered missing if they are missing and meet one of the following characteristics:

  • Is physically or mentally disabled to the degree that the person is dependent upon an agency or another individual;
  • Is missing under circumstances indicating that the missing person’s safety may be in danger;
  • Is missing under involuntary or unknown circumstances;
  • Is missing under circumstances indicating that the person was or is in the presence of or under the control of a party whose presence or control was or is in violation of a permanent or temporary court order and there are reasonable grounds to believe that the person may be taken outside of the United States.

For general purposes, a foster child is considered to be missing or on run status as soon as their physical whereabouts are unknown to CD or their physical custodian. A foster child is under the care and custody of the CD and responsibility therefore lies with the CD staff, contracted service workers, and resource providers to ensure the safety and well-being to the best of their ability.

4.8.3 Runaway Child/Youth Protocol

When a child/youth in care is determined to be missing or is abducted from an approved CD placement, the case manager should take the following steps:

  1. Immediately notify law enforcement (NO LATER than 24 hours to file a “missing child/person report”. Worker shall document the report number and the name of the person taking the report in FACES.  In the event the placement provider made the initial report, the case manager should follow up with law enforcement to ensure all necessary information was provided by the placement provider, including the worker’s contact information.
    • Contact the supervisor and circuit manager, and document contact in FACES as a contact note

Note: Federal law requires law enforcement to take a report of missing children/youth under the age of twenty-one (21). If the local law enforcement agency refuses to take a missing child/person report, staff should contact the Missouri State Highway Patrol for assistance. This should be done by contacting the MULES trainer in the appropriate troop. Staff should explain the situation and ask the MULES trainer to assist by contacting the local law enforcement agency.

  1. Within 24 hours, the caseworker will notify the parents, Guardian Ad Litem, and Juvenile Officer
    • The worker needs to request a “pick up order” from the Court

Note: Not all circuits will issue an order. If the local court will not issue an order, staff should make a referral to the Division of Legal Services (DLS) to request assistance in filing for an order. Staff should utilize the DLS referral form and make sure to include when the child/youth went missing, the last time CD received communication from the child/youth, and any available information about their possible whereabouts. Requests to release the child from jurisdiction should be made separately.

  1. Within twenty-four (24) hours, notify the National Center for Missing and Exploited Children (NCMEC). This is for any person under the age of twenty-one (21) missing from care. This can be completed by calling 1-800-THE-LOST or by completing an online report to NCMEC. The website for online reporting is: https://cmfc.missingkids.org/reportit and may only be utilized by staff. Staff will be required to complete an online account prior to submitting a report.

Note: When reporting online, it is imperative that all fields be answered thoroughly and accurately.  To assist NCMEC in responding timely, the case manager’s name and contact information must be identified within the online report. 

When reporting to NCMEC, the case manager should be prepared to provide the following:

  • The child’s/youth’s case manager’s name and contact information;
  • Information regarding the law enforcement agency involved, including the report number, and assigned law enforcement officer’s contact information. When law enforcement refuses to take a report on a youth over the age of eighteen (18), NCMEC will still accept a report when provided with the officer’s name, precinct name, and date/time the report was attempted;
  • Descriptive information regarding the missing child/youth, including date of birth, height, weight, physical description (eye color, hair color, complexion, tattoos, piercings, etc.), clothing worn at the time the child/youth was last seen, medical and/or mental health conditions; and,
  • Details surrounding the circumstances leading to the child’s/youth’s missing status.
  1. Update the child’s/youth’s Alternative Care Client Information screen in FACES within twenty-four (24) hours.
  • When RUN is selected as a placement, there will be an additional placement detail drop down box. The placement detail includes; Unknown, Known, or Abducted.   If a child’s physical location is known, the worker will then be required to input the physical address of the child.  These changes must be completed within 24 hours of the Child’s departure from their placement.
    • For traditional, Youth with Elevated Needs-Level A or Level B, and emergency foster care placements, enter the temporary location as RUN. If the child/youth is located before the 7th day, end the temporary location. If RUN status extends beyond the 7th day, the primary placement will automatically change to RUN on the 8th day.
    • For Youth with Elevated Needs-Level B or residential placement, maintenance payment continues through the 7th day from which the child/youth ran away in cases where the bed or placement will be held specifically for that child/youth. In this event, enter the temporary location as RUN. If the child/youth is located before the 7th day, end the temporary location. If RUN status extends beyond the 7th day, the primary placement will automatically change to RUN on the 8th day. Residential payments are not generated from the AC Client Information screen, SS-61, but for Level B placements the maintenance code, field 56, should be changed to “3 – No maintenance payment”.
  1. Within 3 business days, the worker will complete the Missing Youth Status Report, CD-308, upload to OnBase, and Email to Central Office point person at CD.MissingYouth@dss.mo.gov.
  2. Within 1 week and monthly thereafter, contact and document in FACES:
  • Family Members
  • Friends
  • School faculty
  • Service Providers
  1. Monthly search and ongoing documentation requirements in FACES:
    • Family Support Division (IPAR, IMES)
    • MO HealthNet (MXIX, MCII)
    • Food Stamp Assistance (FAMIS, FAPC)
    • TLO search or other public record databases
    • Contact STAT for assistance in locating the child/youth if their location is truly unknown and local law enforcement is unable or unwilling to assist in attempting to ascertain the child/youth’s whereabouts.
    • Law enforcement reporting, and report number;
    • Attempts to obtain a court order;
    • NCMEC reporting;
    • Attempts to locate child/youth.
  •  

The Central Office Point Person will:

  1. Review the daily missing child listing to identify any new youth from the region
    • Follow upon any youth missing for 3 days or more if the checklist was not received from the worker
  2. Receive Checklist from worker – Verify dates, report numbers, confirmation #s
  3. Enter missing child into Regional Missing Child spreadsheet

NOTE: Each time a child/youth is missing from their placement, the steps above must be completed.

4.8.4 When a Child/Youth is in an unapproved placement

There are times when a child/youth leaves their approved placement, yet they inform the caseworker of their location, and the worker is able to verify the location and safety of the child/youth.  When a child/youth is residing in an unapproved placement, the worker will complete the following:

  1. Within 24 hours of learning the location of the child/youth, an in-person visit must be conducted with the youth, as well as notifying the supervisor and Circuit Manager of the youth’s current location.
  2. Within 24 hours of verifying the placement, notify the parents, Guardian Ad Litem, and Juvenile Officer
  3. Within 24 hours, update FACES Alternative Care Client Information.
  • When RUN is selected as a placement, there will be an additional placement detail drop down box. The placement detail includes; Unknown, Known, or Abducted.   If a child’s physical location is known, the worker will then be required to input the physical address of the child.  These changes must be completed within 24 hours of the Child’s departure from their placement.
    • For traditional, Youth with Elevated Needs-Level A or Level B, and emergency foster care placements, enter the temporary location as RUN. If the child/youth is located before the 7th day, end the temporary location. If RUN status extends beyond the 7th day, the primary placement will automatically change to RUN on the 8th day.
    • For Youth with Elevated Needs-Level B or residential placement, maintenance payment continues through the 7th day from which the child/youth ran away in cases where the bed or placement will be held specifically for that child/youth. In this event, enter the temporary location as RUN. If the child/youth is located before the 7th day, end the temporary location. If RUN status extends beyond the 7th day, the primary placement will automatically change to RUN on the 8th day. Residential payments are not generated from the AC Client Information screen, SS-61, but for Level B placements the maintenance code, field 56, should be changed to “3 – No maintenance payment”.

In this case, the Missing Youth Status Report, police report, and NCMEC notification does not need to be completed.  It is still expected for the case worker to meet in person with the youth monthly, and continue to engage the  youth in conversations regarding their preferred placement that could be approved as a licensed placement.

4.8.5 Return of a Child/Youth

When a missing youth is located, the case manager must assess the factors that led to the child/youth being absent and to the greatest extent possible, address those factors in subsequent placements. The case manager should also determine the child’s/youth’s experiences while absent, including whether the child fell victim to human trafficking.

Staff must complete the CD-288 Human Trafficking Assessment Tool within 24 hours of a child/youth in state custody returning from being a runaway, missing, or abducted child. For information regarding Human Trafficking, please refer to Section 4,  Chapter 4, Sub-Section 4, Special Populations- Human Trafficking.

Indicators that a child/youth is involved in trafficking include, but are not limited to:

  • Frequent runaway episodes
  • A heightened sense fear or distrust of authority
  • Unable to identify where they were while they were gone
  • Has material goods that he or she cannot afford:  expensive clothing, one or multiple cell phones, nails done, hair extensions, etc.
  • Physical injuries with no explanation of how they were received
  • Has a sexually transmitted infection (STI) or a history of STIs
  • Uses drugs and/or alcohol
  • Reports sexual assaults
  • Talks about a paramour, but does not provide their identity
  • Frequent unexplained absences or tardiness from school
  • Involved in gang activity
  • Appears fearful, anxious, depressed, tense, nervous, paranoid, or hyper vigilant
  • Has multiple cell phones
  • Has hotel keys or talks about staying in hotels
  • Has suspicious tattoos or other signs of branding
  • Inappropriate, sexually suggestive activity on social media, the internet, or cell phone apps
  • Associates and/or has relationships with age-inappropriate friends and/or paramours
  • Reports meeting someone online
  • A heightened sense of fear or distrust of authority
  • Reports multiple sexual partners
  • Change of appearance, such as revealing/provocative clothing and weight loss
  • Avoids answering questions or lets others speak for him/her
  • Answers to questions appear to be practiced or rehearsed

Identifying victims of human trafficking can be difficult. Some challenges may include the following:

  • They may not view themselves as victims.
  • They may not trust adults due to trauma they have experienced.
  • They may be concerned they will face legal consequences for their role in trafficking.
  • Their trafficker may have made threats to harm the child/youth, their family, and/or friends.
  • Traumatic bonding of the child/youth to their trafficker is often an influential factor that interferes with self-identification as a victim and in severing the child’s/youth’s relationship to their trafficker. Traffickers use power and control tactics to make their victims increasingly reliant on them for emotional and psychological needs. Children/Youth who are emotionally vulnerable due to a history of abuse/neglect are especially vulnerable to the tactics of traffickers.

When a runaway or missing child/youth is located, the case manager should complete the following:

  • Immediately assess the safety of child/youth.
  • Notify law enforcement, juvenile office, Guardian Ad Litem, the resource provider, the child’s/youth’s parents, and parent attorney as appropriate of the child’s/youth’s return or recovery.
  • Notify the National Center for Missing and Exploited Children (NCMEC) of the child’s/youth’s return.
  • Determine whether to:
  • Return child/youth  to the previous resource provider
  • Place child/youth in new or temporary placement
  • Place child/youth in a more secure or restrictive environment
  • Seek approval for non-traditional placement (i.e. friend of child/youth, older sibling, parents whose rights have been terminated but continue a relationship with child/youth.)
  • Arrange for a mental health screening.
  • Update the child’s/youth’s AC Client Information screen in FACES to reflect current placement type and begin payment or resume payment for pre-existing Level A or Level B home.
  • Within twenty-four (24) hours of the child’s/youth’s return, arrange for a medical examination.
  • Change residence code on child’s/youth’s AC Client Information screen in FACES to reflect current placement in order to re-enroll child in MO HealthNet.
  • Schedule Family Support Team (FST) meeting within 72 hours of child’s/youth’s return to address:
  • Safety concerns
  • Reason the child/youth ran away  (i.e. did not like the rules, placement issues, could not handle responsibilities in home, ran to be with friends, parents, others)
  • Additional support services the child/youth may need
  • Unexplored or non-traditional placement options
  • Potential changes in the child’s/youth’s case plan
  • Document in FACES all steps taken to:
  • Assess the child’s/youth’s experiences while absent
  • How the child’s needs were addressed upon return (i.e. medical examination, treatment needs, CAC, etc.)
  • Notify relevant agencies of the child’s return

It is important for FST members to consider case specific information when addressing these issues or making changes to the child’s/youth’s case plan. Members should consider the specific needs of the child/youth especially when considering alternative placement settings. Any child/youth age 12 or over should be included in the FST meeting.

Screening after a Youth Returns or is Recovered

Federal law requires staff to determine the primary factors that contributed to the child’s/youth’s running away or otherwise being absent from care, and to the extent possible and appropriate, respond to those factors in current and subsequent placements. This law also requires staff to determine the child’s/youth’s experiences while absent from care, including screening the child/youth to determine if the child/youth is a possible sex trafficking victim. Therefore, once a child/youth is located, the case manager must talk to the child/youth about why they were absent from care and what occurred while they were gone.  The caseworker should document this conversation in FACES.

Questions to ask include, but are not limited to:

  • What made you leave your placement?
  • Where did you go when you left?
  • How did you take care of yourself while you were gone?
  • Did you have money? How did you get money?
  • How did you eat?
  • Where did you sleep?
  • Who helped you while you were gone?
  • Did you have to do anything in exchange for their help?
  • Did anyone hurt you?
  • Did you do anything that made you uncomfortable?
  • Are you worried about anything that happened to you while you were away?

Chronic Run Away

Children/Youth who have run away multiple times are at an increased risk for involvement in commercial sexual exploitation. It may be appropriate to make a referral to the Child Advocacy Center (CAC) for a forensic interview of the child/youth, even if they have made no disclosure or provided information about involvement in trafficking. Local county offices are strongly encouraged to work with their CAC to develop protocols for assessing these children/youth.

Suspicion of Abuse or Human Trafficking

If a child/youth provides information that may indicate they were abused or involved in trafficking, the following must occur immediately, but no later than 24 hours after receiving the information:

  • The case manager must immediately contact the Child Abuse/Neglect Hotline Unit (CANHU) to make a report of child abuse and neglect. The case manager should inform the hotline of any suspicion of involvement in human trafficking.
  • The case manager should ensure that law enforcement is notified of the concern.
  • A referral to the Child Advocacy Center (CAC) should be made for a forensic interview to further explore the child’s/youth’s experiences in care if there is an indication the child/youth was abused or trafficked.
  • The case manager may contact the National Human Trafficking Resource Center toll-free hotline at 1-888-373-7888 or make an online tip report at www.traffickingresourcecenter.org/report-trafficking .

4.8.6 Failure to Locate a Child/Youth

The first priority of the worker shall always be to locate a runaway child/youth and remedy the reasons that the child/youth has run. However, there may be individual cases where the Division may want to explore a request for release of jurisdiction from the court. All requests for release of custodial responsibility should be evaluated on a case by case basis by the case manager, their direct supervisor, and FST team members. During the FST meeting, there should be a thorough review of documented efforts and consideration of the following factors:

  • The age of the child/youth
  • The number and type of previous placements
  • The current and concurrent case plan
  • Whether TPR has or has not occurred
  • The child’s/youth’s progress and compliance in cooperating with the Division’s services
  • The child’s/youth’s run history (one time event verses chronic runs)
  • Whether the child/youth is running to a specific place or person
  • Is there an exit plan in place for the child/youth to provide on-going support? (See memorandum CD04-56 for details on exit planning)

It is important that a youth never be released from custody without an exit plan in place as it is our responsibility to ensure that youth leaving the foster care system either have support services in place or know how to obtain them as needed in the future. Non-compliance cannot be used as the sole reason to request termination of custodial duties by the Division. With this understanding, there may be rare situations where it is appropriate to request a release of jurisdiction when it is clear that there is a documented history of chronic and repeated non-compliance on the youth’s part to accept placements and services offered by the Division or in cases where the youth has been missing without contact for a minimum of twelve months. This does not include cases where the youth has run to a non-approved placement and remains in contact with the worker. Placement issues need to be addressed by the worker, youth, FST members and the court.

If the court of jurisdiction does not agree to a release of custody and the child/youth is not located, the worker should continue to:

  • Contact law enforcement, family, relatives, friends and all other contacts once per month in an effort to locate the child/youth for a minimum of six months;
  • Monthly cross check Family Support Division screens IPAR and IMES as well as Food stamps screen through FAMIS system on the FAPC screen;
  • If after six months, the child/youth is not located, continue to contact law enforcement, relatives and other contacts on a quarterly basis in effort to locate child/youth;
  • Continue to provide written summary to court on all actions taken to locate child/youth; and
  • Resubmit request for release of jurisdiction at all court hearings.

4.8.7 Considerations for Release of Jurisdiction – Youth 18 and Over

For youth over the age of 18 who have left their placement to an unapproved placement, staff should assess whether the youth needs to remain in care or if a request to terminate jurisdiction should be made to the court. Youth may also petition the court on their own behalf for release from care and information on the youth’s rights should be shared with the youth.

Requesting termination of jurisdiction from care should only be done after efforts have been made to engage the youth in services and safety can be assured.   This is not a one-time attempt but multiple attempts to engage the youth in services and assure safety. It will be important to share all efforts to assist the youth with the court if recommending termination of care.  

For youth over the age of 18 who have left placement and are in communication with Children’s Division or the Foster Care Case Management Agency, safety planning shall be done to include risk of human trafficking, mental health, and cognitive and developmental abilities. Whether or not to request release of termination should be based on the assessment and vulnerability of the youth. Staff shall assess the reasons for the youth’s elopement and if there are any possible solutions to address these reasons.

If a request for termination is made to the court and denied, contact, safety assessment and planning, and attempts to engage youth in services shall continue.

For youth over the age of 18 whose whereabouts are unknown, efforts shall continue to locate the youth as these youth are at high risk of human trafficking and may have other unmet needs that put them at risk for things such as homelessness. Documentation of efforts shall be made in the case narrative.

4.8.8 Missing Children/Youth Not in Care

Staff should report all children/youth known to be missing to law enforcement and NCMEC, not just those in the custody of the Division. 

Reporting missing children/youth not in care to NCMEC may only be done through the NCMEC hotline, 1-800-THE-LOST.  For children/youth not in care, staff should only contact NCMEC if they are able to provide the name, age, address, and all identifying characteristics of the missing child/youth and the length of time the child has been missing. 

Staff does not need a signed release of information from the child’s/youth’s custodian in order to make a report.  Staff will be required to provide contact information for the child’s/youth’s legal guardian and information regarding the law enforcement agency involved, including the case number, and assigned law enforcement officer’s contact information. 

Staff should advise the child’s/youth’s guardian of the legal reporting requirement prior to making a report to NCMEC.  NCMEC will contact the legal guardian for follow up information and coordination.