Privacy vs. Safety: Does FERPA Apply to Sexual Assault Cases?

Navigating the muddy waters between protecting student privacy and addressing complaints of sexual misconduct still causes confusion. Does FERPA prohibit disclosure of information about sexual assault cases? Many perceive a conflict between the confidentiality of student records under the Family Educational Rights and Privacy Act (FERPA) on the one hand, and the competing rights of sexual assault victims and other students under Title IX and the Clery Act on the other.

While this post is only intended to address whether FERPA prohibits disclosure of information about peer sexual assault complaints, a few basics are in order. As the Department of Education explained in a 2006 interpretation letter, FERPA protects "education records" maintained by or for the school which are tangible documents (including media and electronic data). FERPA does not, however, protect personal knowledge or observations:

FERPA applies to the disclosure of tangible records and of information derived from tangible records … As a general rule, information that is obtained through personal knowledge or observation, and not from an education record, is not protected from disclosure under FERPA.

Therefore, even if an education record exists containing the same information, FERPA doesn't protect the confidentiality of information independently obtained from personal knowledge or observations.

In addition, the education records must contain "information directly related to a student" — in other words, they must directly or indirectly identify the student. So far this seems pretty straightforward. However, the various exceptions to FERPA protection when sexual assault is involved seem to cause confusion.

Starting with a clear exception, schools may disclose — without the accused student's consent — the final results of a disciplinary proceeding involving alleged acts that, if proven, would constitute a violent crime or non-forcible sex offense:¹

• to anyone if the alleged perpetrator is found to have committed the offense
• only to the alleged victim if the accused is not found responsible. In this case the victim must be told not to disclose the outcome to a third party

The result of a disciplinary proceeding is not final until after any appeals. Once the result is final the school may disclose the student's name, the offense, and any sanction imposed, as indicated above.

Another slightly more confusing exception allows disclosure of the investigative reports and other records²of campus police and security units involving sexual assault complaints if they are created for a "law enforcement purpose." Whether the records qualify for this exception depends on (1) who created the records, (2) why they were created, and (3) who maintains them.

Under FERPA, if the records are created "exclusively for the purpose of a possible disciplinary action against the student" those records would be "education records." However, the ED Secretary has said that it "expects such occasions to be very rare, especially when incidents involv[e] criminal conduct by students at postsecondary institutions." Thus, if a student reports a sexual assault to campus police and other security staff their records are probably not protected from disclosure by FERPA.

A couple of cases illustrate how FERPA has been misapplied at the expense of student safety. Last year Oklahoma State University did not alert campus or local police when a victim reported to Student Affairs that he'd been molested. Over the next month the accused molester committed more assaults. Finally, a student newspaper reporter received an anonymous tip and contacted police, which led to the perpetrator's arrest. In September, Nathan Cochran pled guilty to three criminal counts of sexual battery for fondling and performing oral sex on other male students while they slept in his fraternity house. Cochran was suspended from OSU for three years.

When the OSU victim first came forward, no tangible education record existed relating to the accused student. LeRoy Rooker, the ED's chief FERPA enforcer for 21 years, said "Just forget FERPA at that point."

And even if an education record existed a third exception, FERPA's health and safety exception likely applied. Again, Rooker provides guidance in ED's 2006 interpretation letter: 

This provision allows an educational agency or institution to disclose personally identifiable information from education records, without prior written consent,

in connection with an emergency [to] appropriate persons if the knowledge of such information is necessary to protect the health or safety of the student or other persons. 20 U.S.C. §1232g(b)(1)(I); 34 CFR §§99.31(a)(10) 99.36.³

In another case, Swarthmore College's disciplinary proceeding found the accused student responsible but the victim felt the sanction did not protect her or other students in part because the accused's identity was never revealed by the school. Though her assailant was found responsible for rape and suspended, he will be allowed to re-enroll after she graduates. In the meantime, his suspension wasn't made public so he continues to visit the campus and present a safety risk. When Liz Braun, Dean of Students at Swarthmore, asked for student feedback about the school's College Judiciary Committee process, the victim described the CJC process as "unnecessarily torturous." She asked a valid question in her response to Dean Braun: "Should the outcomes of CJC hearings and appeals be made public with identifiable names of perpetrators?" In fact, the accused student's name could be made public if the CJC's final decision found him responsible. This would not violate FERPA and could help protect other students.

Responding to a question about obtaining information from schools regarding sexual assaults against college students, ED Secretary Arne Duncan encouraged journalists to seek assistance from Department of Education staff if they encounter schools misapplying FERPA. While participating in a conference call organized by the Education Writers Association, Duncan stated, "Where districts or schools are — I'm not saying they are — but if they're sort of hiding behind FERPA and not sharing simple information, we're happy to try and assist there."

A journalist from Student Press Law Center said she plans to follow up with ED's chief privacy officer, Kathleen Styles. We'll be looking for further guidance on this issue but hope that in the meantime this post provides some explanation of what is and isn't a legitimate use of FERPA when it comes to protecting the privacy of students accused of committing sexual assault.

---

<sup>1. While this post focuses on sexual assault complaints, this exception to FERPA protection covers a number of violent crimes and non-forcible sex offenses listed in 34 CFR §99.39 and 34 CFR §99.31(13)and (14) covers the conditions that allow disclosure of information without consent.

2. 34 CFR §99.8(b)(1) defines "law enforcement records" as "records, files, documents, and other materials that are — (i) Created by a law enforcement unit; (ii) Created for a law enforcement purpose; and (iii) Maintained by the law enforcement unit." While FERPA allows disclosure, the confidentiality of records maintained by a school's security staff may be restricted by the school's policies or applicable State law.

3. 34 CFR §99.31(10) provides that prior consent not required to disclose information where "The disclosure is in connection with a health or safety emergency, under the conditions described in §99.36."</sup>

Prevention Must Include the LGBTQ Community

Recent research suggests that members of the LGBTQ community are just as—if not more—likely to be victims of sexual violence as their heterosexual peers. The Centers for Disease Control and Prevention 2010 Findingson Victimization by Sexual Orientation found that nearly half of lesbian women, four in ten gay men, half of bisexual men, and three-quarters of bisexual women have been victims of sexual violence in their lifetime. Such alarming figures make it clear that sexual assault is a problem that affects students of all sexual orientations. Moreover, the often marginalized position of the LGBTQ community compounds and complicates numerous issues faced by survivors of sexual assault.

For example, as we've written about in the past, it's not unusual for survivors to be discouraged from reporting by the fear that they will encounter hostility on the part of law enforcement and other first responders. The fear of hostility motivated by homophobia compounds the problem for members of the LGBTQ community. For some LGBTQ survivors, reporting a sexual assault could mean "outing" themselves before they're prepared to reveal their sexuality. There's also the fear that, because the conventionally accepted narrative of sexual violence focuses on heterosexual assaults, an assault involving members of the LGBTQ community will be sensationalized.

Another ugly fact is that homophobia not only contributes to underreporting of sexual assault in the LGBTQ community, but can also motivate assaults against members of that community. According to the University of Minnesota Morris Violence Prevention Center, sexual assault is often used as a weapon by those who wish to humiliate LGBTQ people for their sexual orientation, or (especially in cases where a lesbian woman is assaulted by a straight man) somehow "cure" them of their orientation. The unhappy overlap between hate crimes and sexual assault is especially important for administrators to be aware of in light of the Campus SaVE Act's requirements for schools to include hate crimes based on sexual orientation or gender identity in their annual security reports.

These issues make clear the importance of harm-prevention programming that encompasses the entire spectrum of a campus population. The current conversation about sexual assault on college campuses is, of course, incredibly important and a welcome change from decades of silence on an issue that won't go away unless it's addressed directly. But does the conversation campuses are having about sexual violence include all of the students affected by the problem? A conversation about sexual violence on college campuses that revolves around or even assumes scenarios involving heterosexual male perpetrators and heterosexual female victims fails to address the needs of survivors whose experiences fall outside the range of that common but by no means universal experience.

 Administrators need to consider programming designed to help all students by covering the unique problems faced by members of the LGBTQ community. By bringing these issues into the conversation, schools encourage students to report sexual assault, regardless of their gender, race, or sexual orientation.  Inclusive and effective prevention training must recognize the grim but important truth that sexual assault can affect any student on campus.

Rewriting the College Hook-Up Script

Popular media makes it seem like college today is more like the seamier corners of a Las Vegas club than the ivy-clad, brick-edifice institution of yore.  Students today, it seems, are more likely to hit the bottle than the books and more likely to get a booty call than a phone call.

But college life isn't one big party as our media often portrays it. Indeed, the sensational portraits of college depravity, however well intended, might be doing more harm than good by reinforcing students' misconceptions about college life.

Let's take a look at some popular misconceptions about "hook up" culture, how they might be hurting our students, and how we can confront these misconceptions to enable students to rewrite the hook-up script.

Are Millennials are more sexually active than past generations?

Hook up culture is often portrayed as the crisis of the current generation of college students. The internet is full of accounts of the collapse of morality on college campuses. But scholars who study hook up culture trace its roots back forty years or more.

In her book on campus sexual culture, "Hooking Up," Kathleen Bogle suggests that the shift to hook up culture was already underway by the mid-1970s. She believes hook up culture arose out of the turmoil of the wider cultural and demographic changes of the 60s. In that regard, it's something that both current students and their parents experienced.

Other researchers put the origins in the early 1920s, when "with the rise of automobile use and novel entertainment venues...traditional models of courting under parental supervision began to fade" (Garcia et al.). Now we're talking four generations of hook-up culture!

Indeed, a study presented this year at the American Sociological Association's annual meeting found little change in college students' behaviors or attitudes regarding sex in the last 25 years.

The study compared the answers of two batches of college students, 1988-1996 and 2002-2010, on the General Social Survey. Attitudes and behaviors between the two groups were quite similar. For example, 65% of the first group reported having sex at least once a week compared to 59.3% of the second group. Attitudes regarding sex between minors, cheating on a spouse, and premarital sex also remained largely unchanged.

The researchers concluded, "[o]ur results provide no evidence that there has been a sea change in the sexual behavior of college students or that there has been a significant liberalization of attitudes towards sex."

Is everyone is hooking up?

This summer, the New York Times published a controversial trend piece by Kate Taylor. Taylor reported that campus hookup culture was increasingly driven by young women, who were intent on "building their résumés, not finding boyfriends." In other words, it's not just men who are driving hook up culture: everyone's doing it.

But while hook ups may dominate discussions about campus culture, not everyone is actually hooking up.

Indeed, according to the most recent American College Health Association Survey, over a third of college students have never had sex. And while 46% have had sex in the past month, the vast majority of sexually active students have only had one sexual partner in the past 12 months. In fact, 47% of college students reported being in a relationship.

That doesn't sound like students intent on casual sex and one-night stands.

Why do we talk about hook up culture so much then?

Lisa Wade, a sociologist at Occidental college, suggests that it might have to do with who is hooking
up: white, wealthy, heterosexual students. The status that these students' race, class, and sexual orientation confer allows them and their habits to dominate national discussions of campus culture.

"Students feel that a hookup culture dominates their colleges not because it is actually widely embraced," Wade writes, "but because the people with the most power to shape campus culture like it that way."

Indeed, contrary to Taylor's piece in the Times, Kathleen Bogle found that hook up culture was driven by men. In their interviews with Bogle, women were far less satisfied with hook up culture than their male peers.

In general, women preferred relationships, whereas men preferred casual encounters.

Bogle offered two reasons for this difference. First, the women she interviewed were interested in getting married earlier than the men. Thus many women were actively looking for a long term relationship that might result in marriage. The men simply weren't.

Bogle also pointed to a persistent double standard in campus sexual culture. While men were praised for being promiscuous, women were stigmatized. If they behaved like men and pursued multiple partners, women risked earning derogatory labels like "slut." Indeed, many men confessed that they wouldn't date a woman who had had many sexual partners. Thus in order to protect their reputations, women sought out stable relationships.

So not everyone is hooking up and not everyone wants to. Instead the hook-up elites are imposing a hegemony over campus sexual culture.

What we talk about when we talk about hooking up

The problem with these misconceptions is that they make hook up culture seem inevitable. Indeed, when we press too hard on the prevalence of hook up culture, we might be sending students mixed messages.

On the one hand, we imply that students are randy and oversexed.  We insist that hook ups and no-strings-attached sex are endemic to college campuses.

On the other hand, we blandly tell students that they overestimate how much sex their peers are having.

Which message do you think students will remember?

If the vivid image of a college free-for-all is what sticks in students' mind, then we may be doing
them a disservice.

Students do tend to overestimate their peers' sexual activity, making the behavior of a few outliers (the hook up elites) appear to be the social norm. Students then turn to these social norms to guide their own behavior, reinforcing hook up culture. 

It is possible that by talking so much about hook up culture (even when condemning it) that we inadvertently reinforce the idea that the outliers are the social norm, that everyone really is hooking up.

Instead of just condemning hook up culture, we need to offer some alternatives. Or better yet, we need to elicit some alternatives from students themselves.

Rewriting the hook up script

According to Bogle, hook up culture is a social script: a set of cultural and social expectations surrounding dating that students internalize and follow. Bogle contrasts the hook up script with earlier social scripts, such as "courting" or "going steady," which were the products of different social and demographic conditions.

Rather than just trying to correct students' perceptions of their peers' behavior or point to the flaws of hooking up, perhaps we might engage with students to write new social scripts, in order to get them involved in rewriting hook up culture.

What might that script look like? It's hard to say. But it can start with conversations about dating, asking what men and women want to get out of their college experience and whether that includes meaningful intimate relationships.

In fact, research suggests that some women pursue hook ups because the risks of a causal encounter are actually less than those of a long-term relationship: "Bad hook ups are isolated events, while bad relationships wreak havoc with whole lives."

The conversation about hook up culture can begin with freshman orientation, and it can continue in classrooms from gender studies to philosophy.

Getting students to see the fact and fiction of campus culture is a laudable goal. Getting them to understand that they aren't simply passive subjects of culture, but active agents who can change it has the potential to make a real impact on campus life.

Students can be so intent on changing the world that they fail to see the change that needs to happen right around them.

There's a well-known parable about two young fish swimming in the sea. An older fish swims up and asks, "How's the water?" After the older fish swims away, one young fish turns to the other and asks, "What's water?"

The point is, students are so immersed in the culture that surrounds them, they don't even know it's there. But it is. And it affects them. Unlike the two fish, however, students have the chance to find new waters.

Start a conversation with students and keep it going. Help them replace the hook-up culture myth with the script that fits their reality.

Awareness is the first step towards changing the "water" around us...some students may not even know they're drowning in it.

 

Works Cited

Bogle, K.A. (2008) Hooking Up: Sex, Dating, and Relationships on Campus. New York: New York UP.

Garcia, J.R., et al. (2012) "Sexual Hookup Culture: A Review." Review of General Psychology, 16, 161-176.