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Krystal Emerson never imagined her son would spend his days at school being forcibly moved against his will by school staff and shut in an empty room.
But during the 2023-24 school year at Ellsworth Elementary-Middle School, that’s what happened — at least 18 times, according to Emerson and school district incident reports reviewed by the Maine Morning Star. Staff members put the 7-year-old boy in holds, forced him into empty rooms and did not let him out until he calmed down or his parents picked him up.
“It broke him, and it broke me,” Emerson said.
The trauma became so severe that her son, now a third grader, no longer attends school in person, she said.
What happened to Emerson’s son is not an isolated case. Across Maine, schools use restraint and seclusion on students more than 10,000 times each year, according to Maine Department of Education data — with some districts resorting to the emergency tactics regularly while others have changed policies and taken other steps so that such interventions are only used as a last resort.
In recent years, Maine as a whole has made an effort to reduce restraint and seclusion in schools, particularly for students with disabilities, with the U.S. Department of Education citing staff and student injuries and the resulting trauma for students as the reasons to curtail their use. The department has also condemned and discouraged these practices for years under multiple presidential administrations. Rare cases have resulted in serious injuries to students and even death.
A 2021 state law limits restraint and seclusion to emergencies. But as Maine educators report more challenging student behavior in the years since pandemic school closures, there have been calls to allow school staff to restrain and seclude children more often. A newly proposed bill would broaden the circumstances under which school staff could restrain or seclude students, igniting debate among educators, parents and lawmakers about how to manage student behavior without inflicting harm.
The Maine Education Association and the Maine School Management Association, representing teachers and administrators statewide, both support the proposal, citing increased reports of disruptive and violent student behavior — something educators nationwide have also reported in recent years.
The Gardiner-area school system, Maine School Administrative District (MSAD) 11, has led the push for that proposal. Victoria Duguay, principal of River View Community School in Gardiner, and MSAD 11 Superintendent Patricia Hopkins shared stories with lawmakers of students who hit and spit at adults, scream in hallways, throw chairs and destroy other students’ schoolwork.
Under the 2021 state law, school staff can only restrain students (immobilize them and move them against their will) or seclude them (isolate them in a room that they can’t leave) if their behavior “poses an imminent danger of serious physical injury” — requiring medical intervention beyond first aid, according to the Maine Department of Education regulations that govern restraint and seclusion.
“Staff are being hit, they’re being bit, but it doesn’t meet the threshold of serious imminent danger, because a 5-year-old isn’t going to [cause] an injury that requires medical care,” Hopkins said during an April 23 public hearing.
This extreme behavior, when it happens in a public place at school, traumatizes other students who witness it, Duguay said. The school sometimes has to close off access to common spaces — the gym or cafeteria — if a student acts out in a hallway through which students would need to pass.
Under the legislation MSAD 11 is supporting, staff would be able to move students against their will to a seclusion room or another quiet space without it counting as a restraint, which districts have to record, document, and report to the state.
But some educators who have pursued alternative training don’t agree that loosening restraint and seclusion requirements is the answer.
“The consequences of passing this bill will only inflict more trauma on students,” said Audrey Bartholomew, associate professor and coordinator of special education programs at the University of New England, who trains special education teachers. “Additionally, the behavior will keep happening, because restraint and seclusion is not an appropriate response to challenging behavior, and it will in no way help students remediate their behavior. These should not be referred to as strategies, treatments or solutions.”
Inside the three-hour restraint and seclusion of a 7-year-old
In October 2023, Emerson’s son started a behavior plan to help with concentration and self-regulation. The plan, which Emerson shared with the Maine Morning Star, highlighted the mother’s concerns about her son’s anger, dysregulation, anxiety and ADHD, and noted Emerson’s finding that occupational therapy had helped her son better regulate.
One week after the plan was put into place, the boy arrived at Ellsworth Elementary-Middle School already agitated, hit another student with a Pete the Cat stuffed animal and tried to leave the classroom, setting off a series of escalating interventions in which staff physically restrained him, relocated him against his will, and ultimately placed him in a small room where he stayed until his father arrived, according to incident reports shared with the Maine Morning Star.
The reports, which staff or administrators are required to write, offer an inside look at the behavior leading up to the restraint, how the situation escalated as staff restrained and secluded the boy, and how it continued for three hours, ending when Seth Emerson picked his son up from a seclusion room.
When the second grader initially tried to leave his classroom, two educators cornered the boy in a hallway nook, according to the report written by the school’s assistant principal. When he tried to push past them, they placed a mat between themselves and the child to block him from hitting them, and initiated the first of several physical holds. Each time he was released, he briefly calmed down but didn’t follow directions to sit still or stay in a designated spot, prompting a cycle: he would attempt to flee, staff would block him, the boy would resist, and staff would restrain him again, the report says.
About an hour in, while hiding in a locker, he asked to go home. A staff member moved him to a classroom, where he hid under a desk, retrieved rocks from his backpack, and threw them at staff, the report said. While the report described the projectiles as rocks, Emerson said her son had pebbles in his backpack.
Two hours in, staff called his parents. Even after he calmed down, they placed him in a seclusion room — referred to as a “quiet room” in the report — where they continued telling him to sit in a specific spot. When his father arrived, the boy walked out on his own, calm and cooperative.
Incidents like that continued for several more months for reasons that Emerson said did not warrant these measures: After he pulled books off shelves, punched a door, or refused to accompany staff to a quiet room, staff would put him in a physical hold or placed him in a room alone, according to a complaint Emerson filed with the district.
“I never condoned any of the behavior, whether he was throwing a book or whether he was yelling or running out of the classroom,” she said. “But he was not getting any education whatsoever last year. He was literally just going to school and being restrained and secluded.”
Frequent seclusions push an educator to quit
It’s not only students and their families who feel the trauma from restraints and seclusion. The educators who are told to put their hands on children feel it, too, several current and former teachers and education technicians told the Maine Morning Star.
Ashley Rose took a job as an ed tech at SeDoMoCha Elementary School in Dover-Foxcroft in August while working toward a degree in special education. But after months of witnessing staff placing students in empty rooms as they screamed and cried to be let out, she changed course.
In March, Rose switched her major, deciding she no longer wanted to become a teacher. On April 28, she resigned, writing to Superintendent Stacy Shorey that she had repeatedly raised concerns with supervisors about the school’s frequent use of seclusion, the lack of staff training on student behavior, and the absence of alternatives — without seeing meaningful change.
SeDoMoCha Elementary School has “quiet rooms” located within special education classrooms — which Rose described as 10-by-6-foot rooms with no windows. Some have benches and one light, while others are entirely empty, she said. All the doors have windows in them so staff can monitor students.
In her 10 years of working in special education, she has never seen such frequent use of quiet rooms, Rose said.
In December, Rose found herself participating in her first seclusion. The student she was working with wasn’t physically aggressive, just loud, and Rose’s plan had been to escort her into the special education classroom — not the quiet room — to help her calm down.
The student went with her voluntarily but was crying, she said. When they got to the classroom, another staff member who had worked at the school longer said it was part of that student’s behavior plan to go to the quiet room.
“That wasn’t my plan,” Rose said. “That room scares me just looking at it as an adult.”
As the student became more agitated, Rose said her own anxiety rose. If the student didn’t calm down, the other employee told Rose she had to shut the door. Rose complied, and then her colleague told her to hold the door shut with her foot to keep the student inside, she said.
Inside the room, the student began having what appeared to be an anxiety attack and threatened to break the window. She calmed down after about 20 minutes, and Rose let her out. Rose said she was not directed to file an incident report, nor was she told if someone else in the district did, despite the requirement in state law that districts document every seclusion.
Over the holiday break that followed, Rose said she had trouble sleeping. “All I can think about is the student I put in that room,” she said. “School should be their safe place, and these students were not feeling safe.”
Shorey, the superintendent, said staff members are required to report every incident, but she did not know about the particular incident Rose described. Special Education Director Sue Terrill said it’s possible that a staff member other than Rose wrote a report, but the district was unable to locate any documentation of that event.
The district trains employees in safety care — crisis management and prevention practices — Terrill said. It is open to other trainings, too, she said, including one that Rose brought to Terrill’s attention in February offered by the Maine nonprofit Lives in the Balance, which other districts have used to dramatically reduce their reliance on restraint and seclusion.
Quiet rooms present a gray area
Rose said she saw staff members keep students in seclusion rooms even when they were calm, using those same rooms for a variety of reasons beyond seclusion, which is banned or strictly regulated in at least seven states, according to the MOST Policy Initiative, a Missouri nonprofit. Maine came close to banning the rooms in 2021, but the final version of the law was amended to allow their use in emergencies.
Rose said she saw staff place students in quiet rooms to calm down after acting out, and then not allow them to exit for 20 minutes after they calmed down. If the seclusion happened at the end of the school day, sometimes the student would be expected to return to the quiet room the next day, she said.
Terrill recalled Rose raising this as an issue but denied keeping students in the rooms after they calmed down and no longer met the legal threshold for confinement.
But the district does use these rooms as timeout spaces, either by student choice or by staff direction, Terrill confirmed. Often, Terrill said, staff members are positioned outside the rooms, as they would be in a seclusion incident, but the student is typically free to leave the room, which is not the case in a seclusion.
Sometimes, the door is open, or a student can choose to shut the door with a staff member standing outside, she said.
“It can be the same room used if the student was in seclusion,” she said. “But if they’re taking a break because of something that happened, and that’s being used as a break space, the student might continue to work in there until they’re ready to go back to the classroom.”
Like RSU 68 in Dover-Foxcroft, districts across Maine also use seclusion rooms as quiet spaces, according to Ben Jones, a former Disability Rights Maine attorney who now works for Lives in the Balance.
“I think it’s actually more the rare case that the school is like, ‘We’re going to build this room and we’re going to call it the seclusion room, and it’s going to be used just for seclusion,’” he said.
If a student has voluntarily shut themselves in the seclusion room with a staff member outside and is free to go at any time, it would not count as seclusion under Maine law, he said. But if staff members ask students to stay in there to complete their work, as Rose described, whether it would count as a seclusion that districts are required to report to the state is “open to interpretation,” Jones said.
“The overall thing is, the kid is not learning, not in the classroom, in something that could easily turn into seclusion,” he said. “It’s inappropriate at best and potentially illegal if it’s an unrecorded seclusion.”
When are students and staff in “imminent danger”?
Education technicians like Rose — aides who often work with students one-on-one or in small groups — are often the ones handling student outbursts or potential violence, said Greg Kavanaugh, who spent 13 years working as an ed tech and special education teacher in Biddeford, Portland, and Yarmouth.
Ed techs are among the lowest-paid professionals in education, and often the least trained — including on behavior management techniques.
“They’re having to make good decisions about when to restrain, when to seclude, and their judgment is going to be really hard because they’re so stressed, overwhelmed, underpaid,” Kavanaugh said. “That just leads to more mistakes, more lapses in judgment.”
In his experience, Kavanaugh said, restraint and seclusion were consistently treated as last-resort measures — used only in extreme situations.
Staff received training on managing student behavior, they debriefed after restraints and seclusions, and they held regular conversations with parents, he said, which disability rights advocates recommend as best practices.
But working in a functional life skills program with students with moderate to severe disabilities, Kavanaugh said, deciding whether to restrain or seclude a child was never easy despite clear protocols in place. Even when a student threw a laptop across the room or hit him, he had to determine whether the behavior posed an imminent danger of serious injury that would require medical intervention beyond first aid — the standard in Maine law — and only intervene physically if it did. He also had to keep calm if students hit him, he said, because that still did not meet the legal standard.
Every time he did restrain or seclude a child, it stayed with him long after. He said he often questioned whether it had been the right call, thought about how families would respond, and considered the lasting effects the practice might have on the student — and on himself.
“Anytime there was a hold, a restraint or a seclusion, you’re taking that home, and you’re thinking about that kid when you’re at home, trying to move on with your day,” he said. “I’m a pretty strong-willed person, but there are plenty of times I would quietly be in tears, or going home and having an extra glass of wine, because I’m just not processing it well in the aftermath.”
Other students in the classroom witnessing these incidents are also traumatized, Kavanaugh said.
“You see the terror on their classmates’ faces, and you feel bad for the kid in a certain way because this is going to hurt their relationships,” he said.
But talking to parents afterward would always make him feel better, Kavanaugh said, because parents of students with disabilities are often dealing with similar behavior challenges at home.
District response to a parental complaint
Emerson, the parent in Ellsworth, complained to the school board, Superintendent Amy Boles, and the Maine Department of Education in August 2024, alleging that staff members had not met the legal threshold for using restraint and seclusion so often on her son.
Boles wrote back in October, saying in cases where Emerson’s son was hitting, scratching, and kicking staff, “it is my conclusion that active behavior like this toward another person does create an ‘imminent danger’ that the other person could be sufficiently injured that he or she may need more than ‘routine first aid.’”
“The incident may not in fact have caused an injury requiring that level of care, but a reasonable and prudent person could reasonably conclude that this could occur,” Boles wrote in her letter, reviewed by Maine Morning Star.
But the investigation the district launched in response to Emerson’s complaint found that staff had improperly restrained and secluded her son in at least five of the 18 incidents to which his mother objected. Some incident reports were also vaguely written, Boles wrote, which was the case for the three-hour incident in October 2023 — making it difficult to determine whether restraints and seclusion were warranted.
Nonetheless, Boles concluded in her letter to Emerson that all staff need training on the proper use of restraint and seclusion, and she agreed the district should rely on the practice less often.
Boles declined to comment on the investigation or specific incidents, but said district staff have undergone an initial training with Lives in the Balance, and followup trainings are planned.
“Behavior is an issue across the board. I mean, it’s skyrocketing everywhere. It’s not just Ellsworth,” she said. “But we’re working really hard to try to be preventative before it gets to that extreme state, trying to teach staff day-to-day strategies to prevent the behavior before it escalates.”
Emerson said her son is still visibly shaken every time he passes by the school, or even when someone mentions the word “school” around him.
On April 23, she testified at a public hearing, telling Maine lawmakers restraint and seclusion in public schools must stop. The day before, her son had said he was still afraid to go to school in person.
“His world has become so small since these events, he rarely leaves our home,” she said. “Everyone continues about their day, and yet I’m left to pick up the pieces.”
Maine Morning Star is part of States Newsroom, a nonprofit news network supported by grants and a coalition of donors as a 501c(3) public charity. Maine Morning Star maintains editorial independence. Contact Editor Lauren McCauley for questions: info@mainemorningstar.com.
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