OVERVIEW of the Developmental Evaluation of Juvenile ... · x OVERVIEW of the Developmental...

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OVERVIEWoftheDevelopmentalEvaluationofJuvenileJusticeReforminNebraskaPreparedfortheNebraskaCourtImprovementProjectPreparedbyTerraLunaCollaborativeMarch2017

TABLE OF CONTENTS

Overview........................................................................................................................................1

Methods.........................................................................................................................................2

AdultStakeholderInterviews&ListeningSessions....................................................................2

Figure1:InterviewsbyGeography.....................................................................................2

Figure2:InterviewsbyPerspective....................................................................................3

YouthPerspective:Arts-BasedEvaluation.................................................................................4

DevelopmentalEvaluationComponents........................................................................................5

1. Historical:RetrospectiveDevelopmentalEvaluationofJuvenileJusticeReforminNebraska............................................................................................................................5

2. Current:AnalysisofNebraska’sJuvenileJusticeSystem..........................................5

3. Forwardlooking:Vision,GuidingPrinciplesandCoreStrategies.............................5

4. WhattoWatch?ALearningFramework..................................................................5

TheTeam........................................................................................................................................6

OVERVIEW:DevelopmentalEvaluationofJuvenileJusticeReforminNebraska|Page1of8

OVERVIEW

JuvenilejusticereforminthestateofNebraskaaimstoprovidetheleastrestrictiveinterventiontoassistyouthinrehabilitating,withthesupportoftheirfamily.Todothisrequiresbalancingwhatisbestfortheyouthandthesafetyofthecommunity.Oneofthemanyeffortsinthisreformistobuildupthecommunity-based,in-homeservicesthroughoutthestateinordertokeepyouthintheirownhomesduringrehabilitation.TheJuvenileJusticeHome-BasedInitiative–fundedbytheSherwoodFoundationandtheWilliamandRuthScottFamilyFoundation–providesfundingtoimplementMulti-SystemicTherapy(MST)and/ortheBoysTownEcologicalIn-HomeFamilyTreatmentprogramsbyselectingandsupportingagenciesthatwillprovidethesein-homeservices.BothMSTandBoysTownhavetheirownfidelitymodelsandrequireselectedagenciestoprovideevidenceoftheirsuccessfulutilization.However,availabilityofaservicealonedoesnotmeansuccessfulreform.Withseveralstakeholdersinteractingwiththejuvenilejusticesystemonmultiplelevels,abroaderinvestigationintosuccessfulreformisnecessary.

ThepurposesoftheDevelopmentalEvaluationoftheJuvenileJusticeHome-BasedInitiativewereto

1)Describehowtheinitiativefitsintothelargerpictureofreform,and

2)Identifywhatsystemchangesareneededtomakethegrantasuccessfulendeavor.

Tosupportthispurpose,TerraLunaCollaborativeconductedamulti-methodprocessesthatengagedstakeholdersinsharingtheirperspectivesontheJuvenileJusticeHome-BasedInitiative,andonthebroaderreformefforts.


METHODS

AdultStakeholderInterviews&ListeningSessions

Wecollecteddataprimarilythroughinterviewsandlisteningsessionswithadultstakeholdersworkinginthejuvenilejusticesystem.Thelistofstakeholderstointerviewwasdevelopedbyourteam,basedonareviewofdocumentsandwebsites,andthenvettedbytheCourtImprovementProjecttohelpidentifyprioritiesandgaps.Wecontinuedtoaddtothestakeholderlistoverthecourseoftheinterviewsbasedonrecommendationsforadditionalpeopleweshouldspeakwith,aquestionaskedattheconclusionofeachinterview.Altogether,thelistofstakeholderscontained195individuals.Wedidnotcontact20individualsduetomissingorincorrectcontactinformationorbecausetheywerenotdeemedappropriateforaformalinterview.Another35werenotinterestedoravailabletoparticipateand39wereunresponsivetorequests.Ultimately,wewereabletointerview90stakeholdersfromaroundthestate,representingavarietyofperspectives.Allidentifyinginformationwasremovedtoprotectinterviewee’sanonymity.Forafullbreakdownofperspectivesofthoseinterviewed,seeFigures1and2below.

Inadditiontostakeholderinterviews,wealsoconductedthreelisteningsessionswithapproximately25stakeholders.TwosessionswereheldinLincolnandathirdwasheldinOmaha.Unfortunately,wewereunabletoholdanysessionsinruralNebraskaduetoschedulingandtimeconstraints.

Figure1:InterviewsbyGeography


Figure2:InterviewsbyPerspective

Perspective #InterviewsAcademic 2Attorney(Defense,Prosecution) 8ChildWelfareAdministration(DHHS,FosterCare,etc.) 8Education 1FamiliesofSystem-InvolvedYouth 0FormerSystem-InvolvedYouth 1

Funders 1Judges 18JuvenileJusticeAdministration(Courts,Probation) 10LawEnforcement 0Legislator 1Oversight(CrimeCommission,OIG,OJJDP) 2Policy/Advocacy 5ProbationImplementation 23ServiceAdministration 9ServiceImplementation 1Tribal 2Urban(Douglas,Sarpy,LancasterCounties) 58Rural(OutsideofDouglas,Sarpy,LancasterCounties) 32TOTALInterviewsCompleted 90

Note:Someinterviewsarelistedundermultipleperspectives,sototalisnotasumofthenumbersabove


YouthPerspective:Arts-BasedEvaluation

Arts-basedevaluationlooksforindicationsofemotionalsalience,orartisticrepresentationsofstrongandmeaningfulemotions.Wecollecteddataforthearts-basedevaluationbyconductingfivearts-basedworkshopsforyouthacrossthestateinpartnershipwiththefollowingcommunityorganizations:

- TheHub,Lincoln- SuccessAcademy,GrandIsland- NebraskaUrbanIndianHealthCoalition,Omaha- LatinoCenteroftheMidlands,Omaha- BoysTown,Omaha

The25youngpeoplewhoparticipatedintheseworkshopsrepresentedmembersofAmericanIndiantribes,Hispanic-identifiedyouth,youngparents,highschoolstudents,andgroupmembersintheirearlytwentieswhohadpriorengagementwiththejuvenilejusticesystem.Whilethemajorityoftheparticipantswereboys,theworkshopatBoysTownwasattendedby4girls.

Theworkshopstookparticipantsthroughaseriesofactivitiestoelicittheirviewsofthejuvenilejusticesystem,family,andhome.Someworkshopstookplaceallinonesetting,whileothersoveraperiodoftimedependingontheneedsofthecommunitypartner.ThesessionsopenedwithastoryoftheexperienceofaTerraLunateam-memberinNebraska’sjuvenilejusticesystem,tosparkconversationsandhelpputtheyouthatease.Youthweretheninvitedtosharetheirpersonalstory,withafocusontheirexperiencesinthejuvenilejusticesystem.Astheyouthsharedtheirstories,aTerraLunateammemberdocumentedkeywordsonaboard.Attheend,theyouthcouldseethefactorsthattheysharedacrosstheirvariedstories,whichincludedreferencestodruguse,fostercare,troubleinschool,familydiscord,apositiveinfluence,feelingsoflackofcontrol,feelingsofhopelessnessorloneliness,anddesireforchange.Next,theyouthwereledthroughawordassociationactivitytohelpthemnarrowdowntheirthoughtsaboutthejuvenilejusticesystem.Finally,theyweregiventimetocreateartthroughspokenword,poetry,monologue,drawing,rap,ornarrative.Attheendofthesessions,theyouthwereinvitedtospeakabouttheirart/performtheirartforthegroup.


DEVELOPMENTAL EVALUATION COMPONENTS

1. Historical:RetrospectiveDevelopmentalEvaluationofJuvenileJusticeReforminNebraska

• NarrativedocumentingthedevelopmentofjuvenilejusticereformeffortsinthelastdecadeinNebraska,toidentifysuccessfulefforts,opportunities,andgaps.

2. Current:AnalysisofNebraska’sJuvenileJusticeSystem

• AnanalysisofNebraska’scurrentjuvenilejusticesystemthatincludes(1)identificationofkeyfactorsthatinfluencehowthissystemdoesordoesn’tworkand(2)theperspectivesofvariousstakeholdersinvolvedinthesystemincludingyoungpeopleand(3)implicationsforreformefforts.

• MapsofthejuvenilejusticesysteminNebraskaincluding(1)actorsandinteractionsacrossthesystem(2)journeythroughthesystemwithkeydecisionpoints.

3. Forwardlooking:Vision,GuidingPrinciplesandCoreStrategies

• VisionforNebraska’sjuvenilejusticesystem.• SetofprinciplestoguidesuccessfuljuvenilejusticereforminNebraskatowardsthis

vision.• Corestrategiestoaddressneedsandreinforcestrengthsinkeyfocusareas.• SuggestionsforhowtheJuvenileJusticeHome-BasedInitiativecansupportthisvision.

4. WhattoWatch?ALearningFramework

• OverviewofcurrentmeasuresthatcaninformtheInitiative.• Outcomesorindicatorsthatstakeholderswouldliketoseetrackedmoreeffectively(or

atall).• Discussionofwhatsystemsandkeystakeholdersneedtobeengagedwiththiswork.


THE TEAM

NoraF.Murphy,projectco-leadandevaluator,holdsaPhDinEvaluationStudiesfromtheUniversityofMinnesotaandanMAinResearchMethodologyfromtheUniversityofPittsburgh.Inadditiontoherformaltraining,shehasdevelopedabroadsetofexperiencesasanevaluatorbyworkinginandwithschools,schooldistricts,communityorganizations,non-profits,governmententitiesandfoundations.MurphyhasworkedbothasanexternalconsultantandasaninternalevaluatorastheDirectorofAssessmentandEvaluationforthePerspectivesCharterSchoolsinChicago,ILandastheCoordinatorfortheMinnesotaEvaluationStudiesInstitute.In2013shewasawardedTheMichaelScrivenDissertationAwardforOutstandingContributiontoEvaluationTheory,Method,orPractice.SheiscurrentlyPresidentoftheBoardforTerraLunaCollaborative(http://www.terralunacollaborative.com/),theevaluationcooperativesheco-foundedwithcolleaguesin2012,andservesastheProgramChairfortheEvaluationUseTopicalInterestGroupoftheAmericanEvaluationAssociation(AEA).

CharmagneE.Campbell-Patton,projectco-leadandevaluator,isanevaluationconsultantforTerraLunaandDirectorofOrganizationalLearningandEvaluationatUtilization-FocusedEvaluation.Sheiscommittedtosupportingorganizationsworkingforsocialjusticebyembeddingevaluativethinkingacrossprogramsandoperations.Charmagnebringsadecadeofprogramdesign,implementationandevaluationexperiencetothisworkfromacrossarangeoffields,includingyouthcivicengagement,education,environmentaljustice,youthhomelessnessandphilanthropy.Shespecializesinqualitativeresearchmethodsandutilization-focuseddevelopmentalevaluation.SheholdsaBAinPoliticalSciencefromGrinnellCollegeandanMAinInternationalPeaceandConflictResolutionfromAmericanUniversity’sSchoolofInternationalService.

SandraHodges,evaluationteammember,holdsaPhDinAdministration,Curriculum,andInstructionfromtheUniversityofNebraskaatOmaha,anEducationSpecialistdegreeinEducationAdministrationwithaSuperintendent’sEndorsement,andaBachelorofSciencedegreeinElementaryEducation.Herprofessionalcareerincludes:elementaryschoolteacherandprincipal,humanresourcesadministrator,andassistantsuperintendent,allintheOmahaPublicSchoolDistrict.In2005HodgeswasselectedasUniversityofNebraskaatOmahaDistinguishedAlumni,andin2011wasawardedanHonoraryDoctoratedegreebyConcordiaUniversity.


LaToshaJohnson,evaluationteammember,isthefounderofKeyIntegratedSupportServices,acommunitybasedsocialserviceagencydedicatedtoempoweringyouth,strengtheningfamiliesandbuildingstrongfuturesbyprovidingthenecessarytoolsandresourcesneededtoprovidetotalhealingthroughpersonalizedintegratedsupportservices.LaToshawasbornandraisedinOmaha,Nebraska,andisagraduatefromtheUniversityofNebraska-Omaha.Shespecializesinchild,youthandfamilystudies.LaToshahasovertenyearsofexperienceworkingintheeducationandhumanservicefield.Shebeganworkingwithyouthearlyonthroughchurch,communityorganizations,mentoringandtutoring.Shehasworkedasamiddleschoolteacher,behavioralscienceinstructorforanon-profitorganizationaswellasacollegepreparatoryinstructorfortheUniversityofNebraskainLincoln.ThroughoutNebraska,shehasworkedasahighschoolteacher,familysupportspecialistandcasemanagerforat-riskyouthandfamilies.LaToshaandherhusbandareparentstotwochildren,asonandadaughter.ShehascontinuedtofulfillherlifelongpassionbyempoweringandstrengtheningatriskyouthinordertoenhancetheNebraskacommunity.

SarahSevcik,evaluationteammember,earnedaMasterofPublicHealth(MPH)incommunityhealthpromotionin2009andaMasterofEducation(M.Ed)inadulteducationin2012,andsheiscurrentlycompletingaProgramEvaluationCertificateattheUniversityofMinnesota.SarahteachesundergraduatepublichealthcoursesattheUniversityofMinnesotaandtheUniversityofSt.Thomas,andsheisalsoalicensedBasicAdultEducationteacherforthestateofMinnesota.Sarah'sinterestsincludethestudyofenvironmental,social,andbehavioraldeterminantsofhealth;theintersectionofbuildenvironmentandcommunityhealth;andholisticandsystemsapproachestoaddressingpublichealthconcernsandadvancinghealthequity.

AaryonWilliams,theartist-in-residence,bringsover10yearsofprofessionalexperienceasapassionateandversatileartist.OriginallyfromGary,Indiana,AaryonrelocatedtoOmahain2004.Usingbasketballasaguide,heattendedcollegeasanArtManagementmajorwithaninterdisciplinaryfocusonStudioArt.Aftercollege,AaryonwasofferedhisfirstcontractforaninternationalprofessionalbasketballleagueinIceland.HewentontoplaywithleaguesinMexico,Denmark,andPeru.Globaladventureshaveallowedhimtogaingreaterappreciationfornaturaldetailinganddiscoveringthecomplexityoffundamentalarttechniqueswhencapturingrealism.TodayAaryonlivesinOmahawherehefoundedFLIYEArtsCompanyandProductionswhichfocusesonhispersonalartbrandaswellasrisingartistsstrivingtodeveloptheirskills.Withhisfatherinmind,Aaryonwasabletolearntoneverlosehopeinthevalueofcreativity.Heknewthatcircumstanceswouldalwaysimproveifheremainedtruetohimself;tothetrade;andtothecraftofartistry.“Ifyoucancreateart,youcansurvive.”-Aaryon’sfather.


AaronOlivo,evaluationteammember,isaTerraLunateammemberusingmyexperiencetosupportthemovementtowardsmoreart-basedevaluation.Particularlyinusingtheartstohelpyoungpeopleengagedwiththejuvenilejusticesystemsharetheirexperience.HeisamalicensedTattooArtistspecializingincustomdesigns.Hedonateshistimeandservicestoex-gangmemberswhowanttogettheirtattooscoveredandistheownerofArtistUnboundLLCacompanythatutilizesmultipleartforms.Healsoworkwithmanyorganizationsinthepursuitofhelpingyoungpeoplebelieveinthemselvesandgivingthemthetoolstosucceed.HeisavolunteercoachatDG’sBoxingClubinOmahaNebraska.

RETROSPECTIVEDEVELOPMENTALEVALUATION

Part1oftheDevelopmentalEvaluationofJuvenileJusticeReforminNebraskaPreparedfortheNebraskaCourtImprovementProjectPreparedbyTerraLunaCollaborativeMarch2017

TABLE OF CONTENTS

EXECUTIVESUMMARY....................................................................................................................i

HistoryofReform........................................................................................................................i

ReformintheLastDecade..........................................................................................................i

LessonsforFutureReform.........................................................................................................ii

StrengthsandOpportunities..................................................................................................ii

ChallengesandBarriers..........................................................................................................ii

Conclusion.................................................................................................................................iii

INTRODUCTION..............................................................................................................................1

HISTORICALBACKGROUND............................................................................................................1

TheRootsofJuvenileJusticeandChildWelfareintheUnitedStates.......................................1

MajorDevelopmentsinJuvenileJustice&ChildWelfare:1960-2000.......................................2

ExtendingChildren’sRightsandProtections..........................................................................2

FromRehabilitationtoPunishment.......................................................................................3

Superpredators...................................................................................................................3

RacialDisparitiesandDisproportionateMinorityContact.................................................4

MajorInvestmentsandInitiativesTurntheTide...................................................................5

PublicInvestmentsandInstitutions...................................................................................5

PrivateInvestments............................................................................................................6

REFORMINTHE21STCENTURY.....................................................................................................7

FromPunishmenttoRehabilitation...........................................................................................7

IdentifyingGapsinNebraska’sServicesforChildren&Youth:ABaseline................................8

Nebraska’sSafeHavenCrisis....................................................................................................11

AccesstoServicesDrivesFurtherReforms..............................................................................12

Community-BasedServicesforStatusOffenders.................................................................13

InsufficientIndigentDefense...............................................................................................13

ServicesforRunawayandHomelessYouth.........................................................................13

CrossoverYouthPracticeModel..........................................................................................14

RETHINKINGJUVENILEDETENTION..............................................................................................14

DetentionAlternativesReachNebraska..................................................................................15

ChildWelfarePrivatization.......................................................................................................16

TheRiseofEvidence-BasedPractices......................................................................................20

Evidence-BasedPracticesinNebraska.....................................................................................21

IncreasingAttentiontoYouthMentalandBehavioralHealthNeeds......................................22

TheAftermathofPrivatization-RestructuringNebraska’sSystems.......................................23

MajorreformusheredinwiththepassageofLB561..........................................................23

InstitutionalizingReform:EnhancingAccountabilityandAccess.............................................25

RECENTTRENDSINJUVENILEJUSTICEREFORM..........................................................................28

DevelopmentalAppropriatenessandTrauma-informedCare.................................................28

BiasReductionandDisproportionateMinorityContact..........................................................29

FocusonNativeYouth..............................................................................................................30

PreventingSexTrafficking........................................................................................................33

JuvenileJusticeHome-BasedInitiative........................................................................................33

PlanningPhase.........................................................................................................................34

ProgramModels.......................................................................................................................36

StateTour.................................................................................................................................37

PilotPhase................................................................................................................................38

REFLECTIONSONREFORM:LessonsfortheFuture.....................................................................41

StrengthsandOpportunities....................................................................................................41

Clearcommitmenttochildrenandyouth............................................................................41

Increasedinclusionandtransparency..................................................................................41

Alignmentwithnationalresearchandreformefforts.........................................................41

Identificationofguidingprinciples.......................................................................................42

ChallengesandBarriers............................................................................................................42

High-stakesandshorttimelines...........................................................................................42

Administrativebarrierstoeffectiveimplementation...........................................................42

GapsbetweenreforminurbanandruralNebraska............................................................42

Staffturnover.......................................................................................................................43

Equityandinclusion.............................................................................................................44

CONCLUSION................................................................................................................................44

REFERENCES.................................................................................................................................45

APPENDIX.....................................................................................................................................51

MajorMilestonesinJuvenileJusticeReform...............................................................................51

RetrospectiveDevelopmentalEvaluationofJuvenileJusticeReforminNebraska|Pagei

EXECUTIVE SUMMARY Thisretrospectivedevelopmentalevaluation(RDE)ofjuvenilejusticereforminNebraskaexplorespastmilestonesandmajordevelopmentsinNebraska’sjuvenilejusticesystem.TheRDEisintendedtoinformtheJuvenileJusticeHome-BasedInitiativethatiscurrentlybeingpilotedbytheNebraskaCourtImprovementProjectandtheAdministrativeOfficeofProbation,withfundingfromtheSherwoodFoundationandtheWilliamandRuthScottFamilyFoundation.Whilethefocusisonthepasttenyearsofreform,from2006-2016,somehistoricalbackgroundisalsoprovidedtooffercontextforthemorerecentdevelopments.TheRDEisbasedonareviewofdocuments,includingresearchstudies,reports,legislationandnewsarticlesandsupplementedwithinformationgatheredduringinterviewsandlisteningsessionswithover90adultstakeholdersinvolvedinthejuvenilejusticesystem.

History of Reform

Afterasummaryoftherootsofthejuvenilejusticeandchildwelfaresystemsdatingbacktothe1900s,thisreporthighlightsmajormilestonesinjuvenilejusticebeginninginthe1960s.ItexplorestheimplicationsofmajorUSSupremeCourtdecisions,nationalandstatelegislation,institutionalreformsandprograms,andmajorinvestmentsandresearch.Beginninginthelate1970sthroughthelate1990s,themajortrendwithinthecriminaljusticesystemasawholecanbecharacterizedas“toughoncrime.”Theresultofthisapproachwasextremelyhighratesofincarcerationofyouthandthecharacterizationofcertainyouthas“superpredators.”Duringthistime,NebraskacreatedtheOfficeofJuvenileServices(OJS)asaseparatedivisionoftheDepartmentofCorrectionalServicesanditsinstitutionsfordelinquentyouthinKearneyandGenevawerere-namedYouthRehabilitationandTreatmentCentersandplacedunderOJS.Subsequentlyin1997,OJSwasmovedtotheDepartmentofHealthandHumanServices(DHHS).Publicandprivateinvestmentsandresearchinthelate1990sandearly2000sbegantoturnthetidefrompunishmenttorehabilitation.Researchontheuniquebehavioralandmentalneedsofyouthemergedandprogramsforaddressingtheseneedsbecamemorewidespread.Nebraskawasnotamongtheearlyadoptersofthesereformefforts.

Reform in the Last Decade

Since2006,juvenilejusticereformeffortshaverampedupsignificantlyasthemovefrompunishmenttorehabilitationbecameinstitutionalizedmorebroadly.Atthistime,theNebraskaDHHSwasresponsibleforabuse/neglectcasesaswellashigh-riskjuvenileoffendersthroughOJS,whiletheAdministrativeOfficeofProbationwasfocusedoncommunitysupervisionoflowandmoderateriskyouth.Earlyinthisperiod,Nebraskacameunderfireforitslowscoresonkeychildwelfareindicatorsandhighratesofyouthindetention.Thestateexperimentedwithprivatizationofitschildwelfaresystemfrom2009-2011,whileatthesametimeimplementedseveraleffortsaimedatreducingthenumberofjuvenilesindetention.Noneofthesereformeffortsseemedtobemakingadentintheproblem,whichledtomajorrestructuringofthesystemfrom2012-2014withthepassageofseveralmajorpiecesoflegislation-mostnotably

RetrospectiveDevelopmentalEvaluationofJuvenileJusticeReforminNebraska|Pageii

LB561inMay2013.ThesereformstransferredresponsibilityforalldelinquentandstatusoffendingyouthfromtheDepartmentofHealthandHumanServicestotheAdministrativeOfficeofProbation,leavingDHHStofocusonyouthimpactedbyabuseandneglect.ItalsocreatedtheOfficeoftheInspectorGeneralofChildWelfare,withresponsibilityforindependentreviewofthejuvenilejusticeandchildwelfaresystems.MostjuvenilejusticestakeholdersseemtoagreethatthetransitionfromDHHStoProbationhasbeenamoveintherightdirectionandtherateofjuveniledetentioninNebraskahasdeclined.Nebraska’ssystemhasalsoasbecomemorealignedwithmanyofthemajortrendsinjuvenilejusticereformnationally,includingmoreinvestmentindetentionalternatives,trauma-informedcare,crossoveryouth,biasanddisproportionateminoritycontact,andevidence-basedpractices.

Lessons for Future Reform

Basedonareviewofhistoricaldevelopmentsandmilestonesinjuvenilejustice,wehaveidentifiedthefollowingstrengthsandopportunities,aswellasweaknessandchallenges:

StrengthsandOpportunitiesClearcommitmenttochildrenandyouth:ThroughinterviewswithkeystakeholdersandareviewoftheliteratureonjuvenilejusticeandchildwelfarereforminNebraska,itisclearthereisastrongcommitmenttoprotectingandservingchildrenandyouth.Thereisalsoincreasedattentionbeingpaidtojuvenilejusticereformaroundthestatefromthepublicandfromlawmakers.Increasedinclusionandtransparency:Thereseemstobeasignificantincreaseinthecommitmentofstakeholdersacrossthesystemtoengageintransparentassessmentsandongoingdialoguetoensurethatreformsarehavingtheintendedimpact.Alignmentwithnationalreformefforts:BeginningwithLB800in2010andrampingupintheaftermathofprivatizationandthepassageofLB985andLB561,Nebraskaseemstobecatchingupwiththenationaltideofreform.Identificationofguidingprinciples:Giventhewidescopeofthisevaluationandthemanyinitiativesunderway,thereisanopportunitytoidentifyguidingprinciplesthatwouldbringcoherencetothiseffortwhileallowingforvariationandadaptationacrossthestate.

ChallengesandBarriersHigh-stakesandshorttimelines:Sincewhatmanydeemthe“failed”experimentwithprivatization,reformeffortshavebeenhighlypublicandthestakesquitehigh.Withthewelfareofchildrenandyouthatstake,thisisappropriate.Manyofthejuvenilejusticestakeholdersinterviewedfeltthattheincreasedattentiontoreformwasaverypositivetrend.YetwithsomanyofthereformsbeingdrivenbytheLegislature,whichhasshorttermlimitsandreelectionstoconsider,somestakeholdersalsosuggestedthereisnotalwaysenoughtimeforreformstotakeholdbeforenewreformsarepassed.

RetrospectiveDevelopmentalEvaluationofJuvenileJusticeReforminNebraska|Pageiii

Administrativebarrierstoeffectiveimplementation:OneoftheresultsofrecentreformsandthetransitionofresponsibilitytotheAdministrativeOfficeofProbationhasbeenadaptingthesystemsandstatutestoallowforeffectiveinter-agencycoordination.Thishascausedsomechallengesandconfusionwithregardstoserviceproviders,payments,vouchers,etc.GapsbetweenreforminurbanandruralNebraska:ThereappearstobefrustrationfromattorneysandjudgesinWesternNebraskathattheyareoftenthelasttogetservicesorreforms.Somestakeholdershavealsosuggestedthat“buyin”tosomeofthenationalresearchremainslowamongjudgesandprosecutorsinruralareaswhereservicesarelackingandthetoughoncrimementalitymaystillbethedominantmindsetinthecommunity.Whilesomeprogramshavebeenintentionallypilotedinruraldistrictstoexploredifferingneedsoftheruralpopulation,thereisalsooftenpressurefromfundersorproviderstobeginprogramsinurbanareaswheretherearehigherpopulationsofsystem-involvedyouth.Furthermore,whilestatewideeffortsareinplace,localdistrictsstillretainsomelevelofcontroloverhowtoallocateresourcestobestmeettheiruniqueneeds.Staffturnover:Thoseworkinginthechildwelfareandjuvenilejusticesystemshavegonethroughcountlessreforms-fromprivatizationtocompleterestructuring-whichhaveimpactedtheworkforceinmyriadways.Highratesofturnoverhighlighttheimportanceoftrainingfornewstaff.Thosewhohavestayedmayfeeltraumatizedbyallofthechangestheyhaveexperiencedandrequiremoresupporttobeeffective.Equityandinclusion:Verylittlementionwasmadeaboutequityacrossrace,class,genderorotherdemographicsinthepublisheddocumentationonjuvenilejusticereformandstakeholdersindicatedthatdisproportionateminoritycontactremainsanissue.

Conclusion

ThisretrospectivedevelopmentalevaluationofNebraska’sJuvenileJusticeSystemrevealsareformmovementthathasgainedsignificantmomentuminthepastfiveyears.Asthestategainednationalattentioninthemid-2000sforhighratesofdetentionandlowscoresonmajorchildwelfareinitiatives,legislatorsandadministratorstriedarangeofsolutionstoimproveoutcomesforchildrenandcommunities.Someofthoseefforts,liketheattempttoprivatizechildwelfare,failedbeforetheyevengotofftheground.Others,likeinvestmentsinJuvenileDetentionAlternatives,haveshownpromisingresults.Yetthewholepictureofreformoverthelastdecadecanbecharacterizedasbumpyanduneven.Still,itappearsthattheroadmaybegettingsmootherwithincreasedtransparencyandcoordinationamongagencies.InitiativesliketheJuvenileJusticeHome-BasedInitiativehavesignificantpotentialtofillsomecleargapsinthesystem,butarealsofacingsignificantbarriers,includinghigh-stakes,short-timelinesforresults,workforcechallengesandasignificanturbanandruraldivide.Therearealsoalotofinitiativeshappeningsimultaneously,whichcanleadtoconfusionandchallengescoordinatingandcommunicatingacrossefforts.

RetrospectiveDevelopmentalEvaluationofJuvenileJusticeReforminNebraska|Page1of57

INTRODUCTION Thisdocumentisaretrospectivedevelopmentalevaluation(RDE)ofjuvenilejusticereforminNebraska.AnRDEisintendedtoidentifymajormilestonesanddevelopmentsthathavehappenedinthepasttodrawlessonsforthefuture.ThisRDEexplorespastmilestonesandmajordevelopmentsinthejuvenilejusticeandchildwelfaresystemsinNebraskatohelpinformtheJuvenileJusticeHome-BasedInitiativethatiscurrentlybeingpilotedbytheCourtImprovementProjectandtheAdministrativeOfficeofProbationwithsupportfromtheSherwoodFoundationandtheWilliamandRuthScottFamilyFoundation.Whilethefocusisonthepasttenyearsofreform,from2006-2016,somehistoricalbackgroundisalsoprovidedtooffercontextforthemorerecentdevelopments.ThisRDEisbasedprimarilyonareviewofdocuments,includingresearchstudies,reports,legislationandnewsarticles.Wheneverpossible,theperspectivesofstakeholdersworkinginthejuvenilejusticesystemarealsoincluded,basedoninterviewsandlisteningsessionswithover90stakeholdersinthejuvenilejusticesystem.ThisRDEservesasabaselinefordevelopmentsandreformsgoingforward,butisnotfixed.

HISTORICAL BACKGROUND

The Roots of Juvenile Justice and Child Welfare in the United States

ThejuvenilejusticesystemintheUnitedStatesdatesbacktothenineteenthcentury,whenagrowingrecognitionthatdelinquentchildrenandyouthshouldnotbetreatedthesameasadultcriminalsledtothecreationofhousesofrefugefortroubledjuvenilesaroundtheUnitedStates.InNebraska,thestateestablishedtheYouthRehabilitationandTreatmentCenter(YRTC)inKearneyin1879.Twoyearslater,thefacilitybegantreatingbothboysandgirls.Aseparategirlsonlyfacilityopenedin1892inGeneva,Nebraska.Attheendofthecentury,thefirstjuvenilecourtwasestablishedinChicagoin1899.AccordingtotheAmericanBarAssociation,“theideaquicklycaughton,andwithintwenty-fiveyears,moststateshadsetupjuvenilecourtsystems.”1Duringthisperiod,theapproachtojuvenilejusticewasfocusedonrehabilitation,butdidgivecourtstheoptiontoremovejuvenilesfromtheirhomeandplacethemindetentionifdeemednecessary.InNebraska,thefirstjuvenilecourtwasnotfoundeduntil1959inDouglasCounty.2TheformalchildwelfaresystemisgenerallytracedbacktotheGreatDepressionwiththecreationoftheAidtoDependentChildren(ADC)programundertheSocialSecurityActof1935.Priortothistime,mostservicesforchildrenandyouth,suchasorphanages,wereprovidedby

1AmericanBarAssociation.(n.d.).Thehistoryofthejuvenilejusticesystem.ABADivisionforPublicEducation:DialogueonYouthandJustice,p.5.2VoicesforChildreninNebraska.(2011).Juvenilejusticehistory101.


privateentitiesandnonprofitorganizations.AccordingtosocialworkerDouglasFalconer,manychildreninneedwereleft“untouched”bytheseagencies.WhentheDepressionhit,manyoftheseorganizationswentoutofbusiness,leavinganevenbiggergapinservicesforchildreninneed.3ThedevelopmentofchildwelfareinNebraskamirroredthetrendacrossthenation.AccordingtoVoicesforChildren,“thefirsteffortstoprovideforvulnerablechildrenandyouthinNebraskawereledbyprivatecharitableentities,”includingChildSavingInstitute(1892),NebraskaChildren'sHomeSociety(1893),andBoysTown(1917).4In1935,NebraskabeganprovidingservicestochildrenundertheADC,though“therewasstillnocoordinatedandcomprehensiveefforttoaddresschildsafety.”5

Major Developments in Juvenile Justice & Child Welfare: 1960-2000

ExtendingChildren’sRightsandProtectionsInthe1960s,severalmajordecisionsbytheUnitedStatesSupremeCourt,alongwithsignificantpiecesofnationallegislation,servedtoextendtherightsandprotectionsawardedtochildrenandyouth.In1966,theUSSupremeCourtheardthecaseofKentv.UnitedStates,inwhicha14yearoldwastriedasanadultbecausehewasseenasbeyondrehabilitation.ThemajorityrulinginKentcalledouttheshortcomingsofthejuvenilecourt,assertingthat“thechildreceivestheworstofbothworlds[injuvenilecourts]:thathegetsneithertheprotectionsaccordedtoadultsnorthesolicitouscareandregenerativetreatmentpostulatedforchildren.”6Thefollowingyear,anothersignificantdecisionbytheUSSupremeCourtinthecaseofInreGaultheldthatyouthinthejuvenilesystemhadthesamerightsguaranteedtoadultsaccusedofcrimes,includingtherighttodueprocess,therighttolegalcounselandtherightagainstself-incrimination.7In1974,theChildAbusePreventionandTreatmentAct(CAPTA,PublicLaw93-247)providedthefirstrequirementforstatestoestablishchildabusereportingproceduresandinvestigationsystems.Allstatesestablishedmandatoryreportinglegislationaroundthistime.AccordingtoVoicesforChildren,“CAPTAcreatedasignificantpendulumswingtowardremovalofchildrenfromtheirfamiliesandcreatedasignificantincreaseinthenumberofchildrenbeingplacedinfostercare.”8Fouryearslater,theIndianChildWelfareAct(ICWA,PublicLaw95-608)wasenactedinresponsetothehighpercentageoftheNativeAmericanpopulationthatwasbeingremovedfromtheirfamiliesandplacedinfostercare.ICWArequiredthatallchildwelfareproceedingsinvolvingaNativeAmericanchildmustbeheardintribalcourtsifpossibleandthattribeshavearighttointerveneinstatecourtproceedings.Itestablishedaclearpriorityfor

3VoicesforChildreninNebraska.(2011).Childwelfare’sevolution:NationallyandinNebraska.4Ibid.5Ibid6Kentv.UnitedStates,383U.S.541(1966).7InreGault,387U.S.1,20(1967)8VoicesforChildreninNebraska.(2011).Childwelfare’sevolution:NationallyandinNebraska.


placementofNativeAmericanchildrenwithNativeAmericanrelativesandfamilies.FromRehabilitationtoPunishmentOverthesameperiodtherightsandprotectionsofchildrenandyouthwerebeingenshrinedinlaw,thenationalcrimerate“sharplyincreased”andthefocusonrehabilitationwascalledintoquestion.Inresponse,“thefederalgovernmentandmanystatesturnedtooffense-basedsentencingpoliciesandembracedmorepunitivemeasures.”9Newstructureswereputinplacetoaddresstheincreasingsafetyconcernsofcommunitiesaroundthecountry.InNebraska,theGovernor'sCrimeControlCommissionwascreatedin1967“todevelopcomprehensiveplansandcoordinateactivitiesrelatedtotheimprovementofcriminaljusticeadministrationamongstateandlocalagencies.”ThenamewaslaterchangedtotheNebraskaCommissiononLawEnforcementandCriminalJusticeandbecameanagencyofstategovernment.10In1971,theNebraskaLegislaturepassedLB680,“whichprovidedforadministrationofprobationindistrict,county,andjuvenilecourts,exceptfortheseparatejuvenilecourts;createdtheOfficeofProbationAdministrationandoutlinedtheoffice’sduties;createdtheFieldProbationServiceandoutlineditsdutiesaswellastheproceduresfordischargingoffendersfromprobation;andprovidedamechanismforthesupervisionofoffendersthroughtheInterstateCompact.”11In1974,theOfficeofJuvenileJusticeandDelinquencyPrevention(OJJDP)wasfoundedasaresultoftheJuvenileJusticeandDelinquencyPrevention(JJDP)Act.12Nebraska’sGovernorandLegislatureauthorizedNebraska’sparticipationinthefederalJJDPFormulaGrantProgramin1981,thoughitwouldtakenearlytwentyyearsforthestatetocomeintocompliancewithJJDPrequirementsinordertobeeligibleforfunds.WhileNebraskawasnotaloneintakingtimetomeetalloftherequirements,itwasmarkedlybehindthemajorityofstatesatthetimeofauthorizationin1981.13SuperpredatorsThenationalshifttowardpunishmentcontinuedthroughthe1980sand1990s,duringwhich9Lipsey,M.W.etal.(2010).Improvingtheeffectivenessofjuvenilejusticeprograms:Anewperspectiveonevidence-basedpractice.CenterforJuvenileJusticeReform.GeorgetownUniversity:GeorgetownPublicPolicyInstitute,p.710NebraskaCrimeCommission.(n.d.).Overview.Nebraska.gov.11StateofNebraskaJudicialBranch.(2016).HistoryofNebraskaprobationsystem.12OfficeofJuvenileJusticeandDelinquencyPrevention.(2002).JuvenilejusticeanddelinquencyPrevention.U.S.DepartmentofJusticePrograms.13UnitedStatesDepartmentofJustice.(1981)SecondAnnualReportoftheJusticeSystem,p.23.Asof1981,onlysixstatesdidnotparticipateinJJDP(Hawaii,Nevada,NorthDakota,Oklahoma,SouthDakota,andWyoming);Oftheremainingstatesandterritories,Nebraskawasoneofonlytwothatdidnotshowatleasta75%reductioninthenumbersofstatusoffendersandnon-offendersheldindetention;oneofonlyfourthatdidnotshowdemonstratedprogressinseparatingjuvenilesfromadultsinjails,detentionfacilities,andcorrectionalfacilitiesbutonly19ofthe51statesandterritorieshaddemonstratedfullcompliancewiththeAct'sseparationprovision.


timethe“toughoncrime”mentalitypervadedpublicpolicyandpublicopinion.Itbecameeasierandmorecommontotryjuvenilesasadultsandtheprotectionofdueprocessforjuvenilesbecamemorelimited.In1995,JohnDiIulio,professorofpoliticsandpublicaffairsatPrincetonUniversity,createdandpopularizedtheconceptof“superpredators”,or“radicallyimpulsive,brutallyremorselessyoungsters...whomurder,assault,rape,rob,burglarize,dealdeadlydrugs,joingun-totinggangs,andcreateseriouscommunaldisorders.”14ThistermwasfollowedbyapredictionthatanewwaveofviolencewaslikelyduetotheincreasingpopulationofyouthintheUnitedStates.Thesewarningsinthecontextofthewarondrugsandageneraltoughoncrimementalityinthe1990sresultedinsignificantincreasesinyouthdetention.Accordingtoonestakeholder,theapproachtoyouthpickedupwasmoreofan“interrogationoranailthem,trailthem,jailthemkindofphilosophy.”AccordingtotheOJJDP,“thedailynumberofcommittedyouthheldinpublicandprivatefacilitiesincreased28%between1991and2003,withtheincreasefargreaterinprivatethaninpublicfacilities.”15Therewasalsoariseinschool-resourcesofficers,whichhasbeenlinkedtothecreationofaschool-to-prisonpipeline.AccordingtotheU.S.DepartmentofJustice,thenumberofschoolresourceofficersincreased38percentbetween1997and2007.16RacialDisparitiesandDisproportionateMinorityContactRacialdisparitiesinthejuvenilejusticesystemwerealsosignificantduringthisperiod.In1988,“amendmentstotheJJDPActauthorizedOJJDPtorequireStatesparticipatingintheprogramtoaddressdisproportionateminorityconfinement(DMC)intheirStatejuvenilejusticeanddelinquencypreventionplans.”17FurtheramendmentstotheJJDPActin1992madeDMCa“corerequirement”andtiedgrantfundstoStatecompliance.AsDMCreceivedmoreattentionandresearchdollars,itbecameclearthattheproblemwasnotsimplydisparitiesinratesofconfinement,buttouchedonallpartsofthejuvenilejusticesystem.Forexample,in1995“theblackjuvenilearrestratewasmorethandoubletherateforwhites.”18Onestakeholderrecalled,evenupuntil20yearsago,whenconductingworkarounddisproportionateminoritycontact,thecourtsystemexpressedthattheracialdisparityrateswerejustnumbers:“Itmeantnothingtothem.Butthesenumbersareourkids.Theywerelike,no,it’sjustnumbers.Theytotallydismissedit.”In2002,CongressexpandedtheDMCcorerequirementfrom“confinement”to“contact,”butthe“purposeofthecorerequirementremainsthesame:toensureequalandfairtreatmentforeveryyouthinthejuvenilejusticesystem,regardlessofraceandethnicity.”19

14Bennett,W.J.,DiIulio,J.J.&Walters,J.P.(1996).Bodycount:Moralpoverty…andhowtowinAmerica'swaragainstcrimeanddrugs.NewYorkCity,NY:Simon&Schuster.15OfficeofJuvenileJusticeandDelinquencyPrevention.(2007).Juvenileoffendersandvictims:2006nationalreport.16JusticePolicyInstitute.(2011).Educationunderarrest:Thecaseagainstpoliceinschools,p.117Slowikowski,J.(2009).Disproportionateminoritycontact.OfficeofJuvenileJusticeandDelinquencyPrevention.U.S.DepartmentofJustice.18ModelsforChange.(2006).Nationalstatistics:Systemsnapshot.NationalCenterforJuvenileJustice.19Slowikowski,J.(2009).Disproportionateminoritycontact.OfficeofJuvenileJusticeandDelinquency


MajorInvestmentsandInitiativesTurntheTidePublicInvestmentsandInstitutionsInthefaceofincreasingratesofjuvenileincarceration,theNebraskaJuvenileServicesActwascreatedinJulyof1990withthepassageofLB663.TheActwasdesignedtoassistcommunitiesinprovidingprogramsandservicesthatcreatealternativestoincarcerationforjuvenilesinthejusticesystem.InJulyof1992,responsibilityforadministrationoftheJuvenileServicesActwastransferredtotheCrimeCommissionviaLB447.20Twoyearslater,LB988createdtheOfficeofJuvenileServices(OJS)withintheDepartmentofCorrections.ThedirectorofOJSwasadirectgubernatorialappointeewithanindependentbudget.OJS“managedbothchildrenmadewardsofthestateforlawviolationsandNebraska'stwoyouthprisonstheYouthResidentialTreatmentCentersatKearneyandGeneva.”21Then,in1997,OJSwasmovedtotheDepartmentofHealthandHumanServices(DHHS),“endingtheYRTCs23-yearrelationshipwiththeDepartmentofCorrectionalServices.”22In1993,theUnitedStatesCongresspassedtheStateCourtImprovementProgram(CIP)aspartoftheOmnibusBudgetReconciliationAct(OBRA)whichfunded,amongotherthings,Statestoconductassessmentsoftheirjudicialprocessesinjuvenilecasesanddevelopandimplementaplanforsystemimprovement.23Nebraska’sCourtImprovementProjectbeganin1995andwasmanagedbytheUniversityofNebraska-LincolnCenteronChildren,Families,andtheLaw.TheOfficeofJuvenileJusticeandDelinquencyPrevention(OJJDP)beganinvestinginpreventioneffortsthroughitsCommunityPreventionGrantsprogramin1994.Thesefunds,commonlyreferredtoasTitleVfunds,focusedon“reducingrisksandenhancingprotectivefactorstopreventyouthfromenteringthejuvenilejusticesystem.”24AccordingtoanOJJDPreport,“bytheendof1997,477communitiesin49States,5Territories,andtheDistrictofColumbiahadreceivedCommunityPreventionGrantsprogramsubgrantsandhadservedmorethan100,000youth.”25EligibilityforreceivingOJJDPfundingwasdeterminedbycompliancewiththefollowingrequirementsoftheJJDPAct:a)removalofstatusandnon-offendersfromsecuredetentionfacilities;b)separationofadultandjuvenileoffendersthroughoutincarceration;andc)removalofjuvenilesfromadultjailsandlockups.Additionally,thestatewasrequiredtocollectand

Prevention.U.S.DepartmentofJustice.20NebraskaCoalitionforJuvenileJustice.(2007).2006annualreporttothegovernorandNebraskalegislature.TheNebraskaCommissiononLaw,p.821VoicesforChildreninNebraska.(2011,November15).Chapter1:Childwelfareevolution:NationallyandinNebraska.HealthandHumanServicesCommitteeLR37Report.22VoiceforChildren.(2012).IssueBrief:Nebraska’sYouthRehabilitationandTreatmentCenters.23NebraskaCourtImprovementProject.(2015).About.24OfficeofJuvenileJusticeandDelinquencyPrevention.(1998).TitleV:Communitypreventiongrantsprogram.U.S.DepartmentofJustice.25ibid


analyzedatatoidentifyandaddressanydisproportionatenumbersofminorityyouthatspecificdecisionpointsthroughoutthejuvenilejusticesystem.InNebraska,TitleVfundswereadministeredbytheNebraskaCrimeCommission.AnevaluationoftheNebraskaTitleVprogramin2003foundittobe“insufficient.”26Despitehiringajuvenilejusticespecialistin1999tosupporttheprogram,thereportfoundthat“stateofficialsweremorefocusedonotherjuvenilejusticeissuessuchascorrections.”27InApril1998,theNebraskaLegislaturepassedLB1073,whichbroughtthestateintocompliancewiththeserequirements.ItalsomadethestateeligiblefortheAct’s“RuralException,”which“allowsadultjailsandlockupsinruralareastosecurelydetainjuvenilecriminaloffenders(misdemeanantsandfelons)awaitinginitialcourtappearanceforupto48hours,excludingholidaysandweekends.Thejuvenilesmustbesightandsoundseparatedfromadultdetainees.”28Thesameyear,theNebraskaJuvenileJusticeTaskForcewascreatedwithpassageofLB1073.ThepurposeoftheTaskForcewastodeterminethe"futurelegislativeandexecutiveactionsnecessarytoaddressgapsintheorganizationanddeliveryofjuvenileservices.TheTaskForcepresentednumerousrecommendationsinthe"NebraskaJuvenileJusticeTaskForceReport"tothelegislatureandtheGovernorinDecember,1998.Thestatealsofailedtoofferadequatetrainingtocommunitiesimplementingprograms.In2000,theNebraskaCoalitionforJuvenileJusticewasestablishedtoadviseonstateandfederaljuvenilejusticegrantfundsreceivedbytheNebraskaCrimeCommission.29Accordingtoonestakeholder,duringthistimetheNebraskaCrimeCommissionwasalsomanagingtheJuvenileAccountabilityandIncentiveBlockGrants(JABG),“tobringmoreofarestorativejusticevictimoffendermediationmodeltothejuvenilejusticesystem.”Thisstakeholderwentontodescribehow,“inthe1990s,theCrimeCommission,JABG,restorativejusticeinitiativewereplantingtheseeds.Theywerethesameideas,sameprojectsthatwe'redoingnow.WeplantedtheseedsinNebraskainthemid'90s.Therewasinterest.However,therejustwasn't,Idon'tknow,thepoliticalwillortheindividualdesireofcountyattorneysandotherstousevictimoffenderconferencingandotherrestorativepractices.Andsoherewearetwentyyearslaterandit'slikeaslowgrowingoaktree.Youplanttheacornandittakesawhilebeforethingstakerootandcomeforward.”PrivateInvestmentsInresponsetothegeneralemphasisondetentionandpunishmentinthejuvenilejusticesysteminthe80sandearly90s,TheAnnieE.CaseyFoundationlaunchedtheJuvenile

26NationalCriminalJusticeReferenceService.(2006).NationalEvaluationoftheTitleVCommunityPreventionGrantsProgram—Nebraska.Chapter4:Nebraska.27Ibid,p.8928NebraskaCoalitionforJuvenileJustice.(2007).2006annualreporttothegovernorandNebraskalegislature.TheNebraskaCommissiononLaw,p.729NebraskaCoalitionforJuvenileJustice.(2014).FY2013/2014annualreporttothegovernor&Nebraskalegislature.


DetentionAlternativesInitiative(JDAI)asapilotprojectin1993.30Thisinitiativewasoneoftheearliestprivateinvestmentsinjuvenilejusticereformnationallyandhasbeenimplementedin300countiesnationwideandhasbeenshowntohavesignificantlyreduceddetentionratesofjuveniles.Adecadelaterin2004,theMacArthurFoundationlauncheditsModelsforChangeasamulti-stateinitiativeworkingtoguideandaccelerateadvancestomakejuvenilejusticesystemsmorefair,effective,rationalanddevelopmentallyappropriate.ModelsforChangesupportsanetworkofgovernmentandcourtofficials,legaladvocates,educators,communityleaders,andfamiliesworkingtogethertoensurethatkidswhomakemistakesareheldaccountableandtreatedfairlythroughoutthejuvenilejusticeprocess.31Nebraskawasnotafocusofthisinitiative.Ina2008reportonthestateofJuvenileJusticeReform,theNationalJuvenileJusticeInstitutecalledattentiontotheimportanceoftheseprivateinvestmentsinshiftingthetideofreform:“ThelargescaleinvestmentsinjuvenilejusticereformmadebytheJohnD.andCatherineT.MacArthurFoundationthroughitsModelsforChangeprojectandbytheAnnieE.CaseyFoundation’sJuvenileDetentionAlternativesInitiativehavebeeninstrumentalinreformulatingourdialogueaboutyouthcrime.Theirleadershipandvisioninmovingourcountrytowardthemorehumanetreatmentofyouthdeservesallofourpraise.”32

REFORM IN THE 21ST CENTURY

From Punishment to Rehabilitation

Oneoftheresultsoftheinvestmentsofthe1990sandearly2000swasincreasedfundingforresearchonjuvenilejustice.Researchemergedthatraisednewconcernsaboutthetreatmentofjuvenilesgivennewinsightsintoadolescentbraindevelopment.AccordingtotheNationalJuvenileJusticeNetwork:“Researchhasconsistentlypointedouttheproblemswithtreatingchildrenasadultsandhowtransfersintotheadultsystemthatwereintendedtodecreaseviolencehaveinfacthadtheoppositeeffect.Recentadvancesinbrainresearchhasprovidedthescientificevidenceforwhatwehavealwaysintuitivelyknown:youngpeople’sbrainsarestilldevelopingandmaturingthroughoutadolescence,whichmakesthemmorelikelytoactimpulsively,totakerisksandtosubmittopeerpressureattimeswhenemotionsarerunninghigh.Youngpeopleneedsupportfromadultsandopportunitiesforrehabilitationandredirection.”33

30TheAnnieE.CaseyFoundation.(2016).Juveniledetentionalternativesinitiative.31ModelsforChange.(n.d.).About.Modelsforchange:Systemsreforminjuvenilejustice.32Balck,A.(2009).Advancesinjuvenilejusticereform:2007-2008.Washington,D.C.:TheNationalJuvenileJusticeNetwork.33Gainsborough,J.(2008).Advancesinjuvenilejusticereform:2006-2007.Washington,D.C.:


Inaninterviewwithonejuvenilejusticestakeholder,theyemphasizedtheimportanceofdistinguishingjuvenilefromadultcourt:“Juvenilecourtisnotadultcriminalcourt.It’sdifferentforareasonandthat’sforrehabilitation.Andthat’sthepointandphilosophyofjuvenilecourt,notpunishment.”Furthermore,Dilulio’spredictedexplosionofyouthviolencenevermaterialized.Infact,juvenilecrimeratesdeclinedinthedecadefollowingthatprediction.34InMarch2005,theSupremeCourtdeclaredunconstitutionalinRoperv.Simmonstheexecutionofoffendersundertheageof18atthetimeoftheoffense.Nebraskahadalreadyexcludedjuvenileoffendersfromthedeathpenaltyin198235,butthisdecisionwasasignificantmilestoneforjuvenilejusticereformnationally,andevidenceoftheturningtidetowardsrehabilitationoverpunishment.A2006reportbyOJJDPdemonstratedthatthenumberofyouthindetentionhaddecreased“forthefirsttimeinageneration.”36Astakeholderreportedthatmotivationalinterviewingwasintroducedaroundthistimeasanewapproachtointeractingwithsystem-involvedyouth.Thisapproachemphasizedinterviewingyouthratherthaninterrogatingthem,andwasinoppositiontotheformer“toughoncrime”mentality.Thesameyear,theNationalJuvenileJusticeNetworkproduceditsfirstcompilationofadvancesinthejuvenilejusticefieldfortheprecedingtwelvemonths.WhileNebraskawasnotmentioned,nationaltrendsshowedimprovementsinmanyareasofjuvenilejusticeincludingDMC:“thedegreeofracialdisparityinthejuvenilejusticesystemdeclinedbetween1995and2004atthreedecisionpoints:arrest,detention,andwaivertocriminalcourt.”37Still,DMCcontinuedtobeasignificantconcerninthemovementforjuvenilejusticereform,asevidencedbytheestablishmentoftheDMCActionNetworkin2007.Thisnetwork,fundedbytheMacArthurFoundation,wasintendedtoraiseawarenessandengageinadvocacyaroundDMCnationally.

Identifying Gaps in Nebraska’s Services for Children & Youth: A Baseline

InNebraskaatthebeginningofthe21stcentury,theDepartmentofHealthandHumanServices(DHHS)wasresponsibleforchildrenwhoweremadestatewards,whichincludedanyonefacingabuseorneglectaswellashigh-riskjuvenileoffenderswhowereplacedoutoftheirhomesorwhoneededservicesthatwerenotavailableunlesstheyweremadestatewards.The

TheNationalJuvenileJusticeNetwork.34NationalConferenceofStateLegislatures.(2012).Trendsinjuvenilejusticestatelegislation.2001-2011;OfficeofJuvenileJusticeandDelinquencyPrevention.(2007).Juvenileoffendersandvictims:2006nationalreport.35Kelly,B.(2013).HistorynotonthesideofdeathpenaltyrepealinNebraska.NETNews.36OfficeofJuvenileJusticeandDelinquencyPrevention.(2007).Juvenileoffendersandvictims:2006nationalreport.37Adams,B.,&Puzzanchera,C.(2007).JuvenileJusticeSystem:ANationalSnapshot.Pittsburgh,PA:NationalCenterforJuvenileJustice.


AdministrativeOfficeofProbationwasresponsibleforonlythelower-riskyouthwhowerenotinneedofservicesandcouldbesafelysupervisedintheirhomes.In2002,theChildandFamilyServicesReview(CFSR)conducteditsfirstassessmentofNebraska’schildwelfaresystem–thoseyouthwhowerestatewardsandservedbytheDHHS.Thatassessmentfoundthatthe“statedidnotachievesubstantialconformitywithanyofthesevensafety,permanency,andwell-beingoutcomes.”Whentheassessmentwasrepeatedin2008,thestateagaindid“notachievesubstantialconformitywithanyofthesevenCFSRoutcomes….butdidachieveoverallratingsofStrengthfortheindividualindicatorspertainingtorepeatmaltreatment(item2),fostercarereentry(item5),placingchildrenincloseproximitytotheirparents(item11),andplacementwithsiblings(item12).”38WhileNebraskawasnotaloneinreceivinglowratingsonthisassessment,itsfailuretoimproveonseveraloftheratingsoverthatsixyearperiodsparkedsignificantattentionandcallsforreform.Itisimportanttonotethisassessmentisfocusedonchildwelfareoutcomesanddidnotaddressjuvenilejustice-relatedoutcomessuchascommunitysafetyandrecidivism.Itlookedatthoseyouthwhowerestatewards,whichincludedabuse/neglectcasesandhigh-riskyouthinout-of-homeplacement.ItdidnotlookatyouthservedbyProbation.Inthespringof2005,theNebraskaLegislaturepassedLB193,nowNebraskaStatute43-2404.02,whichtransferredtheadministrationoftheCountyJuvenileServicesAidProgramfromHealthandHumanServices/OfficeofJuvenileServicestotheNebraskaCrimeCommission.Theintentoftheprogramwastoprovideresourcestocountiesforidentifiedneedsintheircomprehensivecommunityjuvenileservicesplans.Thatsameyear,NebraskaChiefJusticeJohnHendrydirectedthatCIPinitiateastatewideimplementationofbestcourtpracticesbasedontheNationalCouncilofJuvenileandFamilyCourtJudges(NCJFCJ)ResourceGuidelines.Theinitiative,whichgrewtobenamedtheThroughtheEyesoftheChildInitiative,waslaunchedthefollowingyearatNebraska’sfirstChildren'sSummitfocusedon“ImprovingtheCourtSystemforAbuse/NeglectandFosterCareChildren,”whichwasattendedbyover200stakeholdersinthechildwelfaresystem.Thefollowingyear,theNebraskaCourtImprovementProjectreleasedanassessmentoftheNebraskacourtsysteminwhichtheyfound:“acrosstheboardimprovementintheoverallsatisfactionofsurveyrespondentsregardingallaspectsofthecourtsystem.”39Thisassessmentincludedbothchildwelfareandjuvenilejusticecases,withafocusonabusedandneglectedchildren.Specificareasofstrengthincludedprovidingconsistencytofamilieswithonejudgehearingtheircase(exceptforinsomeruraljurisdictions),thequalityofjudgesintheseparatejuvenilecourts,thetrainingofcourtstaff(inallbutLancastercounty),andtheavailabilityofnewresourcesandprogramssuchasCourtAppointedSpecialAdvocate(CASA)programand

38NebraskaDepartmentofHealthandHumanServices.(2009).2008childandfamilyreviewsummary.39Weisz,V.(2006).Nebraskacourtimprovementproject:2005reassessmentofcourtandlegalsystemforchildabuseandneglectandfostercare.UniversityofNebraskaLincoln.CenterofChildren,FamiliesandtheLaw,p.6


theuseofFamilyGroupConferencing(FGC).Finally,thereportfound“increasedlocalcollaborationandcommunicationbetweentheCourtandtheHealthandHumanServicesAgencyacrossthestate,andespeciallyinthecommunitieswherethereisaSeparateJuvenileCourt.”40However,theweaknessesfoundinthereportincludedshortcomingsinNebraskalaw,whichincludedjusttheminimumrequirementswithnopenaltiesfornon-compliance,aswellasconfusionoverstandardsforthetimeallowedforchildrentobeinstatecustodybeforereceivingnecessaryservices.Thereportalsopointedoutthathearingsareoftenshorterthantheyshouldbeanddonotaddressallthecriticalissues.Notably,thereportfoundthat“Alternativestoout-of-homeplacementarepresentedonlyhalfthetime.Placementwithorvisitationwithsiblingsarepresentedonlyhalfthetime.Placementwithrelativesispresentedonlyhalfthetime.IdentificationofnoncustodialparentandidentificationofpotentialIndianChildWelfareAct(ICWA)statusispresentedonlyabouthalfthetime.Finally,theavailabilityofvoluntaryservicesforparentsispresentedonlyhalfthetime.”41Otherissuescalledoutbythereportarethefailuretonotifyfosterparentsofproceedings,deficienciesintheguardianadlitemservicesandrepresentationingeneral,longtime-framesforjudicialdecisionsandfrequentconstituencies,lowratesofplacementwithrelatives/kinship,anddelaysinpermanencyplacements.Alsoin2006,theNebraskaCoalitionforJuvenileJusticereleasedareportinwhichithighlighteditsmajoractivitiesandaccomplishments.42Asausefulbaselineforthisretrospective,thereportidentifiedtrendsfromcountyassessments.Accordingtothereport,themostcommonneedsandstrategiesidentifiedinthecountyplanswere:

● Needforshorttermholdingoptions● Needforgraduatedsanctionsforprobation&OJSyouth● Underagedrinking● Truancy● Needforparentingsupport(s)● Needformentalhealthservicesforyouthandfamilies● Datacollection/reportingissues● Varyinglevelsofknowledge/trainingaboutthejuvenilejusticesystemand

resourcesavailable● Increasingnumberofgirlsinthejuvenilejusticesystem● Varyinglevelsofsystemcommunicationandcollaboration

Thereportalsoidentifiedthefollowingasthemostcommonstrategiesusedbycounties:

● Maintain/Enhanceexistingcommunityprograms● Diversion

40Ibid,p.541Ibid,p642NebraskaCoalitionforJuvenileJustice.(2007).2006annualreporttothegovernorandNebraskalegislature.TheNebraskaCommissiononLaw.


● After-schoolprograms● Mentoring● GraduatedSanctions(Electronicmonitoring,tracking,mediation)● Wraparound● Substanceabuseprevention/treatment● Mentalhealth/daytreatment● Juvenileassessmentcenters/concept● Structuredyouthand/orfamilyactivities

Thislistprovidesabaselineforcomparisonofthefocusofreformeffortsinthejuvenilejusticesystemtenyearsago.Whilethelanguageofevidence-basedandhome-basedservicesisnotinuseatthistime,theideaof“wraparound”servicesandtreatmentoptionslaysthefoundationforwhatwouldbecomethejuvenilejusticehome-basedserviceinitiativetenyearslater.Aroundthistime,Nebraskawasreceivingnationalattentionforhavingoneofthehighestratesofyouthoutofhomeandtoomanykidspercapitaasstatewards.OneoftheproblemswiththewaythedatawerereportedinNebraskawasthatDHHSwasresponsibleforbothabuse/neglectanddelinquentyouth.Onestakeholderdescribedthedifferencethisway:

“Nebraskawastheonlystatethatthechildwelfareandjuvenilejusticesystemswerecombined.Otherstates’datadidnotincludeanydelinquentyouthinthedataastheyweresupervisedbyaseparateentity.Atthetime,delinquentyouthweresupervisedbyDHHS/OJSthroughthelensofchildwelfare.Policiesandpracticesweredevelopedforchildwelfarepopulationsandappliedinthesamefashiontojusticeyouth.Squarepeginaroundhole.”

Thusin2006,NebraskahadthethirdhighestrateofjuveniledetentioninthenationaftertheDistrictofColumbiaandAlaska.43AccordingtoapagefromtheNebraskaDepartmentofHealthandHumanServicesfrom2006,“Nebraskahasoneofthenation’shighestpercapitastatewardpopulations.Nationally,childreninfostercareusementalhealthservicesatarateupto15timeshigherthanotherchildrenintheMedicaidsystem.”44Basedonthesefindings,theperiodfrom2005-2006canbecharacterizedasatimewhenthestateandnationweretakingacloselookatthechildwelfareandjuvenilejusticesystemsinNebraskaandfindingsignificantroomforimprovement.

Nebraska’s Safe Haven Crisis

In2008,Nebraskabecamethelastofthe50statestocreateaSafeHavenlaw,whichallowsparentstohandovercustodyofachildtothestatewithoutprosecution.LegislatorRichPahls,43OfficeofJuvenileJusticeandDelinquencyPrevention.CensusofJuvenilesinResidentialPlacement:1997-2013.In2006,therateofdetentioninNebraskawas173forevery100,000juveniles.44NebraskaDepartmentofHealth&HumanServices.(2013).NebraskaMedicaidprogramcurrentinitiatives.Children’smentalhealthandsubstanceabusestatewideinfrastructuregrant(SIG).


inintroducingthemeasuretotheLegislature’sJudiciaryCommittee,said,“Thepurposeofthislegislationistoprovidedistressedparentsawaytoanonymouslyleaveachildinasafeplaceratherthanabandoningthechildinaplacethatcouldleadtoharmordeathofthechild.”45Unlikeotherstates,Nebraska’slawdescribedthesafehavenfora“child”(uptoage18),ratherthandeterminingaspecificagerange.Tothesurpriseofmuchofthepublicandofficials,withinmonthsofthelawgoingintoeffect,overthirtychildren-manyofwhomwereteenagers-weredroppedoffathospitals.AccordingtoareportbyVoicesforChildren,“RecognizingawindowleftopeninNebraska’ssafehavenpolicywithoutanagelimit,familiesrelinquished36childrentothestate’scustody-34ofwhomhadreceivedpriormentalhealthtreatment.”46Theactionsbymanyparentsandcaretakers“highlightedwhatchildwelfareexpertssayisawidespreadshortageofpublicandprivateaid,especiallymentalhealthservices,foroverstressedfamiliesandteenagers—ashortagethatislikelytoworseninthecurrenteconomiccrisisasstategovernmentscutbudgets.”47InNovemberofthatsameyear,thelegislaturerevisedthelaw,byprovidinganagelimitof30daysold.However,“parentswhohadusedthelawandchildren'srightsgroupsbeggedtheLegislaturenottolowertheagelimit,sayingthesafe-havenstatutewastheonlyresourcefordesperatefamilies.”48Oneresultofthissafehaven“crisis”wasincreasedattentiontothegapthathadbeenpreviouslyidentifiedbyDHHSthattoomanyyoungpeopledonothaveaccesstonecessaryservicesunlesstheybecomestatewards.A2013JournalStararticlereflectingonthecrisisstatedthat“theavalancheofabandonedchildrenhadrevealedinadequateservicesinNebraskaandotherstatesforfamiliesstrugglingtoraisetroubledyoungsters.”49TheNewYorkTimesreportedthatNebraskawasnotaloneinthisphenomenon-rather,itwasanationalproblem:“TheabrupthandoversinNebraskaarestrikingexamplesofanongoing,moreorderlyphenomenonthatexposestheshortageofpsychiatrichelpforchildren.A2003reportbytheGeneralAccountingOffice,compilingresponsesfromonly19statesand30counties,foundthat12,700childreninoneyearhadbeenplacedinchildwelfareorjuvenilejusticesystemssimplysotheycouldreceivementalhealthcare.”50

Access to Services Drives Further Reforms

Overthenextseveralyears,severalreportsandeventscalledattentiontosignificantgapsinservicesforsysteminvolvedyouth.Someofthoseinitiativesarehighlightedbelow.

45O’Hanlon,K.(2013,January31).5yearlater,Nebraskapatchingcracksexposedbysafe-havendebacle.LincolnJournalStar.46VoicesforChildreninNebraska.(2012).Annualreport2011.47Eckholm,E.(2008,November21).Nebraskareviseschildsafehavenlaw.TheNewYorkTimes.48O’Hanlon,K.(2013,January31).5yearlater,Nebraskapatchingcracksexposedbysafe-havendebacle.LincolnJournalStar.49Ibid.50Eckholm,E.(2008,November21).Nebraskareviseschildsafehavenlaw.TheNewYorkTimes.


Community-BasedServicesforStatusOffendersIn2008,theMacArthurFoundation'sModelsforChangeInitiativepublishedareportcalledMakingCourttheLastResort:ANewFocusforSupportingFamiliesinCrisis.Thisreportfocusedonresearchonthegapsinaccesstoservicesforparentsstrugglingwithdelinquentyouth.Thereportfoundthatoftenthese“statusoffenders”wouldbereferredtojuvenilecourt,wheretheywereoftensubjecttothesamepunishmentsasjuvenileschargedwithcriminalactivity.Thisreportmarkedanewparadigmfor“statusoffenders,”inwhichat-riskyouthandtheirfamilieswerereferredtocommunity-basedservicesandjuvenilecourtswereusedasalastresort.ThereporthighlightsreformsinFlorida,NewYork,andConnecticutasmodelsofthismovement.WhileNebraskawasnotincludedinthisinitiative,itishelpfultogainamorecompletepictureofthenationallandscapeofreformandhowNebraskafitsintothatpicture.InsufficientIndigentDefenseIn2009,theNationalJuvenileDefenderCenterfoundsignificantgapsinaccesstoqualitylegalrepresentationforsystem-involvedyouth.Thereportassertedthat“whileassessmentteaminvestigatorsobservedexamplesofmodelpracticesandeffectivedefenseadvocacy,asinmanyotherstates,Nebraska’sjuvenilejusticesystemhasdeep-rootedsystemicandpracticedeficienciesthatimpedethedeliveryoffairandbalancedoutcomestosystem-involvedyouth.ManyofNebraska’sownjudges,defenseattorneys,countyattorneys,probationofficers,policymakers,detentioncenterstaff,andothersexpressedconcernsaboutthequalityofdefenserepresentationthatNebraska’syouthreceive.”51ServicesforRunawayandHomelessYouthAtthenationallevel,thereauthorizationoftheRunawayandHomelessYouthAct(RHYA)byCongressin2008followedthistrendofensuringaccesstoservicesforyouthwithoutrequiringtheybecomestatewards.PreviouslyTitleIIIoftheJuvenileJusticeandDelinquencyPreventionActof1974,RHYAprovidedcommunity-basedemergencyandresidentialservicestohomelessandunaccompaniedyouth,manyofwhomareatriskofjuvenilejusticesysteminvolvementanddetentionbecauseoftheirrunawaystatus.ThereauthorizationincreasedauthorizationsforrunawayandhomelessyouthprogramsadministeredbytheU.S.DepartmentofHealthandHumanServices,extendedthetimeayouthcouldstayinemergencyortransitionallivingprograms,andmadepublicentitieseligibletoreceivefundsfromtheprogram.52InNebraska,fiveagenciesreceivefundingforRHYAprograms:BoysTown(GrandIsland),CEDARS(Lincoln),NebraskaDepartmentofHealthandHumanServices(Lincoln),CommunityActionPartnershipofWesternNebraska/PanhandleCommunityServices(Gering),andYouthEmergencyServices(Omaha).53Followingnationalreauthorizationin2008,Nebraska

51Beck,J.,Puritz,P.,&Sterling,R.W.(2009).Juvenilelegaldefense:AreportonaccesstocounselandqualityofrepresentationforchildreninNebraska.NationalJuvenileDefenderCenter.52Balck,A.(2009).Advancesinjuvenilejusticereform:2007-2008.Washington,D.C.:TheNationalJuvenileJusticeNetwork.53NebraskaAppleseed.(2012)HomelessAfterFosterCare:youngVulnerableandOnTheirOwn.


introducedLR167tostudytheissueofhomelessyouthinthestate.54ThebillwasreferredtotheHealthandHumanServicesCommitteeandEducationCommitteeinMay2009butwasneverpassed.CrossoverYouthPracticeModelIn2010,GeorgetownUniversity’sCenterforJuvenileJusticeReformdevelopedanevidence-basedmodelformeetingtheneedsofyouthinvolvedinboththechildwelfareandjuvenilejusticesystems.TheCrossoverYouthPracticeModel(CYPM)model“focusesonareductioninthenumberofyouthcrossingoverandbecomingdually-involved;areductioninthenumberofyouthplacedinout-of-homecare;areductionintheuseofcongregatecare;andareductioninthedisproportionaterepresentationofyouthofcolor,particularlyinthecrossoverpopulation.”InNebraska,CYPMwaspilotedintheAdministrativeOfficeofProbation’sJuvenileServicesDivision.CYMPhasbeenactiveinNebraskasince2012,beginninginDouglasCounty.

RETHINKING JUVENILE DETENTION Asnotedpreviously,attentionwasbeingdrawntothehighrateofdetentioninNebraskaasearlyas2006,butthiswasreflectiveofanationaltrendcallingintoquestionthepracticeofjuveniledetentionmorebroadly.A2008reportfromtheNationalJuvenileJusticeNetworkhighlights“aswellingwaveofacknowledgementthatinstitutionalizingyouthinlargefacilities,farfromtheirfamiliesandcommunities,isharmfultochildrenandpublicsafetyandgivesthestateapoorreturnonthedollar.”55Asaresultofthisincreasedattention,thereportgoesontonote,“Statesareclosingdownlargefacilities,divertingyouthawayfromdetention,establishingsmaller,moretherapeuticplacements,andkeepingyouthathomeundercommunitysupervision.”Changesinsentencingandadjudicationwerealsonoted,withmanystates“givingdiscretionbacktojuvenilecourtjudges,removingmandatorytransferandsentencinglaws,andfollowingConnecticut’sexampleinmovingtowardsraisingtheirageofjuvenilecourtjurisdictiontoeighteen.Statesarealsoreturningtotheoriginalpromiseofthejuvenilecourtbyimprovingtheirindigentdefensesystems,juvenileconfidentialityprotections,andtreatmentofjuvenilesexoffenders.”56TheInterstateCommissionforJuvenileswasfederallyenactedthesameyear,onAugust26,2008,replacingacompactpreviouscompactdatingbackto1955.“TheJuvenileInterstateCompactwasdevelopedtoassistinthesafereturnofrunawaystotheirhomes,andjuvenilesonprobationandparolearesupervisedwhileresidinginotherstates.”57NebraskabecamesignatorytothenewcompactinAugust2009underRev.Stat.§43-1011.Nebraskawasthe37thstatetojointhenewjuvenilecompact,whichassuredthewelfareandprotectionof

54NationalConferenceofStateLegislatures.(2016)HomelessandRunawayYouth.55Ibid.56Balck,A.(2009).Advancesinjuvenilejusticereform:2007-2008.Washington,D.C.:TheNationalJuvenileJusticeNetwork.57StateofNebraskaJudicialBranch.(2016).HistoryofNebraskaprobationsystem.


juvenileswhocrossstatelines.InFebruary2010,OJJDPreleasedareportonthestatusofJuvenilesinResidentialPlacementfrom1997–2008.Thereportfoundthatwhile“declinesinstateresidentialplacementrateswerewidespreadacrossthecountry,”Nebraska’sratewasunchanged.Theresidentialplacementratewasamongthetoptenhighestinthecountry.Thatsameyear,TheAnnieE.CaseyFoundationreleasedastatusreportonitsJuvenileDetentionAlternativesInitiative(JDAI),indicatingthat86JDAIsiteshadcollectivelyreducedtheiraveragedailypopulationofyouthinsecuredetentionby42percent.Furtherfindingsindicatedthat“thesereductionswerenotablybroad-based,withover60percentofsitesachievingreductionsofonethirdormore.Muchofthereductionindetentionhasbeenamongyouthofcolor:JDAIsitesdetained1,489feweryouthofcoloronanaveragedayin2010thantheydidpriortoJDAI,adecreaseof39percent.Siteshaveachievedthesereductionswhileimprovingpublicsafety,reportingdecreasesinindicatorsofdelinquencythataveragemorethan29percent.JDAIsitesalsoplaced37percentfeweradjudicatedyouthintostatecustodyin2010thantheydidpriortoimplementingJDAI.JDAIsiteshaveachievedsignificantcostsavingsbyclosingdetentionfacilitiesandavoidingtheconstructionofneworexpandedfacilities.”58NebraskahadyettoimplementJDAI.Thefollowingyear,awatersheddecisionbytheUSSupremeCourtdeclaredlifewithoutparoleunconstitutionalforyouthwhodidnotcommithomicide.InGrahamv.Florida,themajorityopinionfoundthepunishmenttobecruelandunusualandstatedthatyouths’developingbrainsmakeitimpossibletodetermineiftheyarebeyondrehabilitation.59Withthisdecision,theCourtfurtheredthemovementawayfrompunishmenttorehabilitation.Twoyearslater,theUSSupremeCourttookthisdecisiononestepfurther,findingthat“theEighthAmendmentforbidsasentencingschemethatmandateslifeinprisonwithoutpossibilityofparoleforjuvenilehomicideoffenders.”60Inresponse,theNebraskaLegislaturepassedLB44inSeptember2013whichbroughtNebraskaintocompliancewiththeU.S.SupremeCourt’srulinginMillerv.Alabama.UnderLB44,mandatorysentencingoflifewithoutparoleforoffensescommittedbyyouthundertheageof18waseliminated.61

Detention Alternatives Reach Nebraska

InNebraska,thefirstmajorlegislativeresponsetothistrendawayfromdetentioncamewiththepassageofLB800inApril2010.Amongthemanyprovisionssetoutinthislegislation,thedetentionofstatusoffenderswastobephasedoutbyJanuary2013.Thebillalsocodifiedaprogramofgraduatedsanctionsforyouthwhoviolateprobation;createdaclearprocessfor

58Balck,A.(2012).AdvancesinJuvenileJusticeReform:2009-2011.Washington,D.C.:TheNationalJuvenileJusticeNetwork.59ibid60SupremeCourtoftheUnitedStates.(2011).Millerv.Alabama.U.S.132S.Ct.2455.61NationalJuvenileJusticeNetwork.(2016).Advancesinjuvenilejusticereform:Nebraska.


sealingjuvenilecourtrecords;allocatedgrantmoneyforprogramsthatreducethedetentionpopulation;establishedapilotprojectforlawenforcementtoissuecivilcitationstoyouthinplaceofmakinganarrest;andcreatedashortenedtimelineforcompletionofpost-adjudicationevaluations.62PassageofthisbillalsomarkedthefirsttimethatNebraskawasrecognizedbytheNationalJuvenileJusticeNetworkforitsreformefforts.Thefollowingyear,theNebraskaLegislaturepassedLB463,whichorderedthetransferof$100,000totheSupremeCourtEducationFundtolaunchtheJuvenileDetentionAlternativesInitiative(JDAI)inDouglasCounty.63AccordingtotheNebraskaCoalitionforJuvenileJustice,“JDAI’skeyobjectivesfocusonpublicsafetywhilereducingunnecessaryandinappropriateuseofsecuredetention,minimizingfailuretoappearandre-offend,andensuringqualityconditionsinsecurefacilities.Historicallyyouthofcolorhavebeenoverrepresentedinnearlyallsystempoints,butparticularlydetention.TheworkofJDAIfocusesonidentifyingandreducingthisracialandethnicdisparity.Finally,sitescommittoredirectingresourcesasdetentioncostsdecreasetowardcommunitybasedalternatives.”64AfterasuccessfulpilotinDouglasCountyin2011,JDAIexpandedtoSarpyCountythefollowingyear.65Despitethesereforms,a2013reportreleasedbyTheAnnieE.CaseyFoundationindicatedthatNebraskahadthethird-highestrateofyouthincarcerationinthecountry.66Thereportalsofoundthat,althoughnationallyratesofjuvenileincarcerationhadbeenonadownturn,inNebraska,thenumberofyoungpeopledetainedincreased8percentbetween1997and2010.67Onejuvenilejusticestakeholderdescribedtheprevailingmentalityinthecourtsduringthistimeas“Whenindoubt,yankthemout.”AnotherstakeholderaddressedthatwhiletheJDAIinitiativehasdecreasedthenumberofyouthindetentionfacilities,therestillare“ahighnumberofyouthofcolorthataredetained.”

Child Welfare Privatization

In2006theU.S.DepartmentofHealthandHumanServices'OfficeoftheAssistantSecretaryforPlanningandEvaluationfundedtheChildWelfarePrivatizationInitiativesProjecttoprovideinformationtostateandlocalchildwelfareadministratorswhowereconsideringorintheprocessofimplementingprivatizationreforms.68

62ibid63NebraskaCoalitionforJuvenileJustice.(2014).FY2013/2014annualreporttothegovernor&Nebraskalegislature.64ibid,p.1865ibid66TheAnnieE.CaseyFoundation.(2013,February5).ReducingyouthincarcerationintheUnitedStates:AKIDSCOUNTdatasnapshot.67ibid68NebraskaLegislature.(2011,December15).Legislativeresolution37(2011):Review,investigationandassessmentofchildwelfarereform,p.1-5


AtthesametimethatmajorreformswereunderwayinNebraska’sjuvenilejusticesystem,thechildwelfaresystemwasundergoingaprocessofprivatizationthatwouldhavemajorimplicationsforbothsystems.ThemovetoprivatizechildwelfareinNebraskastemmedfromtheassessmentsdescribedintheprevioussectionsofthisreport,startingwiththestate’sperformanceinthe2002ChildandFamilyServicesReviewsandsubsequentreviewin2008,whenlittleprogresswasnoted.Accordingtoa2014auditreportontheprivatizationprocess,atitscore,privatizationwas“promptedbyyearsofrankingamongthetopstatesintheproportionofchildrenremovedfromtheirhomes,callsforchangefromfamilies,childadvocatesandlegislators,andinputfromHealthandHumanServicesSystem(HHSS)workers.”69Theprimaryargumentsinsupportofprivatizationincludedmorelocalcontrol,decreaseincost,andincreaseinefficiency,quality,andflexibility.Inshort,thehopewasthatprivatizationcouldproduce“betteroutcomesatalowercost.”Nebraskawasnotaloneinitsexperimentwithprivatizationofchildwelfare.FloridaandKansasprivatizedtheirchildwelfaresystemsinthe1990s,whileOklahoma,Kansas,andKentuckywereimplementingaspectsofprivatizationaroundthesametimeasNebraska.70TheprivatizationofNebraska’schildwelfaresystemwasphasedinoveraperiodofseveralyears.Beginningin2007andexpandinginresponsetotheSafeHavenCrisisdescribedpreviously,“DHHSbegangrowingthearrayofservicesavailabletofamiliesandgivingtheprovidersoftheseservicesamoreexpansiverole.”71LB288furtherrevisedthesystembygivingfullleadershipresponsibilityoftheDepartmentofHealthandHumanServicestoaCEO.72In2009,DHHSsignedcontractswithfive“leadagencies”toexpandservicesthroughsub-contractors.Leadagencieswererequiredtopayforservicesbasedonafixedrateregardlessofthenumberneedingserviceortheirpresentingproblems.Onemajorissuewiththestructureofthesecontractsisthatitresultedinthedisallowanceof$20millionofTitleIV-Efunds.Afterjustsixmonths,thethreeleadagenciesinWestern,Central,andNorthernServiceAreasendedtheircontracts,returningresponsibilitytoDHHS.In2011,DHHStransferredbothcasemanagementandservicedeliveryfunctionstotheremainingtwoleadagenciesinthelargestserviceareasonly,usingbothafixedmonthlyrateandadailyratebasedonthenumberofchildrenandfamiliesserved.By2012,KVCHealthSystemshadsurrendereditsleadagencystatusandtheNebraskaFamiliesCollaborative(NFC)remainedastheonlyprivatizationcontractor,focusingexclusivelyontheEasternServiceArea.

69LegislativeAuditOffice,NebraskaLegislature.(2011).DHHSprivatizationofchildwelfareandjuvenileservices.CommitteeReport,17(1).70Snell,L.(2013,April22).Childwelfareprivatizationupdate.SubsectionofAnnualPrivatizationReport2013:StateGovernmentPrivatization71Hornby,H.&Zeller,D.E.(2014).AnassessmentofchildwelfareprivatizationinNebraska:Finalreport.NewYork,NY:HornbyZellerAssociates,Inc.72VoicesforChildreninNebraska.(2011,November15).Chapter1:Childwelfareevolution:NationallyandinNebraska.HealthandHumanServicesCommitteeLR37Report.


InFebruary2011,theNebraskaUnicameralpassedLR37,whichdirectedthecommitteetoreview,investigate,andassesstheeffectsofchildwelfarereformwhichNebraskaDHHSbeganimplementinginJulyof2009.BetweenFebruaryandNovember2011,HealthandHumanServicesCommitteemembersandstaffundertookawidearrayofresearch,interviews,correspondence,consultations,briefings,surveys,andpublichearings.WhileitisbeyondthescopeofthisRDEtodetailallofthefindingsofthefinalreport,theoverallfindingsandrecommendationsinthereportpointtomajorgapsinfinancialoversight,lackofaccountability,andanunwillingnesstoadaptandchangeinthefaceofevidencethatprivatizationwasnotworkingasintended.Overall,thecommitteesuggestedtheneedfor“asystem-widecultureshifttoright-sizechildwelfareinNebraskaandkeepmorechildrenwiththeirownfamilieswhereverpossibleandbringNebraskamoreinlinewithnationalnormsforfostercareandchildwelfareservices.”TheoverallrecommendationinthereportwasforacompleterestructuringofNebraska'schildwelfareservicesystem.73Instakeholderinterviews,thereseemedtobeageneralconsensusthattheattemptatprivatizationwasafailure.Stakeholdersusedwordslike“botched,”“fiasco,”“disaster,”and“difficult”todescribetheprocess,whileothersexplainedhowworkinginthesystemduringthetimewastraumaticforstateemployeesandserviceproviders.Hereishowonestakeholderdescribedtheexperience:

“Andthenyouhavethisprivatizationstuffthathappenedin2010andIlivedthatandI’mverybitteraboutthatstill.Thestatedecided–itwasinOctoberthattheannouncementcameoutthatwe’reprivatizinginSoutheastNebraskaandEasternNebraska,wherecaseworkerswouldnolongerbedoingthecasemanagementandprivatesectorswouldbetakingovercasemanagementresponsibilities.SotheDepartmentatthetimewassecretiveaboutit.Theydidn’ttalktoanybodyaboutit.Andtheyprivatized.Sowehadanannouncement.ItwasaFridayinOctober.Andwehadtwomonthstobasicallytransitionallofourfamiliestotheseprivateagencies.Nowthatlastedawholeyearandthenitfailed.AndwhenIwas–Iwasa[position]atthetimeat[division].Andwehadtoreduceourworkforceby60percentandsoalotofpeopleleftbecause,youknow,theyhadtohavejobs.Theyallhadfamilies.Anditwasjustapoliticallydrivendecision.Andtherewasdirectivesgivenandpeoplehadtodothemiftheywantedtokeeptheirjobs.

AnditlastedayearbecauseitstartedJanuary1stof2011iswhenitkickedoff.AndthentheyhadmadeanannouncementinFebruaryof2012thatallthecasemanagementresponsibilitieswerecomingbacktothestate.Imeantherewasalotofflak.TheLegislaturewasveryunhappy.Lotsofprivatecompanieswereunhappy.Imeanitjustwasn’tgoodandthetransitionwasn’tgood.Andtherewasalotofthingsthathappenedwhichdamagedalotofrelationships.

73NebraskaLegislature.(2011,December15).Legislativeresolution37(2011):Review,investigationandassessmentofchildwelfarereform.HealthandHumanServicesCommittee.


AndsoIthinkwhenyoulookattheJuvenileJusticechangethathappenedin2013,therewasalotoftrustthatwaslostbecauseoneagencymadedecisionsanddidn’ttalkitthroughwithanybody,whetherit’s,youknow,theLegislatureorotherfolksthatcouldmaybehelpthemplantomakeiteffective.Andtheywantedittohappenlikeovernight.SoIjustthinkasastatewehavereallydoneadisservicetofamiliesthatareinvolvedinthesystem.”

Accordingseveralotherstakeholders,oneofthemostsignificantlingeringconsequencesfromthefailedeffortatprivatizingNebraska’childwelfaresystemwastheimpactithadonavailabilityof,andrelationshipswith,providers.Hereishowonestakeholderdescribedthisimpact:

“Well,thisgoesbackmorewithatieovertothechildwelfaresystem,whentherewastheprivatizationorattempttoprivatizechildwelfare.Welostasubstantialnumberofprovidersofdifferentservicesandthingslikethatstatewideandlocally.Nowthatitwentback,andnowthatprobation’sevolved,growingthatprovidernetwork,sotospeak,hasbeenkindofdifficult;andrightfullyso.Forexample,wedidhavetheoptionbeforethat–we’vegotouremergencyshelter;butthey’relimitedonthenumberofbedstheyhaveavailable.Ithinktheywouldliketoexpand;butbeforeanonprofitlikethatwouldexpand,theywantsomesortofacommitmentorassurancethat,well,ifwemaketheinvestment,you’regoingtouseit;andnobodycan,Ithink,tellthem,yes;you’llgetthekids.Soit’sthat–andthatproviderwasonethatwentdowntheroadofprivatizationandgotoutfairlyquickly,becausetheywerelosingmoneyhandoverfist.SoIdon’tthinkit’sunreasonabletowantthosekindsofassurances,especiallyifyouhavetoreporttoanonprofitboard.”

Anotherstakeholdershared,

“AnotherthingIthinkthathaschangedisthatIknowthatwewentthroughaperiodoftime,probablyothersaswell,werewetriedprivatization.Thatwasadisaster,Ifeel.Thatwassomethingthatgreatlyreducedthenumberofplacementsthatwehadavailable.Therewereseveralprovidersandfosterfamiliesthatdidnotgetpaidduringthattimeoftransition.Thatmadealotofpeoplenotwanttodothatanymoreandwelostalotofreallygoodpeopleandalotofgoodprogramsduringthatperiodoftime.It’sslowlygettingbuiltbackupatthispoint,butstillnotbacktowhereitwasbefore.”

Despitestrongagreementamongmanystakeholdersaboutthefailureandimpactofprivatizationonthesystem,afewheldoutadifferentperspective.Onestakeholdersuggestedthatprivatizationgetsblamedforsomethingswhenitwasreallyabroaderproblemwiththesystem.Intheirwords:

“Youknow,wehadsomepeoplesaysomeoftheproblemswithinthesystemwastheprivatizationofservicesthatwastriedinNebraskaseveralyearsago,undertheHHS


sideofthings.Andpeoplearestilllookingat,youknow,privatizationiscausingallthese,privatizationisn'tcausing,thefactthatwewentawayfromthatbecauseitdidn'tworkwellasitwasdesigned,therewereflawsinthedesignwhenitstarted.Youknow,sowe'vegottokeepourheadabovewaterandlookatwhat,youknow,ifthere'saproblem,whattrulyisthatproblem,notwhatwethinktheproblemis,but,youknow,identifyingexactlywhatthatis.”

The Rise of Evidence-Based Practices

AsNebraskausheredinmajorreformsinbothitsjuvenilejusticeandchildwelfaresystemswiththepassageofLB800andtheprivatizationprocessoutlinedintheprevioustwosections,nationalresearchemergedabouttheroleofevidence-basedpracticesforprovidingtreatmentsandservicesforchildrenandfamilies.Intheirreport,ImprovingtheEffectivenessofJuvenileJusticePrograms:ANewPerspectiveonEvidence-BasedPractice,MarkLipsey,JamesHowellandMarionKellywrite:“Perhapsthetwomostprogressivepolicyreformsofrecentyearsarethedriveforevidence-basedpractice,whichfocusesoneffectivetreatments,services,andsupportsforchildrenandfamilies,andtheefforttoestablishsystemsofcaretoaddresstheinfrastructureoffundingandlinkagesbetweenservicesandprograms.”74Theygoontoexplorewhatismeantbyevidence-basedpracticesinJuvenileJusticeandidentifyseveralchallengeswiththeireffectiveimplementation.Onemajorchallengetheyciteistheremnantsofthetoughoncrimeculturethatpervadedthesystemattheendofthe20thandbeginningofthe21stcenturies.TheyquoteRep.RobertC.“Bobby”Scott,D-VA,whoasserts:

“Allofthecredibleresearchshowsthatacontinuumofevidence-basedpreventionprogramsforyouthidentifiedasbeingatriskofinvolvementindelinquentbehavior,andinterventionforthosealreadyinvolved,willgreatlyreducecrimeandsavemuchmorethantheycostwhencomparedtotheavoidedlawenforcementandsocialwelfareexpenditures.Andtheresearchrevealsthattheseprogramsaremosteffectivewhenprovidedinthecontextofacoordinated,collaborativelocalstrategyinvolvinglawenforcementandotherlocalpublicandprivateentitiesworkingwithchildrenidentifiedasatriskofinvolvementinthecriminaljusticesystem.”75

Lipseyetal.attributetheresistancetoevidence-basedpracticeandsystemsofcaretoarangeoffactors,includingfearsthattheywill“siphonfundingawayfrompresumablyeffective,yetuntestedservices.”Theygoontonote,“thisisespeciallytrueofsettingsthatdonothaveaculturalcontextofcontinuousqualityimprovement,anorientationtowardbeingalearningorganization,orvaluesrelatedtoexcellence.”76Theauthorsofferanumberofrecommendationstojuvenilejusticestakeholdersonhowtoapproachevidence-basedpracticesintheirreformefforts.Specifically,theypromotetheadoptionofwhattheycalltheStandardizedProgramEvaluationProtocol(SPEP),atoolforcomparinglocaljuvenilejustice74Lipsey,M.W.etal.(2010).Improvingtheeffectivenessofjuvenilejusticeprograms:Anewperspectiveonevidence-basedpractice.CenterforJuvenileJusticeReform.GeorgetownUniversity:GeorgetownPublicPolicyInstitute,p.975ibid,p.4876Ibid.


programstowhathasbeenfoundtobeeffectiveintheresearch.Thisallowssomeflexibilityinimplementationatthelocalleveltoreducerecidivisminprogramprovisionwhilestillhavingpositiveeffectsoncoreoutcomesincluding“familyandpeerrelations,mentalhealthsymptoms,andschoolattendance.”77ThesameyearLipseyetal.’sreportwasreleased,theNationalJuvenileJusticeNetworkreleasedpreliminaryresultsof“PathwaystoDesistance,”alongitudinalstudyfindingthatcommunity-basedalternativeswereaseffectiveasincarcerationforreducingrecidivisminyouthwithfelonyoffenses,andthatinstitutionalplacementscanactuallyraisethelevelofoffendingforsomeyouth.78Inareportonmajortrendsinthejuvenilejusticesystemfrom2001-2011,theNationalConferenceonStateLegislatorsidentifiedthenationaltrendtowardspreventionservicesthroughtheincorporationofevidence-basedprograms.Thereportnotes,“Arecenttrendinstatejuvenilejusticepolicyhasbeenadoptionofevidence-basedpracticesthatprovidetreatmenttoyouthandtheirfamiliesandseektoimprovebehaviorandemotionalfunctioning.Evidence-basedprogramsorpoliciesaresupportedbyarigorousoutcomeevaluation,whichclearlydemonstrateeffectiveness.Forexample,Multi-SystemicTherapy(MST),FamilyFunctionalTherapy(FFT)andAggressionReplacementTrainingareevidence-basedinterventionsinplaceinjuvenilejusticesystemstodayinatleasteightstates—Connecticut,Florida,Hawaii,Mississippi,Oklahoma,Pennsylvania,TennesseeandWashington.”79

Evidence-Based Practices in Nebraska

InNebraska,theJuvenileServiceDeliveryProjectwastheclearestmovetowardsevidence-basedpracticesinthestate.Theprogram,whichbeganasapilotin2011,expandedthefollowingyeartothreesiteswiththepassageofLB985andLB985A.Thegoaloftheprogramwasto“preventunnecessarycommitmentofyouth,eliminatebarrierstoservices,andpreventunnecessarypenetrationofyouthdeeperintothejuvenilejusticesystemusingtheleastintrusiveandrestrictivemeansofmeetingyouth’sneedsandmaintainingpublicsafety,andimprovingoutcomesforyouthbyusingevidence-basedpracticesandresponsivecasemanagement.”ThisprojectwasthefirstintentionalcollaborationbetweenProbation,thejudiciary,DHHS,andcommunityprovidersaimedatkeepingmorejuvenilesintheirfamilyhomesacrossthestate.OnestakeholderwhowasinvolvedinthepilotoftheNebraskaJuvenileServiceDeliveryProjectdescribedhowit

“reallyhelpedusgetourfeetwetastowhatdoesservicedeliverylooklike,andreally

77Ibid,p.2978NationalJuvenileJusticeNetwork.(2010,January28).Pathwaystodesistancetalkingpoints. 79NationalConferenceofStateLegislatures.(2012).Trendsinjuvenilejusticestatelegislation.2001-2011,p.7


wasourfirstexposuretotargetingservicesappropriately,quitefrankly,becausebeforeweneverhadtousetargets.Andsowewereverysuccessfulinthatendeavorinkeepingyouthonprobationthatneededtobeonprobation,andnotessentiallyforcingthemintothatdeepestendofeitherofoursystems,whichweknowfromevidence-basedpractice,isreallyimportanttobeleastrestrictive,leastintrusive.”

In2014,ateamattheUniversityofNebraskapublishedawhitepaperonevidence-basedpracticesinjuvenilejusticeinNebraska.Inthiswhitepaper,RichardWiener,AnneHobbsandRyanSpohnreviewtheliteratureofwhatmakesanevidence-basedpracticeandprovideaclassificationsystemtoinformdecision-makingaroundwhatconstitutesanevidence-basedpracticeinthecontextofjuvenilejusticeinNebraska.80OnejuvenilejusticestakeholderrecalledthistransitioninNebraska:

“Howdowemakesureourpeoplearefundingevidence-basedpractices?Well,I’vecometofindoutthat'sactuallyathird,lessthanfivepercent,ofthestateisactuallyanevidence-basedprogram.Sowhathadtohavehappenedisbringexpertsandactualprofessionalswhoareresearchers,andPh.D.’swhounderstandhowtoconductstatisticalanalysisonthedatathat’sbeingretrievedfromourstate.Andthendeterminewhetheraprogramoraserviceisactuallyafactortobeusedinthatsituationattherighttime.Soitwasalearningcurve.”

Increasing Attention to Youth Mental and Behavioral Health Needs

InthereportbytheNationalConferenceonStateLegislatorsreferencedpreviously,increasedattentiontothementalhealthneedsofyouthisalsoidentifiedasabrightspotinreformfrom2001-2011.Ourreviewoftheresearchsuggestsanincreaseinresearchavailableonthisissuebeginningin2011.Connectedtothisfocusonmentalandbehavioralhealthneedswasincreasedresearchonandattentiontotraumaandtheriseof“trauma-informed”practices.Interviewsconfirmedthattheriseintrauma-informedserviceswasconnectedtoanincreasedfocusonmentalandbehavioralhealth.Onejuvenilejusticestakeholderperceivedthat“traumainformed,ormotivationalinterviewing,[...]allofthosesupportive,strength-basedfactorshavenowbeensupportedbyresearchtobemuchmoreeffectivethananythingpunitivefocused”andhavebeengivenmoreattention.Inkeepingwiththetrendtowardstheuniquedevelopmentalneedsofyouth,theNebraskaLegislaturepassedLB972inApril2012,whichraisedtheminimumageforcommitmenttoYouthRehabilitationandTreatmentCenters(YRTCs)from12to14,withexceptionsforyouthwhocommitmurderormanslaughter,commitotheroffensesthatleadthecourttodeemcommitmentisnecessary,orviolateprobation.ThelawalsomandatedemployeetrainingtoimproveYRTCsafety.Duringthesamesession,thelegislaturerejectedabillthatwouldhavemovedYRTCsunderthecontroloftheDepartmentofCorrectionalServices,whereyouthwould

80Wiener,R.L.,etal.(2014,July14).Evidence-basedpracticeinjuvenilejustice:Nebraskawhitepaper.UniversityofNebraskaOmaha:JuvenileJusticeInstitute.


beunabletoaccesstherehabilitativeservicesprovidedbytheOfficeofJuvenileServices.81

The Aftermath of Privatization - Restructuring Nebraska’s Systems

InApril2012,theNebraskaLegislaturecreatedtheNebraskaChildren’sCommissionwiththepassageofLB821.TheCommissionwasintendedtoserveasapermanentforumforcollaborationamongstate,local,community,public,andprivatestakeholdersinchildwelfareandjuvenilejusticeprogramsandservices.TheJuvenileServices(OJS)CommitteewasalsoestablishedasasubcommitteeoftheNebraskaChildren’sCommission,withthemandatetoreviewtheroleandeffectivenessofYRTCs,includingwhatpopulationsshouldbeserved,whattreatmentservicesshouldbeprovidedatYRTCs,howmentalandbehavioralhealthservicesareprovidedtoyouthinsecureresidentialplacements,andtheneedforsuchservicesinNebraska’sjuvenilejusticesystem.WiththepassageofLB821,theLegislaturealsoenactedtheOfficeofInspectorGeneralofNebraskaChildWelfareAct,whichcreatedtheOfficeoftheInspectorGeneralofChildWelfaretoprovideincreasedaccountabilityandlegislativeoversightoftheNebraskachildwelfaresystem.Thatsameyear,NebraskaalsocompletedaStatewideDisproportionateMinorityContact(DMC)assessmenttoidentifythefactorsthatcontributetoDMCsothatNebraska’sjuvenilejusticesystemstakeholderscandesignappropriateinterventionstrategies.82InJuly2012,thestatewideDMCSubcommitteeheldaretreatandbegantoreviewandprioritizerecommendationsmadeintheNebraskaDMCAssessment.InAugust2012,anewStateDMCCoordinatorwashired.ThenewDMCCoordinatorwastostrengthenthestatewideDMCCommitteeanditsrelationshipswithcountyDMCcommitteesaswellasensurecompliancewiththe4corerequirements.MajorreformusheredinwiththepassageofLB561In2013,amajorjuvenilejusticereformbill-LB561-wassignedintolawbyGovernorDaveHeineman.TheNebraskaJuvenileJusticeAssociationstatedthatthebillwas“intendedtodecreasethedependencyonjuveniledetentioncenterstays,placemoreemphasisonrehabilitation,increasefamilyengagementandprovidemoreservicesatthecommunitylevel.”83Specifically,thebillconvertedtheNebraskaJuvenileServiceDeliveryProjectof2012fromapilotprogramtoapermanentstatewideinitiative.84Onejuvenilejusticestakeholderrecalledthistransition,

“TheNebraskaJuvenileServiceDeliveryProject,[...]thatreallyhelpedusgetourfeetwetastowhatdoesservicedeliverylooklike,andreallywasourfirstexposureto

81NationalJuvenileJusticeNetwork.(2016).Advancesinjuvenilejusticereform.82Hobbes,etal.(2012).NebraskaStateDMCAssessment.UniversityofNebraskaJuvenileJusticeInstitute83Bennett,J.(2014,March16).Nebraskajuvenilejusticereformupdate.NebraskaJuvenileJusticeAssociation.84NationalJuvenileJusticeNetwork.(2016).Advancesinjuvenilejusticereform:Nebraska.


targetingservicesappropriately[...].Andsowewereverysuccessfulinthatendeavorinkeepingyouthonprobation,thatneededtobeonprobation,andnotessentiallyforcingthemintothatdeepestendofeitherofoursystems,whichweknowfromevidence-basedpractice,isreallyimportanttobeleastrestrictive,leastintrusive.[...]Outofthoseefforts,reallywewereabletodemonstratethatit’simportantforyouthonprobationtohaveaccesstoservices,andthusneedingthefundingsourcestobeabletodothat,andhowwecouldeffectivelyusethoseresources.AndsothateventuallyledthentotheintroductionofLB561,whichallocatedfundsthen,andtheresponsibilityforalldelinquentyouththenexpresslytoprobation.”

ThebillalsoshiftedthesupervisionofjuvenileoffendersfromtheDepartmentofHealthandHumanServices(DHHS)OfficeofJuvenileServices(OJS)toNebraska’sOfficeofProbationAdministrationandfocusedonexpandinglocalandcommunity-basedalternativestoincarceration.Theexpansionwouldrolloutina3-stepprocessstartingJuly1,2013andendingJuly1,2014andwouldincludeallcommunitysupervision,evaluations,andthere-entryfunctionforyouthleavingtheYouthRegionalTreatmentCenters.AnotherstakeholderelicitsthechangeLB561hadonjuvenilejusticeinNebraska,

“NotsolongagothejuvenilejusticesystemwasdisjointedinthatProbationwaspartofthejudicialsystem.TheOfficeofJuvenileServiceswaspartoftheExecutiveBranchandHealthandHumanServices.AndsoProbationwouldworkwithyouthupuntiltheyweretakenoutofthehomeandsenttotheYouthRehabilitationandTreatmentCenter[...]WellLB561changedallofthatandbroughtallofthedelinquentadjudicationstoprobation.Andmadeforamoreseamlesssystem.”

LB561alsofocusedonimplementingresearch-informedpreventionprogramstokeepyouthoutofthejuvenilejusticesystem,assistingjuvenilesintransitioningfromout-of-homeplacementstoin-hometreatments,andprovidingtreatmentandrehabilitationforcourt-involvedyouth.TheNationalJuvenileJusticeNetworkviewedthebillasa“hugewin,”85andSarahForrestofVoicesforChildreninNebraskastated,“Thebillisanimportantstepinrealizingthatwhatwe'redoingnowisn'tworkingforkids.[Thebill'spassage]showsthatthere'sacommitmenttoeffectivelyservingyouthandgivingkidswhattheyneedtobeonthepathtoasuccessfulfuture.”86Theadditional$14.5millioninvestedintothejuvenilejusticesystemisthoughtto“ensurethatyouthcanaccessevidence-basedservicesclosetotheirhomes,inordertoreduceNebraska’srelianceondetentionandincarceration.”87TheseadditionalfundsnotonlyallowedtheOfficeofProbationtoprovidemoreservicesforyouthandfamilies,butalsopermittedtheagencytoutilizemoreresourcesandhireadditionalstafftomeetthegrowingneedsofjuvenilejustice.

85Swift,J.(2013,May31).Nebraskapassesjuvenilejusticereform.JuvenileJusticeInformationExchange.86Schein,Z.(2013,June13).Nebraskapasses$14.5millionjuvenilejusticereformbill.NationalJuvenileJusticeNetwork.87VoicesforChildreninNebraska.(2015).It’swhyitmatters.


InthepassageofLB561,theCommunity-BasedServicesAidAdministratorwascreated,andCynthiaKennedywaspromotedinternallytothepositiononAugust19th,2013.Tribesrecognizedatthefederallevelandstatelevelwereincludedintheformulatedamount,nowknownasCommunity-BasedAid;in2013,$3millionwasallocatedtocounties/tribes.88WithintheNebraskaCrimeCommission,thepositionoftheJuvenileDiversionProgramAdministratorwasestablishedwiththechargeofassistinginthecreationandmaintenanceofjuvenilepretrialdiversionprogramstodivertjuvenilesawayfromthejudicialsystemandintocommunity-basedservices.Astatewidesteeringcommitteewasalsocreatedtoassistinregularstrategicplanninginvolvedwiththefunding,monitoring,andevaluationofprogramsreceivingCommunity-BasedAid.WiththepassageofLB561,theCourtImprovementProjectexpandeditsThroughtheEyesoftheChildInitiativetoincludeaJuvenileJusticeCourtImprovementProject(JJCIP).FundedthroughtheOfficeofProbationAdministrationaspartofLB561,thegoalsoftheJJCIPare“toassistimplementingthejuvenilejusticereformsofLB561andimprovethejuvenilejusticecourtandlegalsystem,whichincludesimprovinglegalrepresentation,increasingfamilyengagementandutilizationofrestorativejusticeprocesses,improvingthetimelinessandqualityofcourthearingsandimprovingcourtdata.”89AnotherjuvenilejusticestakeholdersummarizesthechangesLB561broughttothesystem:

“NowIfeellikethere’sbeenashiftinreallypayingattentiontojuvenilejusticekidswhenitseemedlikekindofbackthennobodycared.Soitisarealexcitingtime,Ithink,injuvenilejusticebecausealotofpeoplearecaring.Whetherthat’sbecausealotofmoneyisbeingspentorjustbecausemorereformishappeninginalotofdifferentareasinthejuvenilejusticeworld[...]AndIthinkthat’sseenthroughjuvenilejusticebillsthathavepassedthroughthelegislaturelikerecognizingalternativestodetention,andallsortsofthingstohelpeveryoneunderstandthere’sarightwaytotreatkidsinoursystemwhentheyhavetogotocourt.”

Institutionalizing Reform: Enhancing Accountability and Access

Theperiodfrom2014-2016haslargelybeenfocusedonstreamliningthereformsusheredinbyLB561andfillinggapsthatwerecreatedbytherestructuringofthesystem.WiththepassageofLB561,thejurisdictionoftheOfficeoftheInspectorGeneral(OIG)ofChildWelfarewasextendedtoincludesecurejuveniledetention,staffsecurejuveniledetentionandprivateentitiesservingyouthundercontractwiththeOfficeofProbationAdministration.90Inits2014report,theOIGdefinedthechildwelfaresystemas“anychild-servinggovernmentorgovernmentsupportedentityinNebraska.Thisincludesjuvenilejustice.”InJanuary2015,theInspectorGeneralofChildWelfarewasgivenoversightoftheentirejuvenilejusticesystem

88NebraskaCoalitionforJuvenileJustice.(2014).FY2013/2014annualreporttothegovernor&Nebraskalegislature.89NebraskaCourtImprovementProject.(2015).About.90Rogers,J.L.,Schmeits,S.&Amsberry,S.(2014,September15).Annualreport2013-2014.OfficeofInspectorGeneralofNebraskaChildWelfare.


throughthepassageofLB347.91Despitethischange,OIGcitedproblemswithaccesstodatatomakeaccurateassessmentsofjuvenilejustice.Inthe2015reportbyOIG,theInspectorGeneralindicatedthat“Statecourtofficialshaveblockedaccesstoinformationaboutjuvenileoffenders,inspiteofastatelawrequiringitsdisclosure.”92Asaresult,inearly2016,theLegislaturepassedLB954toensureaccesstorecordsforinvestigationsbytheInspectorGeneralofNebraskaChildWelfare.Inaninterviewonits2015report,theOIGofChildWelfarestated,“Whilenooneshouldexpectaperfectjuvenilejusticesystemonlytwoyearsintoareformeffort,itisreasonabletoassumethatthereshouldbemovementintherightdirection.Unfortunately,thereissomeindicationthatjuvenilejusticereformisnotonitsintendedtrack.”TwoyearsfollowingLB561,theOIGfoundthattherehadbeennocostsavingswiththetransferofresponsibilityfromDHHStoOPA,continueduseofoutofhomeplacements,andinappropriateuseofdetentionbecauseoflackofotheravailableservicesoraspunishmentforprobationviolationsratherthanforpublicsafety.ArepresentativefromtheAdministrativeOfficeofProbationcountered,indicatingthat“nationaldatatellsustoexpectanincreaseincostinitiallywiththecostsavingoccurringaroundyear5.”Still,OIGcommendedAOPforundertakingthestudyoftheIntakeRiskAssessmentInstrument(RAI),whichtheymadepublic.Severalstakeholdersinthejudicialbranchexpressedconcernoverthecurrentstructureofoversight.Oneintervieweeshared,

“Then,ofcourse,lastyeartheInspectorGeneral’sReportcameout[...]Alongcomesmoney.Alongcomesresponsibility.Thelegislaturealsothoughttherewasgoingtobeoversight.Well,there’saseparationofpowers,nowthatwe’reinadifferentbranchofgovernment.Onebranchcan’thaveoversightoveranotherbranchofgovernment.Soitbecameaproblem,becausethentheinspectorgeneralisintheexecutivebranch.Theyexpecthertohaveoversight.Soitbecameapoliticalnightmarelastyear.Januaryoflastyearwasprettyrough,andtheyweretalkingaboutmovingprobationoverintotheexecutivebranchandlotsofdifferentthings.Ithinkitsetthereformback.Wehadtofocusonjust–Idon’tknow–everythingbutprogression,keepingthefootonthegasandmovingforward.”

InresponsetothecriticismsofOIGinSeptember2015,OPApubliclyreleasedtheassessmentcompletedbytheCouncilofStateGovernmentsJusticeCenter,whichassessedthestateagainstthe“CorePrinciplesforImprovingOutcomesforYouthInvolvedintheJuvenileJusticeSystem.”Thoseprinciplesare:

1. Basesupervision,service,andresourceallocationdecisionsontheresultsofvalidatedriskandneedsassessments;

2. Adoptandeffectivelyimplementprogramsandservicesdemonstratedtoreducerecidivismandimproveotheryouthoutcomes,andusedatatoevaluatetheresultsand

91LegislatureofNebraska.(2015).LegislativeBill347.92Stoddard,M.(2015,September16).Nebraskajuvenilejusticereformhasn’tworkedout,stateinspectorgeneralsays.OmahaWorld-Herald.


directsystemimprovements;3. Employacoordinatedapproachacrossservicesystemstoaddressyouth’sneeds,and;4. Tailorsystempolicies,programs,andsupervisiontoreflectthedistinctdevelopmental

needsofadolescents.ThroughfocusgroupsandanalysisofotherassessmentsconductedinFY14,theCouncilrecommendedthatOPA:

1. Establishstatewiderisk-basedcriteriaandstructureddecision-makingtoolstoimprovesupervisiondecisionsandtheefficientuseofresources;

2. Establishmorespecificpoliciestoguidethefunding,use,andoversightofservicesthatwillimproveserviceeffectivenessanduseresourcesmoreefficiently,and;

3. Capturecomprehensivedataonyouthservicesandsupervisionandconductanalysestotrackoutcomesandevaluateandimproveperformance.

Responsibleforstatewideadministrationofintakeanddetentionalternatives,investigations,assessmentsandevaluations,casemanagement/supervisionandservices,placement,reentry,andfundingforjuveniles,theJuvenileServicesDivisionwasatthecenterofthereformeffortsand,asaresult,thefocusofaccountabilityforthatreform.Inresponsetothisreport,theDivisionofJuvenileServicescreatedanActionPlaninNovember2015.Italsocontinueditspractice,initiatedinMay2015,ofpublishingmonthlyreportsonitsreformefforts.InthemostrecentreportbytheInspectorGeneralofChildWelfare,publishedinSeptember2016,concernsseemtohaveshiftedfromalackoftransparencytoalackofcoordinationbetweenagenciesservingNebraska’schildren.Accordingtothereport,“nopoliciesexistwithinProbationorDHHStoguidefrontlineworkersonhowcasesshouldbehandledwithwhichtheyarebothinvolved.”93Thisassessmentwaslargelyconfirmedinstakeholderinterviews.JuvenileJusticestakeholdersexplainthatlackofcoordinationresultedinseveralgroupsofyouthfallingthroughthesystembecauseitwasnotclearastowhomwasresponsibleforthem.Forexample,lawenforcementofficersstruggledwithknowingwhotocall,eitherDHHSorOfficeofProbation,whendealingwithyouthwhodidn’tfitineitherdelinquentorabuse/neglectcategories,becausetherewasnoclearprocedureinplace.YetinconversationswithstakeholdersintheJuvenileServicesdivision,itappearsthatsignificanteffortshavebeenmadeinrecentmonthstoclarifyandcommunicaterolesandresponsibilitiesofeachoffice.Atthespring2016NationalJuvenileJusticeAssociationConferenceandagaininthefall2016Children’sSummitinSeptember,representativesfromAOPandDHHSpresentedon“ClarityandCollaboration:TheDifferentRolesofChildWelfareandJuvenileJustice.”Oneofthecriticismsofthecurrentprocessofoversightandinvestigationraisedfromstakeholderinterviewsisthelackofconstructivefeedback.Onestakeholdershared,

“Iappreciateandexpectfeedbackandweallshouldtakefeedback.It’sjustinthe

93Rogers,J.L.,Forrest,S.,O’Hanlon,K.&Amsberry,S.(2016,September14).Annualreport2015-2016.OfficeofInspectorGeneralofNebraskaChildWelfare.


mannerwhenit’sinanegativekindof–thatdoesn’thelpanybody.Whenit’shere’swhatwe’resaying.Here’ssomethingsthatcanbedonetoimprove.That’sthetypeoffeedbackthat’shelpful;notyou’renotdoingyourjobandsoforth.SothosearejustsomeconcerningthingsthatstuckoutasI’mthinkingaswellsystematicallythataren’tthere.WhatIseeisIdon’tseethatasanimprovementmechanism.IseeitasanouttogetyoumechanismwhereI’llpointthefigure.Andthat’snotwhatweneedinthesystemtoimprove.Thatdoesn’thelpanybody.”

WhilesomestakeholdershaveconcernsabouttheroleoftheOIG,othersfeelitshowsgreatpromiseforthesystem.Inthewordsofonestakeholder:

“TheOfficeoftheInspectorGeneralinNebraska,it'sanew,fairlynewdepartment,oranewposition.Andyouknow,it'sinvolvedwithinterviewingorinvestigatinginstancesthatinvolvethewellbeing,specifically,ofchildreninstate,youknow,thatareunderstatecustody,whetheritbeCPSorjuvenilejustice.Andyouknow,thatshowsgreatpromise.We'vegotgoodpeopleinthere.There'ssomegrowingpainsassociatedwiththat,thatarebeingworkedout.SoIthinkthat's,youknow,that'sagreatprogram.”

RECENT TRENDS IN JUVENILE JUSTICE REFORM ToclosethisretrospectivedevelopmentalevaluationofjuvenilejusticereforminNebraska,wehaveidentifiedseveralthemesinjuvenilejusticereformnationallythathaveemergedoverthelasttwoyears.WhilesomeofthesethemesarebeingaddressedinNebraska,thereislessevidenceofprogressonothers.

Developmental Appropriateness and Trauma-informed Care

Providingservicestoyouththataredevelopmentallyappropriateandtakeintoaccountthetraumathatmanysystem-involvedyouthhaveexperiencedcontinuetoreceiveincreasingattentiononthenationalstage.TheOJJDPnamedtrauma-informedcareasitscentralresponsetoyouthintheir2014AnnualReport.94TraumawasalsotheorganizingthemeOJJDP’sspring2016JournalofJuvenileJustice.95ThisattentiontotraumahasbecomeincreasinglyimportantforNebraska’sreformefforts.Severalstakeholdersbroughtuptraumaandtrauma-informedcareininterviews,andworkshopsandwebinarshavebeenavailablestatewideforjudges,attorneys,andserviceprovidersonhowtotakeatrauma-informedapproachinworkingwithyouth.Interviewsrevealedthatthisapproachseemstobetwo-pronged:1.awarenessofyouthcominginwithtrauma-informedbehaviorsandbackgrounds;2.awarenessthatintake

94OfficeofJuvenileJusticeandDelinquencyPrevention.(2015)ComingintoFocus:TheFutureofJuvenileJusticeReform.p.5.95OfficeofJuvenileJusticeandDelinquencyPrevention(2016).JournalofJuvenileJustice.Volume5,Issue1.


assessmentsandout-of-homeservicescanretraumatizeand/orcausenewtraumatoyouth.Onestakeholderdescribedthetrauma-informedapproachasoneofthebiggestshiftsinthesystemoverthelasttenyears:“SoIthinkthatthistrauma-informedsystemsresponsethat’s,probablyinthelast,Idon’tknow,whatdoyouthink,maybetenyearsorwhatever,thatismakingabiginroadonhowwerespondtothesechildrenandfamilies.”Anotherstakeholderdescribedtheshiftinpracticethisway:

“Iamahugebelieveroftrauma-informedjusticethatit'sbeenthekeyingredientthatweweremissing.It'sthatweneedtoidentifythetraumathatkidshavesufferedbecausesomuchofwhattheydointhebehaviorworldissimplysymptomaticofanunderlyingtrauma-agirlthatwasmolestedandnevertoldanybody,aboywhowasmolestedandnevertoldanybody,kidsthatwatchtheirparentgetbeatupbytheboyfriend.Thosearedeeplytraumatizing.Wehave,notuptothepresenttime,reallyfocused.Inowhaveatrauma-focusedtherapistwhoisreallyavaluabletoolforme.I'vebeenorderingtraumaassessmentsforthelasttwoyears.Iwasfirstmetwith,"Nobodydoesthose."Isaid,"Theywill."It'sjustlikeFieldofDreams.Buildit,andtheywillcome.IfIorderatrauma-informed,thenapsychologistwillgogetthetrainingsotheycandoitbecausethat'showtheymaketheirliving.Inowhavefourclinicalproviderswhowentandgotthetrainingandcandoatrauma-informedassessment.They'reveryusefulinidentifyingwhathappenedtokids.That'ssomethingtheNationalCouncilhasbeenaleaderintrauma.Wedotraumaimplementations,allofthatkindofstuff.Ipickeditupfromthere.”

Bias Reduction and Disproportionate Minority Contact

DMCremainsapriorityandanissuenationally,butarelatedfocusonbiasreductionandproceduralfairnesshasbeguntoemergeaswell.Asnotedpreviously,in2012theUniversityOfNebraskaJuvenileJusticeInstituteconductedanassessmentofDMCinthestateandfoundsignificantgapsindataandreporting,whichmadeDMCdifficulttoassessinmanyaspectsofthesystem.Despitethegaps,thereportdidfindstatisticaloverrepresentationofminorityyouthindetentionfacilitiesandadultcourt.Thereportalsofoundthat“BlackandNativeAmericanyouthweresignificantlylesslikelytosuccessfullycompletejuvenileprobation.”96Inresponsetothereport,anewStateDMCCoordinatorwashiredin2012andaDMCcomplianceplanwasputintoplace.Atthetimeofthisreport,wewereunabletofindmorerecentdataonthestatusofthatworkoutsideofDouglasandLancastercounties.Accordingtoonestakeholder,therehasbeensomefocusonDMCintheThroughtheEyesoftheChildteamsandthroughgrantsfromtheCrimeCommission.WithJDAI’srecentexpansiontoSarpyandOtoecounties,DMCwillalsolikelybecomemoreofafocusinthosecommunities.YetanotherstakeholdersharedthisassessmentofDMC:“Wehavenotmadeanyprogresswithrace,withdisproportionateminoritycontact.96Hobbes,etal.(2012).NebraskaStateDMCAssessment.UniversityofNebraskaJuvenileJusticeInstitute,p3.


Youknow,ourdetentionnumbersinDouglasCountyaredown,anddependingonwhichmonthyoulookatthedataweactuallyhaveaworseDMCissuethanwehadbefore.”AnotherstakeholdersharedfrustrationthatDMCisnotbeingtalkedaboutmore:“Ihaveaverystrongconcernandinterestinthedisproportionateminoritycontact.AndagainIthinkthatthat'ssomethingthatwedon'teventalkabout.Anditseemsridiculoustomethatwe'renottalkingaboutthat.”Thisfrustrationwassharedwithanotherstakeholder,whoexpressedthat“theCrimeCommissionhasaDMCCommittee,andthey’rechargedbythefederalgovernmenttohave,like,aplaninplaceforhowthestateisgoingtoaddressracialdisparityinthejuvenilejusticesystem.AndIhavebeenjustwoefully-what’stherightword-disappointedintheabilityforthatgrouptoactuallyeffectuatechange.Ithinkeveryoneonthat,it’stherightpeople.Ithinkevenit’stherightleadership,butforwhateverreasontheyhavenotbeenabletomovetheballforward.”ThisstakeholderwentontoexpressthatJDAIisaddressingsomeoftheseconcernsaboutraceandDMC,butthateffortsareoftenduplicated.Theyshared,“Youknowthestuffthat’sgoingonwiththeJuvenileDetentionAlternativeInitiativerelatedtorace,isexactlywhatneedstobehappeninginthestateDMCcommittee,andcanweconsolidatethatinitiative,right?Bothgroupshaveresourcesattheirdisposal;whyaren’twemergingthatresearchagendaforthebenefitofboth?”

Focus on Native Youth

TheOJJDPhasalsoemphasizedafocusonsupportingtribalcommunitiesandunderstandingandaddressingtheneedsofNativeyouthinvolvedinthejuvenilejusticeandchildwelfaresystems.OnestakeholderwithexpertiseintheIndianChildWelfareAct(ICWA)shared,

“It’simportanttonotethatit’snowclearthattheFederalICWARegulations-whichwillgointoeffectinacoupleofdaysnow-ICWAdoesapplytojuvenilejustice.There’ssomequestionaboutthatontheproposedregulation.SotheICWAisnottheretoprotectthejuveniledelinquencykidslikeitisfortheabuseandneglectkids,butICWAdoesapplytostatusoffensecases.Sothosecasesarecurrentlybeinghandledbyprobation.ICWAappliestothosekidsrunbyprobationbutnotfordelinquencykids.”

ThestakeholderwentontodescribehowthisfocusonNativeyouthconnectstothepreviousfocusonDMC:

“Ontheabuseandneglectside,yeah,NativeAmericansarenumberoneintermsofdisproportionality,we’renumbertwointhestateintermsofthedisproportionatenumberofchildrenthatareIndianthatareinfostercare,sothat'sreallybad.WealsohaveaveryhighdisproportionatenumberofAfricanAmericanchildreninthefostercaresystemandIthinkthenumbersareprettysimilarforjuvenilejustice.Sojustout


ofthesheernumberofkids,AfricanAmericansandNativeAmericansfacepooreroutcomesthantheirpeersonthefostercareside.AndIassumethecasetobesimilaronthejuveniledelinquencyorjuvenilejusticeside,too.”

Thisstakeholdersharedthatoverall,theyfeelthestateisdoingwellwithICWA,howeverthereisstillworktobedone:

“Somecaseworkersjustdon’tknowaboutICWA.Somefewwouldintentionallytrytoignoreit,whichcausesmoreproblemsinthiscasethantryingtocomplywithit.Fromthecourtperspective,itreallyisjustindividual…AndIthinkDHHS,again,hasdonebetterwiththistotheextenttheadministrationhastakenastancethattheywanttodobetterandtheyhavebeenworkingtowardsit.

Buttheindividualcourtstakeholders,countyattorneys,guardianadlitem,juvenilecourtjudges;sometimes,dependingonwhichjudgeyou’retalkingabout,don’tunderstandthelaworthestatuteverywell.Andit’sdifficultwhennoneoftheothercourtstakeholdersunderstandit.SoI’dsayonthecourtside,it’sprobablyattorneysandjudgesthatcouldusealittlebitmoreeducation.Butagain,there’sbeensomeprettygoodimprovementtheretoo.”

Despitethesechallenges,thestakeholderhasbeenpleasedwithProbation’swillingnesstoimplementICWA.Theyshared,

“WhentheproposedICWAregulationscameouttwoyearsago,probationwasveryopentotryingtodoICWAwell.Whenthefinalregulationcameoutsaying,essentially,statusoffensecasesarestillICWAbutdelinquencycasesarenot,thatwasalittlebitfrustrating.ButProbation’swillingnesstolistentostakeholdershasbeenhugeandatleasttheICWAishere.There’s,alwayshavereallygoodattendanceofprobationofficersattrainingsthatI’vedoneonICWA.Sothere’sthethirstandgenuineopennesstonewinformation,sothat’sgood.”

AnotherstakeholdernotedthatNativeyouthmovethroughthesystemdifferentlythannon-NativeyouthbecauseofICWA.TheysharedthatICWA,

“requiresustodothingsalittlebitdifferently.Itrequiresustomakesurethetribesareinvolved.SometimesthatmovesalittlebitslowerbecauseoftheNativeAmericanthingswiththeICWA.Also,too,manytimestheNativeAmericanpopulation,especiallyifthey’reaskingthatsomeofthesecasesbetransferredbacktotheirtribes,theydon’thavetheresourcesavailablethatmightbeavailableifthechildremainedinthestatecourt.SometimesthatconcernsmebecausesometimesIwantthatchildtogettheservicestheyneed.Andiftheydon’thavethemavailableonthetribalcourt,eventhoughIunderstandwhythetribeswantthembackintotheirtribalcourt,Iworryaboutthechild’sjustgettingputbackintothesamesituationthattheywereinbeforeandthefamilyandthechildnotgettingtheservicesneededtocorrect


whatcausedthemtobebroughttotheattentionofthecourtinthefirstplace.

Sothat’sprobablyoneofthemainonesthatIsee.Andthatvariesbytribeaswellbecausesomeofthetribesworkverywellwiththestatecourts.SomeofthetribesaremorethanhappytobepresentastheyseethecourtsystemoperatingandmonitorwhatthecourtsystemisdoingwiththechildrenthatthecourthasthatareNativeAmerican.Andothertribesbasicallydon’twanttobeinvolvedatallinthestatecourtsystem.Theywantthechildbackwiththem.Andwehavesomegoodtribaljudges,Ithink,aroundhere,butevenwithhavinggoodtribaljudgesiftheydon’thavetheresources,itcan’talways,they’regoingtohavethesamedifficultyItalkedaboutbeforewithouttheresourcesthattheyhavetothenhelpthechildoncetheneedshavebeenaccessed.ThatwouldprobablybethemainonethatIseeasadifferenceinthingsthatflowthrough.”

Withregardstoresources,oneintervieweementionedthattheCrimeCommissionisreallyhelpfulforsmallerandtribalcommunitiesinaccessingresources,butexpressedconcernthattheIndianCommissionwasnotadequatelyusingorallocatingitsresources.Thissamestakeholderechoedthechallengeofjurisdictionmentionedabove,thoughfromadifferentperspective.Theyshared,

“Onethingthat’shardforNativeAmericansisthatatanytime,ImeaniftheFBIthinksthatthecrimewarrantstobechargedfederally,theycanbasicallycomeinandtakeouryoungmenandwomenandchargethemasadultswithafederalcrime.Andwe’vehadthatinthepastsixyears;we’vehadsomeseriouscrimescommittedbyjuvenilesandtheywerechargedfederally.”

Theywentontodescribehowtribalprobationtriestoworkwithotherjurisdictions,bothstateandfederal,asmuchaspossiblebutprefertoretaincustodyoftheyouth.Theyshared,

“Asfarasthefederalpart,again,iftheyneedsomethingfromus,informationonapastclientofours,wecertainlytrytohelp.Andthey,too,ifweneedinformationonsomethingfromtheirend,wehaveaprettygoodopendialogwiththeFBIandifweneedhelpwiththem,they’realwaysrightthereforus.Ultimately,wetrytobringaclientbackintoourcommunityandtrytogivethemsomeresourcessothatit’snotsuchashockcomingbackinsotheycansucceedandnotsomuchreoffendorgetinmoretrouble.We’regettingalittlebetterwithourreentryandservices,butit’sstillnewforoursmallcommunityandIndianCountry.Butwe’relearning.We’recomingalongslowly.We’refartheralongthanweweresixyearsago.”

SomeofthewaysthisstakeholderdescribedimprovementsinservicesofferedtoNativeyouthintheirtribeincludedthedevelopmentofatraditionalwellnesscourttoconnectjuvenileswithtribalelders,servicestoaddressalcoholismandtraumaissuesthroughayouthcrisisinterventioncenter,andaccesstotrainingthatisspecifictotribalpolicingandprobation.Unfortunately,theseservicesarenotavailableinalltribes,soaccessreallyvariesfortribalyouthbasedontribalaffiliationandlocation.


Anotherstakeholdersharedthatintheirdistrict,theyareseeingfewerNativeAmericanchildrencomingthroughthesystem:“Idon’tknowifthat’sbecausebetterservicethingshavechangedorifthey’rejustnothere.”

Preventing Sex Trafficking

NationallyandinNebraska,sextraffickingofminorsisreceivingincreasingattention.Inparticular,researchhasshownconnectionsbetweenrunawayandhomelessyouth,juvenilejusticeinvolvement,andhumantrafficking.Inadditiontothefocusareaslistedabove,NebraskacontinuestofocusonaddressingtheneedsofcrossoveryouththroughGeorgetown’sCrossoverYouthPracticeModel(CYPM).Themodel,whichiscurrentlyoperatingin96countiesacross21states,isadministeredinNebraskabytheOfficeofProbationAdministration.AfteraninitialpilotinDouglasCountyin2012,theprogramexpandedtoGage,Lancaster,andDodgeCountiesin2015.NebraskaalsocontinuestofocusondetentionalternativesthroughtheJuvenileDetentionAlternativesInitiative(JDAI)inpartnershipwithTheAnnieE.CaseyFoundation.JDAIiscurrentlyoperatinginDouglasandSarpyCounties,withplansforexpansion.

JUVENILE JUSTICE HOME-BASED INITIATIVE OneofthemajorjuvenilejusticereforminitiativescurrentlyunderwayinNebraska,andthefocusofthisevaluation,istheJuvenileJusticeHome-BasedInitiative.FormerlyknownastheCommunityandEvidence-BasedServicesInitiative(CEBS),theinitiativegrewoutofthegoalofreducingthenumberofout-of-homeplacementsforyouthbyprovidingservicesforyouthintheirhomes,schoolsandcommunities.SeveralstakeholdersnotedthatNebraska’sout-of-homeplacementswerefartoohigh,andthatyoutheventuallyreturnedtothesameenvironmentthathadledtotheirbehaviorinthefirstplace.Anotherstakeholdersharedthatjudgeswereoftenfrustratedbytheirlimitedoptionsforservices,aswellasbyhowlongittooktogetplacementsforsomeyouth.Giventhesechallenges,agroupbegantoexploreevidence-basedpracticestoseewhatmightworkinNebraska.Oneintervieweeshared,“IthasbeenalongstandingtraditioninNebraskaoflookingtoevidenceofwhatiseffectiveinthejuvenilejusticesystem.”Onestakeholderdescribedtheimpetusfortheinitiativethisway:

“Ithinkwhatstudiesthereareoutthereonoutcomesinjuvenilecourtshowedthattherewasamuchgreater,positiveimpactandalowerrecidivismrateonchildrenwhowerekeptintheirownhomesandcommunitiesandservedthereratherthanbeingremoved.Mostofthetime,ifIremoveakidandsendhimtotheBoysTowncampus,theywoulddobeautifullythetwoyearstheywereatBoysTown.

Ialwaysknewsomedaytheywerecominghome,andnothingathomehadchanged.Howdotheyretainwhattheylearned?TheonlywayyoucandoitandIthinkthe


conclusionthatBoysTownreachedisyoudohavetoservethefamily.Theclientisthefamily,notthekid.Youhavetogoin.Everybodyhastogetserviced.Siblings,you'regoingtofindthattheremaybevicarioustraumaordirecttraumainthehome.You’vegottotouchonthat.You'vegottogiveeverybodyaplaceatthetableinthehome.

You'vegottolistentoeverybodyinthehomeaboutwhatit'slikethereandwhattheimpactisonthemisbehaviorsofthisonechildthat'syourclient.Ifyoudothat,thenyouhaveachanceofkeepingthekidinthehomeandresolvingthatconflictandgettingeverybodymovingforward.Ifyoujusttreatthekidsandsendhimback,noneoftheotherpeopleinthehousearebetter.You'renotgoingtogetthebenefitofthatintervention.That'sthewholetheory,asIunderstandit,ofthishome-basedinitiative-istotaketheservicetothefamily,keepthekidinthesameschool,inthesamecommunity.He’sgoingtohavetolearntocopewiththosepressures.”

Thus,theJuvenileJusticeHome-BasedInitiativewasdesignedtoensureboththeavailabilityanduseofcommunityandevidence-basedserviceforyouthwhoarenotconsideredadangertothemselvesortheircommunities.

Planning Phase

Theinitiativebeganwithaplanningyearin2015.First,programswereidentifiedforimplementation.Onestakeholderdescribedtheprocessthisway:

“Anditwasaprettylengthyprocess,notaformalvetting,butalotofbackandforthaboutweneedtohavemodelsthataregoingtoworkindifferentplaces.Weneedtohavemodelsthatarecosteffective,andwhentheformalprocessstartedSherwoodandProbationsaidlook,wethinkwegotthreemodels,MST,BoysTown,FFT.Wethinkthatcoversdifferentneeds,differentlocations,workforceissues.”

Anotherstakeholderconfirmed,“Theideawastofundvaryingevidence-basedinterventionsthatcouldbeusedindifferentpopulationlevelsandresourcesavailableacrossthestate.”Ultimately,threeprogramswereconsideredforstatewideimplementation:Multi-SystemicTherapy(MST),FunctionalFamilyTherapy(FFT)andtheBoysTownEcologicalIn-HomeFamilyTreatmentModel.Onestakeholdershared,“allthreeofthosehavebeenprovenwithgoodoutcomesanddata,utilizingdatatolookatthoseoutcomes,producingbetterresults.”Anotherstakeholderdescribedtheroleofgeographyinthechoiceofthethreemodelsthisway:

“SoMSTwe’rereallylookingatforthelargerurbanareas.AndthenFunctionalFamilyTherapyisbeinglike,wellinsomeoftheruralpartswheretheycouldn’tnecessarilysustainthecoveredteamneededforMSTcouldreplicateit.Sotheywerethen–youknow,throughthediscussionsbeinginNebraskayoucan’treallyhavea


discussionwithoutBoysTownbeingbroughtin[...]AndBoysTownwaseveninterestedinhavinganMSTprogramthroughBoysTownsotheyjustkindofgotbroughtintothemixasathirdoptionfortherural,ruralareas.”

Anotherstakeholdershared,

“ItwasinitiallyMSTandFunctionalFamilyTherapywereidentified,andtheywereidentifiedbecausetheyhavethemostrigorousevidenceindoingexactlywhatthereformistsaresupposedtodoinreducingrecidivismforlawviolators,juvenilelawviolators;sotheywereselectedbasedonthattheywerethestrongestevidence-basedpractices.IthinkBoysTowncameinfortworeasons.Atthetime,theyhadsomeresearchbutnotthesamekindofpeerreview,rigorous–andthereasonwedidbothMSTandFFTisMSTismuchmoreexpensiveasaninterventionanditmightbeoverkillforsomeofthelowerleveloffensesandthelower-riskkidswhereasFFTislessexpensiveintermsoftheamountoftimeandallofthat,andalso,MST–itseemedlikeitwouldnotbeabletobeusedinmuchofthestatesoFunctionalFamilyTherapy–Ihopethat’sstillpartofitbecauseIthinkthatwascriticalhavingtheevidence-basedtreatmentthatcouldbeusedforlesserlowerlevelviolations,butithadbeenusedformoreintense–butanyway,itjustseemedlikethatwouldbeacontinuumofservicewithFFTandMST,andBoysTown,IthinkthattheywantedinandsoIthinkthatbecauseof–andtheyobviouslydogoodwork,butalsotherearepartsofthestatethatdidn’thaveanymaster’sleveltreatmentproviders,andtheirmodeldidn’trequireamaster’s,andsoitseemedlikewecouldcovertheentirestatebyusingallthree,andthat’showtheywerechosen.”

Onestakeholderdescribedtheprocessthisway:

“Ithinkitwasjustamatterofthefactthatweknewwehadagap.Wehadagapbetween,youknow,utilizationofoutpatientkindoftherapies.Youknow,wehadn’t-wehadintensivefamilypreservation,but,youknow,itstillwasmeanttobeveryshort-term.SoIthinkweknewwejustneededamoresystemicin-homebasedservicethatcouldworkalittlemorecomprehensivelywiththesefamilies.Andthethingwas,weknewthemodelwas-themodelswereoutthere,andhadalotofresearchbehindthefactthereweremodels.WehadMid-PlainsdoingMST,andasanofficer,IcantellyouIjustlovethatdarnthing,veryeffective.Soweknewitcouldbe.WeknewEBP-wisethatitwasthedirectionweneededtogo.Butwealsoknewthenthattherewerechallengesforproviderstobeableto,youknow,becomecertifiedinthosemodels.“Sothenitbecameachallengeofhowdowegetoverthatbarrier,andhowdowehelpprovidersgetoverthatbarrier.AndthenofcoursewewereveryexcitedthatBoysTownthen...Theirevolution-BoysTown’sevolutionovertheyearshasbeenreallyinterestingtosee,becausethey,too,wentfromamodelwherethecampusandtheoutofhomeplacementwastheirfocus,tonowknowingthatthereneedstobeanevolutiontoeffectivecommunity-basedservices.Sowe’rereallygladtoseethem


havethatfocus.”

Thisgapinserviceswasconfirmedbystakeholderinterviewswithjudgesandprobationofficersaroundthestate.Onestakeholderexpressed:

“WeneedMSTorsomesimilartypeofinterventionmorereadilyavailable.Inourruralareas,sometimesthat'sdifficultbecausebusinessescan'taffordtostayinbusinessandbewithinthe30-mileradiuswhichisakeycomponenttothattypeoflevelofintervention.Fosterhomesaredifficulttofind.GrouphomesintheareathatIworkisaruralareasoifourkidsgooutofhomeplacement,generallyspeakingit'sasignificantdistancefromtheirfamily.Mypersonalbeliefisthefamilyisveryimportantinthebehavior/changecomponentinasuccessfulreunification.Butthere'sbarriersthatcomealong,whetheritbetheparenthavingtomissworktotravel...Omahaisabouttwoandahalfhoursfromme.Twoandahalfhourstogovisittheiryouthandhavetheirtherapeuticinterventionthentheyhavetwoandahalfhoursback.Soit'snotonlygasintheircar,dotheyhaveacar,someofthosebarriers.Butthetimeawayfromwork,that'sa5-hourdaysothey'reprobablymissingthewholeday.Wehaven'teventalkedabouttheotheryouthinthehome.We'reworkingwithayouthinanoutofhomeplacementsayinOmaha.”

Program Models

MultisystemicTherapy(MST)isanintensivefamily-andcommunity-basedtreatmentprogramthatfocusesonaddressingallenvironmentalsystemsthatimpactchronicandviolentjuvenileoffenders–theirhomesandfamilies,schoolsandteachers,neighborhoods,andfriends.MSTmeetsthehigheststandardofanevidence-basedpracticeandhasbeenreplicatedwithhighfidelitytotheprogrammodelaroundtheworld.Becauseoftherequirementoffidelitytothemodel,theprogramhasveryspecificrequirementsaboutthetypeofyouthservedandthetypeofproviderwhocanimplementtheprogram.MSThasbeenavailableinNebraskaformanyyears,butaccessislimitedtoareaswherethereisacertifiedprovider,whicharefew.FunctionalFamilyTherapy(FFT),likeMST,isanevidence-basedmodelthathasbeenimplementedglobally,butisdesignedforhigh-riskjuvenileswhomighthavecommittedlessercrimes.ThecontacttimerequiredbyFFTisalsosomewhatlowerthanMST,generallyabout20to30hoursintotaltimewithafamily,comparedtoMST’smodelofanintensive3-5monthswithsessionfrequencydeterminedbyclinicalneed,andwiththerapistsoncall24hoursaday,sevendaysaweek,readytogototheoffender’shomewheneverneeded.97TheBoysTownEcologicalIn-HomeFamilyTreatmentModelhasthelowestlevelofevidenceofthethreeprograms,butalsothemostflexibilityinimplementation.WhileBoysTownisprimarilyknownfortheirout-of-homeservices,in2008,“guidedbyBoysTown’sStrategicPlanningInitiative”theybeganfocusingon“helpingmorechildrenandyouthremainwiththeir

97Erickson,K.(2014,December2).What’sthedifferencebetweenMSTandFFT?Aprovider’sPOV.MSTServices.


families.”98Thismodelisa“strength-focusedhomeandcommunity-basedprogramdesignedtoreduceriskthatcontributestodelinquentbehaviorandfamilydysfunction.FamilyConsultantsworktoenhanceandimproveyouthandfamilyfunctioninginthehomeandcommunityandpreventtheneedforyouthtobedetainedorplacedinanout-of-homesetting.”ThereissignificantlylessresearchonthismodelandithasneverbeenimplementedbyanagencyotherthanBoysTown.Ininterviewswithstakeholders,mostseemedveryimpressedwithMST.Onestakeholdershared,“IhaveworkedwithMST&FFTinotherstatesandtheyareveryeffective.”Indeed,thosewithdirectexperienceseemedsatisfiedwiththeprovidersofferingtheservice,thoughsomementionedthatthereweresomestaffingissuesattimesandthatitisimportantthatthestaffunderstandandreflectthepopulationtheyareserving.ThemainconcernaboutMSTistherequirementofaMaster'slevelpractitioner.Onestakeholderexplained,“MSTisgoingtoworkreallywellintheurbancenterswhereyouhavelicenses&degreesandyouhaveaworkforce,butinotherpartsofthestateyoudon’thavetheworkforce.”TheBoysTownIn-Homemodelwaslesswell-knownandstakeholdershadvariedopinionsaboutitandtheorganizationmorebroadly.OnestakeholdersuggestedthatBoysTownandMSTwerechosenbasedontherightfitandevidence.TheywentontonotethatBoysTown’sresearchandhistoryinNebraskais“sustainableandeasy.”AnotherstakeholderdescribedBoysTownas“committedtocontinuingtomeasurepasttreatmentsandoutcomestofigureoutwhatisworkingandwhatisnotworking.”IncomparingBoysTownandMST,somestakeholdersseealotofcompatibilitybetweenthetwomodels,howeveronesuggestedthat“BoysTowntriedtocherrypickwhattheysawasbeingthebestfeaturesofMSTandthebestfeaturesoftheirlong-standingprogramandseehowtotakethebestofbothandoutthedoortothefamilies.IthinkBoysTownisverycleveratcherrypicking.”SomeoftheconcernswithBoysTowncomefrompastexperiencewithitsotherprograms.Onestakeholderdescribeditas“prescriptiveinhowitinteractswithnon-complianceyouth.”Theywentontoexplainthatthe“BoysTownmodelcanbealittlerigidanduncomfortable,especiallywhenyouhaveresistantparentsattimes.”

State Tour

Duringtheplanningstage,representativesfromtheNebraskaCourtImprovementProject,theJuvenileServicesDivisionofAOP,andDHHStravelledaroundthestateandconductedlisteningsessionswithkeystakeholdersinthesystem.Meetingswereheldineachofthejudicialareasaroundthestateandwereintendedbothtogatherfeedbackontheinitiativeandbegintheworkof“educatingjudges,attorneys,andotherstakeholdersaboutthenegativeconsequences

98Boy’sTownEcologicalIn-HomeFamilyTreatmentModelBrochure,p.2.


ofcongregatecareplacementsforjuveniles.”Anotherstakeholderinvolvedinthesessionssharedthatthey“advertisedwhateachoftheprograms,describedwhateachoftheprogramscoulddo,andbegantocollectinterestonwhokindofwantedtodowhatkindsofprograms."Athirdexplaineditthisway:

“Weweresortofassessingtheinterestandthecapacityofthementalhealthworldtoprovidetreatment,youknow,inthesemodels,andthemodels–Idon’tknowhow–buttheyhavedifferentrequirementsforsortofhowmanykidstheyneedtobetreatingandhowmanytherapistsandallofthat.Wewentaroundandtalkedtoeveryoneandthenwehadalloftheinterestedpartiessendinwhethertheywereinterested,anditwasn’tlikelookingforcontracts.ItwasjustforustoassessthecapacityofdifferentcommunitiesinNebraska,sowetookthenumberofkidsthatmightbeneedingservicesandthementalhealthtreatmentcapacity;andwetriedtocomeupwithsortofaplanofwhere,like,whichcommunitiesmightbeabletoofferallthreeservicesandwhichcommunitieslikemostofwesternNebraskareallydidn’thaveeitherthetreatmentcapacityorthenumberofkidstodoanythingbuttheBoysTownmodel,andalsoBoysTowndoesn’trequireaMaster’s,butanyway,sowedidallofthatbutIwasinchargeofallthatandthenwedidagrant,andwewroteupthegrant,theoriginalgrant,topayforallthat.

“There’sahugeinvestment,andweunderstoodthataprivateproviderorlocalagencycouldnotputinthemoneytotrainpeopleandthetimetotrainpeoplebecausetheywerealloperatingwithverynarrowmargins,probablyinpartofbecauseoftheprivatizationthatithadbeenbefore,soNebraskawasn’tingoodshapebeforetheprivatizationofchildwelfare;butitwasevenmorevulnerable.”

Pilot Phase

Aftertheinitialplanningyearwascomplete,theJuvenileJusticeHome-BasedInitiativereceivedfundingfromtheSherwoodFoundationandtheWilliamandRuthScottFamilyFoundationtoinitiateapilot,startingwithalimitedroll-outofMSTinselectareas.Inreflectingonhowtheinitiativedevelopedoverthistime,onestakeholdershared,“IntheearlydaysFFTwasgoingtobeathirdmodel,andallthemodelsweregoingtobereleasedthesametime.AndatthispointMSTisrollingout,andthenIthink[BoysTown]isupnextforreplication.AndthentheFFTisbeingtalkedaboutdowntheroadalittlebit.” Onemajorhurdlethathadtobeovercomebeforethepilotcouldbegin,however,wasensuringthattheserviceswerecoveredunderMedicaid.ThismeantgettingastateamendmenttoMedicaidpassed.Thesamestakeholderwentontodescribethisprocess:

“TheotherpiecewasthereweremoreissuesaroundMedicaidregsandMedicaidfundinginthestateplanamendmentthansomepeopleanticipated.AlthoughpeoplewhoreallyunderstoodMedicaidpredictedwhathappenedwouldhappen,soittook


long.Imeanwelostayearandahalf[...]figuringoutthestateplanamendmentthattheMedicaidexpertstoldustwoyearswasgoingtobeaproblem.Sowegotthere,butitdidn'tneedtotakeustwoyears.”

TheamendmentwassubmittedtotheCentersforMedicare&MedicaidServices(CMS)inApril2016andapprovedinSeptember2016.Anotherstakeholdershared,“Nebraskawasaleader,nationally,torecognizethereisanabilitytofundprovenapproachesintheareaofjuvenilejusticewithMedicaidfunding.”Whiletheinitialroll-outoftheprogramisfocusedonMST,FFTisalsocoveredunderthestateplanamendmentshouldthatprogrambeadoptedinthefuture.Onestakeholdersummeduptheroll-outoftheinitiativethisway:

“Avarietyofpartnerswithinthecommunitygottogether:probation,thecourts,ourphilanthropicagencies,Medicaid,senators,legislators,Imeanittookalotofpeoplecomingtogethertomakethiswork.”

Anotherstakeholderemphasizedthatoverthecourseofthreeyears,“it’sreallyevolvedtoacoregroupofindividualsthathavepushedacouplethings,practice,policy,financeandsustainability,that’sreallybeenthefocus,highlevelfocus,ofourCEBSsubsgroup.”Infall2016,theCourtImprovementProjectrolledoutaninitialRFQfororganizationsinterestedinbecomingMSTserviceproviders.Theyreceived12responsesandultimatelyselectedfourprovidersforphase1andtwoadditionalprovidersforphase2.Thesiteschosenforpilotimplementationwerebasedinthreelocations:Omaha,Lincoln,andNorfolk.TheCourtImprovementProjectalsohiredafull-timecoordinatorfortheinitiativeinfall2016.TheAdvisoryCouncil,whichhadbeenmeetingmonthlyforoverayear,wastransitionedtomoreofaninformalgroupastheteamrampedupfortheimplementationofthepilot.CIPisnowmovingforwardwithplanningtheBoysTownexpansionconcurrentlywiththefirstphaseoftheMSTimplementation.Thelocationsforexpansionofalready-existingBoysTownservicesarecurrentlyslatedfortheLincoln,GrandIsland/Kearney,andNorthPlatteareas.EnsuringthatthepilotwasnotjustinOmahaandLincolnwasimportantforsomestakeholders,whoexpressedfrustrationthatruralareasofthestateareoftenleftout.Onestakeholdershared,

“Twoyearsagotheydidthetours.Iwentandlistenedtohearhowthethreeweredifferent;MST,FFT,BoysTown.ThenIwasinaholdingpattern,waiting;andeverybody–thestateisanticipatingthisrollingout.Isaidthisto[name]andSherwoodyesterday.Isaid,howthisrollsoutisgoingtobejustasimportantasthefidelity;becauseifweweretorolloutinLincolnandOmahafirst,andnotgiveBoysTownmodeltosomebodyelseatthesametime,thestate’sgoingtodowhatthestatealwaysdoes.Itsays,therewegoagain;LincolnandOmaha–that’salltheythinkexistsinthisstate.Sowe’vegottomakesurethatBoysTownisreadytorolloutatthesametimeasMSTsothateveryoneknowsthatwe’renotleavingpeopleout.


Nowthatmightbetough.”

Overall,thosestakeholderswhoknowabouttheJuvenileJusticeHome-BasedInitiativebelieveitismovingintherightdirection,albeitslowerthantheywouldhaveliked.Onestakeholdershared,“Iwashopingwithinayeartoayearandahalfwecouldhavethisupandrunning.Well,we’recomingonit’sbeentwoyears.We’recomingupnowourthirdyearsoI’malittleimpatientonwhereweare.Butwe’vemadeprogress.”ThesamestakeholderwentontodescribesomefrustrationthatthefocushasreturnedmoretoDouglasCountythanoriginallyintended:

“ButsothedifferencenowisIguessit’sgoingtobestartingtolaunchinabouttheDouglasCountyarea.Andit’sgoingtobeaslowerrolloutthanIwouldliketosee.Andonceagain,thewholepointofthiswasnotsomuchDouglasCountybutitwasreallytogetfolksintheoutstateNebraskaadditionalresources.Andthat’snowwhat’spushedonthebackburner,whichisalittlefrustratingtome.”

AnotherstakeholderexpressedconcernthatFFTwasnotcurrentlypartoftheplan,sharing:“Itseemsunfortunatebecauseitactually–eventhoughIloveMSTandit’sgotten,youknow,20yearsofstuffinforreallytoughkids,FunctionalFamilyTherapyisactuallymoreadaptabletomorepartsofthestate,soit’sunfortunatethattheydidn’tincludethatnowbecauseI’mafraidtherewillbeagapinactuallygettingtheinterventions.”Asthepilotsrollout,onestakeholderofferedthiswordofcautionatputtingtoomuchstakeinoneinitiativetosolvetheproblemthatissystemic:

“IthinkbringinginMSTandFFTisagreatphase1,butthat’snottheendofit.That’snotamagicwand.Andthatisn’tgoingtoworkforeveryyouth.Anditreallydoesn’tgetto…theissueformeisdotheyouthevenhavetoberemovedfromthehome?You’renottacklingsomeofthebiggerthingsforthat.Westillrelyon…we’vegottenmuchbetter,butwestillrelyondetention,andwestillrelyonsomeotherthingsthat,asasystemweneedtotalkabout.Ifyou’retalkingatasystemiclevel,Istrugglewiththesystem.I’mtalkingthesystem,notpeople.”

Anotherstakeholderstressedtheimportanceofassessmentsinensuringthat,evenifservicesaremadeavailable,theyaretherightonesforspecificyouth:

“Andarewedoing,asasystem,properassessmentstodeterminewhattheneedsoftheseyouthare?Again,IgobacktoMSTandFFTarewonderfulevidence-basedpractices.Butifyou’renotdoinganassessmenttodetermineifthat’stherightmatchforthatyouth,thenareyoureallyusingiteffectively?

Hopefullythisdevelopmentalevaluationlaysthefoundationforwhatthisstakeholderisdeemsnecessary.Despitethiscaution,overallmoststakeholdersinterviewedwhoknewaboutitfeltthattheJuvenileJusticeHome-BasedInitiativewasmovingthesystemintherightdirection.Someexpressedconcernthatitwastakinglongerthantheywouldhaveliked,whileothersweredisappointedtohearthatitwouldnotbecomingtotheirdistrictduringthefirstfew


phases.Still,itisclearfrominterviewsthatkeepingkidsintheirhomesandsupportingfamiliesissomethingmoststakeholdersarebehind.Inthewordsofonestakeholder,“Ithinkit’sveryimportantthatwe’rebringingtheseservicesthatwillworkwiththewholefamily.AndIthinkthat’sastepintherightdirection.”

REFLECTIONS ON REFORM: LESSONS FOR THE FUTURE Inthisfinalsection,wewillexplorepotentiallessonsfrompastreformthatcaninformtheJuvenileJusticeHome-BasedInitiative.BasedonthisexplorationofthedevelopmentandevolutionofNebraska’sjuvenilejusticeandchildwelfaresystems,wehaveidentifiedstrengthsandopportunitiesaswellasgapsandchallenges.

Strengths and Opportunities

ClearcommitmenttochildrenandyouthThroughconversationswithkeystakeholdersandareviewoftheliteratureonjuvenilejusticeandchildwelfarereforminNebraska,itisclearthatthereisastrongcommitmenttoprotectingandservingchildrenandyouth.Onestakeholdershared,“AtraditioninNebraskathatstandsout,[...]therehasalwaysbeenastrongfocusonstrengtheningfamiliesandtryingtobringcommunitybasedresourcestobearintheservicesystemtofamilies.”Stakeholdersconfirmedoverthelast10years,therehasbeengrowinginterestinjuvenilejusticeissuesamongthepublicandamonglegislators,aswellasstrongleadershippushingforreform.Despitethissharedcommitment,thereremainsdisagreementastohowbesttoachievethesegoals.ItseemsthatthepassageofLB561markedaturningpointforNebraska’schildwelfareandjuvenilejusticesystems.Whilethereremainsignificantchallengesininter-agencycoordination,thesystemsseemtobeoperatingwithmoresymbiosisthaneverbefore.ThisopensthedoorforinitiativesliketheJuvenileJusticeHome-BasedInitiativetoreallyaddressgapsinthecontinuumofcareforyouthinbothsystems.IncreasedinclusionandtransparencyThereseemstobeasignificantincreaseinthecommitmentofstakeholdersacrossthesystemtoengageintransparentassessmentsandongoingdialoguetoensurethatreformsarehavingtheintendedimpact.Thenumberofpublishedstudiesandworkinggroupscommittedtomonitoringandevaluatingthereformeffortsseemstohavegrownexponentiallyinthepastfiveyears.Opportunitiesforstakeholdersfromaroundthestatetocometogetherseveraltimesayearseemtobepromotingaculturethatbalanceslearningandaccountability.Thechallengewiththegrowthofsomanyinitiatives,assessments,andconveningsisthatstakeholdersnotgetburnedout.Seethetraumasectioninweaknessesandthreatsformoreonthispossibility.AlignmentwithnationalresearchandreformeffortsPriorto2010,Nebraskawasnotmentionedonceinnationalresearchonjuvenilejusticereform.BeginningwithLB800in2010andrampingupintheaftermathofprivatizationandthepassageofLB985andLB561,Nebraskaseemedtobecatchingupwiththenationaltideof


reform.Thefocusonevidence-basedservicesandrecentattentiontotrauma-informedcareareexamplesofhowNebraskahasbeguntoalignmorewithnationaltrends.Whetherthisalignmentisstatewideremainstobeseen.IdentificationofguidingprinciplesThereisanopportunitytoidentifyguidingprinciplesthatwouldbringcoherencetothiseffort,generateacultureoflearning,andprovideroomforvariationandadaptationacrossthestate.

Challenges and Barriers

High-stakesandshorttimelinesSincewhatmanydeemthe“failed”experimentwithprivatization,reformeffortshavebeenhighlypublicandthestakesquitehigh.Withthewelfareofchildrenandyouthatstake,thisisappropriate.YetwithsomanyofthereformsbeingdrivenbytheLegislature,whichhasshorttermlimitsandreelectionstoconsider,thereisnotalotofroomforlearninganddevelopment.Onestakeholdersuggestedthatthecultureofthestatedemandsimmediateresults-whenachangeismade,peoplewanttoseeresultsrightaway.AnotherstakeholdersuggestedthatoneofthedangersoftheHome-BasedInitiativeisthatsomeseeMSTasasilverbullet,whenitisreallyonlylikelytoserveaveryspecificsubsetofyouthinsomecommunities.Settingreasonableexpectationsinsuchahigh-stakesenvironmentwithshorttimelineswillbeanongoingchallengebothfortheJuvenileJusticeHome-BasedInitiativeandotherreformefforts.AdministrativebarrierstoeffectiveimplementationOneoftheresultsofrecentreformsandthetransitionofresponsibilitytoAOPseemstobeapplyingasystemthatwasdesignedforadultstoapopulationwithverydifferentneeds.Forexample,thevouchersystem,whichwasdesignedforAOPwhentherewerejustfourserviceproviders,isbeingusedbythejuvenileservicesdivisionwhichnowhasnearly100serviceproviders.ThishascausedsomesignificantchallengesbothtoAOPandtotheserviceproviders.Recently,AOPcreatedaseparatedivisiontomanagethischallenge.Intervieweesalsomentionedthatwithallthesenewservices,theterminologyforstaff,youth/families,andstakeholdersisconfusing.AnadditionaladministrativehurdlecomesfromchallengesaccessingMedicaidunderthenewsystem.Manyintervieweestalkedabouthow,oncetransferredtoAOPstateward,youthlostaccesstoservicesbecausetheywerenolongercoveredbyMedicaidautomatically.Parentsnowhavetoapplyandnotallservicesarecovered.Whopaysforwhatservicehasalsobeenanongoingchallenge,whichhas,insomedistricts,puttensiononthecoordinationbetweenDHHSandProbation.GapsbetweenreforminurbanandruralNebraskaLookingatthemajorreformeffortsinNebraskahistoricallyandcurrently,thereseemstobeatrendthatreformbeginsinDouglasandSarpycounties.Whilethisseemslogicalinthesensethatthesecountieshavesignificantlyhigherpopulationsthanothercountiesinthestate,italso


exacerbatesanalreadysignificanturban-ruraldivideinthestate.WhileourteamhashadlittlecontactwithstakeholdersoutsideofLincolnandOmaha,thereappearstobefrustrationfromattorneysandjudgesinWesternNebraskathattheyareoftenthelasttogetservicesorreforms.Thereisalsoaperceptionamongsomeurbanstakeholdersthatthoseinruralareasarebehindthecurvewhenitcomestothefocusonkeepingkidsintheirhomes.Membersofourteamwhoattendedthe2016Children’sSummitobservedatensionordisconnectbetweenurbanandruralperspectivesandapproachesamongschoolresourceofficerswasevident.Somestakeholdershavealsosuggestedthat“buyin”tosomeofthenationalresearchremainslowamongjudgesandprosecutorsinruralareaswhereservicesarelackingandthetoughoncrimementalitymaystillbethedominantmindsetinthecommunity.Stakeholdersalsomentionedthatthereisadisconnectbetweencountiesandthestateonwhomanagesreformefforts.OnestakeholderperceivedthatsinceNebraskawasacountymanagedsysteminthe1980’s,politicaldividebetweenthecountiesandthestateareaffectingreformcollaborationandimplementation.StaffturnoverSincetheSafeHavenCrisisof2008,thoseworkinginthechildwelfareandjuvenilejusticesystemshavegonethroughcountlessreforms-fromprivatizationtocompleterestructuring.Severalstakeholderssharedthattheimpactontheworkforcehasbeentraumatic.Peoplehavebeenmovedaround,lostjobs,orforcedtoreapplyforthejobtheypreviouslyheld.Onejuvenilejusticestakeholderprovidesanoutsideperspective,

“ThesechangesthatNebraskahasgonethroughhasshakenthenotonlystatelevelstateworkers,butalsothoseprovidingthedirectservicetoyouth,thecommunitybasedproviders.Ithinkthatasanoutsiderlookinginonthesystem,itseemsasthoughfolksalmosthaveatraumaticsortoflingering—there’sbeenalot,Ithink,thingsforthemtodealwith[...]theythemselvesdon’tfeelverysafe.”

Stakeholdersinterviewed,whowereinvolvedinthesystemduringthereformprocess,expressedtraumaissuesstillpresentfrompreviousreforms.Onestakeholderexplainedthedamagesthatstillexistfromprivatizationefforts:

“Andthenyouhavethisprivatizationstuffthathappenedin2010andIlivedthatandI’mverybitteraboutthatstill[...]TheLegislaturewasveryunhappy.Lotsofprivatecompanieswereunhappy.Imeanitjustwasn’tgoodandthetransitionwasn’tgood.Andtherewasalotofthingsthathappenedwhichdamagedalotofrelationships.”

OtherstakeholdersexpressedstafftraumaincludingresentmentamongDHHSstaffthatresponsibilityforjuvenilejusticeyouthwastakenawayfromthem,aswellasdisassociationamongfieldstaffandleadershipwhoafterthe2013reformadoptedtheattitudeof“wellthey’renotourkidsanymore.”Reformresultedinbothmistrustbetweenindividualagenciesandmistrustbetweenagenciesandthelegislature.Itseemslikelythatfamiliesandyouthwhohaveinteractedwiththesystemhaveexperiencedsimilartrauma,oratleastconfusion.Onemomentyouthandfamiliesareworkingwithoneagency,andthenext,theyarereassignedtoanewcaseworkerandhavedifferentresourcesandlimitations.Onestakeholdermentionedthat


thefastrolloutofthereformcausedforalotofunclearprocedure,whichdidalotofdisservicetostaffandtofamiliestryingtonavigatethesystem.Furthermore,thesheernumberofreformsandthehighstakesplacedonthosereformshasthepotentialtoleadtoburnoutamongthoseworkinginthesystemoverthepastdecade.EquityandinclusionVerylittlementionwasmadeaboutequityacrossrace,class,genderorotherdemographicsinthepublisheddocumentationonjuvenilejusticereformsinNebraska.Intervieweesmentionedthatthereisstilladisproportionateamountofyouthofcolorinthesystem,butnomentionofaclearplantoaddressit.WhiledisproportionateminoritycontactandimplicitbiashavebecomemoreofafocusnationallyandinNebraskainrecentyears,alackofdataandperhapscommitmentbykeystakeholderstoinvestigateissuesofraceandequityisapotentialgap.Atthesametime,theHome-BasedInitiativehasanopportunitytomakeequityacenterpointofitsdecision-makingandbuildinmoreeffectivedatacollectionmethodstoinformthosedecisions.

CONCLUSION ThisretrospectivedevelopmentalevaluationofNebraska’sjuvenilejusticesystemrevealsareformmovementthathasgainedsignificantmomentuminthepastfiveyears.Asthestategainednationalattentioninthemid-2000sforhighratesofdetentionandlowscoresonmajorchildwelfareinitiatives,legislatorsandadministratorstriedarangeofsolutionstoimproveoutcomesforchildrenandcommunities.Someofthoseefforts,liketheattempttoprivatizechildwelfare,failedbeforetheyevengotofftheground.Others,likeinvestmentsinJuvenileDetentionAlternatives,haveshownpromisingresults.Yetthewholepictureofreformoverthelastdecadecanbecharacterizedasbumpyanduneven.Still,itappearsthattheroadmaybegettingsmootherwithincreasedtransparencyandcoordinationamongagencies.InitiativesliketheJuvenileJusticeHome-BasedInitiativehavesignificantpotentialtofillsomecleargapsinthesystem,butarealsofacingsignificantbarriersincludinghigh-stakes,short-timelinesforresults,atraumatizedworkforce,andasignificanturbanandruraldivide.ThisRetrospectiveDevelopmentalEvaluationisintendedtoserveasbothabaselineforfuturejuvenilejusticereformeffortsinNebraska,andasalearningtooltoidentifylessonsfromthepasttoinformfuturereform.


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APPENDIX

MAJOR MILESTONES IN JUVENILE JUSTICE REFORM Green:NebraskaGray:FederalPurple:Private1890 YouthRehabilitationandTreatmentCenter(YRTC)opensinKearney,Nebraskaand

beginstreatingbothboysandgirls.1892 Separategirls-onlyYRTCopensinGeneva,Nebraska.1899 ThefirstjuvenilecourtwasestablishedinChicago.1917BoysTownisfoundedbyFatherFlanagan.1935 TheSocialSecurityActispassed,creatingtheAidtoDependentChildren(ADC)program.1959 Nebraska’sfirstjuvenilecourtisfoundedinDouglasCounty.1967 TheSupremeCourtoftheUnitedStatedecisionInreGaultdeclaresthatyouthinthe

juvenilesystemhavethesamerightsguaranteedtoadultsaccusedofcrimes,includingtherighttodueprocess,therighttolegalcounselandtherightagainstself-incrimination.

1967 TheGovernor'sCrimeControlCommissioninNebraskaiscreated.1971LB680providesforadministrationofprobationindistrict,county,andjuvenilecourts,

exceptfortheseparatejuvenilecourts.1974 TheChildAbusePreventionandTreatmentActispassed.1974 TheJuvenileJusticeandDelinquencyPrevention(JJDP)Actispassed,creatingtheOffice

ofJuvenileJusticeandDelinquencyPrevention(OJJDP).1978TheIndianChildWelfareAct(ICWA)ispassed.1982 Nebraskaexcludesjuvenileoffendersfromthedeathpenalty.1982 NebraskaCoalitionforJuvenileJusticeisestablished,asrequiredbytheOJJDP,toadvise

onstateandfederaljuvenilejusticegrantfundsreceivedbytheNebraskaCrimeCommission.


1985 LB255enactsNebraska'sIndianChildWelfareAct.1988StatesparticipatinginOJJDParerequiredtoaddressdisproportionateminority

confinement(DMC)intheirStatejuvenilejusticeanddelinquencypreventionplans.1990 LB663createstheNebraskaJuvenileServicesAct,designedtoassistcommunitiesin

providingprogramsandservicesthatcreatealternativestoincarcerationforjuvenilesinthejusticesystem.

1992 LB447transfersresponsibilityforadministrationoftheJuvenileServicesActtothe

CrimeCommission.1993 TheUnitedStatesCongresspassestheStateCourtImprovementProgram(CIP)which

fundedStatestoconductassessmentsoftheirjudicialprocessesinjuvenilecasesanddevelopandimplementaplanforsystemimprovement.

1993 TheAnnieE.CaseyFoundationlaunchestheJuvenileDetentionAlternativesInitiative

(JDAI)asapilotproject.1993Nebraska’sCourtImprovementProjectisformedandmanagedbytheUniversityOf

NebraskaLincolnCenteronChildren,FamiliesandtheLaw.1994 TheOfficeofJuvenileJusticeandDelinquencyPrevention(OJJDP)beginsinvestingin

preventioneffortsthroughitsCommunityPreventionGrantsprogram.1994 LB988createstheOfficeofJuvenileServices(OJS)withintheDepartmentof

Corrections.Nebraska’sinstitutionsfordelinquentyouthinKearneyandGenevaarere-namedYouthRehabilitationandTreatmentCentersandplacedunderOJS.

1998 LB1073createstheNebraskaJuvenileJusticeTaskForce.1997 OJSisplacedundertheDepartmentofHealthandHumanServices(DHHS),endingthe

YRTCs23-yearrelationshipwiththeDepartmentofCorrectionalServices.2000 JuvenileServicesGrantCommitteeiscombinedwiththeNebraskaCoalitionforJuvenile

Justicetofocusfundingoncurrentjuvenilejusticeissues.2001 PassageofLB451requiresprobationofficerstouseastandardizedjuveniledetention

screeninginstrumenttodeterminewhethertoplaceajuvenileindetention.2002 CongressexpandstheDMCcorerequirementfrom“confinement”to“contact,”with

thepurposeofensuring“equalandfairtreatmentforeveryyouthinthejuvenilejusticesystem,regardlessofraceandethnicity.”


2003 OJJDPfindsa28%increasenationallyindailynumberofcommittedyouthheldinpublicandprivatefacilitiessince1991.

2004 TheMacArthurFoundationlaunchesitsModelsforChangeasamulti-stateinitiative

workingtoguideandaccelerateadvancestomakejuvenilejusticesystemsfairer,effective,rational,anddevelopmentallyappropriate.

2005 TheSupremeCourtdeclaresunconstitutionaltheexecutionofoffendersundertheage

of18atthetimeoftheoffense.2005 NebraskaMedicaidProgram’sChildren'sMentalHealthandSubstanceAbuseStatewide

InfrastructureGrant(SIG)Programreportsthat:“Nebraskahasoneofthenation’shighestpercapitastatewardpopulations.Nationally,childreninfostercareusementalhealthservicesatarateupto15timeshigherotherchildrenintheMedicaidsystem.”

2005LB193transferstheadministrationoftheCountyJuvenileServicesAidProgramfrom

HealthandHumanServices/OfficeofJuvenileServicestotheNebraskaCrimeCommission.

2005 NebraskaChiefJusticeJohnHendrydirectsthatCIPinitiateastatewideimplementation

ofbestcourtpracticesbasedontheNationalCouncilofJuvenileandFamilyCourtJudges(NCJFCJ)ResourceGuidelines.

2006 TheCourtImprovementProjectholdsthefirstNebraskaChildren'sSummitfocusedon

“ImprovingtheCourtSystemforAbuse/NeglectandFosterCareChildren,”attendedbyover200stakeholdersinthechildwelfareandjuvenilejusticesystems.CIP’sThroughtheEyesoftheChildInitiativeislaunchedattheChildren’sSummit.

2006 OJJDPreportsthatthenumberofyouthindetentionhaddecreased“forthefirsttimein

ageneration.”2006 U.S.DepartmentofHealthandHumanServices'OfficeoftheAssistantSecretaryfor

PlanningandEvaluationinitiatestheChildWelfarePrivatizationInitiativesProjecttoprovideinformationtostateandlocalchildwelfareadministratorswhowereconsideringorintheprocessofimplementingprivatizationreforms.

2007 TheNebraskaCourtImprovementProjectreleasesanassessmentoftheNebraskacourt

systemwithbothpositiveandnegativefindings.2007 NebraskaLegislaturepassesLB542tocreatetheChildren'sBehavioralHealthTask

Force,taskedwithdevelopingaplanforalljuvenilestoaccesspublicbehavioralhealthresources.

2007 A38%riseinschool-resourcesofficersnationallysince1997islinkedtothecreationofa


school-to-prisonpipeline.2007DMCActionNetwork,fundedbytheMacArthurFoundation,iscreatedtoraise

awarenessandengageinadvocacyaroundDMCnationally.2008 TheMacArthurFoundation'sModelsforChangeInitiative’sreportMakingCourtthe

LastResort:ANewFocusforSupportingFamiliesinCrisismarksanewparadigmfor“statusoffenders,”inwhichat-riskyouthandtheirfamilieswerereferredtocommunity-basedservicesandjuvenilecourtswereusedasalastresort.

2008 ThereauthorizationoftheRunawayandHomelessYouthAct(RHYA)extendsthetimea

youthcouldstayinemergencyortransitionallivingprogramsinanattempttoreducethelikelihoodofjuvenilejusticesysteminvolvementanddetentionbecauseoftheirrunawaystatus.

2008 TheNationalJuvenileJusticeNetworkreports“aswellingwaveofacknowledgement

thatinstitutionalizingyouthinlargefacilities,farfromtheirfamiliesandcommunities,isharmfultochildrenandpublicsafetyandgivesthestateapoorreturnonthedollar.”

2008Nebraskabecomesthelastofthe50statestocreateaSafeHavenlaw.Withinmonths

ofthelawgoingintoeffect,overthirtychildren-manyofwhomwereteenagers-aredroppedoffathospitals,mostofwhomhadreceivedpriormentalhealthtreatment.Afewmonthslater,thelegislaturerevisestheSafeHavenlaw,byprovidinganagelimitof30daysold.

2009 TheNationalJuvenileDefenderCenterfindssignificantgapsinaccesstoqualitylegal

representationforsystem-involvedyouthinNebraska.2009 LB288givesfullleadershipresponsibilityoftheDepartmentofHealthandHuman

ServicestoaCEO.2009 DHHSsignscontractswithfive“leadagencies”toexpandservicesthroughsub-

contractors.Leadagenciesarerequiredtopayforservicesbasedonafixedrateregardlessofthenumberneedingserviceortheirpresentingproblems.

2010 OJJDPreleasesareportonthestatusofJuvenilesinResidentialPlacementfrom1997–

2008.While“declinesinstateresidentialplacementrateswerewidespreadacrossthecountry,”Nebraska’sratewasunchanged.

2010 DHHSendsservicecoordinationcontractwithBoys&GirlsHome;entersintocase

managementcontractswithNebraskaFamiliesCollaborative(NFC)andKVCNebraska.2010Lipseyetal.publishstudyonimprovingjuvenilejusticeeffectivenessthroughthe

applicationofevidence-basedpractices.


2010 NationalJuvenileJusticeNetworkreleasespreliminaryresultsof“Pathwaysto

Desistance,”alongitudinalstudyfindingthatcommunity-basedalternativeswereaseffectiveasincarcerationforreducingrecidivisminyouthwithfelonyoffensesandthatinstitutionalplacementscanactuallyraisethelevelofoffendingforsomeyouth.

2010 LB800ushersinmajorchangestoNebraska’sjuvenilejusticesystem,including

addressingtheimpactoftruancyonjuveniledelinquency.2011 LR37directstheHHScommitteetoreview,investigateandassesstheeffectsofchild

welfarereform.Findingspointtomajorgapsinfinancialoversight,lackofaccountabilityandanunwillingnesstoadaptandchangeinthefaceofevidencethatprivatizationwasnotworkingasintended.

2011TheJuvenileServiceDeliveryProjectispilotedinDouglasCountyasNebraska’sfirst

intentionalcollaborationbetweenProbation,thejudiciary,DHHS,andcommunityprovidersaimedatkeepingmorejuvenilesintheirfamilyhomesacrossthestate.

2012 TheNationalConferenceonStateLegislatorspublishesareviewofjuvenilejustice2001-

2011andfindsanationaltrendtowardspreventionservicesthroughtheincorporationofevidence-basedprograms.

2012 TheUnitedStatesSupremeCourtrulesthatjuvenilesconvictedofmurdercannotbe

subjecttoamandatorysentenceoflifeimprisonmentwithoutthepossibilityofparoleinMillerv.Alabama.

2012 LB985expandstheJuvenileServiceDeliveryProjecttothreeadditionalsites.2012 LB972raisestheminimumageforcommitmenttoYouthRehabilitationandTreatment

Centers(YRTCs)from12to14,withexceptionsforyouthwhocommitmurderormanslaughter,commitotheroffensesthatleadthecourttodeemcommitmentisnecessary,orviolateprobation.

2012LB821createstheNebraskaChildren’sCommission,theJuvenileServicesCommittee,

andtheInspectorGeneralofChildWelfare.2012 KVCHealthSystemssurrendersitsleadagencystatus,leavingNebraskaFamilies

Collaborative(NFC)astheonlyprivatizationcontractor,focusingexclusivelyontheEasternServiceArea.

2012 JDAIexpandstoSarpyCounty.2012 NebraskacompletesaStatewideDisproportionateMinorityContact(DMC)studythat

findssignificantgapsindataandevidenceofracialandethnicdisparitiesacrossthe


juvenilejusticesystem.2013 TheAnnieE.CaseyFoundationreleasesareportindicatingthatalthoughnationally

ratesofjuvenileincarcerationhadbeenonadownturn,inNebraskathenumberofyoungpeopledetainedincreased8percentbetween1997and2010.Nebraskahadthethird-highestrateofyouthincarcerationinthecountry.

2013LB561beginsshiftingthesupervisionofjuvenileoffendersfromtheDepartmentof

HealthandHumanServices(DHHS)OfficeofJuvenileServices(OJS)toNebraska’sOfficeofProbationAdministrationandfocusesonexpandinglocalandcommunity-basedalternativestoincarceration.

2013 Nebraska’sFirstCommunity-BasedServicesAidAdministratorandStateDiversion

AdministrationishiredbytheNebraskaCrimeCommission.2013 NebraskaStateLegislatureremovesmandatorylifesentencesforjuvenilesfromthe

state’sstatutes.2013TheNebraskaCourtImprovementProjectexpandstheThroughtheEyesoftheChild

InitiativetoincludeaJuvenileJusticeCourtImprovementProject(JJCIP).2013 NebraskaProbationbecomesleadagencyoverstateexpansionandsupportofJDAI.2014 NebraskaLegislaturepassesLB464,requiringallcriminalcharges,excludingtraffic

offenses,againstyouthunder18yearsofagetobeoriginallyfiledinjuvenilecourtandaddingnewreportingrequirementsfortheAdministrativeOfficeoftheCourts.TheBillalsoincludessectionsto"clean-up"provisionsfoundinLB561;changesaffectingreferralofanddefenseoftruancycases;andexpansionoftheuseoffacilitatedgroupconferencinginchildwelfareandjuvenilejusticecases.

2014 TheJuvenileJusticeInstituteattheUniversityofNebraskapublishesawhitepaperon

evidence-basedpracticesinjuvenilejusticeinNebraska.2015 TheNebraskaLegislatureenactedLB566,whichmodifiesandclarifieskeyprocedural

andsubstantiveprovisionsoftheNICWA.2015 NebraskaCourtImprovementProjectmovedfromtheUniversityofNebraska-Lincolnto

theOfficeoftheCourts.2015 TheJuvenileJusticeHome-BasedInitiativebeginswithaplanningphase.2015 LB347requirestheJuvenileServicesDivision,JuvenileDetentionandSecureFacilities,

andtheAdministrativeOfficeofProbationtoreportcasesofdeathorseriousinjuryofjuvenilesundertheircare.


2015 CouncilofStateGovernmentsJusticeCenterreportassessesNebraska’sJuvenileJustice

Systemwithafocusonreducingrecidivism.2016 NebraskaLegislaturepassesLB894,producingchangesinjuvenilelawrelatingto

alternativedetention;jurisdiction,temporarycustodyanddisposition;confinement,legalcounselandguardianadlitem.Specifically,theBillrequiresappointmentofcounselforjuvenilesincountieshavingapopulationofonehundredfiftythousandormoreinhabitants.

2016 LB954ensurestheOICofChildWelfarehasaccesstojuvenilejusticerecords.2016 TheJuvenileJusticeHome-BasedInitiativereceivesfundingtopilottheMSTprogram

andexpandandreplicatetheBoysTownEcologicalIn-HomeTreatmentModel;releasesanRFQforserviceproviders.

2016 JDAIexpandstoOtoeCounty.

SYSTEMANALYSIS


SystemAnalysis:DevelopmentalEvaluationofJuvenileJusticeReforminNebraska

TABLE OF CONTENTS EXECUTIVESUMMARY....................................................................................................................i

Keyfactorsinfluencingthejuvenilejusticesystem:....................................................................i

SystemAssessment...................................................................................................................iv

Overview........................................................................................................................................1

SystemAnalysis..............................................................................................................................2

Factor1:Staffing&Leadership..................................................................................................2

ARTISTICINTERLUDE:RoleModel..............................................................................................8

Factor2:Collaboration&Communication.................................................................................9

ARTISTICINTERLUDE:TheGavel..............................................................................................13

Factor3:DataCollection,Management&Use........................................................................14

ARTISTICINTERLUDE:TheScalesofJustice..............................................................................17

Factor4:AllocationofResources.............................................................................................18

ARTISTICINTERLUDE:AllIwanted...........................................................................................23

Factor5:LivedExperienceofYouth&Families.......................................................................24

ARTISTICINTERLUDE:Alone.....................................................................................................30

Factor6:DiversePerspectives&Experiences..........................................................................31

ArtisticInterlude:Ollin.............................................................................................................34

Factor7:SurroundingContext.................................................................................................36

SystemAssessment......................................................................................................................39

IndicatorsofSuccess................................................................................................................39

IndicatorsofGaps....................................................................................................................41

ImplicationsFortheJuvenileJustiveHome-BasedIntiative........................................................44

Conclusion....................................................................................................................................46

Appendix......................................................................................................................................47

AppendixA:RoleModel...........................................................................................................47

AppendixB:ScalesofJustice....................................................................................................49

AppendixC:Alone....................................................................................................................50

AppendixD:Ollin......................................................................................................................52

SystemAnalysis:DevelopmentalEvaluationofJuvenileJusticeReforminNebraska|Pagei

EXECUTIVE SUMMARY ThissystemsanalysisisintendedtosupportsuccessfulimplementationoftheJuvenileJusticeHome-BasedInitiativebyprovidinginsightsintothestrengthsandchallengesinNebraska’scurrentjuvenilejusticesystem.Basedonlessonsfromtheretrospectivedevelopmentalevaluationanddatafrominterviewswith90adultstakeholders,threelisteningsessionswith25adultstakeholders,andfivearts-basedworkshopswith25system-involvedyouth,wepiecedtogetheraportraitofthecurrentjuvenilejusticesystemthatidentifieskeyfactorsatplayinreformingthesystem,aswellasassetsandbarriersidentifiedwithregardstoeachareaofinfluence.

Key factors influencing the juvenile justice system:

Factor1:Staffing&Leadership

Systemsaremadeupofpeople,soitisimportanttounderstandtheissuesthatimpacttheindividualswhoworkinandmakedecisionsaboutthesystem.

Strengths:• Staffarepassionateandconnected• Trainingandstaffdevelopmentareavailable,thoughmoreisneeded• Leadershipissupportive

Challenges:

• Youthdonotalwaysfeelthatstaffcareaboutorunderstandthem• Caseloadsremaintoohigh• Staffturnoverimpactsqualityofcare• Workforcelimitationsimpactavailabilityofservicesinruralareas• Staffdonotreflectthecommunitiesinwhichtheywork

ImplicationsfortheJuvenileJusticeHome-BasedInitiative:

• Fosterpassionandconnectionofstaffbysharingstoriesofsuccessfromyouthandfamilies

• Continueofferinghigh-qualitytrainingandstaffdevelopment• Continuetoengageandsupportleadership• Ensureprogramstaffrepresentthecommunitiestheyserve

Factor2:Collaboration&Communication

Issuesofcollaborationandcommunicationhighlighthowwelltheagencieswithinandconnectedtothejuvenilejusticesystemandthepeoplewithinthemworktogether.

Strengths:

• Cooperationandcommunicationbetweenagenciesandcrossroleshasimproved

SystemAnalysis:DevelopmentalEvaluationofJuvenileJusticeReforminNebraska|Pageii

• StrongrelationshipsleadtobetteroutcomesforyouthChallenges:

• Thesystemisstillslowandconfusingtosome• Silosremainduetofunding,lackoftrust,differingphilosophies


• Ensuretransparentcommunicationacrossagencieswithoutrequiringadditionalmeetings

• Keeptheprogramassimpleandtransparentaspossible• Buildtrustacrossagenciesbyreducingcompetitionforfundingwhen

possibleFactor3:DataCollection,ManagementandUse

Theabilityofactorsinthejuvenilejusticesystemtounderstandwhatishappeninginthesystemiscriticaltoanyefforttoimproveorreformit.

Strengths:

• Capacityfordatacollectionandsharinghasincreased

Challenges:• Datamanagementlackscoordinationandunification• Datadoesnotcapturewhatisreallyhappening• Distrust,highstakesandlackoftransparencyhinderdatacollectionanduse


• Coordinatewithexistingeffortstostreamlinedatacollectionandmanagement

• Usemixedmethodstoallowforqualitativedatatotellthestorybehindthenumbers

• BuildtrustthroughtransparentuseofdatatoimproveprogramsFactor4:AllocationofResources

Whethermoney,time,training,expertise,legislation–payingattentiontowhereresourcesarebeinginvestedcanbetellinginasystem.

Strengths:

• Increasedinvestmentincommunityandevidence-basedpractices• Perspectivesareshiftinginfactorofkeepingkidsclosetohome• Moreattentiontoandinvestmentacrossarangeofneeds

SystemAnalysis:DevelopmentalEvaluationofJuvenileJusticeReforminNebraska|Pageiii

Challenges:• Barrierstoservices,particularlytransportation,leadtounequalaccess• Gapsinservicesforreentryandyouthageingout


• Continuetoinvestincommunityandevidence-basedpractices• Continuedialogueswithstakeholdersacrossthestatetofostersupportfor

keepingkidsclosetohome• Ensurethatruralareasofthestatedonotgetleftbehindastheprojectrolls

out• Payattentiontowheregapsinthecontinuumofcarecontinuetoexistand

addressthemwhenpossibleFactor5:LivedExperienceofYouth&Families

Itiscriticaltorecognizethatthesystemisnotonlycomposedofpeople,butultimatelybothimpactsandisimpactedbythelivedexperienceofthosewhoselivesaremostatstake:youthandfamilies.

Strengths:• Youth&familieshavemoreofavoice• Someyoutharereadytotakeresponsibilityfortheiractions

Challenges:

• Youthexperienceismixed• Youthtraumaisoftenunaddressed• Youthstilldonotalwaysfeelheardorrespected


• Provideopportunitiesforyouthandfamiliestogivefeedbackandsharetheirexperiences

• Documentandsharesuccessstoriesofyouthplayingaroleintheirownrehabilitation

• Ensureprovidersareusingatrauma-informedapproachFactor6:DiversePerspectives&Experiences

Giventhewiderangeofactorsthatcomprisethejuvenilejusticesystem,itisimportanttounderstandsomeoftheperspectivesandexperiencesthatvaryacrossthestate. Urban/RuralDivide

• RuralNebraskansdonotfeeltheyareunderstoodorprioritizedbythoseinOmahaorLincoln

DemographicVariations:• Youthofcoloraredisproportionatelyrepresentedinthejuvenilejustice

system

SystemAnalysis:DevelopmentalEvaluationofJuvenileJusticeReforminNebraska|Pageiv

• Cultureandlanguagearenotadequatelyaddressed• Economicclassimpactsyouthexperienceandoutcomes• Somevariationsexistbygender,thoughthegapmaybeclosing

ImplicationsfortheJuvenileJusticeHome-BasedInitiative

• Payattentiontohowthisinitiativeisperceivedindifferentareasofthestateandmakeeffortstoensureitrollsoutinawaythatdoesnotfostertheurban/ruraldivide

• Documenthowdifferentpopulationsofyouthexperiencetheprogramsandusethisdatatoeliminateracial,economicandgenderdisparities

Factor7:SurroundingContext

Inanysystem,thepolitical,economic,andsocialdynamicsinwhichthesystemoperatessignificantlyinfluencewhathappenswithinthesystem.

Policy&Politics• WhentheUnicameralissupportive,reformscanhappenfast• Legislativesupportcanbeunreliableandcontingentonachievingshort-term

successes• Nationalpolicyonjuvenilejusticeislikelytochangeunderthenew

administration• TheIndianChildWelfareActexpandstojuvenilejustice

ImplicationsfortheJuvenileJusticeHome-BasedInitiative

• TrackmajordevelopmentsinpolicythatmayimpacttheInitiative• Diversifyfundingsourcestoeliminatemajorimpactsofbudgetshortfalls• Communicateshort-termsuccessestobuildongoingsupport

System Assessment

Whiletheabovesevenfactorsemergedasthemostsignificantsystem-levelinfluencesonreform,fromstakeholderinterviews,listeningsessions,andarts-basedworkshops,wealsoaskedstakeholderstosharewithushowtheyassesswhetherthesystemisworkingornot.IndicatorsofSuccess

Thefollowingindicatorswerecitedbystakeholdersassomeofthemajorindicatorsofsuccessinthejuvenilejusticesystemcurrently:

- Reductioninout-of-home,out-of-stateanddetentionplacements- Reducedrecidivismandrepeatoffending- Improvedoutcomesforyouthandfamilies- Increaseduseofdiversion- Reductioninkidsonprobationfortruancy

SystemAnalysis:DevelopmentalEvaluationofJuvenileJusticeReforminNebraska|Pagev

- Fewercasescomingthroughthesystem

IndicatorsofGaps

Thefollowingindicatorswerecitedbystakeholdersassomeofthemajorindicatorsofsuccessinthejuvenilejusticesystemcurrently:

- Over-representationofminoritiesinthesystem- Challengeswithmeasuringrecidivismandreentry- Lowgraduationratesforsystem-involvedyouth- Highunemploymentratesincertainareasimpactingyouth


OVERVIEW

ThissystemsanalysisisintendedtosupportsuccessfulimplementationoftheJuvenileJusticeHome-BasedInitiativebyprovidinginsightsintothestrengthsandchallengesinNebraska’scurrentjuvenilejusticesystem.ThisanalysisisonecomponentoftheDevelopmentalEvaluationTerraLunaCollaborativeconductedfortheNebraskaCourtImprovementProjectfromJuly2016-March2017.Formoredetailsontheprojectandmethods,pleaserefertotheDevelopmentalEvaluationSummaryDocument.BasedonlessonsfromtheRetrospectiveDevelopmentalEvaluationanddatafrom90stakeholderinterviews,threelisteningsessions,andfivearts-basedworkshopswith25system-involvedyouth,weassembledaportraitofthecurrentjuvenilejusticesystemthatidentifieskeyfactorsatplayinreformingthesystem,aswellasassetsandbarriersidentifiedwithregardstoeachareaofinfluence.Whilestakeholdersidentifiedarangeofbrightspotsinthecurrentsystem,mostwereaccompaniedbyawarningorbarrierassociatedwiththem.Thus,itwasdifficulttoseparatethebrightspotsfromtheareasforimprovement.Whatwepresentbelowisananalysisofthefactorsthatrosetothetopinourdatathatmeritparticularattentioninanyreformeffortinthecurrentclimate.WealsodiscussimplicationsfortheJuvenileJusticeHome-BasedInitiativespecifically.Throughoutthisreport,quotesarefromadultstakeholdersunlesstheyindicateotherwise.Wehavealsoincludedartproducedbyyouthduringtheart-basedworkshopsasartisticinterludestothesystemanalysistoprovideanalternativewayofthinkingaboutthesystem.Quotesfromyouthusedinthereportwereproducedfromrecordingsoftheseworkshops.Allidentifyinginformationwasremovedtoprotecttheparticipant’sanonymity.


SYSTEM ANALYSIS

Factor 1: Staffing & Leadership

Systemsaremadeupofpeople,soitisnotsurprisingthatattentiontothepeoplewhoworkinandmakedecisionsaboutthesystemplayakeyroleinanyefforttoreformthatsystemfromwithin.ThissectionhighlightssomeofthestrengthsandchallengesidentifiedbystakeholderswithregardstostaffingandleadershipwithinNebraska’sjuvenilejusticesystem.Strengths

StaffarepassionateandconnectedManystakeholdersexpressedthattheyfeltthatstaffreallycaredaboutyouthandunderstoodtheirexperiencesandappliedthattotheirwork:

“Thepassionandenthusiasmthatthestaffbringsarehelpful.They’reprettytenacious,alwayswantingtocomeinandtryonemorething,onemorething,onemorething.Andthat’swhatthisisallabout.”

“Itryreallyhardtohirepeoplefromthecommunity.Ithelpsalotifyougrewupandyouwentto(school)tobeabletogobacktothatschoolbecausealotofthesamepeoplearethere.Theyunderstandthecultureoftheschool,orthecultureofthecommunity.”

“Theykeepuptodatewithmyfamily,mymind,mystateofmind,andthestateofmyjustice.IpickedchancebecauseevendespitethefactI'vebeenthroughthestruggle,beenthroughthewitnessesandontheothersidewithplaintiffs–whileIwastheonedoingthecrime,Iwasstillondefense.Theystillgavemeachance.Eithersystem,whetheritwasthewelfaresystem,juvenilejusticesystem,orwhetheritwasinasystemperiod,Idefinitelygotachance.WhetherIwantedtoliveordie,whetherIwantedtobegoodorbad,theystillgavemeachance.”–Youthparticipant

Training&staffdevelopmentareavailable,thoughmoreisneededSeveralstakeholderssuggestedthattheavailabilityoftrainingsforstakeholdersacrossthesystemhasbeenreallybeneficialandthatfront-linestaff,particularlyinProbation,seemveryengagedinthetrainingstheyreceive:

“IthinkbetweenmyexperiencesandthenalsoonethingIhavetogivekudostoprobationforistheamountoftrainingtheyputusthrough,andspecifictoworkingwithjuveniles.It’sreallyhelpedmeimprovemycommunicationandmyapproachtoyouth.Ithinkbackinmyolddays,youknow,fiveyearsago,abouthowIapproachedkidswhenIhadthemonmycaseload.Iknowthere’stimesthatIregretit.AndIwishIwouldhavehadsomeoftheseskillsthatIfeellikeI’vedevelopedoverthelastfourorfiveyears.”

“There’s,alwayshavereallygoodattendanceofprobationofficersattrainingsthat


I’vedoneonICWA.Sothere’sthethirstandgenuineopennesstonewinformation,sothat’sgood.”

Whilesomefeltpositivelyabouttraining,otherssawchallengeswhenstaffarenotawareofthetrainingsthatareavailableorchosenottoattend:

“InmostNativecommunities,theydidn’tevenknowtherewasaprobationacademy.Wecanpartakeofthat.Itsfourweeks.TheoneIwenttowasheldinShelton,Washington[…]IwasabletospendfourweeksupattheWashingtonStatePatrol,andusetheirfacilities,andgothroughmylittleprobationacademy.”

Afewstakeholdersalsosuggestedtheywouldliketoseemoretrainings,particularlyfornewstaffandgivenallofthechangesthatareoccurringwithinthesystem:

“Intheory,theopportunity[fortraining]presentsitselfbutfolksdon’tattendortheyjustgothroughthemotions.That’sonedifficulty.Theotherdifficultyisthereneedstobemoretraining.Wedealalotwiththe–wesay“theflavorofthemonth.”Alotoffolkshaveabsolutelynoideawhatthey’retalkingaboutandthesearefolksonthefrontline.Andwejustkeeppluggingalongbecausewewanttofulfillsomesortartificialobjectivethatsaysthatwehavethelatestorweareusingthelatestevidence-basedapproach,regardlesstowhetherornotitisworking,regardlesstowhetherornotthepeopleonthefrontendareproficientatunderstanding,implementingandutilizingit.”

Beyondtraining,onecitedbyasupervisorwasthatProbationwillpaytuitionforfurthereducation.Theyencouragestafftotakeadvantageofthatasanincentivetostaywiththework.LeadershipissupportiveAlthoughthereareanumberofstaffingconcernsthatwillinfluencethesuccessofreform,manystakeholderscitedthatleadershipacrossthesystemhasbeenstrongandsupportive.RecentleadershipchangesinDHHSwerecitedbysomeasasignificantimprovement,whileothershighlightedtheworkthatProbationleadershavedonetoensurethatreformtransitionwasassmoothaspossible:

“Ican'tsayenoughfortheleadershipthatwehaverightnowinNebraskaandI'mpleasedtobeapartofthatgroup.”

“IdefinitelythinkalotofleadershipfromProbation,fromtheCourtAdministrator,theChiefJustice,fromSenators,fromproviders.Imeaneveryonereallyhadtopulltogethertomakethesechangeshappen.SoIthinkstrongleadershipthat'sbeenhelpfulinNebraska.”

“IwillreiteratethattheprobationleadersIthinkreallydogetit.It’sanunfortunatetradeoff.IthinktherearealotofissuesgoingonfromwhatI’veheardthroughsecondandthirdhandsourcesthattheydon’treallydojuvenilejusticestuff.WhenDHHSisrunningOJSthatprobationhasreallydoneanicejobofcleaningup.Yeah,itreallywouldjustbethelossoffederalfundingisunfortunate.”


Challenges

YouthdonotalwaysfeelthatstaffcareaboutorunderstandthemItwasclearfrominterviewsthatmanyofthestaffwhointeractwithyouthfeelverypassionatelyaboutthework,indeedmanyhavededicatedtheirlifetoworkingwithyouth.Still,thiscompassionandconnectiondidnotalwayscomethroughtoyouthintheirinteractionswithstaff:

“WhenIhadmybaby,Iwas[ateenager].ThereweredaysIcouldn'tgotoschoolbecause[mybaby]wouldgetsick.[Theprobationofficers]weresayingshe'sfallingbackbecauseofheroldself.Thatwasn'tthesituation.Iwaswatchingmybabybecause[mybaby]wassick.NoweverytimeIdon'tgotoschool,theywanttoseeadoctor'snote.Iftheydon'tseeadoctor'snote,thenI'mskipping,I'mnotbeingamom,orI'mdrinkingordoingsomething–whichisn'ttrueanymore.…Theyassumetheworst.EversinceIhadmybaby,I'vechangedmywholelifearound.I'mabetterperson.IcansayIdon'tdodrugs.Idon'tdrink.Idon'tpartyanymore.Ichangedforthebetter.WhenIfirstsawmy[baby],Iwaslike,wow,thatchangedmywholelife.Thesystem–Ifeelittookmeawayfrommy[child].IttookmeawayfromwhatIlove.Itreasuremy[baby].…Ifeeltheytookfamilyaway,andit'snothelping.”–Youthparticipant

“Alotoftimeswhenyoungmenoryoungwomen–justyouthingeneral–endupinthecourtsystem,thecourtsdon'treallyaddress...Whattheyseeisjustwhattheydidinthemoment.Ifyouskipped20days,thenthey'llthink[off-mic].That'salltheysee.Theyrarelyaskwhythesethingsarehappening.Youdidthis,sohere'syourpunishment.Theydon'taskwhy?Whathappened?What'sthecauseofthis?”-Youthparticipant

CaseloadsremaintoohighSeveralstakeholdersbroughtuptheissuethatcaseloadsremaintoohigh.Highcaseloadsputalotofstrainonstaffandcanlimittheirabilitytoserveyouthaseffectively.ProbationcaseloadsaresetbytheAmericanProbationandParoleAssociation.Severalstakeholdersacknowledgedthatleadershipunderstandsthischallengeandistryingtoaddressit,butthatitremainsanissue:

“Wehavelotsofexpectations.Weexpectexcellenceoutofthepeoplethatwehire.There’sjustalotofstuffthatweexpectfromourofficers.Ifyouareanofficerthatisrunningbetweentwoorthreecounties,tryingtosetupmonthlyhomevisitsfor25kids,monthlyfamilyteammeetingsfor25kidsandthenrundifferentgroupsforyourkidsontopofyourtreatmentprovidermeetings,yourschoolcollaborationmeetings,that'sthepiecethatwehaven'tfiguredouthowtodoaswellaswecouldifourcaseloadsweren'tsohigh.”

“Ouradministrationunderstandsthatourjuvenileofficersarereallybusy.Theyhavegivenusanextraofficerforourdistrict,butIbelievewewereshort-staffedanofficerpriortothatposition.Thatofficerreallyjustputseverybodywheretheyshouldhave


beenaccordingtothecaseloadsstandardsinthefirstplaceandreallydoesn'thelpgetthemdownwherethisisreallysomethingthatwecanmanagetoahigh,highlevel,ashighaswewouldlikeittobe.”

“They[DHHS]havehalforlessthanhalfthekidsthatwehaveoneachindividualcaseworker'scaseloadsthere.There'sthingsthatwecoulddoifourcaseloadswerethatlow.Itwouldjustbeamazing.”

WhiletherewassomerecognitionthatLB561doubledthesizeofProbation,whichallowedthemtoreducecaseloadratios,thereisstillmorethatneedstobedonetomanagecaseloads.StaffturnoverimpactsqualityofcareOneoftheconsequencesofhighcaseloadsisstaffturnover,whichhasbeenanissueacrossseveraldepartments,butparticularlyinProbation.Someofthefactorsstakeholdersattributedthisturnovertoincludedhighlevelsofchangeanduncertainty,lowsalaries,andbureaucracy.Recruitingandfindingcandidateswhenstaffleaveisalsoachallenge.Onestakeholderdescribedaninternshipprogramtheyconducttobuildtheirpipeline.Staffturnovercausesconcernsoverqualityofcare,lackofconfidencethatstaffcansupportfamilies,andlostdataonwhatworksandhowtobemosteffective.Belowaresomequotesfromstakeholderstocapturethevariousperspectivesonturnover:

“Ihavelostprobablysixpeopleoverfouryearstogototheadultside,acoupletogotootherdistricts.Inmyopinion,Ithinkthatjuvenileofficersshouldbepaidmorethanadultofficersbecausetheywork—Imeanallprobationofficersinthestatearesupposedtowork24/7,butthesepeoplework24/7.Youdon’tgetcallsinthemiddleofthenightforadultclientsgenerally.Youdoforjuveniles.Andtheintakefunctionif24/7,lawenforcement’scallingyou,parentsarecallingyou.Sothatkindof,ifthereweremoreincentivesthatway,Ithinkthatwouldbehelpful.Wedon’thaveaunion.Wedon’tgetsummersoff.Itreallyis24/7.Andwetryreallyhardtostructureitsowehaveoncallpeople,andwehaveshiftpeople,andwehavetheabilitytotellpeopleyou’renotoncall.Youhavetoshutyourphoneoff,andgospendtimewithyourfamily,andtakevacation.Butsomeofthemhaveahardtimewiththat.Theyhaveahardtimeunpluggingandthey’rejustpassionateaboutwhattheydoandtheywanttobethere[…]Ialwaysthinkitwouldbeniceifwehadmoremoneytokeeppeoplehereandrewardthemforwhattheydo.”

“Weexperienced,likemoststatesdid,justacrisisinourhealthandhumanservices.Theworkerturnoverwasoffthecharts.Wedidn'tdoaverygoodjobwithfamilies.We’regettingtogetthatsizethingthatcomesin.Wehavetoomanymanagersandnotenoughworkerbeesthatourprobationofficers,attheline,arecoveringforeachother.”

“I'mtryingtothinkhowIwouldsaywhereIhavebeendisappointed.Wehadsometurnover.OneofthethingsthattheOfficeofJuvenileServicesversusprobationwasalwaysastruggleisthatprobation,wealwayshadalongevityinourprobation


officers.Therewasn'talotofturnover.Therewascontinuity,andthosepeoplereallyknewwhattheyweredoing.WhereasOfficesofJuvenileServiceswaskindoflikeChildWelfare,constantchanginginthecaseworkers.”

“Youjustneverdevelopedconfidenceandtrustin,sometimes,people'sjudgementsorwhattheyweretellingyouwasthetruth,oryouputsomecredenceinthere.“Hey.I'veworkedwiththisfamily,"or,"I'veworkedwiththisyouth.Thisiswhattheyneed,"orwhatyougetwhenyouhaveaworkforcethathassomecontinuity.Withtheprobation,withtheturn,withthereformeventuallywithinthefirstcoupleofyears,welostalmostallofourlong-termprobationofficersinjuvenile.[Questionaboutwhatcausedthischange]Ithinkthechangeinculture.Ithinkthatwaspalpableintermsofnotdetainingkidsasmuch,notplacingthemout-of-home,givingthemchanceafterchanceafterchanceafterchance,Ithinkfrustratedsomepeople.That'smysense.Mostofthemwenttoadultprobation,sotheydidn'tleave.Atleast,alotofthemdid.Ithinkthatwasadisappointment.”

“Yeah.Andeverybodycanpointtoanecdotalsituationswheresomethingworkswell,wellthatcanworkwellineverysituationifwewereoperatingonallcylinders.Butwe’renot.Theturnoveristoogreat.Wehavefolkswhoreallydon’twanttobeinthisareaandthereforethey’renotgoingtoinvestalotoftimeinself-developmentandtraining.”

FromtheperspectiveofoneDHHSstakeholder,oneoftheresultsofthissignificantexpansionofprobationwasattheexpenseofDHHS.TheysharedthatwiththepassageofLB561,thebudgetofDHHSwasreducedandmanystafftransitionedfrombeingpartofDHHStobeingpartofProbation:

“Theunfortunatethingwasthatwasdoneayearortwoafterthelegislaturehadappropriatedustohiremorecasemanagers.Sowehiredup,andtrainedup,andlifewasgoodandthenayearortwolaterwelostabout75stafftoprobation.Sothat’sverydisruptive,especiallyinasmallstatewhereyouonlyhaveaverylimitedworkforce.Thatwastough.”

WorkforcelimitationsimpactavailabilityofservicesinruralareasOneoftheprimarychallengesnotedbyanumberofstakeholders,whenspeakingspecificallyabouttheJuvenileJusticeHome-BasedInitiative,wastheconcernthattherewouldnotbeenoughqualifiedprovidersintheruralareasofthestate.ThisgapwasoneoftheprimaryreasonswhytheInitiativeincludedBoysTownand,originally,FunctionalFamilyTherapy:

“SoIthinkweknewwejustneededamoresystemicin-homebasedservicethatcouldworkalittlemorecomprehensivelywiththesefamilies.Andthethingwas,weknewthemodelwas-themodelswereoutthere,andhadalotofresearchbehindthefactthereweremodels.WehadMid-PlainsdoingMST,andasanofficer,IcantellyouIjustlovethatdarnthing,veryeffective.Soweknewitcouldbe.WeknewEBP-wisethatitwasthedirectionweneededtogo.Butwealsoknewthenthattherewerechallengesforproviderstobeableto,youknow,becomecertifiedinthosemodels.So


thenitbecameachallengeofhowdowegetoverthatbarrier,andhowdowehelpprovidersgetoverthatbarrier.”

StaffdonotreflectthecommunitiesinwhichtheyworkAnothersignificantchallengecitedbyseveralstakeholderswasthelackofdiversityamongstaffinthejuvenilejusticesystem:

“ThefailuresthatI’veseeninjuvenilejusticeperiodisthelackofdiversity.Youhaveasystemthatdoesn’treflectthepopulationitserves.Youhaveasystemofpeopleinpositions,highpositionsthatmakethedecisionsaboutyouththattheyknownothingabout.Tome,that’smybiggestconcern.AnditwillalwaysbeaconcernuntilIseesomethingdifferent.Becauseweallknowthatthemajorityofthechildrenthatweserve,especiallyhereinDouglasCounty,areyouthofcolor.Andyoudon’thavethosepeoplethatarehigherup,theydon’treflectthepeoplethatweserve.Tome,ifthat’snottackled,ordiscussed,oraddressed,asfarasI’mconcerned,we’rejustgoingincircles.”

“Weneedtohaveamorediverseprobationstaffthatbetterrepresentsallthepeopleweserve.They’regoingintotoughsituations,youknow,justliketheCPSworkersandNFCworkers.Youtaketheseidealisticcollegekidswithlittlelifeexperience,andyouthroughthemintosomefrighteningsituations,wow.”

“AnotherthingthatI’mhearingmoreandmoreisthatthere’snot,agencieshavenotdoneagreatjobofhiringpeoplewhoarerepresentativeofthefamiliesthatthey’reservice,whichIthinkhascausedissuewithfamiliesbeingcomfortableallowingaserviceproviderintotheirhomeortrustingacaseworker,orprobationofficer,oraserviceproviderthatthey’regoingtoactuallyunderstandthatfamily’sexperience.AndIthinkthatwehaven’tdoneagreatjobasastatevaluinghiringpeoplewithdiversebackgroundsoraddressingdisproportionateminoritycontactwithoursystem.Ithinkthatpeoplerecognizethatit’sthere,butnoonehasreallyfiguredoutwhattodoaboutit.Imeanitdoesn’tseemlikethere’sarealinterestinactuallydoingsomethingeffectiveaboutitfromwhatI’veseen.”

“AndIreallyfirmlybelieve,andIreallywouldliketohavemorediversityinourworkforce.AndpeoplethatI'vefoundintheworkthatwedointhediversitythatwedohavethatfamilieswhogettoworkwithindividualsthatarelikethemorhavehadthesameexperiencesasthemtendtofeelbetterheard.Theytendtofeelacommonality.Andthoseindividualsarealsomoreeducatedandawareofthechallengesthatarefacedwithindifferentareas.”


ARTISTIC INTERLUDE: Role Model

SeeAppendixAforabriefdescriptionofeachpanelandaninterpretationofthispiece.


Factor 2: Collaboration & Communication

Whilestaffingandleadershipconcernoperationswithinagenciesinthejuvenilejusticesystem,issuesofcollaborationandcommunicationhighlighthowwellthoseagenciesandthepeoplewithinthemworktogether.Interviewsrevealedthatmanyfeelinter-agencycommunicationandcollaborationhasimproved,butthereremainsworktobedoneinthisarea.Aspartofourexplorationoftheconnectionsbetweenagencies,wedevelopedanactormapofthejuvenilejusticesystem,whichhighlightsthecomplexityofthesystemandthevariouschannelsforcommunicationandcollaborationacrossagencies.SeeFigure1below.

FIGURE1:ActorMapofNebraska’sJuvenileJusticeSystem

Forahigh-resolutionversionofthismap,visit:https://tinyurl.com/JJactor


Strengths

CooperationandcommunicationbetweenagenciesandacrossroleshasimprovedManystakeholdersindicatedthattheysawenhancedcommunicationandcollaborationhappening,whichresultedinmoreeffectiveimplementationofevidence-basedservicesandamorecoordinatedsystemofcare:

“Ithinkthatthat’sanotherbrightspotthatwe’vegottentowhereIthinkalotmorecooperationbetweenagenciesandalotmorecommunicationbetweenagenciesandprovidersandhelpingtoalsotocomeupwithandtobringintocommunitiesevensuchasourswaysthatwecanbringsomeoftheevidencebasedpracticesintothecommunityeitherthroughcooperationbetweenagenciesoranagencybringingitinwiththeknowledgethatthere’sacontractwithaprivateenterprise,privatecounselingservicebringingitwiththeknowledgeasacontractwithprobationorHealthandHumanServicestohelppayforthat.”

“Thecommunicationbetweenmyprobationofficersandthedefenseattorneyshasbeenmuchbetter.WhenIcameuphere,therewasalittlebitofacultureofthiskid’sblowingupandtheywoulddefaulttothecountyattorneykindofa‘whatdoyouwanttodo?’AndIwasflooredwhenIcameuphereandsawthat.Isaidthedefenseattorneysaretheonesadvocatingforyourchildandyourfamilywhyaren’tyoureachingouttothembeforetheyblowup.Sothat’sshifted,whichhasbeengood.Andwhenattorneysaregettingcallsfromprobationofficerssaying‘help’,thatengagesthemalittlebitsothey’renotjustdealingwithacasesotospeak.That’sbeenbetter.”

“Pre-adjudicationshasbeenabigthing.Ithinkwe’redoingmoreconsultingwiththepublicdefenders,thecountyattorneys,anddoingevenmorecollaborativediscussionsonwhatiseverybodyseeingis,whatdoesthisjuvenileneed,andhowdowegetthere?So,Ithinkthere’sbeenalotmorecollaboration.”

“SeveraldivisionswithintheDepartmentofHealthandHumanServiceshavebegun—continues—toworkcollaborativelywiththeAdministrativeOfficeofProbationinidentifyingsystemissues,tryingtofindresolutiontosomeofthoseissues.Soit’sreallyIhaveseensuccessinthecollaborationacrossmultipleagenciesthatdidnotexistprobablyeventwo,threeyearsago.”

“Ithinkyou’veseenprobation–notonlyprobationbutthedepartmentlikeThroughtheEyesofaChildteamsorLB-1184teamsyou’reseeingalotmorecollaborationamongsteverybody.Notjustoneagencytryingtodecidewhatdirectionthey’regoing.Youknowwehaveeverythingfromschoolcounselorsinvolvedinthemtoadministratorstolawenforcement.AndsoIthinkthathasreallybroughtalotmorecollaborationamongsteverybodyespeciallyouthere.”


StrongrelationshipsleadtobetteroutcomesforyouthTheincreasedcollaborationandcommunicationislargelyduetostrongrelationshipswithinandbetweendepartments,whichsomefeelhasledtobetteroutcomesforyouth:

“Iwouldsaythebrightspotsarethatwehadhadtheopportunitytoprovideservicestoourfamiliesthatwewereneverabletobefore.Ithinkthatweareinabetterposition,becauseofthechanges,toimprovefamilies’lives,and,hopefully,preventthemfromcoming…theirkidsbackfromcomingbackintothesystem.Ithinkthepositiveis,atleastforus,thatwedohavereallygoodrelationships,eventhoughwegetfrustratedwitheachother,andsometimesdon’tagree.But,youknow,that’showrelationshipswork.ButIthinkwehavegoodrelationshipswiththelawenforcement,andourattorneys,andthejudges,andDHHSthatotherplacesdon’t.So,thatmakesitmucheasierforustoworktogetherandcollaborate.”

“Ithinkouryouthwithintheeducationalsettingsthingsarebetterbecauseatourfamilyteammeetingswehaveeducatorssittingatthetable.Wehavecounselors,serviceproviders,butmoreimportantlywehavethefamilysittingthere.SoIthinkthat’soneofthebrightspotsthatwehavefamilyinvolvementandthat’swhyIthinkwe’vehadbetteroutcomes.”

Challenges

ThesystemisstillslowandconfusingtosomeWhilesomehaveseenimprovementsinoutcomesduetocollaboration,othersstillseeasystemthatmovesslowlyandisconfusing:

“Wehavealotofcollaborationthatwe’redoingwhichisgood,butIdon’tseethatit’shelpedspeedupanything.”

“EverytimeItalktoprobationofficers,orjustofficersingeneral,therearedifferentruleswithdifferentpeople,dependingonthedistrictthatyou'rein,whatyourageis,whatthecrimeis,whereyoucomefrom,andwhetheryouhavepapersornot.Therearerulesforeverything.Prettymuchyouneedtoknow,especiallytohelptheyouththatweworkwith–youhavetoknowprettymucheverylittledetail.It'sreallyhardtokeepeverythingtogether.Thesystemisjustconfusing.”–Youthparticipant

Silosremainduetofunding,lackoftrust,differingphilosophiesSeveralstakeholderssharedtheirperspectivethatthereremainsignificantbarrierstotruecommunicationandcollaboration.Someofthosebarriersareduetocompetitionforlimitedresourcesorconfusionoverwhoissupposedtopayforcertainservices,whileothershaveidentifiedalackoftrustamongagenciesthatoperateunderdifferentphilosophies:

“Thereisstillalotofsilosbetweenagencies.Fundingdrivesalotofthat,becauseourfundingsystemsaresetupnottofollowthechild,nottofollowthefamily.They'retofollowacourtorder.They'retofollowastatuedesignation,youknow,asyouall


knowyouwantMedicaidyouneedadiagnosis.WegetkidswhogetdiagnosessotheycangetMedicaid.Theydon'tneedadiagnosis.Imeanthat'safederalissue,whichdrivesdown,that'sanissue.That'sasilo.Thosethingsareverymuchthere.Ithinkphilosophicallyinsomeagencies,includingmyownbytheway,we'regoingtobe100yearsold,youhavesomeoldschoolleadersthatweretrained,andgrewup,andreinforced,andexperiencedcertainpractices.Andit'sinchildwelfare,it'sinjuvenilejusticeproviders.”

“WetripovereachothersometimeswhenthecourtshaveorderedDHHSinvolvementandattimesthey'veevenvocallysaidthis,thattheyhavealackofconfidenceintheprobationsystem.Butagain,Ithinkwhenthatcomesup,it'smoreaboutthefamily'sneeds.Idon'tknowhowwelltheprobationworkersaretrainedinfamilyneeds[…]WellbacktoProbationversusHealthandHumanServices,andit’satotallydifferentapproach.AsIsaid,probationofficersaren’treallytrainedtobesocialworkers.Sotheproblem–Idon’tknowifit’saproblembutwhatI’mseeingisadifferentapproachversushowprobationdealswithitversusHealthandHumanServicesandthere’sgoodandbadaboutthat.SomekidsIreallythinkneedtheHealthandHumanServicessocialworkapproach,versustherehabilitativeprobationapproach,Iguessyouwouldsay.”

“AndIcan’tgetHealthandHuman–Ihaveproblemswith3Aand3Bcases.NobodywantstotakecontrolofthemandIcan’tgetHHStounderstandthatprobationisnottheguardiananddoesnottakecustodyofthekids.”

“AndI’vecometoconcludeit’sthesameproblemthat’sgoingonwiththecourtsystem.We’remadandwe’reangry.I’veneverseenourprocessandthemanystakeholderswhoareinvolvedinthisprocessmoreatoddsatoneanotherthanI’veeverseen.There’smoretension.There’slesstrust….Ijustthinkthatbecausethere’ssomuchgoingonit’sjustablamethat’sgoingon,thisdidn’tworkorthisdidn’thappenbecauseprobationdidn’tdothis,ormyattorneydidn’tcallme.Ortheydidn’tfileitcorrectly.Orwedidn’tgetthisevaluationintimeandnoserviceswereputintoplace.We’reblamingeachotherandeverybodyisverydefensive.”


ARTISTIC INTERLUDE: The Gavel

Participant-artist’sstatement:It'sjustprettymuchahandtouchingagavel.There'salwayssomesortoftouchinthesystem.Ineveryfamilyoreverylife,someonehastouchedthesystem.Interpretation:Inthisdrawing,theparticipant-artsdepictsatouchwithoutcontrol.Thehanddoesnotgrasporstrikethegavel,eventhoughallitsattentionseemfocusedontouchingthegavel.Thismayindicaterelativepositionsofpowerandadvocacyintheparticipant-artist’slife.


Factor 3: Data Collection, Management & Use

Theabilityofactorsinthejuvenilejusticesystemtounderstandwhatishappeninginthesystemiscriticaltoanyefforttoimproveorreformit.Whilesomestakeholdersbelievethatdatamanagementandusehasimproved,manybelievetherearestillsignificantbarriersthathindersuccessfuljuvenilejusticereform.Strengths

CapacityfordatacollectionandsharinghasincreasedAnumberofstakeholdersfeltpositivelyaboutthecurrentsystem’scapacityfordatacollection,sharinganduse.Severalstakeholdersbroughtupthestate’scommitmenttocollectiveimpact,whichtheyfeelhascontributedtotheimprovementinsharingdataacrosssystems:

“We'redoingalotofworktryingtocomeupinNebraskawithaunifiedandacceptedevaluationandassessmenttoolthateverybodyfeelsvalued.Soweputtheservicestothechild,youknow,wherethey'reneededandit'snotimpactedsomuchbywho'spayingforitbutratherwhattheyouth'sneedis.Soyouknow,I'mreallyexcitedthatwe'redoingalotmoreofthatproactivecommunicationandyouknow,puttingthechildandthefamilyyouknow,inthespotlightandgettingawayfromthosesilos,thoseprotectedpotsofservicesandmoney.”

“SointhestateofNebraska,there’sarealcommitmenttocollectiveimpact;andthensharedmeasurementisoneofthosepillarsofcollectiveimpact.So,agreeingtocountthingsthesameway,Ithink,issophenomenal;becausethenallofasuddenIcanhaveadialogwithyou,andsay,oh,yourunamentoringprograminOmaha,andIrunoneinScottsbluff.Wehavedifferentrecidivismrates.Whatareyoudoing?BecauseIknowthiswascountedthesameway.WhydoIhavesuchadifferentnumber?”

“Theheightenedsenseofawarenessthathasbeenbroughtintothesenators,thatyouwillactuallysavemoneyifyouputtheseprogramsinplaceversuslockingkidsup.Soit’sbeenbroughttotheforefront.It’sbeenspotlightedinlegislationsothat’ssuperexciting.Therealizationthatifyouwantprogramsandservicestobeeffectivethroughoutthestateyouhavetoprofessionallymeasurethem.Youhavetohaveoutsideentitiesdoasystemanalysis.”

Challenges

DatamanagementlackscoordinationandunificationDespitethesepositiveviews,thereremainchallengesacrossthestate.Manystakeholdersindicatedthatwhiletherehavebeenimprovements,thereisstillalongwaystogo,particularlywhenitcomestosharingdataacrosssystems.Somefeltthereisnotenoughsharing,whileothersfoundthattherearesomanyeffortsunderwaythatsomecouldbeconsolidatedtomoreeffectivelyuseandsharedata:

“Wedefinitelyneedadifferent,amoreunified,amoreresponsivedatasystem,youknow,ratherthan,youknow,rightnowtherearesomeelementsof,youknow,like


HHS,wherethekidswere,theycan'tevenaccuratelytellyouhowmanykidsareworking.”

“Ithinkit’sbeeninteresting.InNebraskawehavelikefivedifferentcommitteesorcommissionsonchildrenandthey’realllooking-theyallhavetheirowndatagroupsandthey’reallrecommendingthesamethings,right?Ithinkthateventuallythatneedstokindofconsolidatewherewe’reallinvestinginthesameresourcesandbeingabletotrackyouthacrossbothsidesofthejuvenilejusticesystemanduseourresourcestobeansweringthosequestions,ratherthankindofsilolookingatthings…..Ithinkthere’sabsolutelyawillingness.Youknow,I’mreallyimpressedwithhowmuchmoredatadrivenNebraskahasbecomeinthelastfiveyearsrelatedtojuvenilejustice,butIcantellyouthatthesefiveorsixcommitteesthataremeeting,they’retheexactsamepeople.Itisliterallytheexactsamepeople.Andsoyoumeetonceandyou’retalkingaboutthisissueandthenyoumeettheothertimeandyou’retalkingabout,youknow?Ifyoucouldjust-youknowterritoryaside,right,thatyou’renotrepresentinganorganization,justgetthosesamepeopleintheroomandsay,“Whatarewereallytryingto-whatarethequestionswereallyneedtobeaskingandhowdowegetthere?Howdowegetthedatatoanswerthesethings?”Ithinkwouldbe-it’sdefinitelypossible,butthesegroupskindofhavedifferentagendasandpurposes.”

“Youknow,Ijustdon’tseefamiliesanymore.SoIreallyhavetorelyondataandthen,ofcourse,anecdotalfeedbackfromstaffdoingthework.Andthat’sprobably,speakingofdata,anotheroneofthosebarriersisIknowthatatleastforthelastfiveyears,I’vebeenengagedinmeetingsarounddatasharing.Whocansharewhatdatawithwho?There’salwaysconfusionbecausethingschangeaslawsareinterpreteddifferently.Butthereoughttobe,you’dthink,onefamilytreatmentplantthateverybodyhelpsthefamilymakeprogresswith,that’sdevelopedwiththefamily.Andprobationhastheirs,andwehaveoursforthosedueluse.”

DatadoesnotcapturewhatisreallyhappeningWhilesomestakeholderswereconcernedwithwhetherdatawasbeingadequatelyshared,othersdidnotfeelthatitwasactuallycapturingtherealitiesofthesystem:

“Wereallydon'thaverealgoodevidence.Wegatherdatabutnotveryusefuldata.Wegathertransactionaldata.Wedon'treally…theonlywayyoucouldgetitisanecdotallyifyou'redoingareviewonakid.Theyjustactuallyhavetostopandaskthekid.”

“Butsomepeoplesay,oh,youknow,they’renotdoingdrugsisevidencedbytheirnegativedrugtesting.AndIwanttosay,‘That’sbutonemeasure.Didtheyshowupforschool?Weretheypreparedforschool?Didtheyshowupforwork?Whenyouinteractedwiththem,didtheyseemliketheywerehigh?’Imean,there’smanywaysyoucansaythisperson’smakingprogress.AndsoIlooktothosesortsofthings.”


Distrust,highstakesandlackoftransparencyhinderdatacollectionanduseSomestakeholderssuggestedthatthewaysinwhichdatahasbeenusedinthepastleadspeopletowithholdinformationoroptoutofparticipatinginevaluation:

“But,yeah,there’sstillalotofdistrustthoughIthinkandaccesstodatafrom–Ithinkthecourtsarestillsowarythatthiswouldbetakenawayfromthem–thatprobationbetakenawayfromthemthatitcausesthemtonotbeasopenandsharestruggleswiththecommunitytotryandworkonitcollectively.There’sarealcultureofwe’vegotthis.Justgiveussomemoney,we’vegotthis,andkindofpickingandchoosingwhattheywanttoshare.AndI’mhopingthat’lldissipateaslikethey’renotasscaredbecauseIdothinkit’sjustcomingfromthisoh,no,thenwe’regoingtolosethesemillionsofstatedollarsorwhatever.Butinthemeantimethat’snothelpingthekidsrightnowwhoareinthere.”

“It’sthesameineveryprofessionwherewe’rehavingtobetransparent,andwehavetokeepdata,andwehavetokeepstatistics,andwehavetoreport.Alotofpeoplehaveshutthedoorinourfacesbecausetheydon’twanttodothat.”

Severalyouthalsosuggestedthattheydonotfeelthatprogramsarebeingeffectivelyevaluated.Thispointstoalackoftransparencywithdatathatleadstomistrust,notjustinternallyamongstaffandagencies,butwiththepopulationthoseprogramsareintendedtoserveaswell:

“Ibelievethatalotoftimessomeonecouldsay,youknowwhat?Thisdoesn'tfit.Thisdoesn'tfitwhatwe'retryingtodoasfarasjuvenilejustice.Instead,theyjust–courts,judges,whoever–justallowthattogothrough.Myopinionwouldbetogetthenumberstojustifywhatthey'retryingtodo–theprogramsandthingslikethat.”–Youthparticipant

“Ifeelitjustmakesthingsharderforthepeople,thekidswhoactuallywanttodobetter.Likehesaid,theyreallydon'tdomuchevaluating.Thentherearekidswhoactuallywanttodobetter.Therewasonetimetheymessedup,andtheycan'tbecausethey'retoobusydoingtheirdiversionthingsorprobationmeetingsorallthisotherstuff,insteadoffocusingonwhattheyneedtofocuson.”–Youthparticipant


ARTISTIC INTERLUDE: The Scales of Justice

Participant-Artist’sstatement:IdrewtheScale[sic]ofJustice.Iguessthat'swhatit'scalled.Idrewajuvenile–somekidsononesideandotherthingsontheothersidethat'sweighingitdown–likemoney,power,andtheConfederateflag,whichstandsforthegovernment.There[sic]moneyisthethingstheybudgetforkindoftakesawayfromthethingsthatkids–theattentionjuvenilesshouldbegetting.Thenthewindow–that'sthemlookingdownonEarth.Kidsarejustlookingup,wonderingwhat'stocomeofit.(BuffaloCounty,NE)Formoreonthispiece,seeAppendixB.


Factor 4: Allocation of Resources

Anothersignificantfactorthatinfluencesthejuvenilejusticesystemistheallocationofresources.Whethermoney,time,training,expertise,legislation–payingattentiontowhereresourcesarebeinginvestedcanbetellinginasystem.Basedoninterviewswithstakeholders,itisclearthatthereisamovetowardsinvestingmoreresourcesinlocalcommunitiesandinevidence-basedpractices.Strengths

Increasedinvestmentincommunityandevidence-basedpracticesWhenaskedaboutbrightspotsinthesystem,manystakeholderscitedthefocusonhome-basedandcommunity-basedtreatmentandthereductioninthenumberofkidsindetentionastwosuccessesthatgohandinhand.Someconnectedtheseindicatorsofprogresstomoreofafocusonevidence-basedpractices:

“Wellyouknow,Ithinkthereiscertainlymoreofanemphasistotryandmakesurethatweprovideservicesforthechildrenintheirhomes.Andmakesurewe'veexhaustedthoseopportunitiesbeforemovingthechildrenoutofthehomeorbeforeusingjuveniledetention,putitthatway.”

“WellIthinkthefocusonevidencebasedpracticesisadirectcorrelationtosomeofthesuccess.CausewhatIcantellyou,andIdon'thavethenumbersinfrontofyou,weareseeingstatewide,systemwide,weareseeingfeweryouthenterevenintheadultworld.Andweuseevidencebasedpracticesintheadultworldaswell.We'reseeingyouknow,adeclineinthosethatareenteringorevenreentering,morespecializedinwhatwedo.[…]InadditiontothatIwouldaddthatthejudgesappeartobetakingevidencebasedpracticesmoretoheartwhendealingwiththeyouthatcourt.IknowthatjustevenjustthreeandahalfyearsagowhenIstartedhereIrememberthattheperspectivewasalittlebitdifferentthanitisnow.Ithinkthejudgesaremoreopentothesuggestionsofprobation,amoretherapeuticandindividualizedapproachinworkingwiththejuveniles.Andfocusingonkeepingthemintheirhomesratherthanmovingquicklytomovethemoutoftheirhomeforwhateverreason”

“WehaveaNebraskaJuvenileJusticeAssociation,wehaveaHeartlandJuvenileJusticeAssociation,andbothofthoseconferenceshavedoneareallygoodjobofbeingveryfocusedonevidence-basedpractices.Andwe’vealsohadinourstate-probationhasbeenthefacilitatoroftheJDAIInitiative,sotheJuvenileDetentionAlternativesInitiativethroughtheAnnieE.CaseyFoundation.Soreallytalkingaboutthefactthatwedonotwanttodetainayouthunlessit’snecessaryfor...toassurethattheyreturntocourt,orassurethattheydonotcommitanothercrimewhilethey’rewaitingtogotocourt.AndthatalonehasdoneahugechangeandimpactontheutilizationofdetentioninNebraska.Infact,thedetentioncenterinScottsBluffrecentlyclosedbecausetherewasjustnottheneedtoutilizethatserviceasmuchasithadbeeninthepast.”


Afewstakeholdersalsopointedtothevaluethatinvestmentsfromprivatefunders,namelytheSherwoodFoundation,havehadonthesysteminthisarea:

“Brightspots,one,Ithinktheprivatemoneythatiscomingintoourjuvenilejusticesystemsfortheseinitiativesisnotonlyabrightspot,Idon'tthinkthereisanyotherplaceinthecountryyouhaveafoundationinvestinginthepublicjuvenilejusticesystem,notoneI'mawareof.That'sabrightspot.That'sahugestrength.Sherwoodasafunderisarelativelypatientfunderaswellwhentheycometothetable.They'reflexible.Theyunderstandthingshappen.That'sabrightspot.”

PerspectivesareshiftinginfavorofkeepingkidsclosetohomeManystakeholdersindicatedthatthereismorebuy-inacrossthestatethatkeepingkidsintheircommunityisbeneficialforallinvolved.Somealsosuggestedthatthereisnowmorerecognitionthatitisfinanciallybeneficialaswell:

“Theefforttokeepmorekidsatthefrontendofthesystem.Ithinkthere’smoreagreementtothatidea.Andthenkeepingkidsintheirhomeandnotoutoftheirhome.AndIthinkfolksaretryingto,Imeanthere’salwaysimprovementstomake,butIthinkthatthathasgottenbetter.Theestablishmentofdiversionprogramsinmorepartsofthestatesowecanhelpkidsatthefrontendandnotpushthemthrough.”

“Backinmycaseloaddays,IwouldhavekidsthatwerejustsenttheredirectlyfromcourttoKearny,orGeneva.Irememberhavingacaseloadonetimeof45kidsorsoandIhadabout15ofthemthatwereineitherGenevaorKearny.Now,Idon’tevenknowthatwehave60or70kidsinthoseplacements.Soadrasticreductioninthenumberofyouththatarebeingsenttodetention,Kearney,andGeneva,whichisgood.Highestlevelcareshouldnotbeusedlightly.[…]Ithinkthere’sbeenmuchmoreofanintentionalfocusonwhichkidswe’resendingoutofhomeandwhy.Aswellastryingtobemorecreativewithinhomeandfindingsolutionstokeepkidsinthecommunitywhereweknowthatitcreateslesstrauma.”

“Thatthey’relookingatimprovementandthatthereareattemptstomakeimprovement.Ithinkasawholethey’relookingatmorecommunitybased–Ithinkasawholethestateisdoingmoreholisticstuff.”

“Everyonceinawhile,yougetanintersectionbetweenwhat'sgoodforkidsandwhat'sgoodforthetaxpayer.We'rethererightnow.Weareatthatintersection.Wehaveachanceheretogointothelegislatureandsay,‘Ifwedocommunity-basedprograms,you'regoingtobeassafe’becausewhenItakeakidoutofthehomeandputhiminkiddieprison,somebodyjusttakeshisplace.Thepublicisn'tanysafer.They'rejustbeingusedbyadifferentkid.Ifwekeepthatkidathomeandwatchhimandputhiminprograms,you'reactuallysafer.Itcostsabout20percentofwhatinstitutionscosts."


“Ithinksomebrightspotsarethatthatarepeopleatthetableandthere’salotofresearchtobackupwhatwealreadykindofknow.Ithinkthefactthatwewanttopushforlessout-of-home-careispositive.”

“I’veseenchangeswithpolice.They’vehadhugeretirementsinthepastfouryearsaspeoplehaveagedoutoftheirsystem.Sothenewpeoplethatcomeingettrainedtodothingsdifferentwithkids.Sonowwhenpoliceofficerscallus,theyarenotalwaysaskingforadetentionbecausetheyknowthatwearen’tautomaticallydetainingkidsanymore.Sotheywillcallandsay‘whatelsecouldIdo?’.”

MoreattentiontoandinvestmentacrossarangeofneedsSeveralstakeholdersalsohighlightedthatthereseemstobemoreofarecognitionthatarangeofdifferentservicesareneededtomeetthevariedneedsofyouthinthesystem.Inparticular,moreinvestmentinbehavioralhealth,mentalhealthandsubstanceabusewerecitedaspositivetrends,aswereaccesstopre-adjudicationandrestorativejustice:

“Ithinkthat,frommyperspective,there’smoreawarenessonbehavioralissues.I’dsaythatthatawarenessdefinitelyisthere.So,Iseethatthoseservicesareatleastmadeavailabletothoseyouthorindividuals.SoImean,Inoticethatdifference.”

“Havingmorepeopleawareofmentalandbehavioralhealth.Evenjudgesandprobationofficers,havingthemunderstandmoreabouthowthataffectsyouthgettingintrouble,gettingputondiversion,orarrestedorthosekindsofthings.Andtryingtofocusonthoseunderlyingconcerns,asawaytopreventfuturelegalissuesorconcernswiththatyouth.”

“Ithinkoneofthebigthingsthatiscomingaboutisgettinghelpforourchildrenthatdealwithalcoholismandtraumaissues.Wearegettingservicesforthembecausetheywanthelp.Andthey’renotwaitingforajudge,awhitejudge,tocomeinandsay,boyyoureallyhaveaproblemthere.We’reactuallyflippingthatwholepyramidofjustice.Whereasbeforetheywouldenterthesystem,theywouldpleadnotguilty,theywouldhaveapretrial,theywouldhaveapre-adjudicationconference,thenthey’dgototrial,andthentheywouldbeadjudicatedanddisposition.Thenthey’dsay,okayyouneedatreatmentandyouneedtogettotreatmentfacilityandpayrestitution.Sowhatwehavetriedtodoisflipthatsowhentheyfirstcomeintowhatwecallouryouthcrisisinterventioncenter,we’regoingtogetthoseinitialscreenings,we’regoingtolookatsomeassessments,we’regoingtosettheparentupwithmeetingwithacounselor.They’regoingtogetmaybesometreatmentevenbeforetheirfirstpre-adjudicationconference.”

“Iamworkingthisafternoonwithprobationonyoucouldcallitarestorativejusticemodel.It'scalledFamilyGroupConferencing.Ifayouthonprobationisvulnerablefrombeingremovedfromtheirhomeortheircommunitytoagrouphomeorinstitutionalplacementthatthisprocesscalledfamilygroupconferencingcouldbeimplementedwhereyoubringtogethertheyouthandfamily,extendedfamily,aunts,uncles,brothers,cousinsaswellascoaches,teachers,friendsthataresupportiveof


theyouthtocomeupwithmoreofaninformalcircleplannedforthekiddo.Forexample,oneofthestoriesgoesisthattheyouthwasgoingtohavetoleavehomebecausetheparentsweren'tabletohandlethemedicationthathewasneeded.Sotheywereabletofindanauntiewhowasanursetocomeoverandbethereeverydaytosupportthefamilyandthemedication.Tocometogether,tobringthepeopletogetherthatmightnotnormallysitdownatthetabletogetherandincludetheyouthaswellaspartofthisplanning.”

“We'reluckywhereProbationhasreallyimplementedagoodplanfordrugtestingthejuveniles,whichhadnotbeendoneinthepastunlessitwasjustkindofoutoftheblue,heylet'sgotestJohnny.Nowthey'vegotacardsystemsothekidshaveacolorandtheycallinandtheyknowiftheyhavetocomeinandtestthatday.Sothey'vetakenamuchmoreactiverole.Andalsowiththeservicesthatwecanprovidethem,especiallyforsubstanceabuse.That'sbeenhugeonthedelinquencyside.”

Challenges

Barrierstoservices,particularlytransportation,leadtounequalaccessInterviewsrevealedsignificantvariationsbetweenruralandurbancommunitiesinNebraska.Manyruralcommunitieslackacomprehensivecontinuumofcare,oftenduetoalackofskilledprofessionalstoprovidetheserviceoralargeenoughpopulationofyouthinneedoftheservicetomakeprovidingitcost-effective.Someoftheserviceshighlightedbystakeholdersthatarelackinginruralareasincludepsychologists,psychiatrists,andmedicationmanagement.Transportationwasalsocitedasamajorbarriertoaccessinruralareas.Forthoseyouthwhodoneedresidentialtreatment,mostofthosefacilitiesareinOmahaorLincoln,whichcanmeansignificanttransportationissuesforfamiliestobeabletovisittheiryouth:

“Transportation,itcancrippleyoureffortstohelptoassistfamilies,itcanabsolutelycripple.”

“Forinpatientservicesforyouththatsexuallyharmit's400milesaway.Andsothenthathinderstheabilityforthefamilytobeinvolvedintheirprogramming,andcreatesquiteabarrierforthosefamilies.”

Evenforcommunity-basedservices,youthandfamiliesoftenhavetotravellong-distancesinruralcommunitiesforaccess:

“WehavenoIOPsinourdistrict.Theonlyareasinourdistrictwherewecanaccessitisinahandfulofcounties.Ithinkthejuvenilesarehavingtotravelapproximately45minutesorso,oneway,toaccessthatservice.”

“Alotofthetimewehavetosendouryouthandourfamiliestoprovidersthatcouldbe100milesaway.Becausewedon'thavethemhere.”

Administrativebarriersposeproblemsforstaffingandresourcesaswell:

“IfthejuvenileforexamplehasanappointmentinNorthPlatteforapsychologicalevaluationwecantransporttheparentwiththemforthatappointment.Butthe


parentthemselves,togetthemtosayajuvenilethatisinLincolnforplacement,wecan'tprovidethattransportation.”

“Yeah,transportationisahugeissuewhereIwork.Soinruralcommunities,it'sjustanissue.Ifwehaveayouthpickedupat2:00inthemorningandtheyouthneedstobetransportedto[city],that'sthreehoursaway.Well,ifI'mresponsibleforthatasaprobationofficerandsoI'mamaleandtheyouthisafemale,Ihavetocallanotherprobationofficerwho'sfemale,amatriarch,toridewithme.SonowIhavetwoofficersontheroad.Soourlawenforcementrunsintofinancialissuesiftheydothetransport.They'rejustnotstaffedtodothat.”

Beyondtransportationtoaccessservicesthatarefaraway,somestakeholdersalsonotedthatbecausetheyareinaruralcommunity,theydon’thaveaccesstopublictransportationlocally.Soevenifaservicewerenearby,anythingthatrequiresyouthandfamiliestoleavetheirhomesisachallengeiftheydon’thaveaccesstotransportation.GapsinservicesforreentryandyouthageingoutWhileadultstakeholderswereprimarilyfocusedonavailabilityofservicesforyouthduringtheirsupervisionunderthesystem,youthfocusedmoreonwhathappenswhenthatsupervisionends:

“Allthehoopsyouhavetojumpthrough,andthenthereformingofit.Itjustleaveskidsstranded,especiallykidsagingout.There’snotmuchhelpinitforolderkids.It’snotevenworththeirtime.”–Youthparticipant

IwenttoBoysTown,whichwasthebestexperienceofmylife.Iwasthereforayearandahalf.Thatwasreallygood.ThenIgotout.Ihadajob.Iwasdoinggood,likeyou.Thenitjustwentdownhillfromthere.Igotintodrugs,alotofbaddrugs;traveled,sawstuffIdidn’tneedtoseeasa16-year-old;andthenfinallygotmylifetogether.”–Youthparticipant


ARTISTIC INTERLUDE: All I wanted

AllIwantedformyfuturewastobeadifferenttypeofn*****nowI’mlookingatthepicturethingsisneedingfixturegavemylifetothelordnowhehasmybacktimesisdifferentfromthepastwhenmymomwasontheblockdealingcrack.NowI’mridingroundthecitylookingatmylifethingsIwasdoingcouldn’texplainiftheywasrightwanderingroundthedarktrynnafindabetterlightrealizingtherewasmoreinsightthanIeverrealized

Interpretation:Dominantthemesofpermanence(fixture,back,lord,block,city)andmovement(different,riding,wandering)playthroughout,asthepoetattemptstoenvisionabetterfutureafteratroubledpast.Imageryfocusesonconceptsoflightanddarkness.Verbsreinforcethetensionbetweenimmovable(wanted,am,is,gave,was,realized)andchangeable(looking,needing,dealing,doing,wandering,trynna,realizing).Hisconstructionof“…was/tobe…”particularlyhighlightshisstrugglebetweenpastandpotential.


Factor 5: Lived Experience of Youth & Families

Whileitcanbeeasytofocusonadministrativeandtechnicalconcernsoverhowasystemoperates,itiscriticaltorecognizethatthesystemisnotonlycomposedofpeople,butultimatelybothimpactsandisimpactedbythelivedexperienceofthosewhoaremostdirectlyimpactedbyit:youthandfamilies.Oneofthewaysweworkedtomakesenseofhowyouthandfamiliesexperiencethesystemwastodocumentthejourneyofayoungpersonastheymovethroughthesystemtoidentifythedecision-pointsandpossiblepathsayouthmighttake.WeusedthisjourneymapduringourlisteningsessionsandhaveprovidedbelowinFigure4asapointofreferenceforfuturesystems-levelevaluation.

Figure4:JuvenileJusticeJourneyMap

Forahigh-resolution,interactiveversionofthismap,visit:https://tinyurl.com/JJjourney

Strengths

Youth&familieshavemoreofavoiceSeveralstakeholdersemphasizedthatthesystemhasbeguntofocusonelevatingyouthandfamilies-buildingontheirstrengths,givingthemavoice:

“No,Ithinkeverybodyisworkingveryhardandpassionateabout…andlikeIsaid,they’reelevatingtheirvoiceaboutjusticeforjuvenilesandthatisreallyincredibleitself.BecauseImeanyougofrom1999,whenColumbinehappenedandeverybodywenttoscaredstraightprograms,tryingtoenforcestrictdisciplinaryactiononkidsbecauseeverybodywasinasenseofscaredandfear.Yougofromthattonow,wherepeoplearetryingreally,reallyhardinelevatingtheirvoicesaboutthedamagethatlockingakidinajailcellcando.Ithinkthat,inandofitselfisexcitingandwejusthavetotakethetimetocelebratethat.”


“Ijustwanttoreiteratehowimportantthevoiceoftheyouthandthevoiceofthefamilyareinthisprocess.Overall,wealwaysdowhatwefeelisbestfortheyouthandtheirfamilywhilestilltryingtoincorporatetheirvoiceintheprocess.Wejustbelievethatcollaborationwithourotherentitiesiskeytoallofthisaswell.Ithinkwedoareallygreatjobofworkingwithourstakeholdersandmakingsurethatthey'reinvolvedinthefamilyteammeetingsintheprocesswiththesekidsbutmakingsurethatwearestilltheleaderintryingtodecidewhat'sgoingtohappen.”

“Ithinkacouplethings,one,againtodaymorethan22yearsagoamuchbetterunderstandingofsystemdesignations,andcourtorders,andcasesareestablishedsothesystemcanorganizeitself.Butthey'renotparticularlyhelpfulwhenyou'rereallytryingtofigureouthowtohelpayoungperson.Oh,you'rea3A,that'sa3Akid.Ohthat'sadelinquentkid,wellguesswhat?Thedelinquentkid,myexperience,thereisalmostalwaysfamilychallenges.Thereisalmostalwaysdisruption.Yes,you'reherecauseyougotarrested,buttherealissueoftentimesisnottheactualarrest.It'ssomeoftheotherthingsorthey'reblended,andsoItakethatapproachoftheyarekids.Theyarebehaviors.Wehavetolookatsituations,andyes,Iunderstandwhenyou'readjudicatedincourtasadelinquentthat'sasituationakidisin.Butthatdoesnotdefinethatkid'sexperience,sowegetstuckinthatsometimes.SoIthinkIbringthattothework.Again,20yearsagoIdidnotbringthattothework.That'sthelearningthathasoccurred.”

“Theotherthingthat'sverydifferentispeoples'understandingofthelink,notthecrossover,notthemovement,thelinkbetweenchildabuseandearlyfamilyproblems,andlaterdelinquentbehaviorandseeingthatasastrategy.Liketakingbettercareofkidsandhavingabetterchildwelfaresystemactuallylongtermisverylikelytoputadentinthenumberofdelinquentswehave,thenumberofkidsthatendupindetention.It'snotjustthat,butImeanthechildwelfareexperienceisembeddedinpovertyandotherfactorsthataredrivingallthesethings.Butwhenyouhavepeoplesayingtheremightbesomestrategiesoverherethatactuallykeepkidsoutofthejuvenilejusticesystem,tenyearsagothatwasnotdiscussed.”

“Ithinkyearsagoifyouweretoaskayouthwhytheywereonprobation,theywouldforgetbecausethey’dbeenonforsolong.OneofthethingsthatIthinkisreallygoodaboutwherethereformisrightnowisthatwe’rereallyworkingonaddressingthebehaviorsthatbroughtsomeoneintothesystem.LikeIsaid,ifit’satruancyissue,isitsomethingthat’sgoingonathome?Isamentalhealthissue?Gettingtheschoolpiecebackontrackandnotholdingontothemfortwoyearsafterwardssotheycangetonwiththeirlifeasafamilyandmoveforward.Ithinkthat’sbeenprobablythebiggestchange.Iwouldliketothinkthatourlargesupportforthatfamilyengagementhasbeenbeneficialwiththatalso.Kindofmeetingthefamilywheretheyareandreallywalkingalongsidethatfamilythroughthatprocessasopposedtojusttellingwhat’sgoingtohappen.”


SomeyoutharereadytotakeresponsibilityfortheiractionsAthemethatcameacrossinoneofthearts-basedworkshopswasyouthtakingresponsibilityfortheiractions.Theyallbelievedtheyhadtodealwiththeconsequencesofdecisionstheyhavemade,andnow,theirlivesarebetterbecauseofit.Oneparticipantsharedthatalotofhisinvolvementwithgangshadmuchtodowithseekingacceptance.Hewasnicknamed“Savage”andhewillinglytriedtofulfillthereputationthenamebroughthimanditonlytookhimfurtherofftrack.Hedescribedhowthebirthofhisdaughtermotivatedhimtoaccepthisresponsibilitiesandmakebetterdecisions.Challenges

YouthexperienceismixedTheexperienceofyouthinthejuvenilejusticesystemisasvariedasyouththemselves.Whilemoreparticipantssharednegativestoriesthanpositiveones,somecouldseethatthesystemhadhelpedthem.Oneparticipantsharedthatifshehadnotbeenconvicted,shewouldstillbeinvolvedinbadhabits.Shegavecredittothejuvenilejusticesystemforredirectingher.Anotheryouthshared:

“Theykeepuptodatewithmyfamily,mymind,mystateofmind,andthestateofmyjustice.IpickedchancebecauseevendespitethefactI'vebeenthroughthestruggle,beenthroughthewitnessesandontheothersidewithplaintiffs–whileIwastheonedoingthecrime,Iwasstillondefense.Theystillgavemeachance.Eithersystem,whetheritwasthewelfaresystem,juvenilejusticesystem,orwhetheritwasinasystemperiod,Idefinitelygotachance.WhetherIwantedtoliveordie,whetherIwantedtobegoodorbad,theystillgavemeachance.”–Youthparticipant

Stillothersresenttheirexperienceanddidnotseeandbenefits:

“Thethoughtthatcametomymindforthejuviejusticesystemwasnegativity,becausemyexperiencewasnon-beneficial.Itwasjustaplacetochillitandkickit.Iranawayfromthere.Whentheydidwanttoteachmesomething,Ijustshutdown.Uskidsnevertookusserious.Weweremeanorjustplayedaroundwithworkersandotherpeoplethere.TheonlygoodthingIlearnedfromtherewashowtocook.”–Youthparticipant

YouthtraumaisoftenunaddressedListeningtothestoriesyouthsharedduringtheworkshops,itisclearthatmostifnotallhavelivedthroughtraumaticeventssuchasbullying,abuse,teenpregnancy,lackofparentalsupport,drugsorotherdifficultsituations.Inmanyinstances,theseeventsarewhatledtheyouthtobecomesystem-involved,whichsomebelieveshouldnothavehappened.Somesharedstoriesofhowtryingtohelpafriendthroughtraumahadgottenthemintrouble.Severalyouthexpressedadesireformorecompassionandunderstandingofthecircumstancesthatbroughtthemintothesystem:

“Theyprettymuchjusttreatedmeasaconvict.ThereasonIlefthome–noonedecidedtothinkthatmaybethiskidisgoingthroughabunchofstuffathomethathe


can'tlivewith.Maybehisparentsareabusive.No,theywerejustlike,thiskidthinkshe'sabadassandthathecanjustrun.Theyjustprettymuchthrewmearound,whichdidn'tdomeanygood.Iwaslike,whythefuckwouldIdoanythingwhenyouguysarejustprettymuchgoingtothrowmearound?IleftthehousebecauseIdidn'tseenootheroption.”–Youthparticipant

“Iusedtogotomygrandma'shouse–mydad'smom–alittlebit.[Pause,crying]Okay.Iusedtogotomygrandma'shousealot.Ihadalotofcousins.Mygrandmaraisedallofus.Iwon'tsaytheirnames,butIhadacouplecousins.Oneofmycousinsrapedme.Iwasrapedbyoneofmycousins.Yearspassedby,andmybrothergotkilled–mybrotherthatwaslikemydad.Hegotkilled.ThewayIwouldlabelmylifeisbrokenhearted,becauseI'vebeenbrokenmywholeentirelife.”–Youthparticipant

“Whenyou'reajuvenile,[you’re]notalwaysadaptedtohandlegrief.Youthinkyoucancontrolit,butyoureallycan't.”–Youthparticipant

“ThereasonIlefthome–noonedecidedtothinkthatmaybethiskidisgoingthroughabunchofstuffathomethathecan'tlivewith.Maybehisparentsareabusive.No,theywerejustlike,thiskidthinkshe'sabadassandthathecanjustrun.Theyjustprettymuchthrewmearound,whichdidn'tdomeanygood.Iwaslike,whythefuckwouldIdoanythingwhenyouguysarejustprettymuchgoingtothrowmearound?IleftthehousebecauseIdidn'tseenootheroption.”–Youthparticipant

“Ihadthisfriend…Shetoldmebasicallythathermomwasn'traisingherright.Shedidn'thaveacoatandstuff.Iknowhowthatfeelswhenyoudon'treallyhavenothingandnoonecanprovidethethingsyouneed,soItriedtostealheracoat,ahat,somegloves,andacouplelong-sleeveshirts.Ididgetcaught.That'showIendedupinthejuvenilesystem.”–Youthparticipant

“Myfirsttimewasforfighting.Itwasagroup-on-groupthing.Afterthefight,Iguesssomeonesaidtheyweregoingtobringashotgun–well,fromourgroup,someonesaidtheyweregoingtobringashotgun.Lateronthatnight,Iguesssomeonefromtheothergroupsnitched.Thecopwentovertomyhouse.Wewerejusttalking.SinceIwaswiththegroup,Ididn'twantanybodyelsetogetintrouble,soItookthefallforthat.Igotsuspended.ThenIgotputonprobation…Ijustneededtostoptalkingtothemafterthat.Inoticedtheyweren'tmyrealfriends.”–Youthparticipant

“Istartedgoingtoschoolandmeetingfriends.Beforeschoolmymomwoulddropmeoffwithmyfriend.Shedidn'tknowweweregettinghigh.Hermomwouldtakeustoparties.Wewouldgogethighanddrinkallnight.”–Youthparticipant

“…that'swhatweneed.Weneedtoknowthetruereasons.Whydoyouhavetosmokeweed?Whydoyouhaveto?Whatareyoutryingtonumb?Whydoyouhavetodrinkalcohol?WhenIwaslittle,allIneededwasabaseballbatandball,andIwasgood.ThatwasallIneeded.Ididn'tneedtogoanddothesethings,becauseIhad


peopleIcouldtalkto.Sofigureoutwherethetraumaiscomingfrom,andthenwecanfixit.”–Youthparticipant

“Mymomwasmarriedtomydad,butmymomwouldgowithotherguysontheside.Shewouldintroducemetoguysthatshehad.MaybewhenIwasninemymombroughtamanintoourhouse.Mydadwasonhiswayfromwork.AllIcanrememberisIwasjusthappyformymom.Mydadwasknockingonthedoor,andIhadtoholdthedoortonotletmydadcomein.Itwasmeandmymomforcingthedoorshutsomydadwouldn'tcomein.Hetriedtofightthisguy.Itwasthehardestthingforme,becauseIdidn'tknowwhatwasgoingonatthetime.Ijustwantedmymomtobesafeatthetime.”–Youthparticipant

“IgotinthesystemwhenIwas13becauseIgotpregnant.Iwouldrunawayfromhome.TheywereworriedthatIwasn'tgoingtocomehomeonedaybecauseIwaswithsomanyguys.Ilookedforlovethroughguys.Ididn'thavemydadanymore.MydadturnedagainstmewhenhefoundoutIwaspregnant.Hewantedmetogetanabortion.Hewasagainstit.SoIfellintodepressionwhileIwaspregnant.”–Youthparticipant

“[Femalecaregiver]wasalsoraisedwiththementalitythatkidsdon’tdeserverespect;theyjustneedtoberespectfulandcanbetreatedhowever.Igrewupwith,prettymuch,anemotionallyandverballyabusive[femalecaregiver].Shewasjustneverthere.Shewastherefinanciallyandphysically;butifIneededsomethingyouwouldneedtotalktomomabout,Icouldn’tgotoherforit;becauseshewasjusttooabrasiveisthebestwaytoputit.Itwasjusthardtoconfrontherwithanything.Sotherewasalotofanimosityinourhousegrowingup.Therewerealotofarguments.IgrewupfeelingliketherewasnothingIcoulddoright.Aroundtheageof12,IheardherinthelivingroomtalkingtomydadabouthowIdon’tdeserveanyofthestuffthat’sinmyroom,likemytoysandmygamesystemandmyTV.Itookthatastepfurther.ThatnightIactuallyleftmyroomandwentandsleptinthebackyard.Itwasfall.Itwascoldasfuck.Ican’tbelieveIactuallydidit.ButIwasthatdepressedaboutwhatshesaid,becauseIdidn’tmeantocreateanyproblems.BythetimeIwasoldenoughtorealizetherewereproblemsbetweenus,shehadalreadydecidedtherewasnofixingit.Shewasjusttoostubborntotrytogetheroutofhermindsetofbeinghateful.”–Youthparticipant

YouthstilldonotalwaysfeelheardorrespectedDespitesomeeffortstoelevatethevoiceandexperienceofyouth,therealityofthesystemisthatitisstilldominatedbyadultswithdecision-makingauthority.Severaloftheyouthparticipantsweworkedwithdidnotfeeltheyhadbeenheardorlistenedto,orthatyouthwererepresentedindecision-makinginthesystem:

“I’dgottenajobsothatIcouldpayforthecourtfinesandwhatnot.Theyputmeindiversion.Thatwastheotherthing.Theydidn’tgivemeachoicetojustpaymyfineandbedonewithit.Theymademegotodiversion.Diversionwantedmetogetajob,gotoschool,docommunityservice,andattendtheirgroups,allinthemiddleof


winter.TheonlywayIhadtogetaroundwasbuses,anditwasjustreallydifficultbeing16,beingshelteredmyentirelifebecauseGodforbidIleavethehouseandgoblowupagasstationorsomething–justtheworstchildintheworld.SoIdidn’treallyknowanything.Ididn’tknowwhattodo.SoIendedupgettingallmycommunityservicehoursdone,butIendeduphavingtomissthemeetings,becausetheonlynightsthatwerefreefromworkingwerethenightsthattheywantedmetogotothemeetings.Iwaslike,howamIsupposedtodomycommunityserviceontime.WhatIreallyshouldhavedonewasgoneinthereandtalkedtothemaboutit,but,whatever.ButtheystartedUAingme.”–Youthparticipant

“[Policeandprobationofficers]listentootherpeople.Theylistentowhatthejudgetellsthem,orwhensomebodyelseyouworkwithtellsthemwhat'sgoingon,theydon'tsitthereandaskyou.Theyjusttakeonwhatotherpeoplehavetosay.Whenyoudotrytosaysomething,they'regoingtolistentowhattheyhavetosayoverwhatwedo.It'salwaysthehigherpeoplethatget...Nobodylistenstowhatwehavetosay.Someofthemdo,buttherearenotverymanyofthoseothers….evenwhenIdidsaysomething,they'dconsideritasattitude,whenyou'rejusttryingtotellthemsomethingisalwaysoff."Oh,you'vegotanattitude.You'rebeingdefiant.You'readefiantjuvenile.”–Youthparticipant

“Inthejuvenilejusticesystem,youhavetheattorney,whichisanadult,thejudges,whichareadults,theprobationofficers,whichareadults,thecasehandlers,whichareadults.Caseworkersarealladults.That'sallyouworkwith,adults–besidesteencourt.Imean,thejuryareteens.”–Youthparticipant


ARTISTIC INTERLUDE: Alone

Participant-artist’sstatement:YouknowtheRedCrossthing?That'sthesymbolthatcametomind.That'swhatItriedtomimic.ThenwhatIwroteis–Idon'treallyknowwhatIwrote.Ijuststartedwriting[…]Butyeah,trauma.SeeAppendixCfortranscriptionofthetextfromAloneandaninterpretationofthework.


Factor 6: Diverse Perspectives & Experiences

Giventhewiderangeofactorsthatcomprisethejuvenilejusticesystem,thereareboundtobediverseperspectivesandexperiences.Yet,itisworthcallingattentiontosomespecifictensionsthatwereraisedbystakeholdersthatseemparticularlysalientforthisreformeffortandhavethepotentialtoderailfuturereformsifnotadequatelyaddressed.GeographicVariations

RuralNebraskansdonotfeeltheyareunderstoodorprioritizedbythoseinOmahaorLincolnWhilegapsinaccesstoservicesinruralNebraskawasdiscussedunderFactor4,thereisalsoadivideinperspectivesbetweenruralandurbanNebraskans.RuralNebraskansoftenfeeltheygetsecondbillingandthatthoseinOmahadonotunderstandtheiruniqueneedsandexperiences:

“DouglasCountykindofviewsthatnobodyknowsthetroublesI’veseen,thatthey’reuniqueandtheyhavenoother…thatnobodycancomparewiththem.”

“IfI'minBrokenBowandyou’reinOmahaandyou’renotgoingtobeabletounderstandwhateitherofeachgoesthroughtosomeextent.I’vehadsortoftwoperspectives,Ireallyhavefoundthatit’snotthatourfamiliesandkidsarethatmuchdifferent,itreallyisthoseresourcesandthenumbersinvolumeandthosekindsofthingsthatmakeusdifferent.”

“Theworldthatpeoplelivein,inLincolnandOmahaisnottheworldthatweliveinouthere.”

InreflectingonthedividebetweenOmahaandtherestofthestate,onestakeholderexpresseddisappointmentatnotbeingchosenforthefirstroundoftheJuvenileJusticeHome-BasedInitiative:

“Theysaidthatwe'renotgoingtobeabletoaccessMSTforour[town]kids.Yet,our[town]kidsreallycouldbenefitalotfromthisservice.That'swhereourhighestpopulationofjuvenilesare.Bigcityversuslittletownsversusplacesthathavemorethingsavailablethanevenoutwestwherethere’shardlyanything.Ithinkthatisabarrier.IdofeelattimesalotofthefocusisonOmahaandLincolnareasmorethantheruralareasandsowedon’talwaysfindoutaboutstuffrightaway.Orthere’vebeentimeswheresituationscomeupinonedistrictanditmightbeacommonoccurrencebuttheyaren’treallylettingtherestofusknowhey,thissituationcameupinthisdistrictandthisiskindofhowweproblemsolvedit.AndsoIthinksometimesthatcommunicationpiececouldimproveofthingsthatareseenthroughoutthestatebeingcommunicatedtoeverybodyelse.Becausealotoftimesweallexperienceasimilarsituationandsohavingalittlebitbettercommunicationsoweknowhowtomaybeproblemsolvesomeofthatasitcomesup.”


DemographicVariations

YouthofcoloraredisproportionallyrepresentedinthejuvenilejusticesystemDuringinitialstakeholderinterviews,issuesofraceandculturecameuprarely,whichsurprisedourteam.BasedonresearchwehaddoneonNebraska’ssystem,weknewthatthereweresomeconcernsaboutdisproportionateminoritycontactandwantedtoexplorethisfurtherinfutureinterviews.Wedecidedtoaddaquestionspecificallyaboutvariabilitytoseeif,whenaskeddirectly,stakeholderswouldhavemoretosayonthetopic.Indeed,thisturnedouttobethecase.Secondroundinterviewswithstakeholdersrevealedastrongconsensusthattheexperienceofyouthofcolorisoftenverydifferentfromwhiteyouth:

“Rightoffthetop,kidsofcolorsjustlikeadultsofcolor,fareworsethantheirwhitecounterpartsofinitial-stagestereotyping.[…]Youcomein.You'reHispanicorblack.You'rebad.You'reatrouble-causer.Youwalkinthedoorandyou'reapretty,little,whitegirl;you'resickandyouneedthatkindofintervention.”

“Obviously,thesystemhasnotdonewellforouryoungAfricanAmericanfolks,andalsotheyarestilldisproportionatelyrepresentedinthesystem,probablydoubleortriple.Soit’sjust…Idon’tknow.It’sfrustrating.There’ssomanyfactorstothat.There’sreportsoutaboutit.There’sreasonswhy.There’sallkindsofinputsandbiasaroundwhenyouseesomebodyandyouthinkaboutwhatkindofservicetheyneedorwhetheryouassessthemappropriately,justallthosekindsofthings.YouknowIguessIbelievethatthesystemhas,thecriminaljusticesystem,particularly,hasfailedspecificpopulations.”

Moststakeholdersidentifieddisproportionateminoritycontactassignificantissueacrossthejuvenilejusticesystem,thoughsomeattributedittomoreofaprobleminOmahathaninotherareas:

“Wellthere’saproblemjustabouteverywherewhereyouhavepeopleofcolorbecauseyoutendtohavethisproportionofminoritycontactifnotconfinement.”

“Youknow,raceIwouldsayOmahaalwayshas,youknow,alargerracialdisparitythananywhereelse.Ithinkit’sjustpockets

“Imeancertainlyinsomeofourcommunitiesacrossthestate,wedon’thaveverymuch…verymanyminorityissues,becausetherearenotverymanyminorities.”

“Ihaven’tseenanyvariationsinregardstorace.OurpopulationisnormallyCaucasian,NativeAmericans,andHispanic.Wedon’thavealotofAfricanAmericansinourdistrict.”

CultureandlanguagearenotadequatelyaddressedSeveralstakeholdersexpressedfrustrationthatthereisalackofresourcesinservingimmigrantyouthand/orfamilieswhosefirstlanguageisnotEnglish.Onestakeholdersummarizedthischallengesuccinctly:


“There’sahuge,Ithink,barriertoeffectivelyworkingwiththosewhoarenotnativeEnglishspeakersbecausethesystem,specificallyhere,isnotsetuptohandleallofthedifferentlanguagesofthefamiliesthatwe’reserving.Soitcreatesalargeproblem,Ithink,forthosefamilieswhofirstthey’reherebecausethey’veexperiencedthishorrifictraumabeingarefugeeandthentofindthemselvesinvolvedinasystemthattheydon’tunderstandisjustcompoundingwhatthey’regoingthrough.”

ThespecificlanguagesthatwerementionedininterviewsincludedLaotian,Somali,Sudanese,Burmese,ArabicandSignLanguage.Theissueextendedbeyondjustaneedforinterpreters,butalsoaddressingsomeoftheuniqueculturalneedsofthosecommunities.EconomicclassimpactsyouthexperienceandoutcomesInreflectingonsystemvariation,onestakeholderexpressedthattheyseeraceandpovertygoing“hand-in-hand,”suggestingthatvariationsbyracemaybedueasmuchtopovertyasrace.Classcameupinafewotherinterviewswherethecycleofpovertyandsystem-involvementseemedtogotogether:

“Doesn’tmeaneverykidthatevencomesfromadepressedareaisgoingtobeinvolvedincrimebutunfortunatelyifyougrowuparoundthatandthat’swhat’smodeledforyouyou’regoingtogravitatetowardsitprobablymoresothansomebodythatdoesn’thavethatmodelform.”

Inarelatedbutdifferentperspective,anotherstakeholdersuggestedthatsometimeseconomicclasscanalsoimpactaccesstoservicesandoutcomesforyouth:

“Ithinksometimestoodependinguponthelawviolationandthefamily'sdemographicsasfarasiftheyarealowerclassfamilyoramorefinanciallysetandstablefamily,Ithinksometimesweseedifferencesinthat.”

Somevariationsexistbygender,thoughthegapmaybeclosingFewerstakeholdersbroughtupvariationsbygender,butthosewhodid,highlightedtwodistincttrends.Thefirsttrendindicatesthatthereseemstobeanincreaseinthenumberofgirlsinthesystem.Afewstakeholderssuggestedthatwiththeincreaseingirlsenteringthesystem,thereisaneedformoreprogramsdesignedspecificallyforthem:

“Therearen’tasmanygenderspecificgroupsforfemalesasthereareformales,particularlyinoursysteminvolvedyouthpopulation.SoIthinkthatthatprobablyisanemergingproblemthatthey’renotevenkindofaddressingyet.”

Thesecondtrendisthattheoutcomesforgirlsthatdoenterthesystemtendtobebetter.Someattributedthistotheservicesthatareavailabletogirls,whileothersattributedittomorepaternalisticattitudesbyjudgesandlawenforcementthatleadstomoreleniency.Onestakeholdershared:

“Ourgenderdiscrimination,ifatall,ismorepositivethannegative.”


Artistic Interlude: Ollin


Participant-artist’sstatement:I’mnoartistoranything,butItriedtodrawtheollinsymbol,whichisthisrighthere.Ollinisthenameofthegroup,aswell.OllinisthecenteroftheAzteccalendar.OllinisaNahuatlwordthatmeansmovementofyourmindandheart.MymindIdrewbroken,justbecausewhenyouthendupintrouble,orjustpeopleendupintrouble,something'smissing.Something'sbroken.Ifeelthatlackofmovement,thatlackofbeingabletochange,thatlack–ofbeingstuckinanideathatsomebodygaveyou–thatyou'renotgoodenough.Thatideagettingstuckinyourmindandbeingunabletomoveforwardiswhatkeepspeopledown.It'swhatkeepsusgettingintroubleandmakingthewrongchoices.OnceagainIstartedwriting.Idon'treallyknowwhatitallmeans.I'llleaveituptoyouguystofigureitout.Ididwriteatthebottom,"Uncover,discover,andrecoveryourmindandyourheartthroughmovement,"whichisthemeaningofollin.That'swhatIgot.SeeAppendixDfortranscriptionofthetextwithintheart.


Factor 7: Surrounding Context

Inanysystem,thepolitical,economicandsocialdynamicsinwhichthesystemoperatessignificantlyinfluencewhathappenswithinthesystem.Nebraska’sjuvenilejusticesystemisinfluencedbythepoliticalclimateatthestatelevelaswellasnationally.Itisalsoclearlyimpactedbysocialandeconomicfactorssuchasimmigration,changestoMedicaid,budgetdeficitsorsurpluses,etc.Inthissectionwewillbrieflyexploresomeperspectivesonhowthesurroundingcontextiscurrentlyinfluencingthejuvenilejusticesystem.Formoredetailonhowthesefactorshaveinfluencesthesystemhistorically,seetheRetrospectiveDevelopmentalEvaluation.PolicyandPolitics

Atthestatelevel,theNebraskaUnicameralplaysasignificantroleinpassinglegislationthatimpactshowthejuvenilejusticesystemoperates.Federalpoliciesalsoinfluencefundingandprogrammingatthestatelevel.WhentheUnicameralissupportive,reformscanhappenfastSomestakeholdersfeelthattheincreasedattentionthelegislaturehasbeengivingjuvenilejusticeandchildwelfarehasbeenpositive,leadingtomoremoney,andthepassageofpositivereforms,thathavemovedthesystemforward:

“Youknow,Nebraskahasgotaunicameral.Wehaveaonehouselegislature,theonlyoneinthecountry,andsothosesenatorsthatarelookingatpassingjuvenilejusticerelatedlegislation,someofthemhaveabsolutelynobackgroundinthatatall,butthey'reinvolvedinthatprocess.Andwhatwewereseeingismoreofanacceptancebythoselegislatorstoseekusoutandsaygivemeyouropiniononthis,orgivemesomebackgroundonthis.Youknow,notlobbyingthembutbeingaresourcetothem.”

“Ithinkthewillingnessofamazingleadersinourstaterightnow,inthejudiciary,probation,legislature.ThelegislatureischangingfromtermtotermsoI'mnotsurewherewe'regoingtobethisround.Ithinkthatthere'sarealheartforatrueshifttomakeadifferenceforyouth.Itcomesdowntopeople.AndIthinkthat'sthebrightside.”

“We'vehadlegislationwhichhasgrantedProbationmoreauthorityandIthinkbyvirtueofthatgivenusanexpandedresourcepooltodrawfrom.Andthere'sbeenalotmoreattentionandImeanquitefranklytheLegislature'sbeenprettygenerous.Imeandespiteleanyears,Probation'sgottenmoremoney,ChildWelfare'sgottenmoremoney.Wecanallarguewhetherit'sbeenspentcorrectlyandwealwaysneedmore.”

“Withinthelasttenyears,thelegislaturehasmade,numberonetakenmoreinterestinjuvenilejusticeasawhole,moreconcernedwithjuvenilejusticeissues,andthey’vetriedtodosomethingsthroughlegislation,overtlegislationresultinginchangesinthejuvenilejusticesystem,orelsejustmorepolicyorwhatever.Arethosethings


alwayseffective?No.Butthatdoesn’tmeanthatyouquittryingeither.”

“Ithinktheprobationsystemisworking.Ihopethelegislaturecontinuestohavepatienceandwatchtheiroutcomesdevelop.Iliketheirmatureapproachtohelpingthesekids.”

Legislativesupportcanbeunreliableandcontingentonachievingshort-termsuccessesThelastfewquotesabovepointtosometentativenessonthepartofstakeholdersatwhatthelegislaturemightdogoingforward.Thisconnectstoconcernsotherstakeholdersexpressedaboutchallengesworkingwiththelegislaturewhentimelinesarebuiltaroundtermlimitsandelections:

“Youknow,oneofthethingsthatIthinkaboutnowthatyousaidwhat’sbeenachallengeinthejuvenilejusticereformiswehadtheLegislature’ssupportatthestartandthenitkindofwaiveredandwentsouthforsomereason.Andwestillcan’tfigureoutwhatitwasthatmadethatswitch.”

“WellIthinkthatcollaborationissocomplicatedbecauseyouhavedisconnectsinvolved,youknow?Thelegislaturerightnowisverycriticalofjuvenilejusticemovementandcriticalofchildwelfareaswell.Theylookforwhat’swronginsteadoflookingforlet’sbuildonwhat’srightandfigureouthowtofixwhat’swrong.Wehavetermlimitsinourunicameralandsothatattitude,we’llseeifthat’sthereagainthisyearwhenpeoplecomeinwhoarenew.”

“Ithinkyou’vegottoseesometrendsovertwoorthreeyearstosaynowwe’reseeingsomepositivetrendsintherightdirection.Andmakesomesmalltweaks.Youdon’tneedoverhaulreformagainorabigpush.Wedon’tneedpeopleinthelegislaturedeterminingwe’regoingtomoveitfromonetotheotherbecauseallthatdoesisslowdownand,youknow,stopalotoftheprogressthat’sgoingforward,themomentum.”

“Youknow,Ithink–Imeanlegislationdictatesalotofwhatwedo,youknow.AndImeanthat’showwe’vecomeintothatandIthinkit’seasyforlegislatorstolookatdollaramountsinthatandwhatit’scostingthem.AndIthinkwetrulyhavetolookatwhere–howouryoutharedoingandwhattheoutcomesare.AndIthinkthatchangeissomethingthatdoesn’thappeneasilyandIthinkthatourstakeholders,ourjudges,attorneysandlegislatorsallhavetostepbackandtakealookatwhat’sworking.AndIthinkmoreimportantlywhat’snotworkingandwhatwedoneedtochangebecauseweknowthatit’snotaperfectsystemyetandmayneverbetherebutwe’vegottodothebestwedo.”

NationalpolicyonjuvenilejusticeislikelytochangeunderthenewadministrationWhilenoneofourstakeholdersreferencedthe2016nationalelection,itisclearthatPresidentTrumpandAttorneyGeneralJeffSessionshaveaverydifferentapproachtocriminaljusticethanthepreviousadministration.Howthiswillaffectjuvenilejusticeremainstobeseen,butinaDecember2016interviewwiththeJuvenileJusticeInformationExchange,BarryKrisberg,


PresidentoftheNationalCouncilonCrimeandDelinquencyandcriminologistattheUniversityofCalifornia,Berkeleysharedhisperspectiveonlikelychanges.Hesuggestedthatprivatizationmayreturntofavorandevidence-basedpracticesarenotlikelytoreceiveasmuchsupportastheydidunderObama.1TheIndianChildWelfareActexpandstojuvenilejusticeAfewstakeholdersreferencedtheIndianChildWelfareAct(ICWA)anditsimplicationsonNativeYouthinvolvedinthejuvenilejusticesystem:

“It’simportanttonotethatit’snowclearthattheFederalICWARegulationswhichwillgointoeffectinacoupleofdaysnow,ICWAdoesapplytojuvenilejustice.There’ssomequestionaboutthatontheproposedregulation.SotheICWAisnottheretoprotectthejuveniledelinquencykidslikeitisfortheabuseandneglectkids,butICWAdoesapplytostatusoffensecases.Sothosecasesarecurrentlybeinghandledbyprobation.ICWAappliestothosekidsrunbyprobationbutnotfordelinquencykids.”

1Tiano,Sara.(2016)BarryKrisbergonWhereJuvenileJusticeGoesFromHereUnderaTrumpAdministration.JuvenileJustiveInformationExchange.Accessedfromhttp://jjie.org/2016/12/16/barry-krisberg-on-where-juvenile-justice-goes-from-here-under-a-trump-administration/comment-page-1/


SYSTEM ASSESSMENT Whiletheabovesevenfactorsemergedfromstakeholderinterviews,listeningsessionsandarts-basedworkshops,asthemostsignificantsystem-levelinfluencesonreform,wealsoaskedstakeholderstosharewithushowtheyassesswhetherthesystemisworkingornot.

Indicators of Success

Belowaresomeofthemajorindicatorsofsuccessidentifiedbystakeholders.ReductioninOutofHome,Out-of-StateandDetentionPlacements

Themostcommonlycitedindicatorsofsuccessofthecurrentjuvenilejusticesystemwerethereductioninout-of-homeandout-of-stateplacementsandfeweryouthplacedindetention,alongwithshorterstaysindetention:

“Out-of-homeplacementnumbersaremuchlowerthantheyusedtobewhenHHSwasinvolvedandwecontinueto–youknow,that’sagoalforusofmakingsurethatthekidsthatareout-of-homeshouldbeout-of-homeandthatwedon’thavepeopletherethatshouldn’tbeorthatthey’relingeringinplacement.”

“Andwe’veseenareductionoflowandmoderateriskyouthinoutofhomecareandsomereductionsofoutofhomeplacementlengthsandsomesignificantreductionsinoutofstateplacements,whichhasbeenexcellent,whicharereallyimportant.”

“Idon’tthinkwehavekidsthatlingerindetentionaslongandallofthatbecauseofthat.Becauseyouknowifyoucangetthefamilyinvolveditjust–andletthemfeellikethey’retheonesthatareleadingitwe’vejust–I’veseenalotbettersuccess.”

SeveralstakeholdersattributedthesuccesstotheJuvenileDetentionAlternativesInitiative(JDAI):

“AndwehaveourJDAIinitiativelikeItalkedabout,whichinDouglasCounty,despitethefactthatwestillhaveahighnumberofyouthofcolorthataredetained,wehavebeenabletoreducethenumberofkidsthatgetdetained.Imeanbackwhenwestartedthatinitiative,andIwasn’tinthispositionatthetime,buttheywerehavinglikeover200kidsdetainedinanygivenperiodoranygivenday.Andwe’vebeenabletogetdowntolike60kids.”

ReducedRecidivismandRepeatOffending

Reducedrecidivismwasraisedbymanystakeholdersasakeyindicatorofsuccess.Manyraisedissueswithmeasurement,whichwewilladdressinthefollowingsection.Butseveralstakeholdersdescribedthattheyareseeingreductionsinkidsreoffending,whichisapositivesign.Sometimesitisnotaformalmeasure,butbasedonstakeholder’sexperiences.Onejudgedescribedwhattheyareseeingthisway:

“Youknow,Ithinkoutheregenerallythingsseemtobegoingwellhere.Youknow,youhaveafewkidsthatImightsee,acoupleofkidsthatkeepcomingbackandthat


mighteventuallyworktheirwaytoKearney.Butforthemostpartthereisnotawholelotofrepeats.I'llputitthatway.”

Anotherstakeholderdescribedamoreformalprocessformonitoringyouthoncetheyarereleased:

“Afewoftheoutcomesthatwemonitorwithinallofourprogramsorallofourdifferenttracks,whichit'sallprofessionalpartners,isthatinvolvementinthejuvenilejusticeorthechildwelfaresystemafterdischarge.Wellwemonitorthatoutcomeintermsofwetypically,wellsomeofourprogramsweaskayearoutafterdischarge.Someprogramsweaskthreetosixmonthsoutafterdischargeaboutcontinuedorfurtheredinvolvement.Andweactuallydoquitewellinthatintermsofmeetingthatoutcome.Weexceedandexcelinthatregard.”

ImprovedOutcomesforYouthandFamilies

Anothercommonindicatorofsuccessforanumberofstakeholderswasimprovedoutcomesforyouthandfamilies.Whilethisconnectstoreducedrecidivism,itismoreofapositivemeasurethansimplyasking‘aretheystayingoutoftrouble?’.Itfocusesmoreonwhethertheyaredoingwell,thriving,havetheirliveschangedsincetheirinvolvement?Stakeholdershaddifferentwaysofmeasuringthisoutcomeintheirownwork:

“EveryonceinawhileI'vehadsomeyouknow,kidscomeuptomeyouknow,andsayyouknow,thankyou.WhetheritwasplacingthemonprobationforayearwithaGPStracker,andmakingthemgotoevaluationsandweardrugpatches.OrIcaneventhinkofoneinstancewheretheyoungmanwassenttoKearney,whoafterwardsthankedme.Andsaid,"Youknow,Ineededtogetawayfromherecompletely,andthatkindofopenedmyeyesalso."Andsoyouknow,otherthanthat'stheonlyoneIcanreallytellthingsareworkingifsomeyoungpersoncomesupandthanksmeorifIdon'tseethemagain.”

“WellIthinkyouseeit–youknow,likeIsaidwhenyouhaveyourofficersholdingteammeetings,whenyouseefamilythatarebecominginvolvedandshowapassionforthatyouth,andyouhaveayouththat’smakingimprovementsalotoftimesthat’sseenintheclassroomandtheeducationsetting.Soalotoftimesthat’swhereyoucanseeadirectbenefitofifyou’regettingtowhereyouwanttobe.AndalsoIthinkthatsomeofit’sjustthecorrespondencewiththeyouth,youknow.Sometimesyoujustseethatswitchthatfinallyslippedandyouseethatdirectly.”

“Weutilizeassessmentstomeasurefamilyfunctioningandalsotomeasureimpactofmentalhealthconcerns.Andweevaluatethatpreandpost.Weusuallyevaluatethateverysixmonthstomonitortheprogressandhowthingsaregoing.Anecdotallyweknowthatwe'redoingwellwhenafamilyisengaged,remainsengaged,completesthegoalsthatthey'veidentified,anddoesn'tfeelliketheyneedusanymore,havethesupportsinplace.”

“[ProjectHarmony]hasdonesomeexceptionalpanelsattrainingliketheNebraska


JuvenileJusticeAssociationConferenceandthosetypesofthingswhereit’sreallyjustyouthtalkingabouttheirexperienceinthejusticesystemandwhatwentwellandwhatwenthorriblywrongandwhatcouldhavebeendonedifferentlytohavemadethemsuccessful.Andpersonally,Ithinkthatismuchmorepowerful.Youknowyouneedboth,right?Youneedthesciencebutyoualsoneedthepersonalstoryofhowpeoples’livesareimpactedandhearingitfromtheyouthIthinkisextremelypowerful.”

OtherIndicators

Afewothersuccessespeoplepointedtoweretheincreaseduseofdiversion,reductioninkidsonprobationfortruancyandfewercasescomingthroughthesystemingeneral.Regardingdiversion:

“Thecountyattorneyhasbeenworkingreallywellwithourjuvenileassessmentcentertotrytodivertasmanykidsaspossiblefromtheformalsystem.Sothat’sanothersuccessthatwehaveseenherethroughthesystemreformefforts.”Anotherstakeholderconnectedthereductioninkidsonprobationfortruancytouseofdiversion,amongotherthings.Intheirwords,“In2012,wehadabout400kidsonprobationfortruancyandnowweareprobablyat200orless.Andthosekidsareprettycomplicated,wherewe’vetriedhardtododifferentthings,ortheschool’striedhardtododifferentthings,anddiversion’stried.”

Regardingcasenumbers:

“Ijustgobythenumberofcasesthatwehavegonethrough.IknowwhenIfirststartedin2010,Ihad,Ibelieveitwas110casesthathadcomethroughandeverything.Ican’trememberthetotalbreakdown,butinthisrecentonethatwehadIthinkIwasupto66,ourlast,the2016.Ilookatitasthenumbersgoingdownandthatmorekidsareseeingthatit’snotnormaltobesitting[incourt].”

Indicators of Gaps

Wealsoaskedstakeholderstosharewhatdataorevidencetheyusetoassesswherethingsarenotworkinginthesystem.Belowaresomeofthemajorindicatorsofgapsinthesystemidentifiedbystakeholders.Over-representationofMinoritiesintheSystem

Oneofthemostcommongapsinthejuvenilejusticesystemraisedbystakeholdersisthedisproportionaterepresentationofminoritiesacrossthesystem.WhilethisissueisdiscussedinboththeRetrospectiveDevelopmentalEvaluationandelsewhereinthisreport,itbearsrepeatingintherealmofdataongapsthatthisisasignificantissue:

“LikeinmyrealmwhenIlookatdetention,kidsofcolorareoverrepresentedbyanastronomicalridiculousamount.It’shorrible.”

“DependingonwhichmonthyoulookatthedataweactuallyhaveaworseDMCissue


thanwehadbefore.That'sallpublicinformation,I'msureyou'llseethat.Wehaven'tmadeanyprogress.That'sastrongstatement.Ifwe'remakingprogressthedataI'veseenisnotshowingwe'remakingprogress.We'redoingalotoftalkingaboutit.We'redoingalotofyes,thisisaproblem.Thedatadoesn'tshowitatthispoint.”

Recidivism&Reentry

Whilerecidivismwasraisedasanindicatorofsuccess,therearealsosomeareaswhereitisindicativeofthesystemnotworkingaswellasitshould.Onestakeholderdescribedthatattentiontomeasuringandtrackingrecidivismhasincreased,butitremainsachallenge:

“It’sunfortunatethatit’stakenusaslongasithastotryanddorecidivism.Recidivismhopefullyinthenearfuturewe’llbeabletostarttrackingthatonaregularbasisthekidsthatarecomingbackthroughthesystem.Ithinkwe’regettingbetter.IdidashortbriefstudymyfirstorsecondyearcomingbackintoJuvenileProbationtotryandsparkthesystemtosayweneedtodosomethingdifferentbecausealloftheChiefsandtheProbationOfficerssayaresystem’sfine.SoIwentandItookasnapshotofthejuvenilesthatwehadonprobationfiveyearsprior.Wecrossreferencedthemwiththoseadultsthatcameontoprobationandwhatwasthepercentageofthosejuvenilesthatwehadfiveyearspriorthatcameontoadultprobationnow…..andthatwasstunningthat46percentofthejuvenilesthatwesupervisedonJuvenileProbationgraduatedandwesuperviseonadultprobation.Sothattellsyouitwaswayover50percentbecauseitexcludesthatrecidivated.Itexcludesthosethatgotstraightcourtsentencesanditexcludedthosewithnamechangesorexcludedthosethatgotintroubleinotherstates.”

Anotherstakeholdersuggestedthatlookingatthedataonreentryandrecidivismcallsintoquestionwhethergoalsareevenrealistic:

“Ijusthadaconversationearlierinthedaywith[name]aboutwewerelookingatsomereentrydataonkidscomingbackfromtheYRTCandrecidivismanditwasyouthspecific.Soitwasthenameofoneyouthandallofthechargesandtheywenttothefacilityandthen,youknow,someofthosewerechargesthathappenedaftertheycameout.AndsoIthinksome–inlookingatthatitwasjustkindofahhasnapshotformeofwehavesome.Isupposeweunrealisticallysetabarthatpeoplecan’tmeet.”

OtherIndicators

Similarly,whilethenumberofkidsinout-of-homeplacementhasgonedown,itremainshigherthanmoststakeholderswouldlike.Othernumbersthatstakeholderswouldliketoseegodownincludethenumberofkidsundercourtjurisdictionoronprobationingeneral.Thesamestakeholderswhodescribedtheirexplorationofrecidivismabovesummarizedwhattheylookattoseeifthesystemisfailing:

“WellonasystematiclevelImeanyourdataisgoingtoshowwhenthingsaren’tworkingwell.You’regoingtostartlookingatlongerstintsonprobation,moremotion


torevokes,morekidsbeingdetainedinacertainarea,andthosetypesofthings.Soyou’relookingatthatdata.Thosedatacantriggeryouto–okay,there’sanissuehere.Andthenyoudrilldownastowhyandwhatneedstobedone.Sofromanadministrativeperspective,that’swhatIwouldlookat.Andthendrilldownandfigureoutwhatneedstochangeandthenimplementsomeofthosechanges.Andwecontinuetodothatwithwhatwedo,whetherit’sGEI,whetherit’scrossoveryouth.We’rereallytryingtoimprovethesystemandgetmorefluidinwhatwedoandimplementstrategiesacrossallboards.SothosearethethingsthatIwouldtakealookatthatwouldshowusthatthingsaren’tworking.Ifweseeahugespikeinjuvenilecrimeacrossthestate–okay,whyisthat?Orinacertainarea,whyisthat?Anddrilldownonthosethingstoseewhat’snotworkingandthenimplementstrategiestoo.”

Beyondsystem-specificnumbers,somestakeholderssuggestedthattheylooktoindicatorsinpeople’slivestodetermineifthesystemissupportingyouthtobesuccessful,suchasgraduationandunemploymentrates.Regardinggraduationrates:

“Andthegraduationrateforstatewordsisabysmal,right?Likeifyouwereasysteminvolvedyouththelikelihoodthatyou’regoingtofinishanddowellinschooljustplummets,right,andsoIthinkthereareotherindicatorsthataregoingtobetellingusarewebeingsuccessfulwithourkids,right?”

Regardingunemployment:

“We'reoneofthelowestifnotthelowestinthenationmostmonths.ButI'mlookingatanddealingwithanunemploymentrateinoneparticularpartofthemetropolitanareathatisintheteens,ifnotapproaching20percentileondifferentaspectsatdifferenttimes.Whenyouhavethatbyitselfandyouhavethenumberofsingleparentsandthenumberofincarceratedparentsthatweseeinsomeofthosedifferentareasyou'reawarethatthere'smoreaffectingtheyouththaninotherplaces.”


IMPLICATIONS FOR THE JUVENILE JUSTIVE HOME-BASED INTIATIVE

Basedontheanalysisprovidedabove,wehaveidentifiedsomewaysinwhichtheJuvenileJusticeHome-BasedInitiativecanbuildonthesystems’strengthsandaddresssomeofthechallenges.WhiletherearechallengesthatareoutofthecontroloftheInitiative,manycanbeaddresseddirectly,orindirectly,bytheCourtImprovementProject(CIP)oritspartnersintheInitiative.Factor1:Staffing&Leadership

WhilemanyaspectsofstaffingandleadershipareoutsidethecontrolofCIP,thereareseveralwaysthatitcaninfluencestaffingdecisionsmadebyitspartnerssupportthethingsthatareworkingwell:


• Continueofferinghigh-qualitytrainingandstaffdevelopment• Continuetoengageandsupportleadership• Ensureprogramstaffrepresentthecommunitiestheyserve


GiventhattheJuvenileJusticeHome-BasedInitiativeisacollaborativeproject,payingattentiontohowwellcollaborationandcommunicationishappeningacrossthesystemwillbeimportanttothesuccessoftheInitiative:


• Keeptheprogramassimpleandtransparentaspossible• Buildtrustacrossagenciesbyreducingcompetitionforfundingwhenpossible

Factor3:DataCollection,Management&Use

Accesstoaccurate,credible,reliableandusefuldataisofutmostimportancetoCIP’sabilitytounderstandhowwelltheInitiativeismeetingitsgoals.Whiletherehasbeenalotofprogresstowardsmorestreamlineddatacollectionacrossthestate,theInitiativewoulddowelltoworkwithinwhatisalreadybeingbuilt:

• Coordinatewithexistingeffortstostreamlinedatacollectionandmanagement• Usemixedmethodstoallowforqualitativedatatotellthestorybehindthenumbers• Buildtrustthroughtransparentuseofdatatoimproveprograms

Factor4:AllocationofResources

TheJuvenileJusticeHome-BasedInitiativeisreallydesignedtoaddressthisaspectofthesystembyallocatingmoreresourcestowardscommunityandevidence-basedpracticesthatkeepkidsintheirhomes.Still,therearesomeimportantfactorsatplaythatcanmakeorbreaktheInitiativeasitrollsout.SomeactionsCIPanditspartnerscantakeinclude:


• Continuetoinvestincommunityandevidence-basedpractices• Continuedialogueswithstakeholdersacrossthestatetofostersupportforkeepingkids

closetohome• Ensurethatruralareasofthestatedonotgetleftbehindastheprojectrollsout• Payattentiontowheregapsinthecontinuumofcarecontinuetoexistandaddress

themwhenpossible

Factor5:LivedExperienceofYouth&Families

Payingattentiontohowyouthandfamiliesmovethroughandinteractwiththesystemiscriticaltothisreformeffort.ThereareanumberofwaysthattheJuvenileJusticeHome-BasedInitiativecanworktoelevatethevoicesofyouthandfamilies,including:


• Documentandsharesuccessstoriesofyouthplayingaroleintheirownrehabilitation• Ensureprovidersareusingatrauma-informedapproach

Factor6:DiversePerspectives&Experiences

TheInitiativewillnotbeperceivedorexperiencedthesamebyeveryone.CIP,anditspartners,shouldcommittocontinuingtoengagestakeholdersastheprojectrollsout,todocumentandaddressdifferingperspectivesandexperiences.Specifically,CIPcan:

• PayattentiontohowthisInitiativeisperceivedindifferentareasofthestateandmakeeffortstoensureitrollsoutinawaythatdoesnotfostertheurban/ruraldivide



Byitsnature,thislastfactorislargelyoutofthecontrolofCIPanditspartners.Still,thereareseveralwaysCIPcanaccountforpotentialchangesincontextthatmayinfluencetheInitiative’ssuccess:

• TrackmajordevelopmentsinpolicythatmayimpacttheInitiative• Diversifyfundingsourcestoeliminatemajorimpactsofbudgetshortfalls• Communicateshort-termsuccessestobuildongoingsupport


CONCLUSION Thissystemsanalysisprovidesanin-depthlookatthecurrentjuvenilejusticesysteminNebraska–itsstrengthsandchallengeareas–asidentifiedbyadultandyouthstakeholderswithinthesystem.Itreflectstheperspectivesofadiverserangeofindividuals,butisbynomeansexhaustive.AstheJuvenileJusticeHome-BasedInitiativerollsout,thisanalysiscanhelpthoseinvolvedbuildoncurrentstrengthsandopportunitiesandanticipateorpreemptivelyrespondtopotentialbarriersorchallenges.Part3ofthisDevelopmentalEvaluation:Vision,GuidingPrinciplesandStrategies,providesadditionalguidancefortheJuvenileJusticeHome-BasedInitiativebyidentifyingavisionandsetofprinciplestoguideitsdevelopmentovertimeandacrosssites.


APPENDIX

Appendix A: Role Model

Description

(Currentorientation)SnowingoverhousedecoratedforChristmas,labelled“family”.Twowindowswithcross-stylepanes.Wreathoverthedoor.Nobottomtothehouse.Christmastreesurroundedbypresents.Interiorscene(nosnow).Labelled[participantname].(Note:Participantsconsistentlyincludeddepictionsoftreeswhendrawingimagesofhome.)Sixsmallframesarranged3acrossby2down.Allframeslabelled“family”Onefigure.

1.Singlefigure,house,twofigures.2.Fourorfivefigures,runningtoplaying.3.Dinnertablewiththreefiguresonleftside,oneatheadofthetable.Twoemptychairsonrightside.Nochairorfigureonthebottom.Ninedishesonthetable.4.Fourseatedfigureswatchinglargescreen(movieorlargeTV).Screenisblank.5.Eightfiguresgatheredbehindacoffin.ThecoffinisclosedandreadsRIP.6.FivefiguresgatheredatChristmas.Christmastreeandpresentsonleft.Decorationsovertopright.Middle/bottomright:Fourfiguresseemtoberunningormovingtowardstheright.Onefigurelaysonthefloor,perhapsdeadorinjured.

Betweenframes5and6,onefigure,roundedlegsandtorso,withsingle-linearms,ovalhead,andhairorhat.Thisfiguremaybelookingtowardtheviewer,towardsthe6panels,orboth.(rightrotation)Toddlerviewsadultinmirror.Bothfiguresarefullyformed,notstickfigures.Toddlerwearsadiaperbutnothingelse.Toddlerissmiling,eyesclosed,notnoticeablygendered.Handsonhips.Feetarevisible.Nexttothetoddlerisafull-lengthovalmirror.Mirrorseemstohavehingesontheframesoitcanberepositioned.Mirrorframehasfeet.Thefigureinthemirrorisalsofullyformed,male-gendered,30-40’s.Short,neathair.Smilingwitheyesclosed.Wearingasuitwithtie,tiepin,handkerchief.Novisiblefeetorshoes.(leftrotation)“Help”Sixsmallframes,arranged2acrossbythreedown.Framesarenotlabelled.

1.Unformedstickfigure.“Help”inasoundbubble.2.Oval.3.Twostickfiguressitacrossatableordesk.Figureonleftsitsupstraight.Figureincenterslouchesorhunchesover.Centerfigurethinksofthreeotherpeopleinthoughtbubble.4.Threebottleswiththe“No”signoverthem.Onebottlemayholdpills,whiletheother


twoholdliquids.5.Figureinframewithlargewindow.Windowhasgridorbarsacrossit.Linedrawnthroughthewindowin“No”sign.6.Blank.

Interpretation

Thisartcomesinseveralpanelsorframes.IneachrotationofRoleModel,weseeself-representations.Oneisastickfigure,oneisagingerbreadman-typehumanform,andthelasttwoarefullyformedhumanswithfacesandclothing.Thisindicatesthattheparticipant-artistpossessedthetalenttodrawrealistichumandepictions,butchosenotto.Thesefourself-representationsdepictvaryinglevelsofemotionalsalience.Thesmallstickfigure(leftrotation)mayindicateapoorlyformedsenseofself,powerlessness,ordepression.Thegingerbread-stylefigure,situatedbetweenscenesoffamily,death,andrenewal,connotestransitionandtransformation.Theinfantsymbolizespotentialandasenseofpurpose.Theinfantisalsotheonlyself-representationwithfeet,whichmayconnoteasenseofmovement.Theadult“RoleModel”isanolderandsuccessfulversionoftheinfant,seeinghimselfinthefuture.However,themirrorhasfeetandtheabilitytoswivel,whichmayindicatethattheparticipant-artist’shopesforthefuturearenotyetfixed.Themultiplepanelsandshiftingperspectivesmayrepresentacomicbook-stylelayout.Inthatcase,eachframerepresentsamomentintime.Spacebetweenframesrepresentthepassageoftime,andlargerframescarrygreatersalience.However,thatinterpretationalsoconnotesalinearexperience.ThesmallpanelsdepictingscenesoffamilylifeareveryreminiscentofthefolkartpotteryofConsueloRendónofTzintzuntzan,Mexico(below).HerartdepictslifeinandaroundLakePátzacuaroonbowls,plates,andcups.Theartissimplified,butnotsimplistic.Rendón’sfamilyhasbeenmakingthistypeofartsincetheearlypartofthe20thcentury,andtheirartisnowfairlycommoninMexicanhouseholds.AreadingofRoleModelasalinearorcyclicalpathlimitsavenuesofinterpretation.ItmaybemorehelpfultolookatRoleModelasacollection,whereeachimageisaself-containednarrative,andalsopartofalargerwhole.


Appendix B: Scales of Justice

Interpretation

Whiletheartist’sstatementisfairlyself-explanatory,ScaleofJusticeincludestellingdetails.Youth(right)aredepictedasmaleandfemalewithfullbodies,andfaceless.TheJusticesystem(left)isdepictedinsymbols:money,astrong-arm,andaConfederateFlag.Theunbalancedscalestipinthedirectionofthesystem,nottheyouth.Whilebalancedscalesoftensymbolizecourtsystems,somecourtsinNebraskaandotherstatesuseunbalancedscalestosymbolizethecourt.Unbalancedscalescansymbolizeacourtweighingevidence,ormaysymbolizeanunfairjudgement.


Appendix C: Alone

Transcription

Iguesswejustbegin.Idon’tknowwhatthisis,it’shardtounderstandbutitisalwaysthere-deepinsidelikeathornonmyside-hardtobreathewearsmeout,howamIsupposedtobealiveorliveforthatmatter-thisisnotnormalthebe[…]ofairbringsmedown-breakingdownbutalwayspretending.Ihide,don’taskmewhy-youcan’tfindme-Ican’t,Ijustcan’t,fearandanguish-thelonelinessismycomfortitiseasierthansharing-fightthruityousay?WalkinmyshoesI’llreply.Ihatethispressure.WhatamIsupposedtobe?Whatyouwantmetobe?Whosaysthisiswhatissupposedtobe?!Whoareyoutotellmethis?!Ihateit,allthetimeIhateitforgetsoundlikemyrest-peaceful!NomorehidingPicturemyheartconstantlycrushedbetweenthesharpestrockswithinthegripofuncertainty,likebeingpunchedinthechestbytheoneyoulovethemost-breathlessandnumb-sickenedtothestomach-emptyandpale.Abouttheform

Concretepoetry(alsoknownasshapepoetryorvisualpoetry)isatypeofpoetrywherethetypographicaleffectorshapeofthewordsconveysasmuch,ifnotmoremeaningthanthetextitself.TheearliestknownexamplesdatebacktoGreecein3rdcenturyBCE.Jewish,Islamic,andearlyChristianwriterswroteconcretepoetry,asdid20thcenturyFuturistandDadaistpoets.Contemporarypoetsoftencombineconcretepoetrywithfoundpoetry(poetrygeneratedfromdiscardednotesandother“found”documents)orerasures(poetrycreatedbyremovingpartsofalargertext),astheseformsallexpressmeaningvisually.Interpretation

TheRedCrosssymbolcommonlymeansmedicine,firstaid,orhelp.However,theRedCrossisalsoaprotectionsymbol,markingpeopleandobjectsactingincompliancewiththeGenevaConventionsduringwartime.TheGenevaConventionsspecifythatnon-combatants(includingdetainees)shallinallcircumstancesbetreatedhumanely,andprohibitsviolencetolifeandperson,

outragesuponpersonaldignity,humiliatingordegradingtreatment,thepassingofsentenceswithoutaffordingallindispensablejudicialguarantees,collectivepunishment,andmassforcibledeportations.Further,theICRChasspecifiedthattheRedCrosssymbolshallbemadeoffivesquaresofequalsize.WecanreadAlonewiththepopularunderstandingoftheRedCrossinmind.Inthisinterpretation,theparticipantasksforhelporaid.“Deepinsidelikeathornonmyside-hardto


breathewearsmeout,howamIsupposedtobealiveorliveforthatmatter”turnsphysicalsymptomsintometaphorsforemotionalpainanddesperation.Theentiretyofthelaststanza,“Picturemyheartconstantlycrushedbetweenthesharpestrockswithinthegripofuncertainty,likebeingpunchedinthechestbytheoneyoulovethemost-breathlessandnumb-sickenedtothestomach-emptyandpale”canbereadalistofinjuriesofawar-wearysoldier.However,wecanalsoreadAloneasaprotectionsymbol.Inthisreading,“WhatamIsupposedtobe?Whatyouwantmetobe?Whosaysthisiswhatissupposedtobe?!Whoareyoutotellmethis?!”invokesprohibitionsagainsthumiliatingordegradingtreatment.Inthisreading,theparticipant-poetestablishesthepoemasasiteofresistanceandsafety.


Appendix D: Ollin

Transcription

Text(top):LaCulturaCora-Cultureheals,healingcomesthrupeopleandsodoesthepain.LaCulturacorathroughtimeandeffortwithmovementandheart.[obscured]La[cultur]aCorawithea[ch]otherwithPride[unk]eunitedbebr[…mo]vementist[the…]withyoumind.Text(bottom):Withinthecollectivegatheringandwisdomofourcommunitiesexiststhepowertoheal-wemustremindthemoftheirsacrednessandthecreator’spurposefortheirlives

LEARNINGPLAN


TABLE OF CONTENTS OVERVIEW......................................................................................................................................1

KEYINDICATORSOFSUCCESSANDGAPSINNEBRASKA’sJUVENILEJUSTICESYSTEM..................1

IndicatorsofSuccess..................................................................................................................1

IndicatorsofGaps......................................................................................................................1

3KEYLEARNINGPLANCONCEPTS..................................................................................................2

7KeyFactorsInfluencingNebraska’sJuvenileJusticeSystem:..................................................2

7GuidingPrinciplesforaYouth-CenteredHolisticApproachtoJuvenileJustice......................3

FactorsandGuidingPrinciples:WhattoWatchandIndicatorsofPositiveChange..................4

MountainofAccountability........................................................................................................5

FACTOR1:Staffing&Leadership...................................................................................................6

FACTOR2:Collaboration&Communication..................................................................................7

FACTOR3:DataCollection,ManagementandUse........................................................................8

FACTOR4:AllocationofResources................................................................................................9

FACTOR5:LivedExperienceofYouth&Families........................................................................10

FACTOR6:DiversePerspectives&Experiences...........................................................................11

FACTOR7:SurroundingContext..................................................................................................12

RECOMMENDATIONSFORTHEJUVENILEJUSTICEHOME-BASEDINITIATIVE..............................12

CURRENTEVALUATIONSUPPORTSANDGAPS.............................................................................13

CONCLUSION................................................................................................................................17

TABLE OF TABLES Table1:KeySystemFactorsandDescriptions...............................................................................2

Table2:WhattoWatchRelatedtoKeySystemFactorsandGuidingPrinciples...........................4

Table3:EvaluativeQuestionsforJJHBI:StaffingandLeadership..................................................6

Table4:EvaluativeQuestionsforJJHBI:CollaborationandCommunication..............................7

Table5:EvaluativeQuestionsforJJHBI:DataManagementandUse...........................................8

Table6:EvaluativeQuestionsforJJHBI:AllocationofResources..................................................9

Table7:EvaluativeQuestionsforJJHBI:LivedExperienceofYouthandFamilies.......................10

Table8:EvaluativeQuestionsforJJHBI:DiversePerspectivesandExperiences.........................11

Table9:EvaluativeQuestionsforJJHBI:SurroundingContext....................................................12

LearningPlan:DevelopmentalEvaluationofJuvenileJusticeReforminNebraska|Page1of17

OVERVIEW ThepurposesoftheDevelopmentalEvaluationoftheJuvenileJusticeHome-BasedInitiativewereto1)describehowtheinitiativefitsintothelargerpictureofreform,and2)identifywhatsystemschangesareneededtomakethegrantasuccessfulendeavor.Tosupportthispurpose,TerraLunaCollaborativeconductedamulti-methodprocessesthatengagedstakeholdersinsharingtheirperspectivesontheJuvenileJusticeHome-BasedInitiative,andonthebroaderreformefforts.Datawascollectedthroughinterviewswith90keystakeholdersacrossNebraska’sjuvenilejusticesystem,listeningsessionswith25adults,workshopswith25system-involvedyouth,andareviewofhistoricalandcurrentdocumentsrelatedtothesystem.Formoredetailsontheprojectandmethods,pleaserefertotheDevelopmentalEvaluationSummaryDocument.Thislearningplanpresentedinthisdocumentis1)basedonwhatwelearnedthroughtheretrospectivereviewandcurrentsystemanalysis,2)groundedinthe‘7GuidingPrinciplesForAYouth-CenteredHolisticApproachtoJuvenileJustice’,3)orientedtosupportaccountability,evaluation,andlearning,and4)providedirectionforthesystemasawholeandfortheJuvenileJusticeHome-BasedInitiativespecifically.

KEY INDICATORS OF SUCCESS AND GAPS IN NEBRASKA’S JUVENILE JUSTICE SYSTEM

Thereweresomeindicatorsthatemergedasthemostsignificantsystem-levelinfluencesonreform,fromstakeholderinterviews,listeningsessions,andarts-basedworkshops,wealsoaskedstakeholderstosharewithushowtheyassesswhetherthesystemisworkingornot.

Indicators of Success Thefollowingindicatorswerecitedbystakeholdersassomeofthemajorindicatorsofsuccessinthejuvenilejusticesystemcurrently:

• Reductioninout-of-home,out-of-stateanddetentionplacements• Reducedrecidivismandrepeatoffending• Improvedoutcomesforyouthandfamilies• Increaseduseofdiversion• Reductioninkidsonprobationfortruancy• Fewercasescomingthroughthesystem

Indicators of Gaps Thefollowingindicatorswerecitedbystakeholdersassomeofthemajorindicatorsofsuccessinthejuvenilejusticesystemcurrently:

• Over-representationofminoritiesinthesystem• Challengeswithmeasuringrecidivismandreentry• Lowgraduationratesforsystem-involvedyouth• Highunemploymentratesincertainareasimpactingyouth

Eachoftheseindicatorsrequirescommunicationandacrossmultipleagenciesandsectors,andtherearemanyfactorsthatmustbeaddressedtoseechanges.ThisreportlistssomeofthosefactorsandproposesalearningplanfortheJuvenileJusticeHome-BasedInitiative.


3 KEY LEARNING PLAN CONCEPTS TosupportlearninganddevelopmentoftheJuvenileJusticeHome-BasedInitiative,weintegrated(1)thesevenkeyfactorsidentifiedinthesystemanalysiswith(2)thesevenguidingprinciplesthatcameoutofthevisionofaYouth-CenteredHolisticapproachtojuvenilejusticeinto(3)theMountainofAccountability,aframeworkthatidentifiesthreeprimaryareasofaccountabilitytoguidedatacollectionandevaluation:

- ManagementProcessesandAccountability- Impact- Learning,DevelopmentandAdaptation

ThefactorsidentifiedinthesystemanalysishelptoprioritizewhataspectsofthesystemaremostlikelytoinfluencetheJuvenileJusticeHome-BasedInitiative,whiletheguidingprinciplesdescribehowtheworkwillbedone.Webelievethattakenasawhole,addressingthesevenfactorsinawaythatisguidedbyprincipleswillresultinpositivechangesonindicatorsofsuccessandgaps.

7 Key Factors Influencing Nebraska’s Juvenile Justice System: Basedoninterviewswith90adultstakeholders,threelisteningsessionswith25adultstakeholdersandfivearts-basedworkshopswith25system-involvedyouth,alongwithananalysisofkeydocuments,weidentifiedsevenfactorsthatseemtobekeytounderstandinghowwellthejuvenilejusticesysteminNebraskaisservingyouth,familiesandcommunities.ThefactorsaresummarizedinTable1below.Formoredetail,seePart2ofthisDevelopmentalEvaluation.Table1:KeySystemFactorsandDescriptions

FACTORS DESCRIPTIONOFTHEFACTORFactor1:Staffing&Leadership

Systemsaremadeupofpeople,soitisimportanttounderstandtheissuesthatimpacttheindividualswhoworkinandmakedecisionsaboutthesystem.


Issuesofcollaborationandcommunicationhighlighthowwelltheagencieswithinandconnectedtothejuvenilejusticesystemandthepeoplewithinthemworktogether.

Factor3:DataCollection,ManagementandUse

Theabilityofactorsinthejuvenilejusticesystemtounderstandwhatishappeninginthesystemiscriticaltoanyefforttoimproveorreformit.

Factor4:AllocationofResources

Whethermoney,time,training,expertise,legislation–payingattentiontowhereresourcesarebeinginvestedcanbetellinginasystem.

Factor5:LivedExperienceofYouth&Families

Itiscriticaltorecognizethatthesystemisnotonlycomposedofpeople,butultimatelybothimpactsandisimpactedbythelivedexperienceofthosewhoselivesaremostatstake:youthandfamilies.

Factor6:DiversePerspectives&Experiences

Giventhewiderangeofactorsthatcomprisethejuvenilejusticesystem,itisimportanttounderstandhowperspectivesandexperiencesvaryacrossthestate.


Inanysystem,thepolitical,economic,andsocialdynamicsinwhichthesystemoperatessignificantlyinfluencewhathappenswithinthesystem.


7 Guiding Principles for a Youth-Centered Holistic Approach to Juvenile Justice TakingaYouth-CenteredHolisticapproachmeansseeingtheyouthpersonasawholeperson,andworkingwithnotonlytheyoungperson’sbehavior,butalsotheirhealth(mental,physical,andemotional),familysystem,schoolsystem,andotherimportantsystemsandnetworksintheirlives.

Relationship-Based Collaboration Worktowardspositiveoutcomesforyouthinthecontextofsupportive,collaborativeinterpersonalrelationshipswithyouth,relevantfamilymembers,andcolleagues.

Coordinated Holistic Continuum of Care Beresponsivetothewholeperson,includingtheirmental,physical,socialandbehavioralhealthandcoordinateacrosssystems–schools,communities,agencies–toprovideaseamlesscontinuumofcare.

Inclusive and Culturally Responsive Recognizethatyoungpeople’slivesarepowerfullyshapedbytheirdevelopmentalstage,culture,family,andcommunity.AddressthedocumenteddisparitiesintheNebraskajuvenilejusticesystemincludinggeographic-baseddisparities,racialdisparitieswithinclusiveandcontextuallyresponsivestrategies.

Trauma-Informed Designinterventions,responses,andsolutionsbasedontherecognitionthatsomeofthebehaviorsthatyoutharestrivingtochangemaybemaladaptiveresponsestotrauma,andthatrecoveryandhealingmaybeessentialtoaddressinganyothertypesofbehaviorsorlifestylechanges.

Strengths-Based Family Involvement and Support Seeandrespondtothestrengthsandresilienceinyouthandfamiliesbyprovidingservicesthatstrengthenthefamily’scapacitytoprovideguidanceandsupervisionandtopreventinvolvementinthejuvenilejusticesystem.

Youth and Family Voice and Empowerment Provideyoungpeopleandfamiliesconsistent,formalopportunitiestohaveinputintohowdecisionsaremade,andhowservicesareimplementedandevaluated.

Less is More Ensurethatyoungpeoplearedivertedfromjuvenilejusticesysteminvolvementwheneverpossible,sotheydonotgetdrawnfurtherintothesystemthannecessary.

Youth

Family

Peers and School

Community


Factors and Guiding Principles: What to Watch and Indicators of Positive Change Takentogether,the7factorsand7guidingprinciplescombinetogivedirectionaboutwhattowatchandindicatorsofpositivechange.Table2:WhattoWatchRelatedtoKeySystemFactorsandGuidingPrinciplesKeySystemFactors WhattoWatch IndicatorsofPositive

ChangeAlignmenttoGuiding

Principles1 Staffing&

Leadership• StaffandLeadership

Turnover• Diversityofstaff• Youthandfamily

perceptionofstaff

• Turnoverratesdecline

• Youthperceptionofcare/compassionincreases

• Staffreflectthecommunitiestheyserve

• Strengths-BasedFamilyInvolvementandSupport

• Culturallyresponsive

2 Collaboration&Communication

• Relationships • Relationshipsgrowstrongerwithinandacrossagencies

• Relationship-basedcollaboration

3 DataCollection,Management&Use

• Measurement• Methods• Datause

• Sharedmeasurement

• Mixedmethods• Datausedto

improveprograms

• Coordinatedholisticcontinuumofcare

4 AllocationofResources

• Whereresourcesareallocated

• Availabilityofservices

• Equityinaccesstoservices

• Coordinatedholisticcontinuumofcare

• LessisMore

5 LivedExperienceofYouth&Families

• Whenandhowyouthandfamiliesinvolvedindecision-making?

• Howistraumabeingaddressed

• Youthandfamiliesarecentraltodecisions

• Trauma-informed• YouthandFamily

InvolvementandEmpowerment

6 DiversePerspectives&Experiences

• PerceptionsofstakeholdersinruralNebraska

• Disproportionateminoritycontact

• Experiencesacrossculture,classandgender

• RuralNebraskansreceiveequitableallocationofresources

• Disparitiesinthesystemgodown

• CulturallyResponsive

• LessisMore• Inclusiveand

contextuallyresponsive

7 SurroundingContext

• Policiesatstateandnationallevels

• Budget

• Legislatorssupportlonger-termoutcomes

• Inclusiveandcontextuallyresponsive


Mountain of Accountability

We’veproposedalearningplanorganizedaroundtheMountainofAccountability©,developedbyMichaelQuinnPattonfortheBlandinFoundation.TheMountaindemonstratesdifferentlevelsoflearningandallowsustoseethateachoftheselevelsrequiresrobustanddistinctevaluationsandassessments,andthattheselevelsneedtointeracttosupportthedevelopmentofsystemschange.InthewordsofPatton,

“Upwardarrowsalongtheleftsideshowthatroutinedatainformhigherlevelinquiry,anddownwardfeedbackarrowsalongtherightsideshowthatwhatislearnedatthetopinformsstrategiesandactionsatthelowerlevels(e.g.,thatreflectivepracticeinformsfuturestrategicplanningandoperationsmanagement).”

LEVEL1:BASICACCOUNTABILITYThefirstlevelofaccountabilityfocusesonfundamentalsandanswerstwobasicquestions:Didweimplementourworkasplanned?Didwemeetbasicqualitystandardsincarryingoutourwork?

LEVEL2:ACCOUNTABILITYFORIMPACTANDEFFECTIVENESSOncebasicaccountabilityprocessesandassessmentreportingareinplace,morespecializedaccountabilityassessmentsarepossible,appropriate,andnecessarytotakeprogrammaticeffectivenessassessmenttothenextlevel.Byassessingprogramandorganizationaloutcomesandimpacts,impactandeffectivenessaccountabilityanswersthreeimportantandchallengingquestions:Towhatextentandinwhatwaysareweattainingdesiredandintendedprogramoutcomesandimpacts?Towhatextentarewelivingouttheguidingprinciples?Whatarewelearning,andinwhatwaysareweapplyingwhatwearelearningtoimproveeffectiveness?

Level3:ACCOUNTABILITYFORLEARNING,DEVELOPMENT,ANDADAPTATIONAccountabilityforLearning&Developmentfocusesonsystemschange,innovation,adaptation,andmakingadifferenceincomplex,dynamicsystems.Thepracticesandprocessesatthislevelincludedevelopmentalevaluationanddeepreflectivepractice.

Next,wepresenthowthe7factorsand7guidingprinciplescombinewiththeMountainofAccountabilitytogiveshapetoalearningframework.


FACTOR 1: STAFFING & LEADERSHIP Systemsaremadeupofpeople,soitisimportanttounderstandtheissuesthatimpactthe

individualswhoworkinandmakedecisionsaboutthesystem.

Evaluation Recommendations for the Juvenile-Justice Home-Based Initiative Table3:EvaluativeQuestionsforJJHBI:StaffingandLeadershipLEVELOFACCOUNTABILITY

EVALUATIVEQUESTIONSFORTHEJUVENILEJUSTICEHOME-BASEDINITIATIVE

Level1:BASICACCOUNTABILITY

1. Hiring.Whoisbeinghiredasitrelatestoexperience,raceand/orculturalbackground?Towhatextentdostaffreflectthecommunitiesinwhichtheywork?

2. Training.Towhatextentissufficientandeffectiveprofessionaldevelopmentprovidedtostakeholdersinthesystem?

3. Retention.Towhatextentarepeoplehiredbeingretained?Aretherevariationsinretention?

Level2:ACCOUNTABILITYFORIMPACTANDEFFECTIVENESS

1. Outcomes.Inwhatwaysdostaffdiversity,training,connectionandretentionaffectsatisfactionandbetteroutcomesforyouthandfamilies?

2. Caseloads.Arecaseloadslowenoughtoallowpeopletoknowyouthandfamilies,andworkinaprinciples-basedway?

3. Youthexperience.Towhatextentdoyouthfeelstaffunderstandandcareaboutthem?

Level3:ACCOUNTABILITYFORLEARNING,DEVELOPMENT,ANDADAPTATION

1. Guidingprinciples.Whatarewelearningabouthowpeopleunderstandtheguidingprinciplesastheyrelatetostaffing?Abouthowtheguidingprinciplesdoordon’thelppeoplefeelthattheyaresupportedanddoingtheirjobwellaroundstaffandleadershiphiring,trainingandretention?

2. Ruralareas.Whatarewelearningabouthowtobringmorehighlytrainedstaffandleadershipandstafftoruralareas?

3. Leadership.Whatarewelearningabouttheroleofleadershipinfosteringasharedvisionandphilosophy?

RECOMMENDATIONS FOR THE JUVENILE JUSTICE HOME-BASED INITIATIVE


• Continueofferinghigh-qualitytrainingandstaffdevelopment

• Continuetoengageandsupportleadershiparoundthesharedvisionandguidingprinciples

• Ensureprogramstaffrepresentthecommunitiestheyserve


FACTOR 2: COLLABORATION & COMMUNICATION Issuesofcollaborationandcommunicationhighlighthowwelltheagencieswithinandconnectedtothejuvenilejusticesystemandthepeoplewithinthemworktogether.

Evaluation Recommendations for the Juvenile-Justice Home-Based Initiative

Table4:EvaluativeQuestionsforJJHBI:CollaborationandCommunicationLEVELOFACCOUNTABILITY



1. Relationships.Towhatextentdopeoplereporthavingpositiveworkingrelationshipswithinandacrossagencies?

1. Communication.Towhatextentisinformationbeingcommunicatedeffectivelywithinandacrossagencies?

2. Collaboration.Towhatextentandinwaysarepeoplecollaboratingacrossagencies?


1. Relationships.Towhatextentarewebuildingstrong,positiverelationshipswithkeystakeholdersandpartners?Towhatextentdorelationshipsoutcomesforyouth?

2. Communication.Towhatextentdoesthequalityofcommunicationimpactqualityofprogrammingandoutcomesforyouth?

3. Collaboration.Whereiscollaborationworkingwell?Whereisitgettingstuck?Howdoescollaborationimpactoutcomesforyouthandfamilies?


1. GuidingPrinciples.Whatarewelearningabouthowpeopleunderstandtheguidingprinciplesastheyrelatetocommunicationandcollaboration?

2. Relationships.Howaretheinterrelationshipsandinterconnectionsbetweenandamongourdiversestakeholdersandpartnerschangingovertime?

3. Communication&Collaboration.Whatarewelearningaboutwhatittakestoensureeffectivecommunicationandcollaborationwithinandacrossagencies?



• Keeptheprogramassimpleandtransparentaspossible

• Buildtrustacrossagenciesbyreducingcompetitionforfundingwhenpossible


FACTOR 3: DATA COLLECTION, MANAGEMENT AND USE Theabilityofactorsinthejuvenilejusticesystemtounderstandwhatishappeninginthesystem

iscriticaltoanyefforttoimproveorreformit.


Table5:EvaluativeQuestionsforJJHBI:DataManagementandUseLEVELOFACCOUNTABILITY



1. DataCollection.Whatdataisbeingcollected,whereandbywho?Towhatextentisdatacollectedcapturingtherealitiesofwhatishappeningandwhatisimportanttotrack?

2. Datamanagement.Towhatextentisdatacollectedinacentralizedsystemthatcanbeaccessedbyvariousstakeholders?

3. Trustandtransparency.Whatarethebarrierstogatheringthenecessarydata?Howcanweensuredatawillbecollectedinawaythatistransparentandbuildstrust?


1. Meaning.WhatdoesdatatellabouttheeffectivenessandimpactofJJHBI?

2. DataUse.Towhatextentisdatathatiscollectedusedtoimproveprogrameffectiveness?

3. Transparency&Trust.Towhatextentaredecisionsmadewithdatatransparent?Towhatextentdopeopletrustthecredibilityofthedata?


1. GuidingPrinciples.Whatarewelearningabouthowpeopleunderstandtheguidingprinciplesastheyrelatetodatacollection,managementanduse?

2. Coordination.Whatarewelearningaboutthemostefficientandeffectivewaystosharedataacrossagencies?

3. Trust.Whatarewelearningabouthowtobuildtrustandtransparencyintotheprocessesofdatacollection,managementanduse?


• Coordinatewithexistingeffortstostreamlinedatacollectionandmanagement

• Usemixedmethodstoallowforqualitativedatatotellthestorybehindthenumbers

• Buildtrustthroughtransparentuseofdatatoimproveprograms


FACTOR 4: ALLOCATION OF RESOURCES Whethermoney,time,training,expertise,legislation–payingattentiontowhereresourcesare

beinginvestedcanbetellinginasystem.


Table6:EvaluativeQuestionsforJJHBI:AllocationofResourcesLEVELOFACCOUNTABILITY



1. Access.Howistheavailabilityofandaccesstoservicesbeingtrackedandaddressedacrossthestate?

2. Gaps.Howaregapsinservicesidentifiedandfilled?Level2:ACCOUNTABILITYFORIMPACTANDEFFECTIVENESS

1. Evidence-basedpractices.Towhatextentareevidence-basedpracticesbeingusedwhereappropriate?

2. Meetingneeds.Howwelldoexistingprogramsandservicesmeettheneedsoftheyouthandfamiliesinthecommunity?


1. GuidingPrinciples.Whatarewelearningabouthowpeopleunderstandtheguidingprinciplesastheyrelatetoallocationofresources?

2. CommunityChanges.Whatarewelearningabouthowperspectivesareshiftingwithregardstokeepingkidsclosetohome?


• Continuetoinvestincommunityandevidence-basedpractices

• Continuedialogueswithstakeholdersacrossthestatetofostersupportforkeepingkidsclosetohome

• Ensurethatruralareasofthestatedonotgetleftbehindastheprojectrollsout

• Payattentiontowheregapsinthecontinuumofcarecontinuetoexistandaddressthemwhenpossible


FACTOR 5: LIVED EXPERIENCE OF YOUTH & FAMILIES Itiscriticaltorecognizethatthesystemisnotonlycomposedofpeople,butultimatelybothimpactsandisimpactedbythelivedexperienceofthosewhoselivesaremostatstake:youth

andfamilies.


Table7:EvaluativeQuestionsforJJHBI:LivedExperienceofYouthandFamiliesLEVELOFACCOUNTABILITY



1. Providertraining.Howmanyprovidersaretrainedinatrauma-informedapproach?Howmanyprovidersaretrainedtobeyouth-centeredandholistic?

2. Youthandfamilyexperience.Whereisyouthandfamilyvoicecapturedsystematicallywithinsystemsandprocesses?


1. Providerquality.TowhatextentareprovidersalignedwiththevisionofaYouth-CenteredHolisticapproach?

2. Trauma.Towhatextentisthetraumaexperiencedbyyouthandfamiliesaddressedatthevariouspointsofcontactacrossthesystem?

3. Youthandfamilyexperience.Towhatextentdoyouthandfamiliesfeeltheyhaveavoiceintheirinteractionswiththejuvenilejusticesystem?Towhatextentdoyouthandfamiliesfeelheardandrespectedbyproviders?

4. Usingyouthandfamilyfeedback.Towhatextentisthefeedbacksharedbyyouthandfamilyusedtochangesystemsandprocesses?


1. Guidingprinciples.Whatarewelearningabouthowpeopleunderstandtheguidingprinciplesastheyrelatetothelivedexperienceofyouthandfamilies?

2. Providerquality.Whatarewelearningaboutwhatittakestoensureprovidersareeffectivelyimplementingayouth-centeredholisticapproach?

3. Youthandfamilyexperience.Whatarewelearningaboutwhatfactorscontributetoapositiveexperienceforyouthandfamilies?



• Documentandsharesuccessstoriesofyouthplayingaroleintheirownrehabilitation

• Ensureprovidersareusingatrauma-informedapproach


FACTOR 6: DIVERSE PERSPECTIVES & EXPERIENCES Giventhewiderangeofactorsthatcomprisethejuvenilejusticesystem,itisimportantto

understandhowperspectivesandexperiencesvaryacrossthestate.


Table8:EvaluativeQuestionsforJJHBI:DiversePerspectivesandExperiencesLEVELOFACCOUNTABILITY



1. Geography.Towhatextentareperspectivesfromacrossthestaterepresentedindataanddecisionmaking?

2. Data.Howconsistentlyisdemographicdataonyouthandfamiliescollected?(race/ethnicity,culture/language,economicclass,gender)


1. Geography.Howeffectivelyaredifferencesinprogramexperiencedocumentedandaddressedacrossgeography?

2. Race/Ethnicity.Towhatextentdooutcomesvaryforyouthofdifferentracialorethnicbackgrounds?

3. Culture/Language.Howeffectivelyareneedsofimmigrantandrefugeesfamiliesaddressed?

4. Economicclass.Towhatextentdooutcomesvaryforyouthofdifferentracialorethnicbackgrounds?

5. Gender.Howeffectivelyareneedsofyouthofdifferentgendersaddressed?Towhatextentdooutcomesvaryforyouthofdifferentracialorethnicbackgrounds?


1. Guidingprinciples.Whatarewelearningabouthowpeopleunderstandtheguidingprinciplesastheyrelatetothedifferentperspectivesandexperiencesacrossthestate?

2. Variability.Whatarewelearningabouthowtoaddressvariabilityinoutcomesandexperiencesforyouthandfamiliesofdifferentbackgrounds?


• Payattentiontohowthisinitiativeisperceivedindifferentareasofthestateandmakeeffortstoensureitrollsoutinawaythatdoesnotfostertheurban/ruraldivide



FACTOR 7: SURROUNDING CONTEXT Inanysystem,thepolitical,economic,andsocialdynamicsinwhichthesystemoperates

significantlyinfluencewhathappenswithinthesystem.


Table9:EvaluativeQuestionsforJJHBI:SurroundingContextLEVELOFACCOUNTABILITY



1. Policy.Howarewetracking2. ICWA.HowisdataonhowICWA’sapplicationtothejuvenile

justicesystemdocumentedandtracked?Level2:ACCOUNTABILITYFORIMPACTANDEFFECTIVENESS

1. Legislativesupport.Whatarewelearningabouthowtomosteffectivelyworkwithlegislatorsandworktowardslonger-termoutcomes?


1. Guidingprinciples.Whatarewelearningabouthowpeopleunderstandtheguidingprinciplesastheyrelatetothesurroundingcontext?

2. Policy.Howaretheworldandthesystemsweworkinchanging,andhowdoweunderstandthosechangessoastolearn,adapt,anddevelop?


• TrackmajordevelopmentsinpolicythatmayimpacttheInitiative

• Diversifyfundingsourcestoeliminatemajorimpactsofbudgetshortfalls• Communicateshort-termsuccessestobuildongoingsupport


CURRENT EVALUATION SUPPORTS AND GAPS Inadditiontoprovidingaframeworkforlearning,wecompiledinformationfromstakeholdersonwhatisandisnotalreadybeingmeasuredinthesystemthatcansupporttheJuvenileJusticeHome-BasedInitiative.ThiscollectionwillallowtheJuvenileJusticeHome-BasedInitiativestafftoknowwherethereareexistingresourcesandalliesasitrelatestotheevaluationrecommendations.Knowingwheretherearegapshelpsthestaffidentifyopportunities‘buildtheirown’orbeingconveningpeoplearoundthepurposeofmorerobustmeasurement.

Bright spots in data use in some or all of the system

Basedonstakeholderinterviews,wecompiledalistoftheindicatorsthatarecurrentlybeingtrackedinthesystemthatseemrelevanttothisinitiative:

State-wideintakedataProbationtracksintakedataacrossthestate,whichcanbebrokendownbydistrict,race,gender,offense:

“Sowhensayayoungpersondoesfindthemselvesintroubleandlawenforcementbringsthemtousandlawenforcementfeelstheyneedtobedetained,wehaveatoolthat’sastatewidetoolthat’susedacrossthestatethatareofficersusetouseasaguidetohelpdeterminewhetherornotthatkidifyouwillqualifiesfordetention.Andsowekeeptrackofdataonthenumberofintakeswedoacrossthestate.Wecanbreakitdownbydistrict.Wecanbreakitdownbyrace.Wecanbreakitdownbygender.Wecanbreakitdownbyoffense,onwhythekidisbeingbroughtin.Andsofromthatwhatwecanseeiswecanseehowmanykidsareactuallyadmittedtodetention.SowecanseewhenthosenumbersgodownthatIthinkthatwe’rebeingmoreeffective.”

Relatedfactor(s):Diverseperspectives&experiencesRelatedguidingprinciple(s):Culturallyresponsive

LengthoftimeonprobationProbationtracksthelengthoftimeyouthspendonprobation:

“Doweseeareductiononhowlongthey’reonprobationso,youknow,hopefullyifwe’reabletoreducethatlengthoftimeonprobation,thentheworkwe’redoingisbeingeffective.Becauseofcourseintheoryyouwouldnotletthemoffprobationifthey’renotsuccessful.AndsoIthinkthatwehavethosethingsinplace.”

Relatedfactor(s):Livedexperienceofyouth&families;Staffing&leadershipRelatedguidingprinciple(s):Lessismore


SuccessfuldischargeCedarshasdevelopedadefinitionofsuccessfuldischargeandwhatthatlookslikeforyouthacrossarangeofservicesandprograms:

“Whatisexcitingtomeishowwearedoingasanorganizationtowardourmission,whichisreallytoyourpoint.Overthepasttwo–westartedprobablythreeyearsago,andwejustcompletedthefirstfullyearofmeasurementandthensubsequentreporting.Everyprogramoftheorganizationhasadefinitionofwhatisasuccessfuldischarge,whichisnolittlething.AdefinitionofsuccessfuldischargeisgoingtobedifferentinshelterversusTrackerversusachildcarecenter.Thenyouhavetogetenoughofalevelofbuy-infromtheprogramleadershipandstafftoadoptthatdefinition.SoI’mreallyproudofourworkwiththat.Wejustcompletedourfullyearofreportingnow,soweknownowthepercentageofsuccessfuldischargesforeveryprogramoftheorganization.”

Relatedfactor(s):Livedexperienceofyouth&families;Staffing&leadershipRelatedguidingprinciple(s):Lessismore

FamilyfunctioningBoysTownhascreatedahigh-levelfamilyassessmentbasedontheassumptionthatallfamilieswantwhatisbestfortheirchildren:

“Sowhenwehelpafamilytheycometoaparentingclass.Theyaccesscarecoordination,whichisakindofalong-termcasemanagementservice.Theygetin-homefamilyserviceswhereweactuallygointhehomeandhelpthemwithsomeparentingskillsandsomeotherthings.Wedosixandtwelve-monthfollow-upswiththosefamilies.Andthereisfivekindofkeyquestions,wedothiswithourresidentialprogramtoo.Butthekeyoneswelookatis,isyourfamilystillintact?Soareyourkidsstilllivingwithyou?Aretheyhere?Aretheysafe?Havetheybeenarrestedorre-arrested,andaretheyattendingschool?Soweusethosehighlevel,andthey'reveryhighlevel,buttheassumptionisifyouhaveschoolagechildren,Ihaveschoolagechildren,whatdoIwant?Iwantmykidslivingwithme.Iwantthemgoingtoschool.Iwantthemoutoftrouble.AndIwantthemsafe.Sothosefourhigh-levelindicatorswedofollow-upswiththosefamilies.We'reabletogetprobably80percentparticipationratetoconnectwiththematsixandtwelvemonths.Sothosearethekindofthingswelookat,thoseveryveryhigh-levelindicators.”

Relatedfactor(s):Livedexperienceofyouth&familiesRelatedguidingprinciple(s):Strengths-BasedFamilyInvolvementandSupport


FamilysatisfactionBoysTownhasalsodevelopedastrategyforevaluatingfamilysatisfactionandgivingfamiliesvoice.

“Wealwaysask.Imeanthefamilysatisfaction,youknow,wereyoupleasedwiththeservice?Wereyoutreatedwithrespect?Didwecommunicatewell?Weaskthatofallofprograms.Thatdoesn'tgettoanoutcome,butit'salsoimportant.Imeanthat'snotakidoutcome.We'llhavesomefamiliessay,‘Ididn'tlikeyouandIdidn'twanttoworkwithyou.’Or,’Somehowyouhelpedmykid,andhedidn'tgetintroubleandI'mreallythankful.’Or,‘Wewon'tbegoingtodinnertonightcauseIdidn'twanttogethelpfromanybody.’Imeanthesearepeoplelivingtheirlives,soImeanthekidandfamilyoutcomesaretherealimportantones.Areyougoingtoschool?Areyouathome?Areyousafe?AndI'vegotfamilies,youknow,ifweserveafamilyforsixoreightmonthstokeepNickfromdroppingoutofschoolandgettingarrested,andsixmonthslateryou'renotatSouthHigh,andyougotarrested.Imeanthat'sdataforustogowedidn'taccomplishourgoaltogether,youknow,butthosearethekindofthingswelookat.”

Relatedfactor(s):Livedexperienceofyouth&familiesRelatedguidingprinciple(s):Strengths-BasedFamilyInvolvementandSupport

Gaps in Tracking (not tracked well or at all)

RecidivismState-wideSeveralstakeholdersindicatedthatthereisamovetowardsdevelopinganagreed-upondefinitionofrecidivism,buttheyarenotthereyet:

“Youknow,oneofthethingsthatIthink,acoupleofyearsagothestatelegislatureappropriated200,000dollarstolookataprogramthatwouldprovidebettercollaborationinidentifyingNebraska'skidsandwho'sinwhatprogram,wherethey'reatandwhatthey'redoing.Theyappliedthatmoney,therehasn't,youknow,yes,weneedacentralizeddatapointsowecaneffectively,youknow,monitorthisacrossalldifferentsections.Andthat'sacknowledgedbutithasn'thappenedyet.Sosometimeswhatyou'redoingisyou'retakingprobationdata,you'retakingCPSdata,you'retaking,youknow,datacomingoutofcommittee,you'retakingeducationdataandstuffandyou'rejustkindof,youknow,mixingitallupandlookingatitandseeing,youknow,which,youknow,howthingareturningout.”

“Wecan'tevengetintoanagreementyetonwhatindicates,youknow,what'srescinded.Youknow,soit'skindoftoughtotalkaboutrecidivismrateswhenyou'vegot4or5differentideaswhatthatis.That'ssomethingwe'vereallygottoshoreupandpress.”

“Well,that’sunfortunatelysomethingthathasn’tbeenbuilt.Sooursystemdidn’treallyallowustocommunicateallthedatawecouldpullandsoitreallyisanareawherewe’retryingtofocusonwhatisitthatIneedtoknow.I’mhopingwiththenew


toolssometimeinJanuarythere’sawaythatoursystemswillbeableto-we’resupposedtobeabletopullfromthattherecidivismdatafromthestatesystemsothatwecancheckandcrosscheckrecidivism….Ithinkotherareasit’seasierforthemtolookatdatabutthisareaofrecidivismaroundtheoutofhomeyouthit’scollectedintwodifferentsystems.Sothere’sjustnotagoodwaytopullthedataweneededwithouthundredsandthousandsofotherirrelevantdata.”

“Idon'tthinkwehaveacommonagreementyetastowhataregoodoutcomes.Doesthatmakesense?Ithinkeverybodywillsay,“Whenwe’redonewiththesekidswedon’twanttoseethesekidsanymore.Andwedon’twantrecidivism.Wellobviously.Wellthenlet’sdefinerecidivism.Thatwasaday-longdebateonwhatrecidivismis.Soit’sreallycomingtoaconsensus,forme,onsomeofthosehigherlevel,definitionaltermsthat,“Thisiswhatwe’reworkingon.”AndIhaven’tbeentryingtogothatway.Butthat’sgoingtobeaveryslowprocess.”

Relatedfactor(s):Communication&Collaboration;Datacollection,managementanduse;SurroundingContext;LivedexperienceofyouthandfamiliesRelatedguidingprinciple(s):Relationship-basedcollaboration;CoordinatedHolisticContinuumofCare

Individualexperience/storiesBeyondthestatistics,manyfeelthatitisthestoriesbehindthenumbersthattellthewholepictureofhowthesystemisimpactingyouthandfamilies:

“Andsoobviouslyit’sdatadriventothatextentbutIalsodon’tthinkyoucanleaveouttheindividual’sexperiencewiththesystemeither.SoI’mreallystrivingtothatyouthandfamilyvoiceouttheretoobecauserealityyouknowit’sshapedbyaperson’sexperiencewithit,right?Nothingisrealwithoutit.SolikeI’matanindividuallevelwiththecasestalkingwiththeirclientbutthenthat’sanotherthingtostrugglewithourprojectis–youknow,we’llrepeatthesurveyslatertoseeifthere’sbeenimprovement.Notwiththatsamekid–youknow,protectingthekid’sanonymity,butthat’sawaytomeasurethat.ButIdothinkthatsomethingthat’slackingfromalotofthisreformismoreofaskingfamilieswhatisitthatyouneedandwhat–it’snotbottomup,isitbetterforyouandwe’regoingtoputitdown.”

Relatedfactor(s):Datacollection,managementanduse;LivedexperienceofyouthandfamiliesRelatedguidingprinciple(s):YouthandFamilyVoiceandEmpowerment

Long-termyoutheducationaloutcomesSomefeelthatitisimportanttolookbeyondimmediateoutcomesofyouthinthesystemtothelonger-termoutcomesthatsocietyhopestoseeyouthachieve:

“Alotoftimeswe’retinkeringwithonepointatatimebutitseemslikethere’s


probablysomeotherlong-termindicatorslikerelatedtoeducationthatIthinkweshouldbelookingat.IthinkI’mjustsensitivetothisnowbecausewejustreleasedtheFosterCareReviewOffice’sannualreportandalotofthesekidsarethesamekids.They’reinbothsidesofthesystem.”(Bev)

“Youknow,educationisapieceofthisbecause,youknow,ifkidsarestrugglinginschoolbutwedon’thaveaccesstothatinformationbecauseofsomefederallaws.AndsoIthinkthere’ssomebarriersthat,youknow,areinplacebecauseofthat.Thatwecanmaybedoabetterjobofseeingwherewehavegapsandwhatwecandodifferentlytoimproveorenhancekidsthatareinvolvedinthesystem.”

Relatedfactor(s):Datacollection,managementanduse;LivedexperienceofyouthandfamiliesRelatedguidingprinciple(s):CoordinatedHolisticContinuumofCare

DelaysinaccesstointerventionsSomestakeholderswereconcernedwithtrackinghowlongittakesyouthtoaccesstheservicestheyneed:

“I'dreallyliketogetaccesstosomeonewhodoesn'thavetobeafull-timeposition.Itprobablydoesn'tneedtobeaprofessional.Itcouldbeacommunityvolunteerthatworkstwodaysaweekwiththefamiliesonhelpingthem,knowhowtocallEastCentralNebraskaMentalHealthandsetupasubstanceabuseevaluationforanadolescent…that'swhyI'mtalkingtothecountyattorney'soffice.Theywerejustwritingtheirgranttothecrimecommission.Theywerereallyinterested,buttheydidn'tthinkwehadenoughsupportingdata.Weneedtofigureoutwhatwealmosthavetodoiscapturethedelayedinterventionsthataredelayedbecausepeopledon’tknowhowtoaccessservices.”

Relatedfactor(s):Datacollection,managementanduse;Allocationofresources;LivedexperienceofyouthandfamiliesRelatedguidingprinciple(s):CoordinatedHolisticContinuumofCare

CONCLUSION ThislearningplanisintendedtosupportlearninganddevelopmentoftheJuvenileJusticeHome-BasedInitiative.Assuch,itisnotmeantasastaticdocument,butratherasalearningtoolthatwilladaptandchangeaslessonsaregleanedandappliedtotheinitiative.Itprovidesastartingpointforthatlearningjourneyandaframeworkthatcanbeusedtoguidethejourneyasitunfolds.Weencouragepeopletousethisdocumenttodeterminewhichfactorareasorlearningquestionstoaddressfirst,workwithstakeholderstodeterminewhoneedstobeinvolvedinaddressingthequestion,andworkwithevaluatorstoselectthebestmethod(s)toanswerthequestions.

VISIONFORTHEFUTUREANDGUIDINGPRINCIPLES


TABLE OF CONTENTS

Overview........................................................................................................................................1

VisionfortheFuture......................................................................................................................1

GuidingPrinciples.......................................................................................................................1

Relationship-BasedCollaboration..............................................................................................2

CoordinatedHolisticContinuumofCare....................................................................................2

InclusiveandculturallyResponsive............................................................................................2

Trauma-Informed.......................................................................................................................2

Strengths-BasedFamilyInvolvementandSupport....................................................................2

YouthandFamilyVoiceandEmpowerment..............................................................................2

LessisMore................................................................................................................................2

Relationship-basedCollaboration..............................................................................................3

WhatthislookslikeinNebraska............................................................................................3

Whythismatters....................................................................................................................4

Challenges..............................................................................................................................5

CoreStrategies.......................................................................................................................5

CoordinatedHolisticContinuumofCare....................................................................................6

WhatthislookslikeinNebraska............................................................................................6

Whythismatters....................................................................................................................6

Challenges..............................................................................................................................7

CoreStrategies.....................................................................................................................11

InclusiveandContextuallyResponsive....................................................................................14

WhatthislookslikeinNebraska..........................................................................................14

Whythismatters..................................................................................................................15

Challenges............................................................................................................................16

CoreStrategies.....................................................................................................................16

Trauma-Informed.....................................................................................................................18


Whythismatters..................................................................................................................19

Challenges............................................................................................................................20

CoreStrategies.....................................................................................................................22

Strengths-BasedFamilyInvolvementandSupport..................................................................23


Whythismatters..................................................................................................................24

Challenges............................................................................................................................25

CoreStrategies.....................................................................................................................25

YouthandFamilyVoiceandEmpowerment............................................................................25


Whythismatters..................................................................................................................26

Challenges............................................................................................................................27

CoreStrategies.....................................................................................................................28

LessisMore..............................................................................................................................28

WhatthislookslikeinNebraska:AdultInterviews..............................................................28

Whythismatters..................................................................................................................30

Challenges............................................................................................................................31

CoreStrategies.....................................................................................................................31

Conclusion....................................................................................................................................32

RESOURCES..................................................................................................................................33

GuidingPrinciples:DevelopmentalEvaluationofJuvenileJusticeReforminNebraska|Page1of33

OVERVIEW ThisdocumentisintendedtosupportsuccessfulimplementationoftheJuvenileJusticeHome-BasedInitiativebyprovidingacommonvisionandsetofguidingprinciples.ThevisionandguidingprinciplesareonecomponentoftheDevelopmentalEvaluationTerraLunaCollaborativeconductedfortheNebraskaCourtImprovementProjectfromJuly2016-March2017.ThepurposesoftheDevelopmentalEvaluationoftheJuvenileJusticeHome-BasedInitiativewereto1)describehowtheinitiativefitsintothelargerpictureofreform,and2)identifywhatsystemschangesareneededtomakethegrantasuccessfulendeavor.Tosupportthispurpose,TerraLunaCollaborativeconductedamulti-methodprocessesthatengagedstakeholdersinsharingtheirperspectivesontheJuvenileJusticeHome-BasedInitiative,andonthebroaderreformefforts.Datawascollectedthroughinterviewswith90keystakeholdersacrossNebraska’sjuvenilejusticesystem,listeningsessionswith25adults,workshopswith25system-involvedyouth,andareviewofhistoricalandcurrentdocumentsrelatedtothesystem.Formoredetailsontheprojectandmethods,pleaserefertotheDevelopmentalEvaluationSummaryDocument.

VISION FOR THE FUTURE BasedonananalysisofthefactorsinfluencingNebraska’scurrentjuvenilejusticesystem,alongwithinsightsdrawnfrompastreformsbasedontheRetrospectiveDevelopmentalEvaluation,aswellascurrentresearchonjuvenilejusticenationally,wehavedevelopedatsetofsevenguidingprinciplestohelpachievethevisionofaYouth-CenteredHolisticApproachtojuvenilejusticereforminNebraska.Youth-centeredholisticreforminthejuvenilejusticecenterwouldputyouthexperienceatthecenterandbuildsystemsandstructurestosupportandbuildontheyouth’sstrengthsandmeettheirmental,physicalandemotionalneeds.

Guiding Principles

Aprinciples-basedapproachcontrastswithprescriptivemodelsorrecipesinwhichstandardizeddirectionsmustbefollowedpreciselytoachievethedesiredoutcome.Inthesemodels,thereisafocusonfollowingspecificstepswithfidelity.Incontrast,guidingprinciplesprovidedirection,butmustbeinterpretedandadaptedtocontextandsituation.TheguidingprinciplespresentedinthisdocumentprovideadirectionforcontinuedjuvenilejusticereforminNebraskawhilealsoallowingforvariationinhowthisworkhappensindifferentsettingsandlocations.Thefollowingguidingprinciplescollectivelyformtheyouth-centeredholisticapproach.Eachprincipleisdistinctandimportantonitsownandatthesametime,theseprinciplesintercriticalcomponentoftheoverallvision.


7 GUIDING PRINCIPLES FOR A YOUTH-CENTERED HOLISTIC APPROACH TO JUVENILE JUSTICE TakingaYouth-CenteredHolisticapproachmeansseeingtheyouthpersonasawholeperson,andworkingwithnotonlytheyoungperson’sbehavior,butalsotheirhealth(mental,physical,andemotional),familysystem,schoolsystem,andotherimportantsystemsandnetworksintheirlives.

Relationship-Based Collaboration Worktowardspositiveoutcomesforyouthincontextofsupportive,collaborativeinterpersonalrelationshipswithyouth,relevantfamilymembers,andcolleagues.

Coordinated Holistic Continuum of Care Beresponsivetothewholeperson,includingtheirmental,physical,socialandbehavioralhealthandcoordinateacrosssystems–schools,communities,agencies–toprovideaseamlesscontinuumofcare.

Inclusive and culturally Responsive Recognizethatyoungpeople’slivesarepowerfullyshapedbytheirdevelopmentalstage,culture,family,andcommunity.AddressthedocumenteddisparitiesintheNebraskajuvenilejusticesystemincludinggeographic-baseddisparities,racialdisparitieswithinclusiveandcontextuallyresponsivestrategies.

Trauma-Informed Designinterventions,responses,andsolutionsbasedontherecognitionthatsomeofthebehaviorsthatyoutharestrivingtochangemaybemaladaptiveresponsestotrauma,andthatrecoveryandhealingmaybeessentialtoaddressinganyothertypesofbehaviorsorlifestylechanges.

Strengths-Based Family Involvement and Support Seeandrespondtothestrengthsandresilienceinyouthandfamiliesbyprovidingservicesthatstrengthenthefamily’scapacitytoprovideguidanceandsupervisionandtopreventinvolvementinthejuvenilejusticesystem.

Youth and Family Voice and Empowerment Provideyoungpeopleandfamiliesconsistent,formalopportunitiestohaveinputintohowdecisionsaremade,andhowservicesareimplementedandevaluated.

Less is More Ensurethatyoungpeoplearedivertedfromjuvenilejusticesysteminvolvementwheneverpossiblesotheydonotgetdrawnfurtherintothesystemthannecessary.

Youth

Family

Peers and School

Community


Relationship-based Collaboration

Worktowardspositiveoutcomesforyouthincontextofsupportive,collaborativeinterpersonalrelationshipswithyouth,relevantfamilymembers,andcolleagues.

WhatthislookslikeinNebraskaTakingthetimegogettoknowyoungpeopleandtheirstories

“Somyapproachreallyisthatwehavetobealittlerealisticaboutwhatourexpectationsaresoeachoneoftheseyouthsisanindividualwithanindividualstory.Peoplemakedecisionsbecause–theydon’tmakedecisionstogetthemselvesintobadsituations.Theymakethebestdecisionsbasedupontheirworldviewandthesituationthatthey’rein.Sowereallyhavetotakethetimetoaskthosequestionstofindouttheirstory.Mostpeoplewhengiventhechancewantthingstobebetterandnotworseandsoiftheyhelpfillinthegapsofwhatitisthatthey’retryingtoachieveandwhatdotheywant.“

“[E]achoneoftheseyouthsisanindividualwithanindividualstory.Peoplemakedecisionsbecause–theydon’tmakedecisionstogetthemselvesintobadsituations.Theymakethebestdecisionsbasedupontheirworldviewandthesituationthatthey’rein.Sowereallyhavetotakethetimetoaskthosequestionstofindouttheirstory.Mostpeoplewhengiventhechancewantthingstobebetterandnotworseandsoiftheyhelpfillinthegapsofwhatitisthatthey’retryingtoachieveandwhatdotheywant.“

Buildingandsustainingpositiverelationshipswithcolleaguesthatsupportcollaboration

“Ithinkithastobeateamapproach,andwhenItalkaboutusoperatingmorelikeasmallercounty,primarilythat’sbecauseweworkverycloselytogetherasateam.[...]Ourprobationofficers,forinstance,knowalotofthepeopleinthedifferentschooldistricts,thefivedifferentschooldistrictswithin[ourcounty].TheNFCworkersandtheprobationofficershavedevelopedrelationships.WehavesomeformerNFCworkerswhoarenowprobationofficers,sothatrelationshipissueisreallyimportant.Ithinkitreallybenefitsourkidsin[ourcounty]thatwehavetheabilitytoworktogetherasateam.”

“Somuchofthisworkisaboutdevelopingthoserelationshipsandyoucanseethedifferencewhenthere'srelationshipsacrossdivisionsoracrossdifferentsystems.Thatcanmaketheworldofdifferenceandwhenthere'snorelationshipsorevenharshrelationships,itplaysoutallthewaydowntothefrontlineworker.”

Learningfromeachothertoimproveoutcomesforyoungpeople

“We,asaresourceteam,havetheopportunitytomeeteverymonthwithourpeersinotherdistricts.Specifically,wemeetwithpeersfromdistrict2J,whichistheSarpyCountyarea,anddistrict4J,whichistheonlyotherseparatejuveniledistrictinthestateandthat’sinOmaha.Sowehaveabout,Ithinkwhenwe’reallthereabout12to


15headstogetherthatwecantalkaboutwhatareweeachexperiencing.Isitthesame?Isitdifferent?Ifit’sdifferent,howyouproblemsolvedit.Sothat’sbeenveryhelpful.”

“Ithinkthecollaborativenature,whichhasnotalwaysbeenthere.It’sverypositive.Wehavemonthlymeetingsamongsttheagenciesjusttalkingaboutwhataretheissueswe’reseeing.Howdowesolvethem?[…]LikeHealthandHumanServices,ChildWelfareandwithprobationandwiththeCourtImprovementProject,FosterCareReviewOfficeandInspectorGeneral.Wemeeteverymonthoreveryothermonthtotalkaboutwhatdowesee?Howdowehelpsolveit?[…]AndthenI’malsohearingatthesametime,“Probation,whatareyoudoingwithHealthandHumanServices?”BecauseI’mnotapartoftheirindividualmeetings.Soit’sniceformetoheartheyareworkingonthat.SoIcantakethatoffmyplatebecauseI’mworkingonit.SoIthinkyouneedsomethinglikethatjusttosharetheinformation.”

WhythismattersCollaborationisessentialandinvolvesformalandinformalrelationships,andpeopleinsideandoutsideofgovernmentagencies,andincludingpeoplewiththepowertomakedecisionsfortheirorganizationsoragencies.Collaboratingcreatesanincreasedcapacitytoknowandrespondtothewholeperson

“[K]nowingallthepiecesofayoungperson’slife,orafamily’slifeormostaspectsoftheirlives,iscertainlyhelpfulindevelopinganykindofatreatmentplanforthatfamilyorthatchild.So,Ithinkthat’soneofthebenefitsoftheteamapproach.”

“IwouldsaythatIhaveacollaborativeapproach.AndIthinkthatapproachesshouldbeindividualizedtomeettheuniqueneedsofthechildrenandfamilythatweserve.Ithinkthereareveryfewkidsthatreallyhaveneedsthatcanbeservedbyoneagency.Ithinkoftentheyhavemultipleagentinvolvement.[…]Itryveryhardtoalwaysbecollaborative,toengageothers.Ithink,attheendoftheday,alotofwhatwedoisaboutrelationshipsandbuildingtherelationshipsweneedwithothersystempartnerssothatwecanhelpyouththatweserveandtheirfamiliesaccesstheservicesthattheyneedwhentheyneedthem,wheretheyneedthem,andfortheamountoftimethattheyneedthem.”

Knowingandrespondingtothewholepersoncanimproveoutcomesforyouth

“Ithinkwhenofficershavehadalong-termrelationshipwiththechildand/ortheirfamily,thatimpactssomethings.That,Ithink,changespotentialsuccess.Itchangesanunderstandingofokay,thiskiddodidn’tcomehometonightnotbecausetheyweretryingtorunawayortheyweretryingtonotfollowacourtorder,it’sbecausedadhassomementalhealthissuesandatthatpointintime,theyneededtobesomeplaceelseforthemselvestobesuccessful.Notlongterm,butI’mjustsayingtherearesomanythingswithourkiddosthatit’snotjustaboutthechild.Thechildexistsinanenvironmentandbasedonhowthatenvironmentlooksandhow


supportiveitisorisnotatanymomentintime,reallyisahugefactor.”

ChallengesIt’shardtobuildpositiverelationshipsinacriticalandhighlyvisibleenvironment

“WellIthinkthatcollaborationissocomplicatedbecauseyouhavedisconnectsinvolved,youknow?Thelegislaturerightnowisverycriticalofjuvenilejusticemovementandcriticalofchildwelfareaswell.Theylookforwhat’swronginsteadoflookingforlet’sbuildonwhat’srightandfigureouthowtofixwhat’swrong.”

CoreStrategiesSendclearsignalsasleadersthatpeopleareexpectedtobuildcollaborativerelationshipsinsupportofthebestoutcomesforyouth

“Ithinktheapproachworksbestwhen,justbeingreallyhonest,whenit’sexpectedbyleadershiptoworkwell.Whenleadersareveryclearabouttheirmessagingandcommunicationandwhenthey’resaying‘thisisgoingtowork,andyou’regoingtopartner,andyou’regoingtoworktogethertomeettheneedsofthefamily’.[…]Whenleadersaren’tclearaboutthat,orgivemixedmessages,orhavenotmadethatapriority,thestaffformanygoodandnotsogoodreasonsprobably,buttheydon’tmakeitapriority.IhaveyettohaveknownaJJyouththathasn’thadmultipleneedsthatneedtobeservedbymultipleagencies.”

“[A]lotofleadershipfromProbation,fromtheCourtAdministrator,theChiefJustice,fromSenators,fromproviders.Imeaneveryonereallyhadtopulltogethertomakethesechangeshappen.SoIthinkstrongleadershipthat'sbeenhelpfulinNebraska.”

Intentionallybuildrelationshipstostrengthenthenetworkandfillingaps

“It'salsopartofmyresponsibilitytocontinuetobuildexistingrelationshipswithstakeholdersinthecommunityandfigureoutwhereourgapsandservicesareinthedistrictandreachouttonewstakeholderswhomightbeableandwillingtofillthosegapsandthenhelptoguidethemtothedirectionofapplyingandbecomingoneoftheregisteredserviceprovidersforprobation.”

Workingbeyondwhat’slistedonayoungperson’sprobationorder

“IthinkmyperspectiveonhowIworkwithyouthisIfeelit'satherapeuticmannerofdealingwiththeirparticularsituation.It'snotjustamatterofworkingwiththejuvenileonprobation.Wehavetoworkwiththefamily,sometimesextendedfamily,sometimessiblings.Allofthisrequiresthatweaddressissuesthatarebeyondwhatisjustlistedastheirprobation,thereasonthatthey'reonprobation.Forexampleifajuvenileisonfortruancygenerallythereisotherissuesinthehousehold,suchasthey'relivingwithgrandparents,oruncles,oraunts,orevenwithanoldersibling.Theparentthemselvesmayhaveissuesthatalsoneedaddressed.Anditreallyrequiresustomanytimesthinkoutsidetheboxandlookathelpingtheseotherissuesorhelpingthefamilywiththeseotherissues.”


IdentifytheuniquetheEyesofaChildcommitteescanplayinsupportingcollaboration

“IthinkourEyesofaChildcommitteedoesareallygoodjobwithgettingtogetheralltheprovidersandotherpeoplethatareinvolvedinthesystem,andhelpingustoestablishrelationships,andtolearnwhateachperson’sroleisintheoverallpicture,andwhatservicesareavailable,andservicestheyprovide.So,Ithinkthat’saveryimportantpartofitistohavethoserelationshipswiththeotherpeopleinvolvedinthesystemtoknowwhattheirphilosophiesaretosomeextentandwhatprogramsandthingstheyhaveavailable.”

Coordinated Holistic Continuum of Care

Beresponsivetothewholeperson,includingtheirmental,physical,socialandbehavioralhealthandcoordinateacrosssystems–schools,communities,agencies–toprovideaseamlesscontinuumofcare.

WhatthislookslikeinNebraskaRecognizingandaddressingaspecificproblemorbehaviormeanswhilesimultaneouslyseeingandaddressingthewhole

“IwouldsayItrytolookatthewhole.Itrytolookatthechild'sbackground,whatbroughtthemhere,whattheirfamilylifeislike,whattheirschoolsituationislike,whattheirmentalhealthsituationislike.IguessIjusttrytodealwiththewholebecausefixingjustonepiecedoesn'treallyusuallysolvetheproblem.There'sareasonwhytheygottothispointwhenthey'rehavingproblems.”

“[A]lotoftimeswereallyhavetounderstandthatthejuvenileisnotgoingtomakeprogressunlesstheseotherthingsarealsotakencareof.Nowalotofthosethingsareoutsideofwhatwecandoanythingabout.Imeanwithpaymentofvouchersorcounselingoranythinglikethat,becauseourservicesaredirectedattheyouth.However,wehavetofindcreativewaysonhelpingthemfigureouttheseotherthings.AndsoIthinkthatourapproachforjuvenileprobationisreallyaholisticandtherapeuticapproach,wherewehavetodealwitheveryoneinthatchild'slife.It'snotjustthechildthemselves.”

“Ajuvenileisalsoacomponentofafamily.Thedecisionsthataremaderegardingajuveniledon'tjustimpactthem.Theyimpactthefamilyasawhole.Then,thefamilyispartofthecommunityasabiggercomponentandlookingathoweverythingjustbuildsontopofeachotherandhowwecanbringservicesandresourcestogetherthatwillbenefittheindividualpersons,theindividualfamilyandthecommunityasawhole.”

WhythismattersAllowsproviderstoberesponsivetotheuniqueneedsofeachyoungpersonandtheirfamily

“Eachyoungpersonis,andeachfamilyissodifferent,theyreallyhavesome


uniquenessaboutthemthatwehavetotakeintoconsiderationifwe'regoingtomeettheirneedswell.Andhelpthemmeettheirneeds.SoI'vereallykindofdevelopedovermycareerthethoughtprocessaroundacontinuumofalternatives,thatthere'snotonesizefitsallforanyofthekindsoffamiliesthatwe'veeverworkedwith.

“Wewilltrytotreattheindividualbecauseeverybodyisuniqueanddifferent.Andwhatworkswithonekidmaynotworkwithanother.Andsomethingthatworkedonetimewithakidmaynotworkagain.Soyou'realwayscontinuingtochangethingsup.That'sprobablythebiggestisthatflexibilityandpatience.”

Increasedabilitytoseewhat’sworkingandwhatisn’tfromasystem,ratherthansiloed,perspective

“Wetrulyhavetolookatwhere–howouryoutharedoingandwhattheoutcomesare.AndIthinkthatchangeissomethingthatdoesn’thappeneasilyandIthinkthatourstakeholders,ourjudges,attorneysandlegislatorsallhavetostepbackandtakealookatwhat’sworking.AndIthinkmoreimportantlywhat’snotworkingandwhatwedoneedtochangebecauseweknowthatit’snotaperfectsystemyetandmayneverbetherebutwe’vegottodothebestwedo.”

“Weneedagreaterpartnershipbetweentheacademiccommunity,thelegislatureandthejudicialpracticeparticipantstobegintoreallytalkaboutwhatworks.”

Coordinationcandecreaserecidivism

“Ithinkwe’vemadesomechangesinprogrammingandtreatmentandthingslikethat,butIthinkprobablythebiggestdifference,thebiggestimpactwe’remakingisjustenhancedcoordinationwiththeOfficeofProbationAdministrationbecauseoncethoseyouthleavethefacilitywe’renolongerinvolved.AndIthinktoanextentthatwecancontinuetobeengagedwithprobationregardingthoseyouth,bothwhilethey’reoncampusaswellasshortlyaftertheyleavethefacility,thecoordinationcanleadtomorepositiveoutcomesbecauseoneofthemetricswetrack-wetrackalotofoutcomesandmetrics-thatrecidivismrate,youknow?Howmanyofthoseyouth,oncethey’replacedbackinthecommunity,windupcomingbacktothefacility.”

ChallengesDifferentandconflictingphilosophiesIt’shardtocoordinateaholisticcontinuumwhenphilosophiesaresodifferentthatpeoplefindthemselvesworkingagainsteachother.

“Theothermajorchallengethatwehavethatisaconsistent,majorchallengeforusisjustourgeneralcollaborationwithHHS.Wewanttocollaboratewitheverybody.Weworkreallyhardtomakesurethatwe'recollaboratingwitheverybody.Therearefundamentalsystemdifferences[…]inthatHHSdecideswhattheybelieveisright.Theywanttoimplementwhattheywanttoimplement.Wereallystrivetotakeinthevoiceoftheyouthandthefamilyalongwithalloftheothercollaborativeentities.


Generallywhenwehaveduallyadjudicatedkids,it'sreallydifficultforusandHHStocometotheagreementonwhat'srightforthosekids.Really,it'snothingbadaboutHHS.It'snothingbadaboutus.It'sthatoursystemphilosophiesareso,sodifferentandsowebelievetotallydifferentthings.”

“Ithinkwe'restillbattlingsomeoldphilosophy.Ithinktherearestillareaswherenotunderstandingtherightsystemforyouthisstilldifficultandyouknowthere'syouthandfamilieswithmultipleissuesandtheyhavebothyouknowchildwelfareandjuvenilejusticeinvolvement.Andwhere'stherightsystemorthebestsystemorhowdothosesystemstrulyworktogether.SoIthinkwe'restillworkingthroughthosecases.”

“Likeforexample,withthedetentionpiece,reallyshiftingthephilosophyaboutwhyweusedetentionandthat'sbeendifficultparticularlyforlawenforcement,sometimesjudges,countyattorneys,becausepeoplewantaccountabilityinhelpingpeopleunderstandthataccountabilitydoesn'tnecessarilymeanlockingyouthupandthatthere'sotherwaystoholdyouthaccountableandteachingabouttraumaandwhat'sreallygoingonwiththeseyoungpeopleandhowthosedecisionscanfurthertraumatizeyouth.SoIwouldsaykindofthebiggest,oneofthebiggestthingsisjustchangingpeople’sphilosophy.”

PeoplesayingonethingbutdoinganotherOthertimes,peoplesoundliketheyareonthesamepagephilosophicallybuttheiractionsdayotherwise.

“Buttheotherthingthathasreally,Idon'tknow,Iguessgottenundermyskinisthesegregationbetweentheagenciesandkindofthis,well,wedoitthiswaysowe’renotnecessarilywillingtolookatitfromyourperspectiveorunderstanditfromyourperspective.That'sthedifferentbranchesingovernmentandthewaythattheydobusiness.It’scrazybecausewe’llallsitatameetingandeverybodyagreesweneedtoworktogether.Weneedtoputourdifferenceaside.Butwhentherubbermeetstheroadandsomebodyhastohumblethemselvestosay,youknowwhat,I’mputtingmyperspectiveaside.I’mgoingtogoaheadandlistentoyou,seeitfromyourviewpoint,andmaybewecantryitthatandwhatnot.I’mnotseeingawholelotofthathappening.It’snotjustjuvenilejustice.YouknowI’vebeenworkinginthecriminaljusticesystemnowforalmost10yearsandthatisprevalentthroughout.”

KnowingwhoisresponsibleforwhatWhenmultiplepeopleandagenciesareinvolvedacrossthefullcontinuum,itcanbehardtoknowwhohasresponsibilityforwhat.

“There’sstillconstantjockeyingbetweenwhoseresponsibilityiswhat,andwhohastopayforthat.Andso,Ithinkagainthechallengeiskeepingthediscussionsaroundtheneedsoftheyouth,andcollectivelyworkingtogetheronhowcanthatbemet.Youknow,there’sbeenchangesinregardsto561,legislatively,tobeabletotrytoclarifywhenit’sacountyresponsibilityforaservice,ortransportation,andwhenisit


probation'sresponsibility.”

DiminishingandunderusedresourcesPeoplespokeofatrendofdiminishingresources,oftenmonetary,thatmakeithardertocreateaholisticcontinuumofcare.

“TheapproachhaschangedmanytimesoverthelastfewyearsI’vedonethis.There’sbeencontractedserviceproviders.[…]We’velostalotofservicessincethechangeinthereformin2013.Soourapproachnowhastobeveryoutsideoftheboxbecauseweareverylimited.BeinginNebraska,we’relimitedtobeginwithandwe’velostalotofprovidersbecauseofallofthosechanges.”

Unlessadifferentintentionisset,ascarcityofresourcescanfostercompetitionratherthancollaboration.

“Thenwhateveryou'relookingat,JDAIthings,you'vegotsomeofthe,youknow,someprogramswithin,youknow,certainareasthathavebeenoperatingforyearsandyearsandyearsthatmightseethattheJDAIinitiativeiscompetitive,youknow,totheirbusinessandsoyou'vegotalittleconflictofinterestthereabout,well,youknow,Idon’twanttosupporttheJDAI,thealternativesandstuff,becausethatwouldmeanthatIwouldhaveless,youknow,businesscomingintomyprogram.So,there'ssomeofthoseissues.”

Inothercases,peopledescribedorganizationalstructuresthatfavorsilosovercoordinationandcollaboration.

“Structurally,Ithinkwejusthavetogetinandlookathowverticalthoseorganizationsare.They'renotcollaborative.They'reveryvertical,lotsofregulationsthatareaboutgetthereportin,notaboutservethekid.Weneedarealshiftinthewholethingtoamorehorizontal,lessvertical,afarmorecollaboratively…weignore,basically,theservicecommunityandthefaithcommunitythatareusuallyverystronginsmalltowns.Thesmall-townrotaryclubisalwayslookingforsomethingtodo.”

Toofarawayfromservicestorespondinaholisticway

“Ithinkmostinstitutionstry,butagain,Imeanifweplaceachildatahome,eitherinagrouphomeoratreatmentfacilityorsomethinglikethat,theyaresofarawayfromthehomehere,theirparents,thatit'sverydifficultfortheparentstobeinvolvedinthetherapy.Imeantheydosooverthephone,thattypeofthing.Butit'shardtokeepvisitswiththekid.It'shardtobeinvolvedinthetherapyandthewholeprocess.SoIdon'tknowthatit'saproblemwiththefacilityorwiththeinstitutionoranyofthat,it'sjustlogistics.It'swearesofarawayfromtheserviceshere.”

“Wellhopefullywe’regettingmore–andyouhavetounderstandthatoutherewedon’thaveaccesstoservicesliketheydoeveryplaceelse.Sowehavetobealittlemorecreative.Imeanweprobablyhavetogoanhouratleasttocounseling,totravelandmissingschool.AndIthinkweworkwell–theschoolatleastin[name]County


attendsmostofthehearings.Theyhaveateacherherethatworksthekidsandattendsmostofthehearings.Iaskfortheschool’sinput.Ireallythinkwethinkwetrytoworkasateamtodoasbestforthekidandtrytogeteducationalsubstanceabuseandeverything.Behaviorandhomelifehandled.”

Easytoget“tunnelvision”inone’sprofessionalrole

“[W]ithmyrolenowIkindofseecasesfromanoutsideperspectivesinceI’mnotactivelysupervisingthecases.AndsoIfeellikesometimesIcangivesomenewideastoofficersthatcansometimesgetverytunnelvisionwithcasesbecausetheyhavetodealwiththemonanongoingbasisandtherecanbefrustration.SoIthinkatthispointIhavetheadvantageofkindofbeingontheoutsideandbeingabletolookatacaseasawholeandbeabletooffermaybesomemorealternativesandmaybegivesome–Idon’tknowtherightwordsI’mtryingtosaybutjustgivemaybesomeotheropportunitiesthattheofficersmightnothavethoughtofinacase.”

It’schallengingtouncoverandaddressvarioussystemicbarrierstosuccess

“Well,there’salotofdifferentreasons.Andthat’swhereyouhavetokindofkeepaskingquestionstofigureoutwhatthereasonsare.Sometimesit’sbecausetheydon’tknowwhattodo.Evenifyou’vegiventhemstep-by-stepinstructions,maybetheycan’trememberordon’tunderstand.Sometimesit’salackofinvolvementandIhavetotrytofigureoutbytalkingandworkingwiththemhowtogetthemtobuyintowhatwe’redoingortobeengaged.Sometimestheydon’thavetheresources.Youthinkeverybody’sgotacellphone,buttheydon’t.Youthinkeverybody’sgottransportation,buttheydon’t.There’salotofotherissuesthatareinvolvedwhenitcomestowhetherornotthefamilydoestheirpartortheyouthdoestheirpart.Sometimesit’sattitude.Soyoujusthavetokeepworkingtofigureitoutandfindawaytogetthemtodowhattheyneedtodoorgetridofthosebarriersifpossible.”

Dangerofprovidingtoomanyservices,involvingtoomanypeopleOnepersonsharedthat,“whenafamilybecomes“system”involvedtherearesomanydifferentpeoplethatcomeintotheirlivesasaresultofit.”Theycontinuedtodescribethatevenasaninsider,theydon’talwaysknowwhothedifferentinvolvedpeopleareorwhatthereroleis.Howthen,theyasked,arefamiliessupposedtomakesenseofthis?Manyotherpeopleinterviewedtalkedaboutthedangerofhavingtoomanypeopleorsystemsinvolved.

“That'swhenwetalkaboutfullcourtpresswe'retalkingaboutanykindofservicesthatwecangetinplacetohelpthatkidgetthroughthatcrisis,that'swhatwedo.Andwedon’ttrytooverdoit.Wetrytobeverystrategicinhowwedoit.Ithinksometimesyoucangetkidswithtoomanyservices.”

“IguesswhatI’veseenandwhatI’mhearingisthatonekidwhogoesthroughthesystemhassomanypeopletoanswerto.SoIguesswhatI’veheardaboutsysteminvolvedyouthisit’shardforthemtoidentifywhotheyneedtotalkto,howtheyneedtosortofgetoutoftrouble.Ithinktheyfeellikeoncethey’veenteredintothe


systemtheyhaveastampontheirforeheadforalltime.”

Inadequatefundingforcommunity-basedsupportsandprogramming

“SoifIhadthatmagicwandIwouldhavethosesystemsinplace–thoseresourcesinplaceinthecommunityandmosteverypennywehaveisgoingtowardsthat.Wehaveservicedollarsnowwhereyouprobablyknowisthatthebiggestbudgetitemforusisout-of-homecare.”

CoreStrategiesBediligentaboutrecognizingandbreakingdownsilosOnepersonsharedthatthesystemworksbestforyouth,

“whentheadultsintheroomgetonthesamepage.Itdoesn’tworktoowellwhenyoucontinuetohaveallthesesilosthatgoonwhenallofyourprogramsareseparateand,youknow,youdon'tthinkacrossthosekindofguidelines.AndIwouldsaythesamewith,youknow,thestateofNebraska,we'vemadesomegains.I'msurewe'llgetintothat.We'vemadesomegains,butourbiggestchallengeisstillgettingpeopleonthesamepage.We'vejustgottoomanysilosthatgoon.”

Youknow,sowe'vegottokeepthatcollaborativevoice,we'vegottokeepworkingtogether.Andtrytosayoutofthosesilos.AndIthinkwithinadministrationprobationandHHSadministrationthereismuchmoreopennessnowthanthereeverwas,youknow,toworktogether,andthat'sjust,we'vegottojustmakesurethatcontinues.”

CreatethecircumstancesbywhichpeoplecancommunicateeffectivelywithinandacrossorganizationsOnepersonsharedthatthesystemworksbestforyouth,

“Andthenjustanyinformalcollaborationsthathelpimproveprocesses.Noteverythingistiedtofunding.Sometimesit’sassimpleastryingtoimprovethoseflowsofcommunication.Anditcanbeassimpleasacheckboxonaform.WefindoutthatagencyAdoesn’tnecessarilyshareaveryimportantpieceofinformationwithagencyB,butiftheywouldjustaddacheckboxtothisform,thenallofthesuddenthatinformationisflowingfreely.Soitcanbevery,verysmallthingsthatmakeadifference.”

Aneducatorsharedtheirfrustrationwithnotknowwhathappenswithastudentwhenthey“disappear”intothejuvenilejusticesystem.

“ButthemostcommoncomplaintIhadwhenIwasteaching[…]wasjustkidswoulddisappear.Youwouldkindofpouryourselfintoakidthatyoucouldtellwasstrugglingorhadachaotichomelifeandthenonedayhenevercamebacktoschool.Youfoundoutmonthsoryearslater,thathe’sbeenputincare.Andthat’saproblemthatIsaw20yearsagowhenIwasintheclassroom,thatIseestillcontinuingontoday,justthatcommunicationandcollaborationpieceisjustreallymissing”


Payparticularattentiontocoordinationduringtransitionpoints,whenyouthmovebetweenpeopleandsystems

“NowI’dliketoseeusdo,youknow.We’retryingtoworkonenhancingour-useasharedsupervisionforyouthinoutofhomeplacement.Sothat’safocuswhere,youknow,havingofficersonbothendsengagedwiththatyouthandworkingtoenhanceourreentryplanningandsupervisionastheytransitionbacktothecommunity.Justto–weknowthat’stheriskiesttimesomakingsurethatwe’redoingqualitycasemanagement.Butthat’s–there’sreallynogoodwaytopullanyofthatdata.”

“Iamworriedaboutkidsexitingeitherofoursystems,iftheydon'thaveconnectionstoeitherfamilyorsupportiveadults.”

Integrateschoolandcommunityefforts

“Ourinvolvementwiththefamilies,andthefamilyteammeetings,oridentifyingsupportivepeopleintheirlives,andthatmaybeateacherorafacecommunityperson,oraneighbor.Sokindofwideningorexpandingtheopportunitiesforasupportsystemarehelpful.[And]theeducationpieceishuge,oneofthethingswhenIcameupherethatIdidn’trealize.WhenIstartedreadingfiles,howmanykidshadIEPsinjuniorhighandthey’dgettohighschoolandwhathappenedtotheIEP?Idon’tknow.Sotheparentsdidn’tadvocate,theschoolsystemdidn’tpayattention,andthenthey’reinhighschoolandthey’refailingbecausethey’veneverreallybeenengaged,andtheirnotsuccessful,andthere’sotherthingsgoingonintheirlives.”

“Ithinkit’simportanttohaveamorebroadapproach,andgetinformationfromimportantpeopleinthatyouth’slife.Soifthey’reinvolvedwith,forexample,aprobationofficer,consultingwiththatprobationofficer.School,ifanythingisinvolvingschool,contacttheschoolandteachers,aswellasthefamilyandtheyouththemselves.So,justgettinginformationfromalotofdifferentareas,Ithinkhelpsthemost.Andinvolvingasmanypeopleaspossibletohelpimprovebehaviorandgoalsforthatyouthandtheirfamily.”

“Ifwe'resittingatprobationkidswitha44percentrecidivismrate,andinstitutionalizedkidssittingatabout48percentandthefewthatweactuallydokeepincommunity-basedthingssittingbelow20,inmostcases,shouldbeprettyobviousthatinstitutionalizingandmuchofourprobationapproachevenhasbeenmisplacedthatwe'renotreachingtheproblem.We'renotreachingthekid.”

“Itwouldbecollaborationbetweenthecommunityandthekids.Then,thefirststepistomakesurethecommunityunderstandsthekidsarepartofthem.They'renot'them'.They're'us'.Assoonastheyunderstandthattheydohaveaninvestmentintheirownkidsandtroubledkidsneedthehelpofthecommunityandtheycanturnaroundandbereally,reallyforcefulintheircommunities.”“Theseyoungpeoplearemuchmorereadytotransitionearlierthantheywereinthe


oldculturebutwedon’thavealot,Ithinkthey'redevelopingsome,butwedon'thavethe,ImeanwhatI'dreallyliketoseeisI'dreallyliketosee,I'dbeworkingwithYRTCtolookatthis,I'dliketohavesometentaclesbackinthecommunity,whetherit'sthroughanagencylikeoursordirectlydone,wheretheseyoungpeoplecanbegintospendmoreandmoretimeinthecommunitygettingreadytofacetherealityofthatbeforetheygetcutloose.”

“I’mhopefulthataswecontinuetoimplementandreallyenforceourbeliefsandourphilosophyandcontinuethatmovementforward,hopefullywithmoreservicesinthecommunity.Sometimesthatcanbeabarriertowhereyou’vetriedeverythingandthere’snothingleft.Buthopefullytokeepyouthinthecommunitywheretheyneedtobe.”

“We’vegotsomegreatprovidersinthecommunitywho—Ikindofjokethatwehavesomeproviderswhotheyjustseemtoworkmagic.[Y]oucanhaveakiddothatrefusestodoanythingelse,butthey’regotothatprogram.Andthey’rerefusetogotothatprograminitially,andthenyouessentiallyforcethemtogo.Twoorthreedayslater,theyloveitthere.Andit’sappropriate.They’rehavinggoodrolemodeling.They’regettinggoodprograming.They’rebuildingrelationships.Thefolksthereareadvocatingforthem,butinanappropriateway.SoIthinkwehavesomereally,reallydedicatedpeopletoworkingwithourkids.That’sahugehighlightforme.”

CreateaRangeofEffectiveCommunity-BasedProgramsHavingavarietyofcommunityprogrammingavailableforyouthprovidesoptionsfordecision-makersandthereforeoptionsforyouth.

“Beingabletooffertheprofessionalsinthecommunitymoreskillsandresourcestodotheirjobsbetter.Alsoincreasingtheamountofservicesinthecommunitythroughtheallocationofthosecommunitybasedaidfunds.Ifwehadunlimitedfinancialresourcestobeabletoreallyexpandandenhancethecapacityoftheprogramsthatareneededinthecommunity,thatwouldreallybeit.Andtogoalongwiththat,theabilitytoprovideprofessionaldevelopmenttothemtoreallybolstertheircapacityasserviceproviders.”

“Soaswegetbetteratengagingmorepeople,whetherit’sinamentorrole,orthefaithcommunity,orthingslikethatIwouldlookforopportunitiesforpeopletobereachingouttofamiliesbeforetheywouldgettothepointwheretheirchildrenwouldbeintrouble.Ithinkthatwouldbehelpful.”

Communitysupportsallowyouthtostayhomelonger.

“Wehaveanarrayofservicesthatareavailabletousinourdistrict.Obviously,westillhavesomegaps.Ourofficersdohavealotofcommunity-basedservicesthatallowthemtoworkwiththejuvenilesandthefamiliesinthecommunityuntiltherecomesapointwhenthoseserviceshaveshownthattheyarenolongereffectiveandhigherlevelsofcareorplacementsoutsideofthefamilyandcurrentcommunityare


required.SoIdofeelveryfortunatethatwehavethoseservices.”

Inclusive and Contextually Responsive

Recognizethatyoungpeople’slivesarepowerfullyshapedbytheirdevelopmentalstage,culture,family,andcommunity.AddressthedocumenteddisparitiesintheNebraskajuvenilejusticesystemincludinggeographic-baseddisparities,racialdisparitieswithinclusiveandcontextuallyresponsivestrategies.

WhatthislookslikeinNebraskaTakingthetimetounderstandtheyoungpersonandtheirfamily’sculture

“Thereisnoonetherapeuticinterventionthat'suseduniformlywitheveryfamily.Everysinglecaseiscompletelycustomizedtothatfamilyincludingthethingsthatmaketheirfamilyunique,whetherthat'saracialculture,whetherthatisthecultureofthecommunitythatthey'rein,whetherthat'syouknow,particularbeliefsystemsofthecaregivers,youknow,tryingtoguidethisyouth'slife.Andsoeverythingisverymuchfocusedonhighlyindividualizedtreatmentstrategies,notonlyfortheyouthbutalsofortheircaregivers.”

Contextuallytargetedinitiativesthataddressraceandculturehead-onPeopleintervieweddescribedspecificinitiativesinNebraskathathavewithtargetedculturalorracialcomponents,specificallytheJuvenileDetentionAlternativeInitiativeandtheTraditionalWellnessCourts.AboutJDAI:

“Youknowthat'soneofthebigpiecesorcorestrategiesoftheJDAIworkislookingatspecialpopulationsandlookingateverythingthroughthatracialandethnicdisparitylens.[We]certainlydostillhavedisparitiesandyouthofcolorareover-representedinalmosteverydecisionpointinourstate.We'reunder-representedinthoseareaswhereit'slikeforexampleindiversionandhavingaccesstodiversionorpointswheretheycandivertoutofthesystem,theytendtobeunder-representedthere.Youthofcoloraredefinitelyover-representedinourdetentioncenters.Andsothatisapiecewe'reworkingonthroughJDAI.”

AboutTraditionalWellnessCourts:

AndthediversionprogramsthatIwasabletohelpcreate,wehaveatraditionalwellnesscourt.It’scalledtraditionalwellnessnotinthetraditionalcourt.That’soneofthetermstheyuse.Nationwideistraditionalcourt.Weuseitas,whenIsaytraditionalwellness,it’sourculturalwayof,ourculturalcourt.Butit’sforfirsttimeoffenders.Ihavelessnumbersandit’sduetohavingthatdiversionprogramsothey’renotincourt,butthey’resittingaroundwiththeeldersinourcommunitylearningthingsthewaythatoureldersusedtotalktous.Wetrytobringoutthebestinmyfamily,myfather,myolderbrothers,theymaycomeandsharewiththekids.Iwaslucky,otherpeopleareluckybecausewehavethatupbringing,it’sapositive


upbringingandit’snotsoculturedinalcoholism,drugabuse.It’smoreculturedintoallthepositivebeautifulthingsaboutbeingNative.

Takingintoaccountthatjuvenilesarefundamentallyanddevelopmentallydifferentfromadults.

“[Wehave]alotmoreknowledgeaboutbraindevelopmentandhowdifferentthingssuchasdrugs,alcohol,andtraumacanreallyaffectbraindevelopmentandhowchildrenandadultsrespondtothosethings.AndbecomingmoreinformedinthoseareasIthinkhelpsustomoreproperlydealwiththingsthatmaybewedidn’tdealwithappropriatelyinthepastbecausewedidn’tknowwhatwasgoingon.”

“[T[here’sstillthatculturalphilosophythatyeahthey’reakid,buttheystillshouldbepunished.SoIthinkthere’sstillalongwaytogo,butIfeellikethereismoreofanunderstandingthatkid’sbrainsaredifferent.Theymightlooklikeanadult,butthey’recertainlydifferent,andtheyneedhelpratherthanstraightpunishment.”

“Ithinkweneedrenewedemphasisonthefactthatkidsaredifferentthanadults.Ithinkpeoplearebeginningtoembracealittlebitneuroscience,whatthey'reteachingusabouttheadolescentbraindevelopment.Unlessanadultunderstandswhythesekidsjustdriveuscrazyisbecausethey'rewiredto.It'stheirjob.’

Onepersondescribedthatintheirwork,thetoughestyoungpeopletoworkwitharecategorizedaslife-course,persistent,juvenileoffenders.Theygoontosay,“IthinkI[this]sthemostgoofydefinitionontheplanet.Nobodywhois14isalife-courseanything.Withwhatweknowaboutadolescentbraindevelopment,they'rejustaworkin-progress.”

WhythismattersLanguagebarriersandalackofinterpreterscanleadtoprolongedstaysinthesystem

“WedohavesomecasesthatdostayonlongerandIthinksometimesthereisaculturaldifferencewhetherthey’reHispanicor–wehavereservationsinourdistrictandsowedohavealotofNativeAmericansonourcaseloads.Andsothereareuniquesituationswithallofthosethatsometimescreatecomplicationsandsosometimesweseethoseyouthstayonmaybealittlebitlongerthanothersdo.”

“Wehavesomerealbarrierswithsomeofourfamiliesforwhichinterpreterservicesarerequired.WehavespecificchallengesinfindinginterpretersandmatchingservicesforfamilieswhospeakBurmeseandArabic.Wehaveacouplehearingimpairedfamiliesthatrequiresignlanguageinterpretation.[…]Sowegetaninfluxofpopulationsandthat’s,Ithink,wonderful.Butfromoursystemperspective,withoutadequateresourcesfrominterpreterservices,wedon’thavethemeanstoprovidethoseservicesinastimelyamanneraswewouldwantto.”

LanguageandculturalbarrierspreventpeoplefrombeingabletoworkbestwithyouthandfamiliesMultiplepeopleinterviewedspokeaboutthechallengesofworkingwithfamilieswhose


primarylanguageisn’tEnglish.

“[L]anguagebarriers.Justspeakingspecificallytonotonlyimmigrantsherefromthesouth,butalsoourrefugeepopulation.There’sahuge,Ithink,barriertoeffectivelyworkingwiththosewhoarenotnativeEnglishspeakersbecausethesystem,specificallyhere,isnotsetuptohandleallofthedifferentlanguagesofthefamiliesthatwe’reserving.Soitcreatesalargeproblem,Ithink,forthosefamilieswhofirstthey’reherebecausethey’veexperiencethishorrifictraumabeingarefugeeandthentofindthemselvesinvolvedinasystemthattheydon’tunderstandisjustcompoundingwhatthey’regoingthrough.”

Anotherpersonexplainedthattheycanofferthepaynecessarytocompeteforpeoplewhohavethelanguageskillstoworkwithadiversepopulationoffamilies.

“Beingabletodrawmorepeopleintoourworldwhowouldbewillingorhaveapassiontohelpfamiliesinthatregardwouldbegood,butalotoftimeswhatweseeiswhenpeoplehavetheability,orthetalent,ortheskill,ortheeducationtospeakmultiplelanguageiscompanieswillhirethemandpaythemaboutfourtimesasmuchastheycanmakeinourworld.Soit’shard.”

ChallengesChangearounddisproportionateminoritycontactseemsparticularlychallengingandslowSomepeopleseemtohavetremendousawarenessaboutthisissueandacommitmenttochange.

“TheCrimeCommissionhasaDMCCommittee,andthey’rechargedbythefederalgovernmenttohavelikeaplaninplaceforhowthestateisgoingtoaddressracialdisparityinthejuvenilejusticesystem.AndIhavebeenjustwoefully-what’stherightword-disappointedintheabilityforthatgrouptoactuallyeffectuatechange.Ithinkeveryoneonthat,it’stherightpeople.Ithinkevenit’stherightleadership,butforwhateverreasontheyhavenotbeenabletomovetheballforward.”

Whenaskedspecificallyaboutvariationsintreatmentorexperiencesbasedonraceorculture,manyintervieweeswereuncomfortabletalkingaboutraceandculturebaseddisparities.Somesaidtheydon’tseeaprobleminthisarea.

“Idon’tknowthatwereally,wellwehaveanumberofHispanics,wearehavingmoreAfricanAmericansarecomingintothecourtsysteminthisareaofNebraska.It’soneofthosethingsthatcertainlyIdon’tfeellikeItreatthemdifferently,certainlythatcouldbepossible.Idon’treallyseethattheDepartmentofHealthandHumanServicesorprobationreallytreatsthemmuchdifferently.”

CoreStrategiesEachpersondoingtheworktounderstandtheirownimplicitorunconsciousbiasUnderstandtheyoungpeople’sculturalcontextandyourown,andhowbothinfluencewhatweseemwhatweknow,andourinterpersonalinteractions.


“So,mythoughtshavechangedalotintermsofhowtorespondtokids,howtoseekids;understandingthementalhealthneeds,understanding–andseeingeachchilduniquelyforthemselves.Sorry,I’mgettingonmysoapbox;butinournewworld,wherewedon’tknowwhat’scoming,peoplelikemyself–meaningwhitemiddleclasswomenormen,butespeciallyjuvenilejudgesandinallfields–needtoalwaysbecheckingourselvesforthatimplicitbias.”

Hiringpeoplewhohavethesameracial,ethnicorculturalbackground,sharedlivedexperience,orsharedlanguage

“I’mafraidthatwe’renotgoingtohaveenoughtherapistsorenoughteams.I’mveryanxiousaboutthefactthattheseagenciesaregoingtohire,don’ttakethisthewrongway,butthattheyaregoingtohireblondehaired,blueeyedyoung25-year-oldtherapiststogointothehomes.AndIhavesaidover,andover,andover,andoverthatyouhavetogooutintothecommunityandrecruitpeoplewhogrewupinthecommunity,wholooklikethefamiliesthey’regoingtoserve,andwhoarebilingual.Ithinkpeopleunderstandthatonanintellectuallevel,butIdon’tthinktheyunderstandhowimportantthatisgoingtobetomakethiswork.?

Trainingpracticethatsupportlinguisticandculturalcompetency

“Yeah,trainingisaprettysignificantpiece.Allthepeoplethatworkinanyofourprograms,alltheonesthatworkhere,theywillgothroughaminimumofthree-weekpre-servicetraining,whichiscompetencybased.Sobeforesomebodyheregetstomeetwithafamilyanddothatkindofin-homeworkthey'vebeenthroughprettyintensivetraining,havemetsomeofthatcompetency.Herebecauseoftheworkthatwearedoingtheculturalandlinguisticcompetencyisadealbreaker.Well13ofthe15peoplethatcometoworkhereeverydayarebilingual.HalfofthemarenativeSpanishspeakerswhohavelearnedEnglish.Athirdofthemcametothiscountry,wehaveseveralnewcitizens.Sotheculturalpieceinthisparticularcommunity,wehavethetraining,wealsohavepeoplethatunderstandimmigration.Theyunderstandthelanguagepiece.”

Usinglanguagethatyouthandfamiliescanunderstand

“[O]neofthethingsItalkedaboutouttherewasusingmoredevelopmentallyappropriatelanguageforkidsin[institution].Iwentthroughanorderofprobation,whichisafairlystandardtermofprobation.Thekid’slookingatmewithablankstare.Isaid,well,Iwanttobringthatdowntotheirlevel.Sowe’reworkingonthat.Sogettingmoreintothathandson;ageappropriate,developmentallyappropriatesituationssothekidsmaybehaveabetterunderstandingofwhat’sgoingon.”

ProvidingeducationforconsistentunderstandingofICWA

“Somecaseworkersjustdon’tknowaboutICWA.Somefewwouldintentionallytrytoignoreit,whichcausesmoreproblemsinthiscasethantryingtocomplywithit.Fromthecourtperspective,itreallyisjustindividual…AndIthinkDHHS,again,hasdone


betterwiththistotheextenttheadministrationhastakenastancethattheywanttodobetterandtheyhavebeenworkingtowardsit.Buttheindividualcourtstakeholders,countyattorneys,guardianadlitem,juvenilecourtjudgessometimes,dependingonwhichjudgeyou’retalkingabout,don’tunderstandthelaworthestatuteverywell.Andit’sdifficultwhennoneoftheothercourtstakeholdersunderstandit.SoI’dsayonthecourtside,it’sprobablyattorneysandjudgesthatcouldusealittlebitmoreeducation.”

Trauma-Informed

Designinterventions,responses,andsolutionsbasedontherecognitionthatsomeofthebehaviorsthatyoutharestrivingtochangemaybemaladaptiveresponsestotrauma,andthatrecoveryandhealingmaybeessentialtoaddressinganyothertypesofbehaviorsorlifestylechanges.

WhatthislookslikeinNebraskaMeetingyoungpeoplewheretheyare

“Obviously,whenkidsortheirfamiliesareresistanttospeakingwithyou.Sometimesthathappensbecausethey’vebeenthroughthatexperiencebefore.Thatmayhappenbecausetheydon’thavetrustbecauseofpriorexperiences.Ortheymayjusthavesomuchtrauma,ormentalhealth,orsubstanceabuseissuesthatthey’rereallynotinaplacewherethey’requitereadytoaddresswhat’shappening.SoIthink,likeIsaid,sometimesyoujusthavetomeetthemwherethey’reatandbeverygentleintheapproachandunderstandthatit’sgoingtotakesometime.[…]Sonoteveryone’sgoingtobewillingtojustjumpin.Sothosearesomeofthebarriersarejustthatintergenerationaltraumaticandpovertysortoftypestuffthatmakespeoplejustreallyguardedandunablereallytoevenverbalizewhatitisthat’sgoingon.”

Lookingforopportunitiesforappropriatecommunicationanddatasharingthatwouldallowothersinthesystemtoworkbetterwithyouth

“Lookingattrauma,that’sonepiecethatwe’vegottogetbetterasaSystemisthetrauma,theprevioustraumathatthesekidshavehad.WeneedtobeabletogetbetteratsharinginformationfromDHHStoProbation.So,iftherewasanopenprior3A,whattookplace?Whathappened?Whattriggersworked?Whattriggersdidn’twork?SothatcanhelpusinformulatingthecasefortheJuvenileOfficersaswell.So,allthosethingsiswherewe’vemadehugestridesinbutweneedtocontinuetoimproveandgetbetterat.”

Increasedfocusonhiringandtraininghasitrelatestoworkinginatrauma-informedwayManypeopledescribedworkinginenvironmentsthathaveseenashiftinhowpeopleaboutthemarethinkortalkingabouttrauma.

“[What]Ijustammostimpressedwith,isthatinthisgrowthinjuvenilereform.Wehavefocusedonhiringjustthismuchmorejuvenileprobationofficersfocusedon


increasingourtrainingaboutjuveniles,andbraindevelopment,andtraumaandmotivationalinterviewing.”

“Inowhaveatrauma-focusedtherapistwhoisreallyavaluabletoolforme.I'vebeenorderingtraumaassessmentsforthelasttwoyears.Iwasfirstmetwith,"Nobodydoesthose."Isaid,"Theywill."It'sjustlikeFieldofDreams.Buildit,andtheywillcome.IfIorderatrauma-informed,thenapsychologistwillgogetthetrainingsotheycandoitbecausethat'showtheymaketheirliving.Inowhavefourclinicalproviderswhowentandgotthetrainingandcandoatrauma-informedassessment.”

“ButIthinktrainingandtheparticipationofthelawyersinthattrainingandjudgeshashelped.Youknowtheadolescentbraindevelopment,whatweknowaboutthebrain,whatweknowaboutaddiction,whatweknowaboutmentalhealth.Youknow,evenasrecentlyas10yearsagowedidn'tknowsomeofthis.Trauma,howtraumaaffectsyouth,howtraumaaffectsparentswasn'tevenadiscussion10yearsago.”

Buteverypersonwhospokeaboutgainsaddedthattherewasstillmuchmoreworktobedonetobecomeatrauma-informedsystem.

WhythismattersTraumaoftenunderliesthebehaviorsthatresultinplacementsinthejuvenilejusticeSystemManyofthepeopleinterviewedreferencedthefactthatahighproportionoftheyouthandfamiliestheyworkwithhaveexperiencedorarecurrentlyexperiencingtrauma.

“Andthatyouknowthattherewerethingsgoingonintheirlives,theirfamiliesexperiencedtrauma,whatever.Butit'snotgettingaddressed.Andsoeventuallytheyfindthemselvesinthejuvenilejusticesystem,andwe'reforeverplayingcatchupyouknow,tryingtodothat.SoIthinkthesystemistrying,soyouknow,IthinkthatHHSandtheprobationadministrationhavedonealotofworktotryto,youknow,tobridgethosegapsandidentifyyouthearlierthatarehavingneedsthatmaybehavebeenidentifiedasperhapsexperiencingsometraumaandgetaheadofthat.”

“Iamahugebelieveroftrauma-informedjusticethatit'sbeenthekeyingredientthatweweremissing.It'sthatweneedtoidentifythetraumathatkidshavesufferedbecausesomuchofwhattheydointhebehaviorworldissimplysymptomaticofanunderlyingtrauma,agirlthatwasmolestedandnevertoldanybody,aboywhowasmolestedandnevertoldanybody,kidsthatwatchtheirparentgetbeatupbytheboyfriend.”

“Oneofthekeythingsthathashappenedinthepastcoupleofyearsisdealingwiththetraumaofwhatfamiliesaregoingthroughiskeytoahappyfuture,ahappyfamily.Youcanhaveclientsthatdrink,anddodrugs,ormaybecutthemselves,orabusecasino,goingtothecasino,they’restillgoingtocontinuetodothatifyoudon’tdealwiththetraumaofwhyitistheydothat.Sothatwholeconversation—Idon’tknowifyouwenttotheNebraskaJuvenileJusticeConferencethisyear,buttherewasalotofsessionsondealingwithtrauma.Andthat,tome,isreallyimportantbecause


Ialwaystellmycoworkersandcohortsthatunfortunately,we’realwaysgoingtohavejobsbecausepeoplearealwaysgoingtosufferfromaddictions.Anduntilwecanstartdealingwiththetraumaofwhythey’redoingit,we’regoingtokeephavingtheseissues.”

“Ithinkintheformersystemingeneralitappearedtobeprettypunitive,andfocusedinonnaughtykids.Andhowdoyoucorrecttheirnaughtybehavior?Ithinkittookusawhiletolearnalotmoreabouttraumainformedcare,andtheimpactsoftraumaonchildren,andtheimpactsoftheirenvironment.Andhowtraumaandmentalhealthconcernsarereallyexpressedinchildren.Andsoyes,Ithinkthathistoricallyit'sbeenverymuchsoaboutresidentialcare.Thatifachildisnotbehavinginthewaythatpeopleareexpectingthemtothatwe'regoingtoremovethemfromthehome.Sothatwecangetthosebehaviorscorrected,Istillbelievethatthat'soccurring.Idon'tthinkit'soccurringtosuchadegreeasitusedto.AndIdothinkthatpeoplearereallyinvestedinmakingchanges.ButIabsolutelyseeithappeneverysingleday."

Workingthroughatrauma-informedlenscanhelpensuretherightpeopleareatthetabletosupporttheyouth

“Iseethatwhenyouusethatcoupledwithbettertrauma-informedjusticeprinciplesthatwehaveachanceofreallyidentifyingwhat'swrongandgettingtherightcollaborationofpeopletodotheintervention.Ithinkit'sgoingtowork.”–Youthparticipant

Becauseitmatterstoyouth

“Trauma.Ithinkthatdefinesthewholejusticesystem.That'sanissuethattheyrarelytouchon.Whenayouthgoestothecourtsystem,alltheyseeiswhattheydid,immediately.Thisiswhyyou'rehere.Thisistheissue.Thisishowyou'regoingtobepunished.Thesystemsayswhat'swrongwiththiskid.Whatwe'retryingtodohereisaskingwhathappenedtothisyouth.That'ssomethingthesystemneverasks.Ifithas,it'srarewhenitdoes.”–Youthparticipant

“Ireallythinkthejuvenilejusticesystemneedstolookintotrauma,insteadofjustlookingattheproblemskidsaregettinginto.It'slookingattheresourcesofwhy.Therearesomanythingsbeingaddressed–anxiety,depression,suicidalideation.”–Youthparticipant

ChallengesLackofhighqualityandfinanciallyorgeographicallyaccessiblementalhealthservices

“[Wehavea]serviceofprovisionisalwaysanissueandwhetheryou’reinaruralcountyorasuburbanone,particularlyincertainarenas.Childrenwhoaresexuallyharmed,forinstance,thekindsoftreatment…there’sonlycertaintherapiststhatarereallytrainedinprovidingthoseservices.Inplacements,ifthere’saneedforanoutofhomeplacement,thereisalackofplacementsasaresult.Andgoodtreatmentasa…


soandthat’sjustanexampleofsometimestherearegapsinthosesystems,evenwhenyou’vegotafairlywidearrayofservicesthatyouhavedifficultyprovidingthoseappropriateservices.”

“[W]herethere’salotofmentalhealthfactorsthatyouthandadultsfacethatimpactsthechildrenbecausesomeoftheparentshavementalhealthissuesandaren’tabletogettheproperhelpthattheyneedeitherbecausethere’snotprogramsavailableintheareaorthefinances.Thefinancesareabigdealaswellbecausesomeofthosethingsareifthey’reaslidingpayscaletypesituation,someofthepeopleare,Idon’tknowifyouwanttocallthemworkingpoororwhatyoumightcallthem,buttheybasicallymightnotqualifyassomeoftheotherpeoplewouldthatwouldhavenoincome,butatthesametime,there’ssomanymedicationsthatcanbeveryexpensive.”

“Andthenalsothere’sjustsomeproblemsthatarebeyondthescopeofourservices.Maybethere’ssomereallysignificantmentalhealthproblemsandyetthefamilyreallyisnotabletoaccesstheappropriatecareandsowe’retherejustbecausetheydon’tknowwhatelsetodotohelpthisfamily.Soyouknow,that’sabarrier.Thatcanbeabarriernotbeingabletoaccesstherightserviceattherighttime.”

Thisisimportanttomovetowardstheintentionof‘lessismore’,orasonepersonshared,

“Ifthey’renothighrisktoreoffend,theyshouldbeabletobeserved,theirmentalhealthneeds,intheircommunities;throughcommunityresources,nineoutof10times.”

Refugeefamilieshaveexperienceduniquetrauma

“There’sahuge,Ithink,barriertoeffectivelyworkingwiththosewhoarenotnativeEnglishspeakersbecausethesystem,specificallyhere,isnotsetuptohandleallofthedifferentlanguagesofthefamiliesthatwe’reserving.Soitcreatesalargeproblem,Ithink,forthosefamilieswhofirstthey’reherebecausethey’veexperiencethishorrifictraumabeingarefugeeandthentofindthemselvesinvolvedinasystemthattheydon’tunderstandisjustcompoundingwhatthey’regoingthrough.”

“ButIthinktrainingandtheparticipationofthelawyersinthattrainingandjudgeshashelped.Youknowtheadolescentbraindevelopment,whatweknowaboutthebrain,whatweknowaboutaddiction,whatweknowaboutmentalhealth.Youknow,evenasrecentlyas10yearsagowedidn'tknowsomeofthis.Trauma,howtraumaaffectsyouth,howtraumaaffectsparentswasn'tevenadiscussion10yearsago.SoIthinkpeoplearebetterabletoidentifysomeissuesandhopefullygettherightresourceinplace.”

Addressingtrauma,loss,andgriefcantakelongerandaddlayersofcomplexity

“It’ssimple,yetcomplicated.It’ssimpleinthatyou’rereallyjusttryingtofind…learnaboutthem,wheretheycomefrom,kindofgettotheirlevelandassess,figureout


howbestwecanhelp,ratherthanassumeortakecookiecutterapproaches,allthatkindofthing.So,butit’scomplicated,becauseonceyoufindthatouttheremightbeseverallayersofchallengesthatcausebarriersforyoutogetthatyouthtoabetterplace.Beittheirparentalandhomesituationorsometimesit’stheir…youknowmaybejustschoolisjustabighurdleforthem,anaversion.Ortheyhavedeficienciesthatthey’renotsuccessfulthere,ortheyhavebehaviordisorderwheretheyarethrowingthingsatteacherseverydayandthencausingthatdailychaostointerrupttheirabilitytoachieveandhaveagoodeducationalfoundation.Tomentalhealthanddepression,tojustgriefsometimes.It’sjustkindofapersonalobservationonmypartfromdoingalotofcourtreports.Butthere’salotoflossandgriefinkid’slivesthatcomethroughthesystem,more-sothankidsthataren’tinthesystem.YouknowwhatI'msaying?AndIthinksometimeswemissthatalittlebit.”

Somepeopleseebeingtrauma-informedascontrarytoaccountability

“Likeforexample,withthedetentionpiece,reallyshiftingthephilosophyaboutwhyweusedetentionandthat'sbeendifficultparticularlyforlawenforcement,sometimesjudges,countyattorneys,becausepeoplewantaccountabilityinhelpingpeopleunderstandthataccountabilitydoesn'tnecessarilymeanlockingyouthupandthatthere'sotherwaystoholdyouthaccountableandteachingabouttraumaandwhat'sreallygoingonwiththeseyoungpeopleandhowthosedecisionscanfurthertraumatizeyouth.”

CoreStrategiesYouthperspective–supportme,don’tpunishme

“EverytimeIgotwhooped,Idon'tevenrememberwhyIgotwhooped.It'sasystem.It'sapunishment.Youdidthis.You'reabadkid.Youguysaren'tbadkids.Youmakemistakesandmakemorechoices,yeah,butthequestioniswhyarethesethingshappening?That'snotthequestionthey'reasking.Allthey'resayingisthisthethingthathappened,andthisishowyou'regoingtobepunished.That'sit.Isbehaviorbeingchanged?Notreally.Iknowyouththatfollowtherules–theirprobationis[overlappingnoise].Nobody'strackingthemanymore.Arebehaviorsbeingchanged?It'srare.Also,whenbehaviorschange,isitchangingbecausetheseyoutharegrowingandlearning,orisitchangingjustbecauseoffear.Livinginfearisnotliving.”–Youthparticipant

“Theyhavethisjournal,andtheywritedowneverysinglelittlebadthingyoudo.Whenyouhaveagoodday,that'salltheyput:goodday.Theydidn'tput,oh,shewenttothemall.Shehadagoodday.Shedidn'tsteal.Shedidn'trun.Nope,justagoodday–butwhentheydoabadthing.”–Youthparticipant

Beawareofandaddresstimeswhenyouthmaybepunishedforparentalbehaviors

“Ithinkfromadistrictperspective,weexperiencesomerealfrustrationincaseswherewetrulybelieveit’sa3Afiling.Itisanabuseneglectfilingbutbecauseofthe


standardsofthat,andIunderstandit,becauseoftheageofthechild,becauseit’snotimminentrisk,foranynumberoffactorsthosefilingsarenotmade.Sothenthekidbecomes,I’mgoingtojustsayit,thekidbecomesthevictimofasystem.Andthekidgetspunishedforparentalbehaviorsbecauseallthey’retryingtodoisfigureouthowtosurvive.”

Ensurestaffhaveadequatesupportfortheirownself-care

“I’mconstantlytelling,andtalking,andmessagingtostaffaboutself-care,anddoingtheworkinatraumainformedmanner.Whentheirbucket’sempty,theydon’thavemuchtogivetoourkidsandfamilies.Sohowdotheyfillthosebucketswhenthey’renotatwork?Andyetit’shardtomodelthatforthem.”

Strengths-Based Family Involvement and Support

Supportthefamilybyprovidingservicesthatstrengthenthefamily’scapacitytoprovideguidanceandsupervisionandtopreventinvolvementinthejuvenilejusticesystem.

WhatthislookslikeinNebraskaSeeingstrengths,notdeficits

“Havingrecentlybeenapartoftheprobationconferenceandhavinglistenedtoapresentationbyfunctionalfamilytherapy,Iwassuperimpressed.BecauseitdidthekindofthingsthatItalkedabout.Sheusedanexampleofworkingwiththefamilyandtheywerenevergoingtoeatdinneratatable.ThewaytheyatedinnerwasonTVtraysinfrontofthetelevision.It’sokay.Noteveryfamily’sgoingtolooklikewhatIthinkmyfamilylookslikeorneedstolooklike.It’sbeingabletomeetpeoplewheretheyareandsaythisisastrengthandhowdowedefinesuccess.”

“Itkindofgoestoatherapymodelwhere,youknow,itusedtobethatifyouhadproblems,youcameinandtalkedtothetherapistandthetherapisttoldyouwhatyouweredoingwrong.Andnow,youknow,thatlineofthinkingis,youcomeintothetherapistandthetherapistbuildsonthestrengthsyouhaveandyouknow,it'smuchmoreimportanton,youknow,thatinvolvementofthepersonyou'reworkingwithtowardsapositiveoutcome.Andthat'sthesamewithjuvenilejustice.AndIthinkthattheprofessionals,thosestakeholdersinNebraskathatareinvolvedinthishaveacceptedthatvery,verywell,andit'sprettymuchacrosstheboard.”

Recognizingandbuildinguponthestrengthsofthefamilytobettersupporttheyouth

“Andwedothatwithaverystrengthbasedapproach.Wetryandleveragethestrengthsthefamilybringstotheecology,andusethosestrengthstohelpthembuildanewpartoftheecologyorchangepartoftheirecologyinwaysthathelptheyouthbemoresuccessful.”

“Ithinkwhat'simportanttonoteisit'sastrengthbasedmodel.[T]hefirstjobofthetherapististoengagethefamilyandthat'sfamilymembersandotherkey


participantslikeprobationofficers.Butatthefamilylevelthatreallyisdrivenbythetherapistworkingtounderstandthecultureofthefamily,thevaluesofthatfamily.Andhowtheywoulddefinesuccessinthisparticularinstance.Andeachtimethatthereisabarriertoprogressthatthefamilyhassaid,yeswe'dliketomakeprogressinthisarea.Andthentheyworktogetherwiththetherapisttodevelopstrategies,whentherearebarrierstothatprogresstheassessmentofthosebarriersisalwaysveryspecific,youknow,tothecontextofthatfamily.Andthatmaysoundkindofsimplistic,butthereisnoonethingotherthanbeingstrengthbasedandusingadisciplinedapproachtothework.”

“Becauseyou'vebeenpracticingthatforalongtimewithalotofpeople,andsobeingabletogetinandgetthatinvestmentofthefamilyIthinkisabsolutelykeytotheyouth'ssuccess.Andalsotothefamily'ssuccess,thefamily's,individualsarecomplexbutfamiliesareevenmorecomplex.Andtheyhaveavarietyofthingsthatareoccurringthatarecontributingtowhateverisoccurringwiththatyouth.Andreallybeingabletofocusinontheentireunit,andthenalsoIthinkthestrengthsofthefamilyandhowtobuildonthosestrengthsisreallykeyandimportant.”

“IthinkthatmypassionwithrespecttoworkingwithyouthandfamiliesisthatI'dliketobeabletointerveneandbreakpatternsinfamiliesthatareoccurring.AndIthinkthebestwaytodothatistoworkwiththeyouthandthefamilyasawhole.AndI'mverypassionateabouttheworkthatourprogramdoesintermsof,andwegettobe,we'refortunatetobeavoluntaryservice.Sowedohavesomeofthatcreativityandflexibilitytoreallyencouragethatthefamiliesarethedriversoftheserviceanddriversofwhatwe'redoing.ButwiththatengagementandbuyinIthinkwe'rereallyabletoimpactthetrajectorywhenwe'reworkingwiththem.”

WhythismattersRehabilitatingtheyouthwithoutstrengtheningthefamilycancanceloutallprogress

“Becausewhatweknowtobetrue,thoseofuswhohavebeendoingthisworkforever,isthatyoucangiveeverythingtoakidinresidentialtreatmentoraresidentialplacementandtheycanbecompletelyontrack,andtheycanbedoingverywellacademically,andverywellfromabehaviorstandpoint,andthey’reclean,andthey’resober.Butifyouthrowthembackintothesameenvironmentfromwhichtheycamewheretheremaystillbesubstanceabusegoingoninthehome,there’sstillunstablehomeenvironment,lackofsupervision,whateverthechancesofthemmaintainingthatsuccessaremuchlower.SoIthinkit’sveryimportantthatwe’rebringingtheseservicesthatwillworkwiththewholefamily.AndIthinkthat’sastepintherightdirection.”

Thefamilyneedscommunitysupporttomakelastingchange

“Andthengettingthechildrentoworkwithintheirfamilyhomewhentheyreturntoanenvironmentthathasn’tchanged,andweexpecttheirbehaviorstochange,isverydifficult.Soit’sreallyacommunityapproachbecauseyoureallyhavetowraparound


thosefamiliesinordertogetanypositivelong-termchange.”

Juvenile≠Bad

“Ididn'tevenfindoutuntiltwoyearsagothatjuvenilemeantyouth.Ithoughtitmeantjustkidswhowereintrouble–notadults,butjustkids.Anadultwillcallyouakidorteenager.Theydon'tsayjuvenileunlessyou'reintrouble.Theydon'treallysaythatunlessyou'reinthecourtsystem.”–Youthparticipant

“…whenyouthinkofjuvenile,youthinkofthewordtrouble.Prettymuchsocietyruinedthewordjuvenile.Juvenilejustmeansyouth,buteverytimeyouthinkofjuvenile,youthinkofachildincourt,becausetheyonlyrefertoyouasjuvenilewhenyou'reinthesystem.”–Youthparticipant

ChallengesPovertyissometimesseenassynonymouswithdeficiency

“We’vegotpovertyissues.Andwe’vegottobecarefulnottolookthroughthelensofpovertywhenwearerespondingtothesefamilies.Weneedtoshowrespect.Thisisnotaboutbeingmiddleclassorwhateverclassyouwanttopick.It’sfindingstrengthwithintheirownsphereandbuildingit.Sothere’salotthere.”

“We’vegottobecarefulnottolookthroughthelensofpovertywhenwearerespondingtothesefamilies.Weneedtoshowrespect.Thisisnotaboutbeingmiddleclassorwhateverclassyouwanttopick.It’sfindingstrengthwithintheirownsphereandbuildingit.”

CoreStrategiesTreateveryyouthandfamilyasunique

“Thereisnoonetherapeuticinterventionthat'suseduniformlywitheveryfamily.Everysinglecaseiscompletelycustomizedtothatfamilyincludingthethingsthatmaketheirfamilyunique,whetherthat'saracialculture,whetherthatisthecultureofthecommunitythatthey'rein,whetherthat'syouknow,particularbeliefsystemsofthecaregivers,youknow,tryingtoguidethisyouth'slife.Andsoeverythingisverymuchfocusedonhighlyindividualizedtreatmentstrategies,notonlyfortheyouthbutalsofortheircaregivers.”

Youth and Family Voice and Empowerment

Provideyoungpeopleandfamiliesconsistent,formalopportunitiestohaveinputintohowdecisionsaremade,andhowservicesareimplementedandevaluated.

WhatthislookslikeinNebraskaSeeingthepersonfirst,thecasesecond

“Ithinkhavingreallygoodcommunicationwiththefamilyorwiththekid.Mostkids


thatareinvolvedinthejusticesystemarenottherebecausetheywanttobe.Soreallyallowingthemtotellyouwhotheyarebeforeyoubeginworkingwiththemissoveryimportantbecausemosttimestheyfeellikeyoualreadyarejudgingthem.Solettingthemhaveavoicefirst,lettingthembecomecomfortable.Andthenyoucanseethatthingsareworkingwellbecausethey’recommunicatingwithyou.Sotheevidencethatthingsareworkingwelljustcomesthroughintheirwillingnesstotalkwithyou,andansweryourquestions,andbereceptivetothefeedbackthatyou’regivingthem.”

Thisinvolvestakingthetimetolistentoyouth.

“Weneedtolearntolistentokids.Wedon'tdothatverywell.Wetellkids.Wedon'thaveconversationswiththem.It'shardtogetkidstoopenupincourt,sotheyhavetoseethatyou'rewillingtolisten.Mostofmycolleaguesaren't.Theythinkthesekidsjustneedtobetoldwhattodo.Theywillnotembracethefactthattellingtheadolescentbraintodosomethingworksfortheretentioncycleoftheadolescentbrain,whichmaybewe'reonthethirdfloortoabouthalf-waydowntothefirstfloor.Then,it'sgone.Kidsdon'tthinkahead.Theadolescentbrainisnotwiredtodothat.”

Creatingscheduledopportunitiesforyouthandfamiliestoprovideinput

“Idon’tthinkyoucanreallyadvocatefreeyouthwithoutgivingthemvoice,right?So,myapproachwithmyclientsistoevenwiththistypeofscheduleyou’dhavegivethemtheopportunitytospeak.AndyouknowIwouldcometoameetingwithmyagendawhatIneedtofindoutforthenexthearing,right?ButwhatIneededtoknowmighthavenotmetupwithwhattheirimmediateneedswere.So,givingthatspaceforthemtotalkaboutlikethefoodhereissobad.Youknow,liketogetthoseimmediateneedsofftheirmindtokindofopensothentheywouldhavemoreabilitytoanswerthequestionsIhavelater.So,Iguessmyapproachistostartwiththemandreallytryandmakesuretheirvoiceisheard.“

“Youhavetoempowertheirvoice.Youhavetofindastrength.Youmusttreatthechildrenandtheirparentswithrespect.Youmodelthatbehavior,andthentheycansee,‘Wow,thisguyisnotlookingdownmynoseatme,he’sfindingsomeworthinme.He’sencouragingthat.’Andso,Itrytoempowerthatyouth,andifit’sajuvenilejusticecase,tosay,whatdoyouthinkaboutthis?Here’swhatthey’resuggestingwouldbehelpful.Whatdoyouthink?Andthenhaveadialogueaboutit,and...Doyouunderstandwhyyouneedtomakeitrightwiththispersonthatyouhurt?Andthere’smanywayswecoulddothat.Icouldsetupamediation,andtheremightbesomewayofmakingitright.Youknow?So,Imightnotusethewordrestorativejustice,butthat’swhatI’mdoing.”

WhythismattersProgresshappensfasterwhenyouaddressthemostpressingneedsfirst

“Sowedoreallybelievethatthechangeagentsarethepartnersthatweworkwith


thefamilythatareworkingdirectlywiththekids.Soit’sgoingtobetheparentsandtheconsultant.Myroleistomakesurethatthestaffarefollowingourmodeltofidelityanddoingthethingsthatweknowworkswithkidsandfamiliestoensurethatthere’sapartnershipandthatfamilieshaveavoiceandthekidshaveavoice.Andthatwe’readdressingtheneedsthatarethemostpressingforthem.Andthenhelpingthemaccesstheresourcesandsupporttheyneedtogetbetter.Sothenbasicallywecangetoutoftheirlivesbecauseourgoalistonothavethemneedus.Wewantthemtomoveonandhaveanormallifeandnothavetohave[redacted]services.”

Empoweredfamiliesaremorelikelytoreachoutforthehelptheyneed

“Thefamiliesthathavecompletelyembracedthechanges.I’veseensomeparentsthatareveryrelievedthattheirchildisnotastateward,orwasnotmadeastateward,thatweareheretosupportthemandgettheirkidbackontrackandworkwiththemasawhole.Therehasbeenalotoffamiliesthathaveengagedinthatandfeltempoweredthattheydidn’tlosecustodyoftheirchild.AndsoI’veseenthatthathasbeenahugesuccessforsomefamiliesthatpreviouslymaynothaveevencalledforhelp,becausetheywereafraidtheyweregoingtolosetheirchildtothesystem.Andnowthattheydon’tlosecustody,they’remorewillingtoaskforhelpandgetassistance,andaskfordirection.”

“Ithinkmostofficers,theywantthebestforthesekids,and,youknow...Ithinkthatwe’remorecognizant,like,okay,thiscanharmyouthtotrytoputthemindetention,andnotjustgoingtothrowthemindetentionbecausetheydidthis,youknow.Butjustcontinuingbeingmorewillingtoworkwiththem,andalsorecognizingthattherearecertainthings–likeifwesupervisethemattoohighofalevel,orifweputthemintoohighofaplacementorservice,thatcanbemoreofanegativeeffectonthemthanapositiveeffect.SoIthinkthatthat’sachangethatwe’veseen.Beingmorewillingtoworkwiththem.”

ChallengesAdultsinthesystemthinkingthattheyknowbetterthantheyouthorfamilymembers

“Ijustwanttoreiteratehowimportant,as[name]said,thevoiceoftheyouthandthevoiceofthefamilyareinthisprocess.Overall,wealwaysdowhatwefeelisbestfortheyouthandtheirfamilywhilestilltryingtoincorporatetheirvoiceintheprocess.Wejustbelievethatcollaborationwithourotherentitiesiskeytoallofthisaswell.Ithinkwedoareallygreatjobofworkingwithourstakeholdersandmakingsurethatthey'reinvolvedinthefamilyteammeetingsintheprocesswiththesekidsbutmakingsurethatwearestilltheleaderintryingtodecidewhat'sgoingtohappen.[…]Someofourstakeholdersdon'tnecessarilywanttodowhattheyouthorthefamilythinksisbest.Weleaveituptoourofficerstohelpguidethroughthis.We,unfortunately,runintothisalot.Wejusthadacaseyesterdaywhereakidwantstogotocollegeandallthestakeholdersaresaying,"Thatkid'snotgoingtomakeit


throughcollege.Hecan'tgotocollege.ForcehimtogotoJobCorps."Myofficersays,"Ifhewantstogotocollege,we'regoingtogivehimashotatgoingtocollege.””

Seeingyouthasnumbers,notpeople

“Hopefullywe’relookingatthekidsasindividualsmoreratherthanjust–hopefullywe’relookingateachindividualkidasakid.That’salwaysbeenmyfrustration–thatwedon’tseethekidasakid.WeseehimasNo.250onourcaseload.”

CoreStrategiesMakesurethere’satleastonecorepersonresponsibleforensuringthatyouthandfamilieshaveavoice

“Onthecourt’sside,IloveCASA.IloveCASAandCASAreallyonlygoestochildwelfarekids.Werarely,rarelygettheminjuvenilejustice.ButaprogramlikeCASAforjuvenilejusticekids,wavemymagicwandandthat’swhereitwouldbebecausesomanyofthesekidsneedssomeonewhocaresaboutthemandwhogivesthemvoice.Becausethecourtsystem–youknow,justtheverynatureofitisdifficultandkidsdon’tknowtheyhaveavoice.”

Less is More Ensurethatyoungpeoplearedivertedfromjuvenilejusticesysteminvolvementwheneverpossiblesotheydonotgetdrawnfurtherintothesystemthannecessary.

WhatthislookslikeinNebraska:AdultInterviewsPreventionandearlyinterventioneffortstokeepyouthoutofthesystem

“WhenIlookatsomeofthethingswe’redoing,whetherit’salternativeresponseorwhetherit’scommunityresponsecollaboratives,andevenwhetherit’solderyouthfostercare;tomethoseareallaboutprevention.Eitherkeepingfamiliesfromcomingininthefirstplaceorinthecaseofolderyouthfostercare,givingthoseyoungadultsthesupportsandresourcessothattheirchildrendon’teventuallycomeintothesystem.”

“Ifwe'reabletoprovidethatinterventionatanearlierpointandhelpthatkidfromgoingfurtherintothesystem,we'reactuallydoinggreatergoodforthemandforthecommunity.Themoreyoupushthemdeeperintothesystem,thenthegreaterlikelihoodforrecidivismasjuvenilesandevengreatersoasadults.”

“IprobablythinkofitonlybecauseIstartedinoneareabut,youknow,CrisisResponsewasjustaphenomenaladditiontowhatotherruralcommunitiesIworkedinandallowedustoengagewithouthavingtoevergetajudgeinvolvedbecauseitwasvoluntaryandithappenedthatthepointofcontactwaslawenforcement.Andsoit’sonlyavailableinacoupleofareas.Iknowit’saprioritytoimplementbutifwecouldhaveCrisisResponseavailablestatewidetomanage,youknow,familyandyouthdisruption.Thatyes,wecouldissueaticketforbutitreallyismoreofafamily


functioningissueandthenassistancewith,youknow,somecrisisinterventionandsomefollowup.It’sprobablyabetteruseofresourcesratherthandeepsysteminvolvement.”

“Ithinkmyultimatedreamwouldbeisinschool,oncethekidsfirststartexhibitingsomebehaviorsthatareproblematic,thatwe’reabletogetthemassessedproperlytodecidehowcanwegetinthereandhelpthefamily,andthengetout,sowecanavoidthemformallybeinginvolvedineithersystem.”

“Andwe'vegottobeabletocreatedifferentoptionstomeetthemwheretheyare,buttheearlierthatwecangetinvolvedwiththem,thelessintrusivethoseoptionscanbe.”

Creatingmoreoptionsfordiversion

“Ithinkrightnow,asofrecent,we’rereallytakingmoreofaholisticlookatwhatjuvenilejusticemeans.Itusedtobethatjuvenilejusticereallywaslookedatasthecourtsandprobation,butnowweknowthatitactuallystarts,youknow,diversion,andanyofourpreventionareapartofthatcontinuumaswell.Andsoagain,IthinkthatinthestateofNebraska,wehaveacoordinatornowforourdiversion,whicharecounty-based,sothey’reveryautonomousthemselves,inthemselves,butnowthere’smorecollectivefocusonhowcantheytargetevenadiversionprogramtowhatthatyouth’srisksare.”

“Butthisnowfocusingonhowcanwebegintointerveneveryearly,andhowcanwedivertlowriskyouthoutofthesystem.Diversionobviouslydoingthatwithpreventionprograms,butthenalso,attheveryfrontendofthejuvenilejusticesystem,whichismypurviewaswell,whichisevenpriortoadjudication,ifayouthisabletogetservicesandsomeintervention,whichthecourtcando,theycanhavethesupervisionofaprobationofficer,andsomeinterventionprior-inthoseearlystagesofthecourtsystem,toaddressissues,kindofwhatwetalkedaboutfrontloadingservices.Andifwe’reabletodothateffectively,andthatyoungperson’sabletoswingthingsaround,andwecanseethere’sareductioninrisk,we’reveryfocusedonassuringthenthattheremaynotbeaneedforthatyoungpersontogoanydeeperinthesystem.”

Sharedcommitmenttoensuringyouthhavethelightestengagementwiththejuvenilejusticesystempossible

“We'redoingwhatwecantotryandpreventthemfromgoingdeeperintothesystemwhichiswhyit'sgreatthatwehavepre-adjudicationandpredisposelevelsthroughthecourtsystemandmakingsurethatthosejudgesareawareof,"Hey,wecandosomeofthisstuff.Wedon'tnecessarilyhavetohavethejuvenileonprobationtohelpthembesuccessful.””

“Ithinkthatwe’reshowingouroutofhomenumbersaredown.We’reshowingourYRTCnumbersaredown.We’reshowingourdetentionnumbersourdown.Obviously,


allofthatebbsandflows,butIdothinkasadistrict,wearemuchmoreattentivetowhatcanwedothatwillallowthischildtoremainintheirfamilyhomeandintheircommunity.”

Holdingeachorganizationandpersonaccountabletothecommitmentforless

“Wellasajudgeobviouslytomakesurethateveryoneinthejuvenilesystem,tomakesurethateveryone'srightsareprotected.Tomakesurethatthecountyattorneyandeveryoneinvolvedfollowsthelaw,thatthecasefollowstheproceduresuchasandprotectstherightsoftheparentstotheirchildren,atleastinitially.Toaimforreunificationasquicklyaspossible,andtomakesurethateveryoneisprovidedtheservicesthattheyneed.Andtheyreceiveeverythingthatissetforthinthecaseplantotryandreunifyifpossible.Andthenifnottotryandbringthecasetosomeotherconclusioninthebestinterestsofthechildifreunificationisnotpossible.”

“Ithinkthere’smuchmoreaccountabilityonprobationjusttomakesurethatwe’vetriedeverythingwecaninhomefirst,thatwe’renotjustbecomingfrustratedandsayingwell,timeforthekidtogooutofhome.Wereallywanttomakesurethatwegivehonesteffortstodifferentservicesinthehome,givethiskidseveralopportunitiestomakechangewiththeimplementationofdifferentapproaches,andnotkindofgointotheoutofhomeplacementasquicklyaspossible.”

WhythismattersThedeepertheyouthpenetratesinthesystem,theworsetheoutcomes

“Allthedatashows,thedeeperthekidpenetratesinthesystem,theworsetheoutcomes.Wewanttokeepthem…oneofourgoalsoughttobetokeepthemoutofoursystemasmuchaspossible.”

“Thelongeryoukeepayouthandafamilyinthesystemthemoredependenttheybecomeonthesystem,themoreopportunitythereisfortechnicalviolationsandothertypesoffailuresthataren'tnecessarybutit'sbecausewe'vekepttheminthesystemtoolong.”

“WellIthinkmythoughtprocessaroundworkingwithsystem-involvedyouthismakingsurethatwe'reonlybringingyouthintothesystemthatreallyneedtobe.Andthateverypointinoursystemthatwehaveopportunitiesforyouthtodivertoutofthesystemsothatweareusingtheleastamountofinterventionandserviceandrestrictionnecessaryinordertoaddresswhatevertheneedisthat'sidentifiedandbeabletohelpthatyouthandthatfamilyatthatpointintimeandsurroundthemwithinformalsupportswithinthecommunityandothersupportssothattheyonlyhavetobesysteminvolvedfortheleastamountoftimenecessary.”

“IreallythinkthewholepurposeofthereforminNebraskaistounderstandthatkidsandpeoplemakemistakes.Andespeciallyifit’snon-violentmistakes,we’rereallytryingtoprovidethemtherehabilitationandtheinterventionthattheyneedtomake


healthychoices,moveonwiththeirlife,andnothaveasystemattachedtotheirname.”

“Ithinkweallcanagree,gettinginvolvedwiththesystemistypicallytheleastlikelywaytogetthekindsofoutcomesthatwewant.Thelongerourkidsstayin,doesn'tmatterwhatsystemitis,thelesslikelyitis,they'regoingtobeabletoachievethegoalsthattheyhaveanddowell.”

ChallengesNoteveryoneagreeswiththisphilosophy

“Sothat’sachallenge.Imean,westilldohavechallengeswherewehaveareaswheretheyhaveallthetoolsavailable,but,youknow,we’restillinaworldofchangingculture,whichis-againwe’redealingwithjudgeswhomaybehaven’tchangedtheirperspective,somecountyattorneys,youknow,GALsperhaps,orGUARDIANADLITEM’.Butagain,there’sstill-forlaypeopleoutthere,there’sstillthatgeneralperceptioninjuvenilejustice,thatmoreisbetter;thatthrowingthekitchensinkattheirproblemsisagoodwaytomakesurewedon’tmissanything.There’salsostillageneralperceptionthatoutofhomeis,youknow,preferableincertainsituations.”

Ruralareashaveahardertimeprovidingservicestokeepyouthoutofthesystem

“Ithinkthehome-basedinitiativeneedstobesuchanimportantdealtotrytogetthoseoptionssothat,youknow,wemayhaveayoungpersonthatinLancasterCountywe’reabletoservequitedifferently,andwe’remaybeabletokeepthemhomelonger,becausewehavewraparoundkindofservicesavailable,whereperhapsinValentine,Nebraska,wedon’thavethat,andsothatyoungpersonmaygettrackedintooutofhomeplacementmuchquickerthananotheryoungperson.So,Ithinkingeneral,justacrossthestate,though,havinghome-based,moreintensiveoptions,isreallyacritical,criticalpiece,evenwhenyou’retalkingthemetroareas.Ithinkthat’sstillaveryimportantpieceofthepuzzle,andit’sgoingtohelpusavoidutilizingoutofhomeplacementsforthatpurpose.”

Whenparentswantamorerestrictivesettingfortheirchild

“I’mjustsayingwhenthathappens,yougo,"Thereasonthisdidn'tusedtohappenisbecauseOJScouldputtheminshelter."Theywereanxioustoputtheminaplacethat'slessrestrictiveandlessexpensive.Sometimesyou'llactuallygetaparentwhoislike,"Nope.Thisisgoodforthem."Therewerejudgesandit'sreallyhard.That'satoughcallasajudge.”

CoreStrategiesKeeplow-riskyouthoffprobation

“AtleastinourareaIthinkthatthe...Ithinkthattheattorneys,thecourts,orwhatever,someofthediversionservices,areworkingmoreeffectivelybecausewe’re


notseeingalotoflowriskyouthplacedonprobation.”

Payspecificattentiontocrossoveryouth

“Theotherpopulationthatwe’rereallyfocusingrightnowonhowtheytrackthroughthesystemisourcrossoveryouth,soyouthwhoareinvolvedwiththeDepartmentofHealthandHumanServicesduetomaltreatmentissues,soeitherformallyadjudicated,ortheyhaveavoluntarycasethat’sopen.Andifthoseyouththenhaveabehaviorthatcallsthemtotheattentionofjuvenilejustice,ortheattentionofthecourts,identifyingthatrightoffthebatsothatweareabletocommunicatewitheachotherearlytosay,doesthisyoungpersonneedtohaveafilinginjuvenilecourt,oristhisanissuethatcanbehandledthroughtheircurrentinvolvementwiththedepartment?Becauseweknowthatthosekidsaretrackedintojuvenilejusticeatamuchhigherratethanthegeneralpublic.”

Strengtheningandsupportingthefamilywiththegoalofkeepingyouthathome

“[S]omeoftheseuncontrollableyouth…we’vebeenabletoavoidthemgoingallthewaythroughcourtthroughdispositionbecausewe’vebeenabletoimplementsomeserviceswithinthehometogetsomethingsworkedoutthere.Andsowehaveayouththathasn’tlingeredinthesystemliketheyoncewouldhave.”

CONCLUSION TheJuvenileJusticeHome-BasedInitiativeisuniquelypositionedtoembodythevisionofayouth-centeredholisticjuvenilejusticesystem.Thesetofguidingprinciplesprovidedaboveprovidearoadmap,notarecipe,forhowtoachievethisvision.Theyareintendedtoprovideguidancewithoutbeingprescriptive,toallowforadaptationinthevariouscontextinwhichtheInitiativewilloperate.Yettheyalsoprovideaframeworkagainstwhichtheinitiativecanbeevaluated.IntheconcludingdocumentoftheDevelopmentalEvaluation,weprovideaLearningFrameworkthatincludessuggestionsforhowtousethevision,guidingprinciplesandcorestrategiestosupportongoingadaptationanddevelopmentoftheJuvenileJusticeHome-BasedInitiative.


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