Pulaski County Juvenile Justice System Assessment - Final · Pulaski County’s services for...
23
JUNE 8, 2017 Pulaski County Juvenile Justice System Assessment Prepared By
Transcript of Pulaski County Juvenile Justice System Assessment - Final · Pulaski County’s services for...
JUNE8,2017
PulaskiCountyJuvenileJusticeSystemAssessment
PreparedBy
2
TableofContents
I.Introduction........................................................................................................................3
II.Methodology......................................................................................................................3
III.Acknowledgments.............................................................................................................6
IV.ObservationsandRecommendations................................................................................6
A. EnhancingCollaborationamongJuvenileJusticeStakeholders.................................................6
B. CollectingandStrategicallyUsingData.....................................................................................9
C. UsingObjective,Evidence-BasedToolstoMakeDecisionsaboutDiversion,Detention,and
SupervisionofYouth..............................................................................................................11
D. UsingAlternativestoDetentionandOut-of-HomePlacement................................................13
E. ExpeditingServiceProvisionandtheJuvenileCourtProcess..................................................16
F. ReducingYouthIncarcerationforProbationViolationsandforParentInabilityorRefusalto
TakeCustodyofYouth...........................................................................................................18
G. ReducingRacialandEthnicDisparities...................................................................................20
H. ImprovingConditionsofConfinementforYouthinCustody...................................................21
3
I.IntroductionOnJanuary19,2017,PulaskiCountyandtheCenterforChildren’sLawandPolicy(CCLP)enteredintoanagreementforCCLPtoprovideanassessmentofstrengthsandchallengesinPulaskiCounty’sservicesforat-riskyouth,particularlyyouthincontactwiththejuvenilejusticesystem.CCLPisanationalpublicinterestlawandpolicyorganizationbasedinWashington,D.C.focusedonreformingthejuvenilejusticesystemandprotectingtherightsofchildreninothersystemsthatimpactat-riskchildren.CCLP’sstaffworktohelpjurisdictionsthroughouttheUnitedStatesmaketheirjuvenilejusticesystemsmoreequitableandeffective.Overthelast10years,CCLPhasworkedonjuvenilejusticereformin32U.S.statesandtheDistrictofColumbia.CCLPhasplayedaleadingroleinthelargestjuvenilejusticereforminitiativesintheUnitedStates,includingtheAnnieE.CaseyFoundation’sJuvenileDetentionAlternativesInitiative(JDAI)andtheJohnD.andCatherineT.MacArthurFoundation’sModelsforChangeInitiative.CCLPhasalsoworkedtohelpjuvenilejusticesystemsandagenciesinthewakeoflitigation,investigations,andmediacoverageofpoliciesandpractices.Since2013,CCLPhaspartneredwithofficialsinBentonCountyandWashingtonCounty,ArkansastolaunchJDAIinthosetwocountieswithsupportfromtheAnnieE.CaseyFoundationandtheArkansasDepartmentofHumanServices’DivisionofYouthServices(DYS).AnimportantfirststepinimplementingJDAIisanassessmentthatanalyzesjuvenilejusticesystempracticesandpolicies.TheSystemAssessmentisaqualitativereviewofhowthejuvenilejusticesystemfunctionsinajurisdiction.Itisconductedthroughseriesofinterviewsofkeyjuvenilejusticestakeholdersinthecounty,areviewofbasicdocuments,andavisittothecountyjuveniledetentionfacility.TheSystemAssessmentcomplementsaquantitativereviewofyouthinthejuvenilejusticesystem,whichtogetherprovidearoadmapforimprovementstothejuvenilejusticesystem.AlthoughPulaskiCountydoesnotcurrentlyparticipateinJDAI,theCountyandCCLPagreedthattheJDAISystemAssessmentandaccompanyingreviewofquantitativedatawouldprovideausefulframeworkforunderstandingthestrengthsandshortcomingsofservicesintheCounty.Asoutlinedinourrecommendationsbelow,webelievethatPulaskiCountycouldgreatlybenefitfromparticipatinginJDAI,asdoingsowouldprovideastructuredframeworkforincreasingcollaborationamongPulaskiCountystakeholdersforimplementingthereformsrecommendedbelow.
II.MethodologyTianaDavis,CCLPPolicyDirectorforEquityandJustice,andJasonSzanyi,CCLPDeputyDirector,conductedtheassessment.TianaandJasonhavebeentheprimarytechnicalassistanceprovidersforJDAIintheStateofArkansas,whichmeanttheywerefamiliarwithmanyfeaturesofthejuvenilejusticesysteminPulaskiCounty.
4
Inpreparationfortheassessment,CCLPrequestedandreviewedquantitativeandqualitativeinformationonexistingservicesforyouthinPulaskiCounty,youth’scontactwiththejusticesystem,andcurrentandpastreformefforts.Quantitativedataincludedinformationonarrests,referralstojuvenilecourt,admissionstodetention,andcommitmentstoDYS.CCLPstaffalsoconductedaseriesofin-personinterviewswithPulaskiCountystakeholdersduringApril3and4,2017,tolearnaboutthestrengths,challenges,andareasofneedinPulaskiCounty’sarrayofservicesforyouthincontactwiththejusticesystem.CCLPstaffalsohadmanyteleconferencesandemailexchangeswithstakeholderswhowereunavailableduringCCLP’stimeonsite,aswellaswiththoseinterviewedtoobtainadditionalinformation.StakeholdersincludedthePulaskiCountyJudge;theDeputyCountyAttorney;thePulaskiCountyDirectorofYouthServices;thePulaskiCountyDirectorofCommunityServices;theDirectorofJuvenileDetention;theCountySheriffandChiefDeputySheriff;theMayorofLittleRock;theLittleRockChiefofPoliceandAssistantChiefinchargeoftheJuvenileUnit;thethreeCircuitJudgesinthe8th,10th,and11thdivisionswhooverseedelinquencymatters;probationstaffandintakeofficersineachofthethreeCircuitCourtdivisions;prosecutorsforthejuveniledivision;publicdefendersforthejuveniledivision;thePulaskiCountySpecialSchoolDistrictSuperintendentandtheDirectorofSpecialPrograms;theLittleRockPublicSchoolsSeniorDirectorofStudentServices;theLittleRockDirectorofCommunityServices;andtheDirectorofUnitedFamilyServices,theprimaryserviceproviderforyouthinvolvedwithjuvenilecourtinPulaskiCounty.OnApril3,CCLPstaffalsoconductedabrieftourofthePulaskiCountyjuveniledetentioncenter.DYS’sProgramAdministratoraccompaniedCCLPforsomeoftheseinterviewsandfortheJDCtour.Fororganizationalpurposes,wehavegroupedourobservationsinaccordancewiththeeightcorestrategiesemployedbytheover300sitesparticipatingintheJDAIinitiative.Theseare:
1. Promotingcollaborationbetweenjuvenilecourtofficials,probationagencies,prosecutors,defenseattorneys,schools,communityorganizations,andadvocates;
2. Usingrigorousdatacollectionandanalysistoguidedecisionmaking;3. Usingobjectiveadmissionscriteriaandriskassessmentinstrumentstoreplace
subjectivedecision-makingprocessestodeterminewhetheryouthshouldbeplacedintosecuredetentionorplacedoutofhome;
4. Implementingneworexpandedalternativestodetentionandincarcerationprograms–suchasdayandeveningreportingcenters,homeconfinement,andsheltercare–thatcanbeusedinlieuofdetentionorout-of-homeplacement;
5. Institutingcaseprocessingreformstoexpeditetheflowofcasesandprovidemoretimelyservicesandinterventions;
6. Reducingthenumberofyouthdetainedfortechnicalprobationviolationsandfailingtoappearincourt,andthenumberheldindetentionawaitingtransfertoaresidentialfacility;
7. Combattingracialandethnicdisparitiesbyadoptingreformsthatensurealevelplayingfieldforyouthregardlessofraceorethnicity;and
5
8. Improvingconditionsofconfinementinfacilitiesthathouseyouth.Thestrategiesoutlinedaboveareinterconnected.Asaresult,observationsandrecommendationsmayberelevantundermultipleheadings.WehavebroadenedthelanguagearoundeachoftheJDAIcorestrategiestoreflectthatthescopeofthisassessmentwasbroaderthantheexaminationofsecuredetentionintheCounty.However,formostJDAIsites,acloseexaminationofsecuredetentionistheentrypointforbroaderjuvenilejusticesystemimprovements.Inthisassessment,wealsoidentifiedopportunitiesfornewfundingtosupportjuvenilejusticeprogramsandreforms.However,wehavealsorecommendedanumberofreformsthathavebeenimplementedinotherjurisdictionsthatwouldallowformoreefficientusesoflimitedexistingresourcesthroughoutthesystem.Werecognizethatitisdifficulttobescrutinizedbyrelativestrangers,andthatatwo-dayvisitishardlyexhaustiveordefinitive.Inaddition,anassessmentsuchasthiswillsignificantlyunderstatethemanystrengthsofPulaskiCountyanditsstakeholders.Sincewefocusedonopportunitiesforreform,thesecommentsmayappearfarmorecriticalthanwouldadescriptionofthemanyservicesavailableforyouthinPulaskiCounty.Indeed,werecognizedmanystrengthsandpositivetrendsduringourassessment,including:
• thedevelopmentofadiversearrayofpreventionandinterventionservicesforyouthattheCountyandmunicipallevel;
• asignificantdecreaseinyoutharrestedintheLittleRockPublicSchoolsfromthe2014-2015to2015-2016schoolyear;
• a37%reductionincitationsandcitizen’scomplaintsreferredtointakefrom2013to2016;
• a35%reductioninyouthadmittedtodetentionfrom2012to2016.• recentreformstorestructureandstreamlinejuvenilecourtoperationsandjuvenile
probationservices;and• theadoptionofavalidatedriskandneedsassessmentinjuvenilecourt.
However,ourprimaryfocusherewasidentifyingwhatcanandshoulddonetomakethejuvenilejusticeprocessinPulaskiCountymoreequitableandeffective.ItisimportanttonotethatmanyoftheobservationsoutlinedbelowwouldapplytootherjurisdictionsinArkansasandthroughoutthecountry.Thatistosay,PulaskiCountyisnotaloneinfacingmanyofthechallengesidentifiedinthisreport.However,ourrecommendationsaregroundedintheworkofotherjurisdictionsthathavebeguntotacklethosesystematicchallenges.Wearehappytoansweranyquestionsaboutthisassessment,andwewouldbehappytoworkwithPulaskiCountyofficialsonthesereformsmovingforward.
6
III.AcknowledgmentsWewouldliketoacknowledgetheinsight,cooperation,andassistancewereceivedfromeveryonewemetinPulaskiCounty.WeareparticularlyindebtedtoChastityScifresforhertimeandeffortcoordinatingthelogisticsoftheassessmentandforensuringthatourteamwasabletocoverasmuchgroundaswedidinthetimewewereonsite.WewouldalsoliketorecognizeCountyJudgeBarryHydeforhisleadershipandfocusonimprovingservicesforat-riskyouthandfamiliesinPulaskiCounty.
IV.ObservationsandRecommendations
A. EnhancingCollaborationamongJuvenileJusticeStakeholdersCollaborationthroughconsensus-buildingallowsdifferentagencies,branchesandlevelsofgovernment,andcommunityrepresentativestodevisestrategiesthatpromotethesuccessofyoungpeopleandthesafetyofthecommunity.Collaborationandleadershipbymultipleagenciesandthecommunityisacorefeatureofsuccessfuljuvenilejusticereformefforts,anditiscrucialinbuildingefficientandresponsivejuvenilejusticesystems.Withoutstrongauthorityandleadershiptoensureinteragencycoordination,comprehensivesystemreformcanbecomeadauntingchallenge.Observations
• ManyofthestakeholdersweinterviewedwereenthusiasticaboutthisassessmentandexpressedadesireforimprovedcollaborationandcoordinationamongstakeholderswithinPulaskiCounty.However,manyalsonotedthataspectsofservicesandsupportsforat-riskyouthinthejurisdictionwere“siloed”fromeachotherandoften“short-lived,”withlimitedopportunitiesforongoingformalcollaborationonissuesofsharedinterestandneed.AlthoughsomequestionedhoweffectiveastakeholdercollaborativewouldbeinPulaskiCounty,almostallrecognizedtheneedforbroadercollaborationtopursueneededreforms.Asmentionedabove,thistypeofcollaborationhasbeenessentialinjurisdictionsthathaveengagedincomprehensivereformstoservicesforat-riskyouth.
• Someindividualsnotedthat,inpreviousyears,stakeholderswithinthecountypartneredtoformthePulaskiCountyJuvenileCrimePreventionCoalition(JCPC),whichdevelopedanonlineresourcedirectory,withsupportfromDYS.However,thisgroupdidnotseemtostayactiveandwasnotconveningstakeholdersonaregularbasisatthetimeofourassessment.
• ThelackofastakeholdercollaborativeisimpedingPulaskiCounty’sabilitytopursuefundingopportunitiesthatcouldbringadditionalresourcesandprogramstothejurisdiction.Forexample,thereisnoonewithinjuvenilecourtatthistimewiththe
7
officialresponsibilityofmonitoringfederalfundingopportunitiesfromtheOfficeofJuvenileJusticeandDelinquencyPrevention.Evenifsuchanindividualwereidentifiedandgiventhetimeandauthoritytopursuethoseopportunities,manyrequestsforproposalsrequirecoordinationwithotherlocalandstatepartnersforapplicantstobesuccessful.Intheabsenceofastakeholdercollaborativethatcanreviewandrespondtoopportunities,PulaskiCountywillmissimportantopportunitiestoapplyforfundsfromthefederalgovernmentandnationalandstate-basedfoundations.
• Stakeholdersrecognizedtheimportanceofcollaborationamongjuvenilecourt,lawenforcement,andpublicschoolsgiventhenumberofreferralstojuvenilecourtfromschoolsintheCounty.Wewereencouragedtohearaboutsignificantreductionsinschool-basedarrestsinLittleRock,whicharereflectedinanoverallreductioninjuvenilearrestsbytheLittleRockPoliceDepartmentof40%from2015to2016.However,wealsonotedthatschool-basedarrestscontinuedtorepresentatleast41%ofyoutharrestsbytheLittleRockPoliceDepartmentduring2016.Welearnedthatinthepast,representativesofthecounty’sschooldistrictsmetonaquarterlybasiswithjuvenilecourtofficialstodiscusstrendsinreferralsandstrategizeaboutwaysofreducingschool-basedarrests.Thosemeetingshavenotoccurredrecently,butstakeholdersexpressedinterestinresumingthem,particularlytodiscusstrendsinvolvingsocialmediaasacontributortoincidentsatschool.
• Lawenforcementandpublicschoolofficialshavecollaboratedtointroducestrategies
aimedatimprovingschoolclimateandsupportingstudentswithintheschoolsettingwheneverpossibleinsteadofreferringstudentstojuvenilecourt.However,wedidnotfindthatagencieshadcodifiedagreementsaboutrolesandresponsibilitiesinmemorandaofunderstanding.Manyjurisdictionsthathavesuccessfullyreducedschool-basedreferralshavealsotakenthestepofoutliningsharedviewsabouttheappropriateroleoflawenforcementwithinapublicschoolsystem.Memorandaofunderstandingpromoteaccountabilityandhelpensurethesustainabilityofworktoreducethenumberofstudentsarrestedatschool.
• Aswenotedintheintroduction,PulaskiCountydoesnotcurrentlyparticipateintheAnnieE.CaseyFoundation’sJuvenileDetentionAlternativesInitiative(JDAI).However,therewasinterestamongmanyinterviewedintheresultsandimprovementsthatJDAIsiteshaveseeninArkansasandaroundthecountry.DYSexpectstomakefundingavailabletocountiesthisyeartosupportjuvenilejusticeinnovations,includingtheexpansionofJDAI.ThisfundingcouldprovideadditionalresourcestosupportreformeffortsinPulaskiCounty.ParticipationinJDAIwouldalsoallowPulaskiCountytocollaboratewithpeersacrossthecountrytodrawuponlessonslearned.Additionally,theAnnieE.CaseyFoundationrecentlylaunchedanewonlineplatformforJDAIsitesandotherjurisdictions,JDAIconnect,toallowofficialsthroughoutthecountrytoshareresourcesandallowpeerstoaskquestionsandshareeffectivepractices.
8
Recommendations
1. FormalizeaGoverningCommitteethatcanoverseetheimplementationofreformsandimprovementstoservicesforyouthincontactwiththejusticesystem.Thisshouldinclude(a)appointmentofGoverningCommitteemembers;(b)identificationofsub-committeesandrelatedassignmentsasinformedbyreformpriorities;(c)preparationofaninitialworkplanthatclarifieskeytasksandmilestonesforthenext12months,basedonsharedgoalsandtherecommendationsbelow;and(d)somesortofformalresolution—forexample,amemorandumofunderstandingamongallthekeyagenciesinvolvedintheGoverningCommittee—establishingthemission,purposes,andleadershipoftheCommittee.
2. SpeakwithDYStodeterminewhethertheagencywillprovideresourcesforpartorallofastaffperson’stimetosupportthelaunchofaGoverningCommitteeandPulaskiCounty’sparticipationinJDAI.
3. JointheJDAIconnectcommunityatwww.JDAIconnect.org,whichprovidesfreeonlineaccesstoresources,training,andinformationonjuvenilejusticereform.JDAIconnectisaninteractivecommunityofofficialsinJDAIsitesandothersinterestedinjuvenilejusticesystemimprovement.
4. Resumequarterlycollaborativemeetingsbetweenjuvenilecourtandrepresentativesoftheschooldistrictsandlawenforcementtohelpreducethenumberofyoutharrestedandreferredtocourtfromschool.
5. Developmemorandaofunderstandingbetweenlawenforcementandpublicschoolsystemsthatclearlyoutlinetheappropriaterolesandresponsibilitiesofpublicschoolofficialsandlawenforcementinrespondingtostudentbehavior.
6. AssignapointpersonwithintheCountytomonitorfundingopportunitiesforjuvenilejusticereform,includingthosethroughthefederalOfficeofJuvenileJusticeDelinquencyPrevention(https://www.ojjdp.gov/funding/funding.html),andensurethatindividualsignsupfortheagency’sJuvJustlistserv.TheCouncilofStateGovernments’JusticeCenterwebsitealsocontainsapagefeaturingfederalandfoundation-fundedopportunities,whichshouldberegularlyreviewed(https://csgjusticecenter.org/reentry/online-tools/funding/).
7. ReviewtheresourcesavailableontheNationalJuvenileJusticeNetwork’sFiscalPolicyResourceCenterwebsite(http://www.njjn.org/our-work/juvenile-justice-publications-fiscal-policy),whichcontainsguidesonidentifyingsourcesoffundingforjuvenilejusticereformstodeterminewhichhavenotbeenfullytappedbyPulaskiCounty.
9
B. CollectingandStrategicallyUsingDataStakeholdersshouldregularlyreviewdatadrawnfromallsourcesinthesystemtoobtainanaccuratepictureofhowthejuvenilejusticesystemoperates.Stakeholdersshouldusethatinformationtoidentifypointswherepolicyandpracticereformsmayleadtosignificantimprovements,aswellastomonitortheimpactofreforms.Observations
• OfficialsinPulaskiCountydonotregularlyreviewdatareportsthatprovideapictureofhowthejuvenilejusticesystemisfunctioningfromarresttoout-of-homeplacement.Thisis,inpart,becausethereisnoactiveCounty-widecollaborativecurrentlyfocusedonlookingholisticallyatyouthinvolvedwiththejusticesystem.However,itwasalsoclearthatmanyinthecountywerenotaccustomedtoregularlysharingdatawithfellowagenciesandentities.Therewassignificantinterestinsharingdataacrosssystemstoobtainabetterunderstandingofhowthejuvenilejusticesystemisfunctioning.
• Althoughthereweresomeentities,suchastheJuvenileDetentionCenter,thatregularlyproducereportsthatallowfordisaggregationofdatabyage,race,ethnicity,gender,andreasonforadmission,itwasclearfromourattemptstoobtaininformationatotherjuvenilejusticesystemdecisionpointsthatmanyentitiesdidnothaveaprocessforroutinelycollecting,analyzing,andproducingdatathatcouldbedisaggregatedbydifferentvariables.Moreover,thereweredataqualityconcernsamongsomeofthedatathatwedidreceiveaspartoftheassessment.Forexample,theArkansasAdministrativeOfficeoftheCourts(AOC)provideduswithjuvenileintakedataforthepastseveralyearsinPulaskiCounty.However,thedatacontainedsomuchmissingdataforrace,ethnicity,andgenderthatananalysisofintakesbythosevariableswasimpossible.
• Dataonschool-basedreferralswasofsignificantinteresttomanystakeholders,asschool-basedarrestshadbeenasignificantsourceofreferralstothejuvenilejusticesysteminyearspast.Althoughwewereabletoworkwithcertaindatasetstoidentifyaroughnumberofschool-basedarrestsmadebylawenforcement,thereisnostandardizedreportforjuvenilejusticestakeholdersthatprovidesregularinformationonschool-basedarrests.Giventhatschool-basedarrestshavebeenandcontinuetobeanareaoffocus,itwouldbehelpfultohaveroutinelyproducedreportsthatcaptureschool-basedarrestsdisaggregatedbyage,race,ethnicity,gender,offense,andschool.Thosereportswouldhelpassessprogresswithexistingreformsandidentifytheschoolsforwhichadditionalresourcesorprogramsarenecessary.
• Asof2017,theAdministrativeOfficeoftheCourts(AOC)requiresthatjurisdictionscollectdataonwhetheracourtreferralwasaresultofaschool-basedarrest.Thismayprovidesomeinformationonschool-basedreferralstojuvenilejusticestakeholders
10
goingforward.However,AOCindicatedthatasofApril2017,PulaskiCountyhadnotreportedanyschool-basedreferrals,suggestingthatthesedatawerenotbeingcollectedasrequired.
• Manystakeholdersexpressedinterestinreceivingmoreinformationaboutthe
effectivenessofdiversionprogramsandotherservicesbeingprovidedtoyouthinthecommunity.Manystatedthatwhiletheyoccasionallyreceivedinformationonthenumberofreferralstoparticularprogramsorservices,theygenerallydidnotreceivemuchinformationontheresultsofthoseservices(e.g.,howmanyyouthsuccessfullycompletedtheprogramortreatmentwithoutreoffending;howmanyyouthavoidedfuturesysteminvolvement).
• WewereverylimitedinourabilitytolookatyouthbookedintotheCountyjail,asthedataprovidedwerenotpresentedinawaythatallowedforeasyanalysisofmanytrendsofyouthwhowerebookedintothefacility.
Recommendations
1. ConveneastakeholdergrouptoidentifyroutinedatareportsthatwouldhelpstakeholdersunderstandhowwellthejuvenilejusticesystemisfunctioninginPulaskiCounty.Thesereportscouldincludestandardinformationonarrests,referralstojuvenilecourt,detentionadmissions,commitmentstoDYS,transfersofyouthtoadultcourt,andeffectivenessofcommunity-basedservices.
2. Createadata-sharingagreementamongcountystakeholdersthatwouldallowfortheregularreviewandanalysisofdatafromthedecisionpointsoutlinedabove.Ensurethatdataaredisaggregatedbyage,race,ethnicity,gender,andoffenseorreasonforinvolvement.Forexample,manyJDAIsitesgenerateandreviewdetentionutilizationdatausinganautomatedQuarterlyReportingSpreadsheet,whichpullsdatafromexistingdatabasesandpresentsavarietyofhelpfuldataintabularandgraphicalformats.
3. Implementawaytotrackandregularlyreviewarrestsofyouthchargedwithschool-basedoffenses.Ensurethatthesereportsaredisaggregatedbyage,race,ethnicity,gender,offense,andschool.
4. Implementaqualityassuranceprocesswithinjuvenilecourttoensurethatdataonrace,ethnicity,gender,whetherreferralsstemfromschool-basedarrests,andothervariablesareaccuratelyentered.
5. Conductdeeperdataanalysesofspecifictargetpopulations,suchasyouthreferredtocourtforminoroffenses,youthadmittedtodetentionforrelativelyminoroffenses,andyouthreleasedatinitialdetentionhearingstodetermineifyouthwithinthosepopulationscouldbenefitfromdiversionoptionsoralternativestodetention.
11
C. UsingObjective,Evidence-BasedToolstoMakeDecisionsaboutDiversion,Detention,andSupervisionofYouth
Well-runandefficientjuvenilejusticesystemsrelyonevidence-basedandobjectivetoolstomakedecisionsaboutayouth’sinvolvementwiththejuvenilejusticesystem.Thismeanshavingtoolsinplaceatkeydecisionpoints–intake,detention,andadjudication–thathelpguidedecisionmakingusingstandardizedcriteriathatareinformedbyresearch.Observations
• TheArkansasJuvenileCodemandatesdetentionforasmallnumberofcrimes:unlawfulpossessionofahandgun,possessionofahandgunonschoolproperty,unlawfuldischargeofafirearmfromavehicle,anyfelonycommittedwhilearmedwithafirearm,andcriminaluseofaprohibitedweapon.Otherwise,Arkansaslawstatesthatintakeofficersandjuvenilecourtjudgesshouldconsiderarangeoffactorswhendecidingofwhethertodetainayouth.
• ManyyouthinPulaskiCountywhoareadmittedtodetentionarereleasedverysoonaftertheyareadmitted,raisingthequestionofwhetherdetentionwasnecessaryinthefirstplace.In2016,one-thirdofyouthwerereleasedinthreedaysorfewerandmorethanhalf(54%)werereleasedwithinaweek.Moreover,manyyouthwhoareadmittedtodetentionarechargedwithoffensesthatmaynotindicatethattheyarearisktopublicsafety.Forexample,in2016,42%ofdetentionadmissionswereadmissionsofyouthchargedwithmisdemeanoroffenses.Evenshortstaysindetentioncancausesubstantialdisruptionforyouthandfamilymembers,especiallywithrespecttoayouth’seducation.
• InterviewswithandasurveyofPulaskiCountystakeholdersrevealedwidevariabilityinviewsaboutthepurposeofdetentionintheCounty.Manyofthoseinterviewedandsurveyedsaidthattheyagreedthattheprimarypurposeofdetentionwastoensurecourtappearancesandminimizeriskofre-offendingpriortoadjudication.Manyalsoagreedthatdetentionshouldbeusedrarelyandalwaysasalastresort.However,virtuallyeveryonerecognizedthatdetentionisoftenusedinPulaskiCountyforotherreasons:e.g.,tosanctionyouthforviolatingordersofthecourt,toensurethatservicesareinplacefortheyouthandhisorherfamily,ortoserveasa“wake-upcall”foryouth.Theredidnotseemtobewidespreadawarenessoftheresearchontheshortandlong-termharmsofdetentiononyouth.
• Juvenilecourtofficialsdonotcurrentlyuseadetentionriskassessmentinstrument(RAI)
toscreenyouthforeligibilityfordetention.IntakeofficersrelyonthefactorsoutlinedintheJuvenileCode,aswellastheresultsofotherscreeninginstruments,includingtheOhioYouthAssessmentSystem(OYAS)screening,theCRAFFTsubstanceabusescreeningtool,andtheMAYSI-2mentalhealthscreeningtool.However,noneofthese
12
instrumentshavethesamefocusasaRAI,whichprovidesanobjectiveassessmentofayouth’slikelihoodoffailingtoappearincourtorcommittinganewoffensepriortoadjudication.ARAIappliesobjectivecriteria,suchasthenatureoftheoffenseandtheyouth’soffensehistory,toproduceariskscorethatindicatestheyouth’ssuitabilityforsecuredetention,referraltoadetentionalternativeprogram,orreleasetoparentorguardian.RAIsbringobjectivity,fairness,andefficiencytothedetentionscreeningprocess.JDAIsitesuseRAIstostandardizedecisionsaboutyouthadmittedtodetentionandtohelpavoidunnecessaryadmissionsforyouthunlikelytoreoffendpriortoadjudicationormisstheircourtappearances.ImplementationofaRAIcouldhaveanimmediateandsignificantimpactonavoidingunnecessarydetentionadmissionsinPulaskiCounty.
• LawenforcementagenciesinPulaskiCountyhaveavarietyofdiversionprogramsavailableforyouthatthepointofarrest.Additionally,juvenilecourtusesavarietyofprogramstodivertyouthatintake,suchasstructuredcommunityservice,referralstotheNorthLittleRockTeenCourt,referralstoUnitedFamilyServices,anddeferredprosecutionagreements.Therewasinterestamongmanystakeholdersinobtainingdataontheeffectivenessofdifferentdiversionoptions,whichdidnotseemtobereadilyavailableformanyprograms.Moreover,theredidnotseemtobestandardwrittencriteriaforyouth’seligibilityfordiversionprograms,oraprocessformatchingyouthchargedwithparticularoffensestospecificdiversionoptions.Thetop5categoriesfordelinquencyreferralstojuvenilecourtduring2016weretheft(21%),assaultandbattery(16%),probationviolations(11%),burglary(10%),andobstruction(9%).Someofthosecasesweredivertedfromfurtherinvolvementwiththejuvenilejusticesystem,andsomeofthesereferralswouldnotbeappropriatefordiversion.However,acloseranalysisofthetypesofsituationsleadingtoreferralsforthesereasonscouldhelpidentifyandtailoradditionaldiversionoptions.Forexample,somestakeholdersmentionedthatapeercourtbasedinLittleRockcouldserveasadiversionoptionforcertainoffenses.
• JuvenilecourtofficialsrecentlyworkedwithAOCandtheNationalYouthScreeningandAssessmentProjectattheUniversityofMassachusettstoimplementanationallyrecognizedevidence-basedtoolthatidentifiesyouth’scriminogenicriskfactors:theSAVRY(StructuredAssessmentofViolenceRiskinYouth).TheSAVRYisadministeredpost-adjudicationbutpre-disposition,asitsrecommendationsaredesignedtoinformsupervisionandserviceplans.ManystakeholdersexpressedconcernthattheSAVRYwasnotbeingusedasintended–i.e.,totailorservicesandsupportsforindividualyouthandtoprioritizeservicesthattargetayouth’sidentifiedriskfactors.ManystakeholdersalsofeltthatthetimeandeffortneededtocompletetheSAVRYwasnotbeingtranslatedintoindividualizedcourtordersandcaseplansfocusedonatargetedtreatmentgoals.Thislikelycontributestothehighratesofdetentionadmissionforprobationviolations,discussedbelow.
13
• SomestakeholdersfeltthattheSAVRYwasnotbeingusedtoitsfullestpotentialtoidentifyyouthwhoscoreashighrisktoreceivethemostintensivesupervisionandservices.Othersbelievedthatmanyofthecommunity-basedservicestowhichyouthwereroutinelyassigneddidnotmatchthetreatmentandsupervisionneedsidentifiedbytheSAVRY.AlthoughwereviewedaServiceReferralMatrixthathadbeendevelopedbyofficialsinjuvenilecourt,weunderstoodthatmanyofthekeyserviceslistedweremissingorhadverylimitedavailability.
Recommendations
1. Developandimplementadetentionriskassessmentinstrument(RAI)byconveningaworkgroupofrelevantstakeholders,includingjudges,intakestaff,juvenileprobationofficers,detentionstaff,prosecutors,publicdefenders,andrepresentativesoflocalpolicedepartments.TheAnnieE.CaseyFoundationoffersafreeonlinetrainingondevelopmentandimplementationofaRAIonJDAIconnect,alongwithawrittenpracticeguideonRAIdevelopmentwithsampletoolsfromotherjurisdictions.
2. Clarifythe“purposeofdetention”inPulaskiCounty,whichwillhelpdeterminehowtochangepolicyandpracticesothattheyarealignedwiththosepurposes.Werecommendthatstakeholdersconductahalf-dayretreatinwhichofficialscometogetherforafrankdiscussionofthepurposeofdetentionininPulaskiCountyandthespecificobjectivesthatstakeholdershopetoachieve.Thisretreatshouldincludeanhonestandopendiscussionofresearchshowingthatdetentionandout-of-homeplacementoflow-riskyouthisinherentlydamagingtotheyouthandultimatelytendstounderminepublicsafety.
3. Gatherdataonthenumberofyouthdivertedfromtheformaljuvenilejusticesystemby
policeandintake,agreeuponcommonmetricsofsuccessamongdiversionprograms,developformalwrittendiversioncriteria,identifytargetpopulationsforparticularprograms,andanalyzecommonreasonsforreferraltoidentifywhetherothertargeteddiversionoptionscouldbeeffectiveinterventionsatthepointofarrestorintake.
4. EnsurethattheSAVRYisbeingusedtotailordispositionordersandcaseplanstofocusonthemostsignificantriskfactorsidentifiedbytheSAVRY.ConsiderreplacingstandardtermsandconditionsincourtordersandcaseplanswithindividualizedrequirementsthatreflecttheSAVRY’srecommendedareasoffocus.
D. UsingAlternativestoDetentionandOut-of-HomePlacement
Ampleresearchdemonstratestheshortandlong-termnegativeimpactsofdetentionandout-of-homeplacementonyouthandpublicsafety.Jurisdictionswithwell-runjuvenilejusticesystemshaveanarrayofservicestohelpyouthsucceedinthecommunitywithoutresortingtoincarceration.Thismeanshavingpre-adjudicationalternativestodetentionthatcanprovide
14
enhancedsupervisionsothatyouthappearincourtanddonotre-offendpendingadjudication.Italsomeanshavinganarrayofcommunity-basedservicesandsupportsthathaveademonstratedtrackrecordofhelpingyouthandfamiliesavoidfutureinvolvementwiththejusticesystem.Observations
• TheCountycurrentlyreliesonelectronicmonitoringasanalternativetodetention,aswellasplacementwitharelative(ifavailable)incasesinvolvingdomesticviolenceallegations.Manystakeholdersexpressedinterestinexpandingthearrayofpre-adjudicationalternativestodetention,suchasdayoreveningreportingcentersandshelterbeds.
• Somestakeholdersdidnotseemtobeawareofalegislativechangein2015thatallows
intakeofficerstoreleaseyouthuponcertainconditionspendingfurthercourtreview.Act1010,codifiedinArkansasCode§9-27-322(a),allowsintakeofficerstoreleaseyouthtoaparent,guardian,orcustodianwithwrittenconditions,placeyouthonelectronicmonitoring,orplaceyouthintemporarysheltercare,allpriortotheyouth’sfirstappearanceinjuvenilecourt.Act1021wasdesignedtogiveintakeofficersauthoritytoreleaseyouthundertheseconditions,inparttoavoidunnecessarystaysindetention.
• In2016,PulaskiCountycommitted42youthtoDYS.Ofthoseyouth,42%were
committedeitherforamisdemeanorcharge(31%)orforarevocationofprobation(11%).Althoughcommitmentsweredownby23%from2012to2016,thefactthatnearlyathirdofyouthwerecommittedonamisdemeanorchargesuggeststhatmorecouldbedonetosupportyouthinthecommunity.Thisisparticularlyimportantgivenresearchthatshowsworsenedoutcomesforyouthwhoscoreaslowormoderateriskwhentheyarecongregatedwithyouthwhoscoreashigherrisk.
• Stakeholdersinterviewedhadgeneralpraisefortheworkthatjuvenilejusticeofficials
andserviceprovidersweredoingforyouthinvolvedwiththejuvenilejusticesystem.However,almosteveryoneinterviewedidentifiedtheneedforadditionaleffectiveservicesforadjudicatedyouth.Manyindividualsfeltthatsomeoftheservicesroutinelyassignedtoadjudicatedyouth,suchascounseling,werenotparticularlyeffectivewithoutgreaterindividualization.
• Manyindividualsexpressedagreaterdesireforvocationalandtechnicalprogramsthat
wouldhelpolderyouthbuildskillsthatwouldhelpthemfindemployment.However,thoseindividualssuggestedthatArkansas’compulsoryeducationlawscanmakeitdifficultformanyyouthtoparticipateinthoseprograms,eveniftheyhavebeendisengagedfromschoolforanextendedtimeandhavenoplanstoreturn.
15
• Manystakeholdersexpressedfrustrationwiththelackofeffectiveservicesfocusedonworkingtogetherwithyouthandtheirfamilymemberstoaddressdynamicsathomethatcontributetoproblembehaviors.Stakeholdersnotedthatexistingparentingclassesdidnotseemtobeparticularlyeffective,andwewereunabletoobtaindataonresultsofthoseservices.Thereareevidence-basedandcost-effectiveprogramsthatshowlastingresultswithyouthandfamilymembers,includingFunctionalFamilyTherapyandMultisystemicTherapy.However,theCounty’sprimaryserviceproviderforjuvenilejustice-involvedyouthdidnotoffereitherprogramanddidnotseemtohaveanyplanstoaddthoseprogramstoitsservicearray.
• SomestakeholdersnotedthattheStateofArkansashasnotaccessedfederalfunding
underTitleIV-EoftheSocialSecurityAct,whichotherstatesandlocalitieshavetappedtoimproveandexpandservicesforyouthinthejuvenilejusticesystem.TitleIV-Efundingcanbeusedforservicesforadjudicatedyouthinthejuvenilejusticesystemifyouthareplacedwithafosterfamilyorinachildcareinstitutionthatmeetscertainrequirements.StakeholderexpressedaninterestinworkingwithstateofficialstopursuenewfundingunderTitleIV-E.
Recommendations
1. Analyzethereasonswhyyoutharedetainedandreleasedwithinthreedaysofadmission(e.g.,parentrefusal)todeterminewhichdetentionalternativesmayhelpavoidunnecessaryincarcerationofyouth.
2. Ensurethatallstakeholdersareawareofthelegislativechangegrantingintakeofficersadditionalauthoritytoreleaseyouthwithcertainconditionspriortotheirfirstappearanceincourt,whichwillhelpavoidunnecessarilydetentionadmissions.
3. ConveneameetingwithDYSandrepresentativesofserviceproviderstoreview
outcomedatafromservicesthatarecurrentlyprovided.Discusshowtoprovidenationallyrecognizedevidence-basedprograms,suchasMultisystemicTherapyandFunctionalFamilyTherapy,thatarecost-effectiveanddemonstratelonglastingpositivepublicsafetyoutcomes.
4. ConveneameetingwithDYStodiscusshowPulaskiCountyandDYScouldpartnerto
applyforTitleIV-EfundingforadjudicatedyouthundertheSocialSecurityAct.
5. Explorepotentialpartnershipswithlocalcommunitycollegestoidentifyvocationalandtechnicalskill-buildingopportunitiesforyouthinvolvedwiththejuvenilejusticesystem,aswellaspotentialpartnershipswithnationalorganizationssuchasAMIkids(http://www.amikids.org)andtheHomeBuildersInstitute(http://www.hbi.org/).
16
6. MeetwiththeArkansasDepartmentofEducationtoreviewcompulsoryschoolrulesandregulationsandexplorethepossibilityofstreamliningyouth’sabilitytoaccessvocationalandtechnicalprograms,consistentwithstatelaw.
E. ExpeditingServiceProvisionandtheJuvenileCourtProcess
Reducingunnecessarydelaysinjusticesystemsallowsstakeholderstomaximizetheuseofdiversionprograms,services,andotheralternativestoincarceration;toincreasethelikelihoodthatyouthwillappearfortheircourtdates;andtoconnectyouthwithservicesandsupportssoonaftertheirinvolvementwiththejusticesystem.Moreover,thepopulationofajuveniledetentionfacilityatanytimeisafunctionoftwofactors:thenumberofyouthadmittedandthelengthofstayofthoseadmitted.Reducingeither,orboth,resultsinalowerdetentionpopulation.Observations
• Manystakeholdersexpressedfrustrationwithdelaysinconnectingyouthwhocomeintocontactwiththejuvenilejusticesystemwithneededservicesandsupport,beitatthetimeofcontactwithlawenforcement,atadjudication,orwhileyoutharebeingsupervisedonprobation.Someindividualsattributeddelaystoslowdownswithinthejuvenilecourtprocessitself.Forexample,somestakeholdersnotedthatinaSherriff’sDepartmentwithlimitedresources,serviceofpapersforjuvenilemattersmaynotbeashighofapriorityasserviceformoreseriouscrimescommittedbyadults,letaloneotherlawenforcementprioritieswithintheDepartment.OthersattributeddelaystothetimeittakestomeetwithyouthandfamilymemberstocompletetheSAVRY,whileothersstatedthatwaitinglistsforexistingservicescontributedtodelays.
• Manystakeholdersexpressedconcernswiththetraveldemandsplaceduponyouthandfamiliestoreceivecourt-orderedandvoluntaryservices,andthefactthatmanyserviceswerenotlocatedwithinthecommunitiesfromwhichtheCountyseesthegreatestnumberofreferralstothejusticesystem.Manyindividualsalsonotedthatthecurrentjuvenilecourtfacilitiesareinpoorconditionanddonothavespaceforservices,eventhoughitcouldbeconvenientforyouthandfamiliestoobtainreferralsandaccessserviceswhileatascheduledcourtappearance.
• Manystakeholdersexpressedadesirefora“one-stop”shopforyouthincontactwiththejuvenilejusticesystemthatcouldprovideassessment,sheltercare,andserviceprovisionandreferrals.StakeholdersexpressedadesiretolocatesuchaprograminpartsoftheCountythatseethegreatestnumberofreferralstothejusticesystem.Manyjurisdictionshavecreatedsuchreceptionandassessmentcenters.Indeed,shortlybeforeourinterviews,agroupofofficialsfromDYS,BentonCounty,andWashingtonCountytraveledtoCalcasieuParish,Louisiana,tolearnmoreabouttheirMultiAgencyResourceCenteror“MARC.”ThepurposeoftheMARCisforareaagenciesand
17
organizationstoprovideservicesandreferralsforareayouthallunderoneroof.TheMARCisacollaborativeeffortwiththeCalcasieuParishPoliceJuryandtheCalcasieuParishChildrenandYouthPlanningBoard.MARCcoordinateswiththeFamilyCourt,theCalcasieuParishSchoolBoard,theCalcasieuParishDistrictAttorney,theCalcasieuParishPublicDefender,locallawenforcement,andothers.PlacessuchasCalcasieuParishhaveseengreatbenefitsandefficienciesbypoolingresourcesintheMARC.MoreinformationontheMARCisavailableonline(http://www.cppj.net/services/juvenile-justice-services/m-a-r-c).
• Stakeholdersnotedthattherewaswidevariabilityintheamountoftimeyouthandfamiliescanexpecttobeonprobation,withsomeyouthassignedtotermsofafewmonthswhileothersareassignedindeterminatetermsthatcanstretchforlongerthanayear.Somestakeholdersnotedthatespeciallylongperiodsofprobationwithnoclearendmayleadyouthandfamilymemberstofeelasenseofhelplessnessabouttheirabilitytosuccessfullycompleteatermofsupervision.Otherstakeholdersnotedthatlengthyprobationtermsarealmostcertaintoleadtoadditionalordeeperinvolvementwiththejusticesystemfortechnicalviolationsofprobation.Thisobservationseemstobeborneoutinthehighnumberofadmissionstodetentionforviolationsofprobation,describedingreaterdetailbelow.
• Currently,youthwhoarereferredtointakeareassignedrandomlytooneofthethree
CircuitJudges.EachCircuitJudgehashisorherowndedicatedprobationofficers,whichweunderstoodtobearecentchangefrompastpracticeswhereprobationstaffregularlyrotatedamongjudges.Weunderstoodthatyouthwhoreceiveasubsequentreferralarenotassignedtothesamejudgeandprobationofficertowhomtheyhadpreviouslybeenassigned.Instead,theyaresubjectedtothesamerandomassignmentprocessasfirst-timereferrals.Manystakeholdersnotedthatthisarrangementledtoinefficienciesandduplicationofwork,asprobationofficershavetore-dointerviewswithyouthandfamiliestoobtaininformationthathadalreadybeencollected.
• Aspartofourassessment,welearnedthatjuvenileprobationservicesintheCountyhad
beenthesubjectofayear-longindependentevaluationbytheRobertF.KennedyChildren’sActionCorps’NationalResourceCenterforJuvenileJusticefromJanuarytoDecemberof2016.Itdidnotappearthatthereportandrecommendationshadbeensharedwidelyoutsideofjuvenilecourt,butthereweremanyrecommendationsandobservationsthatarerelevanttoeffortstoimprovethecounty’sjuvenilejusticesystem.Wedidnotlearnofanyformalplanstoimplementtherecommendationsoutlinedinthereport.
Recommendations
1. ExaminewhethertheMARCorasimilartypeofreceptionandassessmentcentercouldhelptheCounty’sstakeholderspoolresourcesandprovideforfasterandmoreefficientaccesstoservices.CalcasieuParishregularlyhostsvisitorswhoareinterestedin
18
exploringhowtheywereabletopartnertolaunchandoperatetheMARC.
2. Considerendingtheuseofindeterminateprobationinlieuoffiniteandshorterprobationtermsthatincorporateshort,medium,andlong-termgoalsoverashortertimeframe.
3. Considerimplementingasystemwithinjuvenilecourtthatwouldallowyouthwithsubsequentreferralstostaywiththeprobationofficerandjudgetheywereassignedtoduringtheirpreviousreferraltoeliminateunnecessaryduplicationofeffortamongprobationofficersandfreeuptimeformoreworkinthefield.
4. ExplorealternativesforserviceofpaperswithintheSheriff’sDepartmentoranotheragencythatcouldhelpexpeditethecourtprocess.
F. ReducingYouthIncarcerationforProbationViolationsandforParentInabilityor
RefusaltoTakeCustodyofYouthInmanyjurisdictions,youtharenotincarceratedbecauseoftheseverityoftheiroffenseortheirrisktopublicsafety,butforotherreasons.Thosereasonscanincludeyouthdetainedforprobationviolations,warrants,orwrits;youthwhoaredetainedawaitingaplacementorservice;andyouthwhoseparentsareunableorunwillingtotakecustodyoftheirchildatthetimeofintake.Manyjurisdictionshavesignificantlyreducedtheirrelianceonincarcerationofyouthforthesereasons.Observations
• Ourreviewofdataondetentionadmissionsrevealedaveryhighrateofdetentionadmissionsforviolationsofprobation.54%ofdetentionadmissionsduring2016wereforprobationviolations–apercentagethatisamongthehighestthatwehaveseeninourworkonjuvenilejusticereform.Oftheyouthadmittedtodetentionforviolationsofprobation,44%werechargedwithmisdemeanoroffenses.Asmentionedabove,theseyouthmaynothaveanunderlyingchargethatwouldwarrantsecuredetentioninandofitself.Moreover,oftheyouthwhowereadmittedforviolationsofprobation,25%werereleasedwithinthreedaysandhalf(49%)werereleasedwithinaweek.Theshortstaysofmostyouthadmittedforviolationsofprobationraisethequestionofwhetherdetentionisusedbecauseofpublicsafetyconcerns,orsimplyasasanction.Thesedetentionadmissionscanunnecessarilydriveyouthdeeperintothejusticesystemanddisruptprogressyouthandhisorherfamilyhadbeenmakinginthecommunity.
• Thereisnoformalsystemofgraduatedsanctionsandincentivesforyouthonprobation.Therewaswidevariabilityamongstakeholdersin(1)familiaritywithresearchontheimportanceofincorporatingincentivesalongsidesanctionsinordertocreatelastingbehaviorchange,and(2)thewillingnessofsomestakeholderstoemployincentivesas
19
partofayouth’scaseplan.Manyjurisdictionsthroughoutthecountryhavedevelopedgraduatedresponsesystemsthatincorporateawidevarietyofinterventionsforyouthwhoarestrugglingonprobation,andincentivestomotivateyouthwhomakeprogressonshort,medium,andlong-termgoals.Thosejurisdictionshaveseensignificantreductionsintheincarcerationofyouthforviolationsofprobation.
• Manystakeholderssuggestedthatmanyoftheshortstaysofyouthindetentionstem
fromparents’unavailabilityorunwillingnesstopickuptheirchild.Althoughwewereunabletoobtaindataontheextenttowhichparentunwillingnessorrefusalleadstodetentionadmissions,thisissomethingthattheCountycouldtrackmovingforward.Understandingmoreaboutthereasonsfortheseadmissionswouldhelptailoraprogramorservicethatcouldhelpreduceadmissionsforthesereasons.Forexample,ifasignificantnumberofincidentsstemfromdomesticviolenceincidentswhereparentsrefusetotakecustodyoftheirchildandanotherrelativecannotbelocated,theCountymayneedadditionalrespiteorshelterbedcapacity.If,however,parentsareunwillingtotakecustodyoftheirchildbecausetheywantto“teachtheirchildalesson”orbecausetheyfeelunpreparedtomanagetheirchild’sbehavior,aprogramorservicethatprovidessupportandservicereferralsmaybemoreappropriate.OneexampleofsuchaprogramistheParentYouthEmpowermentProgram(PYEP)inBaltimore,Maryland,whichwasselectedasabestpracticeprogrambythefederalOfficeofJuvenileJusticeandDelinquencyPrevention.TheEastBaltimoreCommunityCorporationoperatesPYEP,inpartnershipwiththeMarylandDepartmentofJuvenileServicesandtheFamilyLeagueofBaltimoreCity.PYEPisdesignedtoworkwithparentsandguardianswhosechildrenarearrestedinBaltimoreCityanddeemedtobereleasable–however,parentsorguardianshaveeitherrefusedorareunavailabletopickuptheirchildren.PYEPstaffworkswiththeneedsoftheparentstoenablereconnectionwiththeirchildrenandassumptionofparentalresponsibility.Inaddition,PYEPconnectstheparentandchildwithcommunity-basedservicesbasedontheirneeds.MoreinformationaboutPYEPisavailableonline(http://ebcconline.org/programs/parent-empowerment-program/).
Recommendations
1. Implementasystemofgraduatedresponsesforyouthonprobationthatincorporatesawidearrayofresponsesfornon-compliantbehavior(otherthansecuredetention),andthatincludesincentivesforyouthtomakeprogressonshort,medium,andlong-termgoals.Trainjuvenilejusticestakeholdersontheresearchbehindtheuseofincentivesalongsideotherinterventionstopromotebehaviorchange,aswellashowtosetSMARTcaseplangoalsforyouth(Specific,Measurable,Achievable,Relevant,andTime-bound).
2. Gatherdataontheextentandreasonsfordetentionadmissionsforparent
unavailabilityandrefusals,andimplementprogramsorprotocolsthataddresstheunderlyingreasonsfortheunwillingnessorrefusal.
20
G. ReducingRacialandEthnicDisparitiesEnsuringthatjuvenilejusticesystemsarenotonlyeffective,butalsoequitable,isacriticalfeatureofjuvenilejusticereform.ThisisparticularlytrueinPulaskiCounty,whereyouthofcolor–andAfricanAmericanyouthinparticular–areoverrepresentedinthejuvenilejusticesystemrelativetootheryouth.Forexample,2015datafromtheOfficeofJuvenileJusticeandDelinquencyPreventionindicatedthatAfricanAmericanyouthcomprised47%oftheoverallyouthpopulationage10-17inPulaskiCounty.1However,during2016,AfricanAmericanyouthrepresented87%ofadmissionstodetentionand81%ofcommitmentstoDYS.Observations
• Manystakeholdersinterviewedrecognizedtheneedforreformstoincludeafocusonreducingracialandethnicdisparitiesinthejuvenilejusticesystem.Somenotedthattherequirementsplacedonyouthandfamiliesofcolor(e.g.,travelandtimecommitmentsforappointmentswithserviceproviders)oftenstrainedtheresourcesoffamiliesthatwerestrugglingwithmanyotherchallenges.Somealsohighlightedthatmanyserviceswerenotavailableinthecommunitieswherethegreatestnumberofyouthandfamiliesincontactwiththejusticesystemlive.Stakeholderswonderedwhethertherewerewaysofprovidingcertainservicesinthecommunityasopposedtorequiringyouthandfamilymemberstotraveltoreceivethem.
• Somestakeholdersexpressedagreaterdesiretopartnerwithorganizationsandindividualsfromcommunitiesofcolortoassistwiththesupportandsupervisionofyouthinvolvedwiththejusticesystem.Thisincludedadesiretopartnermoreintentionallywiththefaith-basedcommunity.
• Somestakeholderssuggestedthattensionsbetweenlawenforcementagenciesandcommunitiesofcolormaybeimpactingthewillingnessofindividuals–includingyouth–toassistlawenforcementwithcrimepreventionandinterventionstrategies.
Recommendations
1. Identifywaysofprovidingservicesinthecommunitieswithgreatestratesofinvolvementwiththejuvenilejusticesystem,asopposedtorequiringyouthandfamilymemberstotravelthroughouttheCountytoreceivethoseservices.
2. Engagefaith-basedleadersfromcommunitiesofcolortodiscusstheneedsofyouthandfamiliesincontactwiththejusticesystem,andexplorepotentialpartnershipsthatcould
1Puzzanchera,C.,Sladky,A.andKang,W.(2016)."EasyAccesstoJuvenilePopulations:1990-2015."Online.Available:http://www.ojjdp.gov/ojstatbb/ezapop/.
21
helpenhancecurrentapproachestosupportingandsupervisingyouthinthecommunity.
3. Asmentionedabove,exploretheideaofacreatingareceptionandassessmentcenterthatwouldserveasaone-stop-shopforservices,andlocatethecenterinthecommunityorcommunitiesthatserveasthegreatestsourceofreferralstothejusticesystem.
4. Considerimplementinglawenforcementtrainingstrategiesthathelpbuildtrustbetweenyouthofcolorandlawenforcement.OnepotentialtrainingprogramisthePennsylvaniaDMCYouth/LawEnforcementCurriculum,whichallowsforstructuredinteractionsbetweenlawenforcementandyouthdesignedtobreakdownbarriersincommunicationandbuildtrust(https://padmc.org/law-enforcement-curriculum/).
H. ImprovingConditionsofConfinementforYouthinCustody
Althoughthefocusofmostjuvenilejusticeinitiatives,includingJDAI,ispreventingunnecessaryyouthincarcerationconsistentwithpublicsafety,JDAIalsofocusesonensuringthatyouthindetentionarenotsubjectedtodangerousorinhumaneconditions.JDAIhasindependentlydevelopedacomprehensivesetofbestpracticestandardsfordetention,whicharethemostdemandingsetofstandardsavailableforjuveniledetentionfacilities.JDAIsitesareexpectedtoperiodicallygatherandtrainteamsfromtheircommunitiestoassesstheconditionsintheirdetentionfacilitiesaccordingtothosestandards.Facilitiesarethenrequiredtodevelopcorrectiveactionplans,alongwithplansforperiodicre-assessments.Duringthisassessment,wehadaverylimitedopportunitytoassessconditionsintheCounty’sjuveniledetentioncenter(JDC)becauseofthelimitedtimeon-site.However,wedidhaveseveralobservationsandrecommendationsbasedondiscussionsandabrieftourofthefacility.Observations
• PulaskiCountyhasthebenefitofadetentiondirectorwithmanyyearsofexperienceworkingwithyouth,whichwasevidencedduringourtour.Wewerealsogratefulforhowresponsivethedetentiondirectorwastoourinformationrequest.SomeofthemostdetailedandaccuratedataaboutyouthinthePulaskiCountyjuvenilejusticesystemcameasaresultofherdatacollectionpractices.
• TheCountyrecentlymadeaninvestmentinadditionalmentalhealthresourcesforyouthattheJDC,whichisimportantgiventhehighprevalenceofmentalhealthproblemsfacedbyyouthincontactwiththejuvenilejusticesystem.
• AlthoughweunderstoodthatyouthreceivededucationalserviceswhileattheJDC,wealsoheardthatitwastheresponsibilityofparentsofyouthattheJDCtorequest
22
recordsfromtheJDCtotransfertotheyouth’shomeschool.Inmanyjuvenilefacilities,schoolpersonnelroutinelyrequestandobtaineducationalrecordsfromtheyouth’shomeschooluponadmissionandprovideinformationaboutcreditsearnedtothehomeschoolupontheyouth’srelease.Giventhatyouthincontactwiththejusticesystemareoftenstrugglingacademicallyordisengagedwithschool,routineandtimelyrequestandtransferofeducationalrecordswouldremoveabarriertore-engagingwithayouth’shomeschool.
• WeunderstoodthatyouthadmittedtotheJDCareroutinelyplacedon“lockdown”for24hoursafteradmissionformonitoringformedicalconditions,andthatyouthmaybeplacedonlockdownforuptothreedaysfordisciplinaryreasons.Manyjurisdictionsdonotimposeastandardperiodofisolationuponadmissionwithpropermedicalscreening.Additionally,moreandmorejuvenilefacilitiesaremovingawayfromsolitaryconfinementasadisciplinarymeasure,recognizingthatitmaycauseorexacerbatementalhealthproblemsinyouth.Nationaldatahasindicatedthatoverhalfofsuicidesinjuvenilefacilitiesoccurwhenyouthareinsolitaryconfinement.
• Followingourtour,weobservedyouthinorangecorrectional-styleclothingbeingtransportedtoappointments.TheJDAIdetentionfacilityassessmentstandardsprovidethatyouthwearshirtsorsweatshirtsandpants,notprison-likeclothing.Althoughtheissuemayseemtobeaminorone,theclothinggiventoyouthcansendstrongsignalsaboutwhatisexpectedoftheminthefacilityandaftertheyleave.Manyjuvenilefacilitieshavemovedtousingkhakisandpoloshirtsforthatreason.
• WeunderstoodthatwhiletheJDChadhousedsomeyouthchargedasadultsinthepast,thefacilityhadnotdonesorecently.Wehadlimitedopportunitytodiscussthisissuewithotherstakeholders,butitisclearthatyouthhousedattheJDChavemanymoreopportunitiesthanyouthatthejailtoreceivedevelopmentallyappropriateservicesandsupports,includingeducationalservicesandmentalhealthcare.IfofficialsinPulaskiCountyaresuccessfulwithreformsoutlinedabove,therewouldbeevenmorespacetohouseadult-chargedyouthattheJDC.
Recommendations
1. Implementasystemthatprovidesforroutineschoolrecordrequeststoayouth’shomeschooluponadmissiontotheJDC,aswellasroutinetransferofeducationalrecordsandcreditsearnedtotheyouth’shomeschooluponrelease.
2. Reconsidertheruleonhavingafixed24-hourperiodoflockdownforallyouthuponadmission.
3. Considerhowtosafelyreducetheuseoflockdownfordisciplinaryviolations.StopSolitaryforKidsisanationalcampaigntoendsolitaryconfinementofyouthinjuvenileandadultfacilitiesintheUnitedStates.ThecampaignisajointeffortbyCCLP,the
23
CenterforJuvenileJusticeReform,theCouncilofJuvenileCorrectionalAdministrators,andtheJusticePolicyInstitute.Moreinformationontheissue,includingwaysagenciesandfacilitieshavereducedoreliminatedtheuseofsolitaryconfinementisavailableathttp://www.stopsolitaryforkids.org/.
4. Consideruniformsforyouththatarenotstyledafteradultcorrectionaluniforms.
5. Considerhousingadult-chargedyouthattheJDCusingunusedbedspaceandconsultwithpeers(e.g.,WashingtonCounty)thathaveahistoryofdoingsoregardingimportantconsiderationsandbestpractices.
