Board of State and Community Corrections

J J C P A UVENILE USTICE RIME REVENTION CT AND Y O B G OUTHFUL FFENDER LOCK RANT M 2022 ARCH STATE OF CALIFORNIA – GAVIN NEWSOM, GOVERNOR BOARD OF STATE AND COMMUNITY CORRECTIONS Board Members* Chair, Board of State Community Corrections ............................................................................ Linda M. Penner The Chair of the Board is a full-time paid position appointed by the Governor and subject to Senate Confirmation Secretary, CA Dept. of Corrections and Rehabilitation (CDCR) ................................................. Kathleen Allison Director, Adult Parole Operations, CDCR ......................................................................... Guillermo Viera Rosa Lassen County Sheriff .................................................................................................................. Dean Growdon A sheriff in charge of a local detention facility with a BSCC rated capacity of 200 inmates or less appointed by the Governor and subject to Senate confirmation County Sheriff ............................................................................................................................................. Vacant A sheriff in charge of a local detention facility with a BSCC rated capacity of more than 200 inmates appointed by the Governor and subject to Senate confirmation Santa Clara County Supervisor ...................................................................................................... Cindy Chavez A county supervisor or county administrative officer appointed by the Governor and subject to Senate confirmation Fresno County Chief Probation Officer .............................................................................................. Kirk Haynes A chief probation officer from a county with a population over 200,000 appointed by the Governor and subject to Senate confirmation Kings County Chief Probation Officer ............................................................................................... Kelly Vernon A chief probation officer from a county with a population under 200,000 appointed by the Governor and subject to Senate confirmation Retired Judge, Yolo County ............................................................................................................... Janet Gaard A judge appointed by the Judicial Council of California Chief of Police, City of Palm Springs ................................................................................................ Andrew Mills A chief of police appointed by the Governor and subject to Senate confirmation Founder of the Anti-Recidivism Coalition and Film Producer ......................................................... Scott Budnick A community provider of rehabilitative treatment or services for adult offenders appointed by the Speaker of the Assembly Advocacy Coordinator with the Anti-Recidivism Coalition .............................................................. Miguel Garcia A community provider or advocate with expertise in effective programs, policies and treatment of at-risk youth and juvenile offenders appointed by the Senate Committee on Rules Associate Director, Women's and Non-Binary Anti-Recidivism Coalition (ARC) ................................................................................................. Norma Cumpian A public member appointed by the Governor and subject to Senate confirmation BSCC Staff Executive Director ................................................................................................................. Kathleen T. Howard Communications Director .................................................................................................................. Tracie Cone General Counsel ............................................................................................................................ Aaron Maguire Deputy Director Corrections Planning and Grant Programs .................................................. Ricardo Goodridge Legislative Analyst .......................................................................................................................... Adam A. Lwin * Board member composition is pursuant to Penal Code 6025 Juvenile Justice Crime Prevention Act and Youthful Offender Block Grant Annual Report to the Legislature March 2022 Board of State and Community Corrections 2590 Venture Oaks Way, Suite 200 Sacramento, CA 95833 http://www.bscc.ca.gov EXECUTIVE SUMMARY The following is the fifth annual report of the combined Juvenile Justice Crime Prevention Act (JJCPA) and the Youthful Offender Block Grant (YOBG) programs. The JJCPA- YOBG Grant funds were allotted to the counties to help system-involved youth or those at risk. This report is mandated by Government Code section 30061 and Welfare and Institutions Code (WIC) section 1961, as established by Assembly Bill 1998 (Chapter 880, Stats. 2016). California counties are required to submit to the Board of State and Community Corrections annual reports on local spending that provide specific data elements such as juvenile court disposition, new petitions (juveniles not previously supervised), wardship placements, and demographic data. The county reports also identify how JJCPA and YOBG funds were spent on programmatic, therapeutic, and intervention efforts in the preceding fiscal year. These formula-based funding streams assist California counties in providing youth services, and the reports submitted to the BSCC are designed to show that counties have implemented their own locally relevant programs for youth who are at-risk and/or previously would have been under state custody and oversight. In the fiscal year 2019 and 2020, all 58 counties submitted annual plans that can be found here: https://www.bscc.ca.gov/s_cpgp2022countyjjcpayobgplans/. ANNUAL PLANS By May 1 of each year, counties are required to submit their annual plans for JJCPA and YOBG spending to the BSCC. These plans describe all programs, placements, strategies, services, and system enhancements that will be supported with JJCPA and/or YOBG funds in the upcoming fiscal year. The BSCC developed an online reporting tool in 2021 to collect the annual plans and updated the questions. The BSCC added a question on whether counties had fully established Juvenile Justice Councils (JJCC) (Welf. & Inst. Code, § 749.22), and for counties to provide a timeline to indicate when council vacancies would be filled. The BSCC also added a new section for comprehensive plan revisions. Counties were asked how their plans were updated from the previous year and if the plan was not updated, to indicate why. Most counties continue to use their already established annual plans. Due to the COVID-19 pandemic, many county programs experienced challenges in meeting in-person programing. Counties conformed to virtual platforms rather than in- person sessions and saw decreases in youth participation. This report highlights a sample of counties' progress for the fiscal year 2020 -2021. With the passage of Senate Bill 823, county JJCC’s are developing modified plans and strategies that are needed to provide appropriate rehabilitation for youth who will be realigned from the Department of Juvenile Justice to the counties. Some counties are JJCPA-YOBG Legislative Report 2022 1 | Page planning to use the JJCPA-YOBG grant funds to provide additional services to these youths. BSCC staff reviewed each county’s submission for completeness and requested additional information as needed. Below is a summary of several counties, ranging from small, medium, to large as examples of uses of JJCPA-YOBG funding. Yolo County The County of Yolo is using a collaborative approach working with community resources, school districts, and other law enforcement agencies. Such programs include Yolo County Arts Council, Arts Education, youth education programs, mental health, substance use services, and much more. One notable strategy by Yolo County is identifying service gaps in 2020 and a strategy to fill the gap using JJCP and YOBG Funds as shown in Table 1: Table 1: Source: https://www.bscc.ca.gov/wp-content/uploads/Yolo-2021-2022.pdf The impact of COVID-19 has hindered many counties in successfully running JJCPA- YOBG Grant programs. According to Yolo County, the number of referrals has declined, and family engagement has become difficult due to the state’s restrictions. Community- based providers have adjusted their service delivery by using virtual platforms. However, access to electronic equipment and the internet has proven to be difficult for some families. The County also reported that there are communication difficulties without face- to-face interaction. Yolo continues to offer early intervention and prevention programs and services, including adolescent psychiatry services, court-appointed special advocates, and Dialectical Behavior Therapy to youths in their care using the grant funding. Overall, Yolo reports that it remains on its continuum plan and collaborative approach in working with the youth, families, local law enforcement, and the community to encourage rehabilitation. JJCPA-YOBG Legislative Report 2022 2 | Page San Francisco County San Francisco County is continuing its local action plan devised in 2017, which is updated regularly. The County uses a strategy that includes refining policies and practices while training and supporting its workforce. Much like many other counties, San Francisco also uses a collaborative approach working with the youth, the family, local school districts, probation, and other local law enforcement and the community. San Francisco County works to deter youth from deeper involvement in the justice system and connect youth to services and programs within the community. Even though the County’s plan was not updated for fiscal year 2020-21, community- based programs were adjusted and have added more supportive services. The County reports that its current strategies remain effective and meet the need of youth in their care. Some of the programs that San Francisco is funding with the JJCPA-YOBG funds include the Success Center, Pathways to Success program. This community-based service program offers a series of workshops that address violence prevention, racism, growth mindset, and life-skills building. This is a five-hour program that youth the opportunity to satisfy their community services obligation as well. The Family Navigator program for youth and their self-identified family members offers support through court proceedings, probation commitments, attorneys, system professionals, and many other resources. The Instituto Familiar de la Raza/ Destino Nuevos provides a cultural program that is unique to youth of color. Services include the provision of a psycho-social assessment, individualized plan development, and linkage services to advance participant goals. San Francisco reports that it continues to include and engage families in every step of the juvenile justice process and with youths’ successful transition out of the system. With the many services and programs through the JJCPA-YOBG funds, the county will continue its Multi-Agency Juvenile Justice Local Action Plan. Stanislaus County Stanislaus County updated its Local Action Plan in 2020 and defined four areas of focus: • Prevention – Services for minors at-risk for involvement in the juvenile justice system or minors minimally involved in the juvenile justice system. • Intervention – Services geared toward minors who are involved in the juvenile justice system. • Enforcement—Services provided by Law Enforcement, Probation, or other related agencies in the enforcement of laws, terms and conditions related to youth. • Detention (formerly Incapacitation) – Services offered to youth in custodial/ detention settings. Based on the four defined services, the County developed new goals that they plan to carry out through 2025. Some of these goals include, but are not limited to, enhancing the continuity of care for youth to transition to the community, developing and expanding JJCPA-YOBG Legislative Report 2022 3 | Page vocational training and job placement, and increasing the use of evidence-based practices models for prevention, intervention, and in-custody services and programs. Some of the JJCPA-YOBG funded programs that Stanislaus County has used include the Intensive Juvenile Supervision Unit, which has effectively reduced delinquency in juvenile crime and adjudicated offenses including drug and violent crimes. The Mental Health/Substance Use Disorder “Several years ago, a then 14-year-old (SUD) Treatment/ Cognitive Behavioral female had gone through GRAD but was Intervention program provides treatment to youth not initially successful; she moved onto high for counseling, domestic violence, and risk, then placement. However, she returned behavioral therapy. Probation staff are being from placement back to GRAD, graduated trained to support youth in-person and in a virtual high school, and moved on to Modesto setting. Junior College while receiving the Underwood Scholarships from the Probation Department. She was ultimately The Gender Responsive Alternative to Detention dismissed from Probation. Most recently, at (GRAD)/ Commercial Sexual Exploitation of 19 years old, she joined the Girls Advisory Children and Support program focuses on Council as a former probation youth female youths. This program serves females wanting to give back to the program that ages 18-24 with one-on-one counseling services once served her. This is just one example of and referrals to appropriate programs, and the impact this program has on the lives of education on eating disorders/body image, and youth.” financial literacy. This program also offers cognitive behavioral therapy and drug and - Stanislaus County Annual Plan alcohol treatment. The GRAD program has Report provided several benefits for young females. Stanislaus County reports it will continue to revisit the plan as necessary in the future. San Luis Obispo County The County of San Luis Obispo is served by eight primary law enforcement agencies that serve at-risk youth and their families. The County uses a collaborative approach with school districts and the community. In addition, The County of San Luis Obispo Behavioral Health Department's Youth Services Division provides a wide variety of mental health services with a primary goal of reducing psychiatric services to youth. The County Health Department provides a variety of services to youth and their families as well. The County also uses a wide array of community-based service providers to support the youth. The County of San Luis Obispo uses an evidence-informed and collaborative approach in addressing the continuum of juvenile delinquency responses. The County’s probation department uses the Youth Level of Service – Case Management Inventory as its assessment tool for psychological evaluation. The County is developing case plans to target and identify criminogenic needs to refer youth to evidence-based programming. A wide variety of community-based organizations are used to provide this programming. JJCPA-YOBG Legislative Report 2022 4 | Page The County agencies and community-based organizations work collaboratively to ensure services are provided across the continuum and are evidenced-based, trauma-informed, and culturally sensitive. One notable program that San Luis Obispo County is using JJCPA-YOBG funding for is the Coastal Valley Academy. This program’s goal is to safely return youth to the community and teach them avoidance behaviors and positive pro- social replacement skills. Riverside County Riverside County’s juvenile justice action strategy uses partnerships among social services, education, health, community organizations, and families to serve at-risk youth. Riverside is funding programs such as the Youth Accountability Team, which is designed to address the specific needs surrounding the youth and family while promoting positive, pro-social development. Riverside has seen success with this program and has also provided a forum that promotes a greater understanding of the impact that crime has on victims, families, neighborhoods, and communities. Another program that Riverside funded by JJCPA-YOBG is its Restorative Justice program, an approach that provides victims with a voice and active role in a corrective action plan. This program is designed to encourage and support the development and use of alternative dispute resolution techniques between parties to alleviate conflicts. The program includes mediation and conciliation services focusing on the needs of both parties. The program targets behavioral health, substance abuse, individual and family counseling, anger management, and educational services. The Successful Short-Term Supervision program administered by the County’s probation department serves youth ages 12-18 and their families. This program supports youth in school attendance, substance and alcohol abuse, counseling, community involvement, and pro-social activities. In 2020, 390 youth were served during the calendar year. Riverside reports that it is prioritizing its county-wide focus on the use of collaborative partnerships that include social services, education, health, community organizations, and families to serve at-risk youth. The County updated its plan for FY 2020-21 to include newly funded community-based organizations through the JJCPA-YOBG grant to further service youth and families. The County plans to increase access to pro-social events and activities, gender-specific and trauma-informed programming, academic, vocational, and employment development services. A detailed evaluation report completed by the County JJCPA programs may be found here: https://probation.co.riverside.ca.us/pdf/jjcc/WestEd%20Rpt%20Y2020%20JJCPA%20E valuation%20Report_FINAL.pdf Mariposa County Mariposa is a small county which, like many counties, uses a collaborative approach in working with the community and local law enforcement to serve at-risk youth and families. The County has been improving the continuum of services to youth to reduce juvenile offenses by using the least restrictive options available. JJCPA-YOBG Legislative Report 2022 5 | Page The County is using the JJCPA-YOBG funds to provide services to local students and the sheriff’s office to improve school attendance and reduce suspensions and expulsions. Through the Truancy Intervention Program, Mariposa is using the approach of early identification, intervention, and referral of services to youth. This program consists of academic remediation and tutoring, home visits, counseling, mentoring, and parental outreach and assistance by probation officers or the sheriffs with assistance from a school resource officer assigned to a school program. A notable program available to Mariposa County’s at-risk youth and families is the MiWu- Mati Healing Center and Native Solutions, which provide client-centered services to Native American clients, integrating professional clinical counseling services with traditional Native American values and practices. The center provides counseling, crisis and referral services, community mental health intervention, and prevention activities to Native American families, adults, and children. The centers also provide alcohol and drug counseling services as well as activities for youth and adults. Mariposa County will continue to use the collaborative approach to address chronic absenteeism and behavioral issues in youth within its school systems with the assignment of a school resource officer. Inyo County Inyo, a small rural county with limited resources and services for youth and families, works with the local sheriff, probation, school districts, and the community to serve youth in a collaborative effort. The County is currently focused on intervention and prevention programs and campus support. Juvenile crime has declined within the county, but a need for services and programs for youth and their families persist. Inyo County's juvenile justice action strategies include the provision of research-based interventions for at-risk youth who enter the system via truancy, behavioral issues, or through the juvenile justice system. Inyo Probation utilizes a reward/sanction matrix to address any violations of probation. Rewards can be anything positive for the youth, including certificates, food cards, special outings, or individual requests. Sanctions range from reprimands and community work service to detention in the juvenile hall or weekend programs. The JJCPA-YOBG grant in Inyo County funds the Healthy Communities of Southern Inyo County. This program has been serving the community since 2001 and provides youth services, which include family recreation, afterschool and weekend programs, and summer family programs for at-risk youth. The County also used the Office of Education – Extended Day Program to teach elective and vocational classes. The County will continue to monitor and modify its plans based on the needs of the youths in their community and continue to train staff and provide adequate resources to at-risk youth and their families. YEAR-END EXPENDITURE & OUTCOME REPORTS On October 1 of each year, counties must submit to the BSCC combined annual year-end reports for JJCPA and YOBG. Annual year-end reports describe programs, placements, services, strategies, and system enhancements that were funded during the preceding JJCPA-YOBG Legislative Report 2022 6 | Page fiscal year. Reports include line-item budget detail. These reports also include countywide figures for specified juvenile justice data elements that are readily available in existing statewide juvenile justice data systems. Counties also provide written summaries, or an analysis of how grant-funded programs have or might have contributed to, or influenced, the countywide data that is reported. These reporting requirements direct counties to report data on their entire juvenile justice population and to describe how their use of JJCPA and YOBG funds has or may have impacted the trends seen in that data. (See the heading: Analysis of Countywide Trend Data) All Year-end Expenditure & Outcome Reports must be posted on the BSCC website, which can be viewed here: https://www.bscc.ca.gov/2021-jjcpa-yobg-expenditure-and-data- reports/ BRIEF HISTORY OF THE JUVENILE JUSTICE CRIME PREVENTION ACT The JJCPA was created by the Crime Prevention Act of 2000 (Chapter 353) to provide a stable funding source for local juvenile justice programs aimed at curbing crime and delinquency among at-risk youth and juvenile offenders. (See Gov. Code, § 30061, subd. (b)(4).) JJCPA funds are available to address a continuum of responses including prevention, intervention, supervision, and incarceration. State law requires that JJCPA-funded programs be modeled on strategies that have demonstrated effectiveness in curbing juvenile delinquency. Beyond that, counties have broad discretion in how they use JJCPA funds to support and enhance their juvenile justice systems. JJCPA relies on a collaboration between the state, local agencies, and stakeholders. Local officials and stakeholders determine where to direct resources through an interagency planning process. The State Controller’s Office distributes the appropriated JJCPA funds to counties based on population. Local agencies and community-based organizations deliver programs and services. This partnership acknowledges the value the state places on local discretion and multiagency collaboration in addressing the problem of juvenile crime in California’s communities. In fiscal year 2020-21, the statewide base allocation of JJCPA funds was $107,100,000. An additional $60,754,170 was allocated in 2020-21 based on revenue growth that occurred in 2019-20. Consequently, the total amount of funds available to counties through the JJCPA program in 2019-20 was $168 million. BRIEF HISTORY OF THE YOUTHFUL OFFENDER BLOCK GRANT PROGRAM The YOBG Program was established in 2007 by SB 81 (Chapter 175) and was amended in 2009 by SBX4 13 (Chapter 22, Fourth Extraordinary Session). In 2016, further amendments were made by AB 1998. (See Welf. & Inst. Code, §§ 1950 et seq.) JJCPA-YOBG Legislative Report 2022 7 | Page The YOBG program, sometimes known as “juvenile realignment,” realigned certain youth in California’s juvenile justice population from state to county control. YOBG provisions prohibit counties from sending certain lower-level offenders to the California Department of Corrections and Rehabilitation, Division of Juvenile Justice (DJJ). Youth who are no longer eligible for DJJ commitment are those who commit an offense that is not listed in Welfare and Institutions Code section 707, subdivision (b) and is not a sex offense as set forth in Penal Code section 290.008, subdivision (c). YOBG supports the concept that public safety is enhanced by keeping juvenile offenders close to their families and communities. As provided by statute, “allocations from the Youthful Offender Block Grant Fund shall be used to enhance the capacity of county probation, mental health, drug and alcohol, and other county departments to provide appropriate rehabilitative and supervision services to youthful offenders subject [to the provisions of SB 81].” Within these general guidelines, counties have flexibility in how they use YOBG funds and counties use this flexibility to tailor YOBG-funded programs that fit local needs and priorities. In recognition of the increased county responsibility for supervising and rehabilitating realigned youthful offenders, the state provides annual funding to counties through the YOBG program. In 2020-21, statewide YOBG funding was $160,021,081. According to the State Controller’s Office due to a decrease in revenues, there were no growth allocations for 2020-21. The total amount of funds available to counties through the YOBG program in 2020-21 was $160 million. FUNDING FOR JJCPA-YOBG Each county receives an annual allocation of JJCPA and YOBG funded based on the formulas prescribed in statute. For JJCPA, that formula is based on each county’s population. For YOBG, the formula gives equal weight to a county’s juvenile population and its juvenile felony dispositions. The California Department of Finance (Finance) is responsible for calculating the annual amount of JJCPA and YOBG funding to be allocated to each county. Finance performs this calculation annually, following enactment of the state budget, using its own demographic information for the juvenile population and California Department of Justice data for juvenile felony dispositions. The State Controller’s Office is then responsible for remitting monthly allocations to each county according to the calculations provided by Finance. JJCPA and YOBG are both part of the funding structure established in the 2011 Public Safety Realignment legislation that created the Local Revenue Fund of 2011. The Local Revenue Fund has a variety of subaccounts, including the Law Enforcement Services Account, which is the funding source for JJCPA and YOBG. The main revenue source for JJCPA is the Vehicle License Fee Fund. Any shortfall in that revenue source is made up by State Sales Tax revenue. The main revenue source for YOBG is State Sales Tax. Any shortfall in that revenue source is made up by the Vehicle License Fee Fund. Proposition 30, approved by California voters in 2012, constitutionally guaranteed the funding for JJCPA and YOBG. (Cal. Const. art. XIII, § 36, Assembly Bill 118, (Chapter 40, Stats. 2011).) Proposition 30 provided that the 2011 Public Safety Realignment JJCPA-YOBG Legislative Report 2022 8 | Page Legislation gave local agencies “maximum flexibility and control over the design, administration, and delivery of Public Safety Services as determined by the Legislature.” (Cal. Const. art. XIII, § 36.) The following link provides each county’s description of how they spent those funds: https://www.bscc.ca.gov/2021-jjcpa-yobg-expenditure-and-data-reports/ To learn more about the JJCPA-YOBG program, please visit: https://www.bscc.ca.gov/s_jjcpayobgjuvjuscrimeprevact/ JJCPA-YOBG Legislative Report 2022 9 | Page