JUVENILE JUSTICE INSTITUTE Community-based Juvenile Services Aid Allocation of Funds September 19, 2014 Prepared by: Juvenile Justice Institute University of Nebraska Omaha Anne M. Hobbs, JD, PhD, Director Sommer Fousek, Project Coordinator Will Lohman, Research Intern unomaha.edu/juvenilejustice The University of Nebraska at Omaha is an equal opportunity educator and employer with a comprehensive plan for diversity.
Community-based Juvenile Services Aid Allocation of Funds INTRODUCTION Under legislative bill 561, the Nebraska legislature allocated $5,018,028 to the Community-based Juvenile Services Aid Program. This represented an almost 75% increase in funding available to Nebraska communities. Guidance regarding the use of these funds is outlined in Neb. Rev. Stat., 43-2404.02, which states: (3)(a) In distributing funds provided under the Community-based Juvenile Services Aid Program, aid recipients shall prioritize programs and services that will divert juveniles from the juvenile justice system, reduce the population of juveniles in juvenile detention and secure confinement, and assist in transitioning juveniles from out-of-home placements. (b) Funds received under the Community-based Juvenile Services Aid Program shall be used exclusively to assist the aid recipient in the implementation and operation of programs or the provision of services identified in the aid recipient's comprehensive juvenile services plan, including programs for local planning and service coordination; screening, assessment, and evaluation; diversion; alternatives to detention; family support services; treatment services; truancy prevention and intervention programs; pilot projects approved by the commission; payment of transportation costs to and from placements, evaluations, or services; personnel when the personnel are aligned with evidence-based treatment principles, programs, or practices; contracting with other state agencies or private organizations that provide evidence-based treatment or programs; preexisting programs that are aligned with evidence-based practices or best practices; and other services that will positively impact juveniles and families in the juvenile justice system. Counties applied for funding through the Community-based Aid Application issued by the Nebraska Commission on Law Enforcement and Criminal Justice. In FY 2014, a total of $5,018,028 will be distributed across 38 counties in the state of Nebraska. This report was prepared by the University of Nebraska Omaha s Juvenile Justice Institute to assist the director of Community-based Aid, who is responsible for ensuring that no funds appropriated or distributed under the Community-based Juvenile Services Aid Program are used for purposes prohibited under subsection (3) of section 43-2404.02. 1
SECTION 1: NEBRASKA S COMPREHENSIVE JUVENILE SERVICES PLAN Under Neb. Rev. Stat. 43-2404.02, the legislature encourages the funding of programs aligned with evidence-based practices or best practices. The analysis of evidence-based programming in Nebraska is currently underway as a joint project of UNO s Juvenile Justice Institute and UNL s Law & Psychology Program. This research was funded under a Juvenile Accountability Block Grant through the Nebraska Commission on Law Enforcement and Criminal Justice. An initial statewide analysis will be available in early 2015. The first step of the process is an examination of whether funds awarded under the Communitybased Aid Program support the priorities outlined in the current three year Comprehensive Juvenile Justice and Delinquency Prevention Plan (2012-2014). Nebraska identified eight priorities in the plan, including: (1) Improving community planning; (2) Supporting alternatives to detention; (3) Identifying and addressing disproportionate minority contact (DMC); (4) Enhancing diversion opportunities; (5) Addressing juvenile gang activity; (6) Improving the juvenile justice system through data sharing; (7) Supporting school-based programming; and (8) Addressing substance abuse. In some cases funds supported multiple activities, which created a challenge when attempting to match funds to a priority. However, the preliminary analysis indicates that 55.1% of funds are directed toward one of the state s juvenile priorities. Figure 1. Priority vs. Non-Priority Expenditures Non-Priority Expenditures Substance Abuse 1.5% Priority Expenditures Gang Prevention 44.9% 55.1% 0% Diversion 12.2% Alternatives to Detention 19.0% School Programs 14.9% Community Planning 3.6% DMC 2.3% System Improvements (Data) 1.6% 2
Priority 1: Improving Community Planning Funds for improving community planning totaled $164,202 or 3.6% of all community-based aid funds. Improving Community Planning These funds support persons responsible for writing community plans, as well as organizations planning regional criminogenic trainings, addressing gaps in the system, and coordinating meetings between different juvenile services agencies. Counties receiving funds: Saunders, Box Butte, Scotts Bluff, Dawes, Sheridan, Kimball, Garfield, Cheyenne, Madison, Platte, Seward, Douglas Total amount requested: $96,618 Grant Writers and Consultants These positions are responsible for researching the grant application process, compiling application data, coordinating deadlines, writing grant applications and associated materials, working with other resources in the county who grant funds, and other duties related to the grant writing process. Counties receiving funds: Otoe, Merrick, Cass, Hamilton, Clay Total amount requested: $67,584 $120,000 $100,000 $80,000 $60,000 Figure 2. Community Planning $96,618 $67,584 $40,000 $20,000 $0 Improvements Grant Writers/ Consultants 3
Priority 2: Supporting Alternatives to Detention An estimated $867,572, or 19.0% of the community-based aid funds available, support alternatives to detention. Two main categories under alternatives include funding for placements and electronic monitoring/tracking. Placements Funding for placements includes shelters and emergency placement for pre-adjudicated youth, youth experiencing behavioral health emergencies, youth experiencing a family crisis, youth without an immediate place to go, or youth who do not need to be placed in an actual detention facility. This category also includes emergency foster care and other wrap-around services which provide family support in situations where a child is not allowed back in the home. Counties receiving funds: Buffalo, York, Hamilton, Madison, Sarpy, Douglas, Santee, Sioux Total amount requested: Reporting centers: $264,585 Shelter placements: $260,519 Total: $525,104 Electronic Monitoring/Tracking Electronic monitoring/tracking includes electronic monitoring and tracking equipment, field workers, case supervisors, consultants, face-to-face trackers, and private companies. Counties receiving funds: Otoe, Dakota, York, Colfax, Richardson, Madison, Platte, Sarpy, Winnebago, Douglas, Dodge Total amount requested: $342,469 $600,000 Figure 3. Alternatives to Detention $500,000 $400,000 $300,000 $260,519 Electronic Monitoring/Tracking Shelter Placements $200,000 $100,000 $264,585 $342,469 Reporting Centers $0 Placements Electronic Monitoring/Tracking 4
Priority 3: Identifying and Addressing Disproportionate Minority Contact Although none of the requested funds directly addressed disproportionate minority contact (DMC), a handful of programs did request funds to conduct cultural outreach for diversion or population-specific services, both of which indirectly address DMC. Allocated funds related to DMC totaled $107,134, or 2.3% of community-based aid funds. These funds fell into two main categories, cultural outreach programs and interpreters/translators. Cultural Outreach Programs Cultural outreach programs include cultural sensitivity classes, cultural diversity classes, and/or programs, activities, and classes that provide services to specific minority groups. This category also includes personnel in charge of cultural outreach programs. Some programs focus on youth with truancy issues or system-involved youth who are on diversion, while others target refugees. Counties receiving funds: Platte, Lancaster, Douglas, Santee, Sioux Total amount requested: $99,934 Interpreters/Translators Interpreters/translators include personnel working as an interpreter or translator within a program. Individuals in these positions assist non-english speaking families and juveniles; translating is the main job function. These individuals primarily work with Youth Assessment Specialists. County receiving funds: Platte Total amount requested: $7,200 Figure 4. Disproportionate Minority Contact $120,000 $99,934 $100,000 $80,000 $60,000 $40,000 $20,000 $0 Cultural Outreach Programs $7,200 Interpreters/Translators 5
Priority 4: Enhancing Diversion Opportunities Juvenile diversion programs received an estimated $557,360, or 12.2% of the available community-based aid funds. Two main categories include diversion programming and diversion personnel. There was some overlap between categories; for instance, one county hired a bilingual diversion coordinator, so the positon was included under diversion rather than cultural outreach programs. In addition, a county could request funds to run a group serving both probation and diversion youth. In such situations, we either classified funds based upon the area of emphasis in the funding application or divided the funds between categories (if percentages were included within the application). Diversion Programming and Supplies This category includes everything related to diversion that is not a personnel cost, such as diversion training, travel, conferences, programs, and supplies. Counties receiving funds: Lincoln, Merrick, Dakota, York, Hamilton, Howard, Gage, Colfax, Richardson, Clay, Madison, Platte, Custer, Sarpy, Seward, Lancaster Total amount requested: $152,989 Diversion Personnel This category includes personnel expenses and benefits for any juvenile diversion staff or coordinator. Positions were sometimes difficult to classify (e.g., bilingual diversion officers, staff conducting both electronic monitoring and diversion). Counties receiving funds: Otoe, Lincoln, Hall, Merrick, Dakota, Colfax, Richardson, Clay, Madison, Platte, Custer, Sarpy, Douglas, Red Willow, Jefferson Total amount requested: $404,371 $450,000 $400,000 $350,000 $300,000 $250,000 $200,000 $150,000 $100,000 $50,000 $0 Figure 5. Diversion $152,989 Programming/Supplies $404,371 Personnel 6
Priority 5: Addressing Juvenile Gang Activity Almost no funding was requested to address gang involvement or activity. This is likely due to the fact that the Office of Violence Prevention issues awards related to community violence and gang activity. Lancaster, Douglas, and Hall counties currently receive OVP funding. Two positions funded through community-based aid address gang activity, but were included in other categories: Bilingual Diversion Officer Duties include case management, translation, interpreter services, communication with parents, data collection, quarterly re-offense interviews, data input, and involvement with the DMC committee and the Parent Committee Director for the Time for Change Anti-Gang Coalition. Juvenile Facilitator Works with public schools offering programming to reduce truancy and gang involvement in at-risk students. Other duties include organizing community speaking engagements and collaborating with other organizations. Impacted Counties: Dawson, Platte 7
Priority 6: Improving the Juvenile Justice System through Data Sharing No funding was requested to directly address data sharing. However, a total of $70,935, or 1.6% of community-based aid funds, was requested to increase system collaboration and information sharing. This category includes the crossover youth practice model and trauma-informed training. Crossover Youth Practice Model The Crossover Youth Practice Model (CYPM) focuses on the unique needs of children involved in both the child welfare and juvenile justice systems. Funds were requested for an administrative support position responsible for youth identification, case creation, notification to the collaborative group, and data entry. County requesting funds: Douglas Total amount requested: $68,935 Trauma-Informed Training Trauma-informed training includes training for staff working in the juvenile justice field. County requesting funds: Douglas Total amount requested: $2,000 $80,000 $70,000 Figure 6. System Improvements - Data Sharing $68,935 $60,000 $50,000 $40,000 $30,000 $20,000 $10,000 $0 Crossover Youth Practice Model $2,000 Trauma-Informed Training 8
Priority 7: Supporting School-based Programming A number of county applications requested funds for school-related programs. A total of $678,884 or 14.9% of the community-based aid funds available, was allocated to school-related programming. Many grant applicants requested funding for after school care that included a center for programming. Such blending of programs and positions made it challenging to tease out separate categories. However, we identified five main categories under school-based programming, including after school programs, alternative schools, school resource officers, truancy programs, and truancy program personnel. After School Programs This category includes after school activities and programs that are educational in nature, such as supervised after school study halls. Funds were requested for youth centers, as well as after school coordinators and staff members to assist with student homework. This category may also include travel between rural schools to assist students struggling academically (this category overlaps with truancy). Counties receiving funds: Madison, Garfield, Platte, Clay, Colfax, Otoe, Merrick, Hamilton, Cheyenne Total amount requested: $62,440 Alternative Schools This category includes alternative schools or learning programs that are more flexible and individualized compared to traditional high school. County receiving funds: Box Butte Total amount requested: $9,905 School Resource Officers This category includes staff responsible for school policing, protecting school staff and children, providing resources to school staff, fostering positive relationships with youth, and problem solving strategies specific to youth. Counties receiving funds: Box Butte, Dawes, Sheridan Total amount requested: $43,372 Truancy Programs This category includes program costs, training, supplies, equipment, travel, materials, and any other truancy expenditure that is not truancy personnel. 9
Counties receiving funds: Saunders, York, Gage, Colfax, Clay, Sarpy, Seward, Lancaster, Douglas Total amount requested: $179,948 Truancy Program Personnel This category includes personnel who address truancy in a variety of ways. Qualifying positions include: ARRIVE Project Coordinator Investigates cases of unexcused and excessive absences and tardiness, communicates and shares attendance law and policy to students and parents, works closely with school staff, conducts home visits and parent conferences, and keeps records, reports, and cases. Truancy Officer Locates truant students, makes contact with parents of truant students, serves as a resource for families dealing with truancy issues, and acts as a hub for all truancy issues. Truancy Officers also discuss students educational status and truancy-related services available to youth and parents. STARS Case Manager Meets with students and families throughout the week to work toward intervention plan goals. Works with various agencies in the community to coordinate services and support for students and families. Attendance Officer Completes home visits and reports directly to school staff. Works in conjunction with the school team and the Assessment Specialist to bring about positive changes to aid students and families in reducing absences. Along with school staff and the assessment specialist, responsible for developing a detailed truancy program policies and procedures manual, along with referral criteria. Maintains ongoing conversations with the school district to provide the vehicle, gas, and insurance needed to make contact with families. Youth Attendant Conducts personal checks with youth and meets with parents for follow up. Works with juveniles in the Truancy Program. 10
Truancy Caseworker Responsible for monitoring, directing, coordinating, and reporting on juveniles at risk for truancy violations. Receives referrals from the school about students at risk for truancy, enrolls students who continue to exhibit truancy issues, contacts parents to address issues contributing to truancy, assesses any individual/family needs, identifies family strengths/weaknesses, and provides referrals to appropriate support services. Truancy Coordinator Tracks youth who have 20 or more truancies from school and for whom the school has requested assistance from the court. Meets with these youth on at least a weekly basis to work on individualized plans. Inter-local Agreement The Butler County and Seward County Truancy Caseworkers work together to monitor cases in both Butler and Seward Counties. Diversion Officer Works on truancy cases, identifies strategies, and assists with truancy filings that are first sent through the County Attorney s Office. Collects attendance and monitors classroom performance throughout the duration of youth program participation. Counties receiving funds: Saunders, Colfax, Clay, Madison, Platte, Sarpy, Seward, Lancaster, Douglas, Dodge Total amount requested: $383,219 $450,000 $400,000 $350,000 $300,000 $250,000 $200,000 $150,000 $100,000 $50,000 $0 $62,440 After School Programs Figure 7. School-based Programming $9,905 Alternative Schools $43,372 School Resource Officers $179,948 Truancy Programs $383,219 Truancy Personnel 11
Priority 8: Addressing Substance Abuse A total of $66,761, or 1.5% of community-based aid, was requested for substance abuse and related issues. Substance abuse programs include a wide range of substance-related supplies and activities, such as speakers, victim impact panels, equipment, and supplies, including drug testing kits, drug screening kits, and educational materials. Counties receiving funds: Buffalo, Saunders, Merrick, Cass, Sheridan, Howard, Gage, Richardson, Clay, Garfield, Madison, Platte, Sarpy Total amount requested: $66,761 $80,000 $70,000 $60,000 $50,000 $40,000 $30,000 $20,000 $10,000 $0 Figure 8. Substance Abuse $66,761 Substance Abuse Programs 12
SECTION 2: SYSTEM-WIDE REQUESTS System-wide requests include funding requests that are not directly tied to a program or intervention. These requests fall into the areas of personnel, office space, supplies, and transportation. Personnel Juvenile justice personnel costs are commonly included in county aid applications. A total of $1,259,126 was requested for personnel directly working for a program or intervention. These funds were included in the Section 1 analysis of this report. An additional $940,739, or 20.6% of community-based aid funds, was requested for system personnel 1. Taken together, we conservatively estimate that at least 50% of community-based aid funds were allocated for personnel working in or in support of the juvenile justice system. Below we include a representative sampling of system personnel funds. The sample does not include a complete list of all personnel titles categorized under system personnel, however all funding allocations are listed. Consultants and community planning personnel are not included in this category. County Attorneys and Legal Assistants Assists the Chief Deputy County Attorney in reviewing and making charging decisions on law violations referred to juvenile division. These funds also include $82,983 for a receptionist, $1,300 for a County Clerk, and $46,869 for a juvenile justice legal assistant. Counties receiving funds: Buffalo, Lancaster, Douglas, Dawes Total amount requested: $409,581 JDAI Site Coordinators Coordinates site detention reform efforts by serving as liaison to JDAI Leadership Groups, work groups, and the Technical Assistance Team Leader. Counties receiving funds: Sarpy, Douglas Total amount requested: $80,951 Assessment Specialists/Community Resource Analysts Analyzes trends, issues, and areas of need for juveniles, as well as all juvenile, system, and process data related to other committees and programs. County receiving funds: Douglas Total amount requested: $69,478 1 This is a conservative count of personnel expenses, as it does not include personnel related to intervention/programs for youth. 13
Juvenile Services Personnel Includes a variety of personnel with varying responsibilities. Juvenile facilitators work directly with adjudicated youth on probation and work with public schools offering programs to reduce truancy and gang involvement in at-risk students. Juvenile Services Program Coordinators oversee the Juvenile Services Program and collaborate with other county-level programs, including the Attorney s office. Juvenile Service Program Directors, who provide fiscal management of the Juvenile Services County Aid Grant, track income and expenses. Counties receiving funds: Dawson, Sarpy, Holt Total amount requested: $204,513 Miscellaneous Includes drug courts, CASA funds, and AmeriCorps stipends. Total amount requested: $176,216 Figure 9. Personnel $450,000 $400,000 $409,581 $350,000 $300,000 $250,000 $200,000 $204,513 $176,216 $150,000 $100,000 $80,951 $69,478 $50,000 $0 County Attorneys/ Legal Assistants JDAI Site Coordinators Assessment Specialists/ Community Resource Analysts Juvenile Services Personnel Misc 14
Office Space, Supplies and Transportation Other funding requests fell under the categories of office space, office supplies, and transportation. A total of $357,213, or 7.8% of community-based aid dollars, was included in this category. Probation Office Space Includes expenses related to expanding, improving, or locating probation space. Examples of costs include leases, renovation, and rent. Counties receiving funds: Otoe, Buffalo, Hall, Scotts Bluff, York, Clay, Cheyenne, Sarpy, Douglas Total amount requested: $313,054 Office Supplies/Operating Expenses Represents unspecified office supplies and operating expenses, such as general office supplies not requested by a specific program. Counties receiving funds: Merrick, York, Madison, Holt Total amount requested: $8,686 Transportation Includes transportation for arrested juveniles or those who have not yet been placed on probation and must be transported to holding facilities. *It was decided that grant money could not be used for this purpose. Counties receiving funds: Lincoln, Buffalo Total amount requested: $14,376 Vehicles One county requested funds for a minivan to transport youth involved in CARE and the Truancy/Pass Programs back and forth between schools, the justice center, and youth homes. County receiving funds: Sarpy Total amount requested: $21,097 15
$350,000 $300,000 Figure 10. Office Space, Supplies & Transportation $313,054 $250,000 $200,000 $150,000 $100,000 $50,000 $0 Office Space $8,686 Office Supplies/ Operating Expenses $14,376 Transportation $21,097 Vehicles 16
SECTION 3: DIRECT INTERVENTIONS FOR YOUTH In addition to the allocations set forth above, our initial analysis indicates that roughly $761,829, or 16.7 % of the community-based aid funds are being spent on direct interventions and programming for youth. As in the introduction of this report, an assessment of whether these direct interventions are aligned with evidence-based practices or best practices, requires a more in-depth examination. A preliminary analysis will not be completed until June 2015. The list below includes a sample of direct intervention programs and is not a complete listing of programs or allocated funds. JAC Programs Includes programs, supplies, training, and other non-personnel requests for the Juvenile Assessment Center (JAC). Participating county: Douglas Total amount requested: $40,524 Family Support Programs Includes events, classes, and/or programs that focus on both the parents and children developing positive skills and connections. Also includes family therapy programs. Participating counties: Gage, Seward, Lancaster, Douglas Total amount requested: $97,863 Life Skills Education Includes programs and classes that teach basic skills for independent living, such as making good decisions, managing a household (cooking, cleaning, working, etc.), problem solving, taking care of one s self, and communication skills. Classes also assist youth in transition periods, such as life after high school. Participating county: Clay Total amount requested: $10,000 Medication Covers prescription medication costs related to youth s mental and physical needs while they are in programs and until they are connected with community services. Participating county: Douglas Total amount requested: $30,000 17
Mental Health Includes mental health services, counseling, psychological evaluations, mental health screenings, treatment plans, and other behavioral health services. Participating counties: Madison, Sherman, Douglas Total amount requested: $38,373 Mentoring Personnel Includes mentors who meet directly with youth, as well as mentoring program directors. Participating counties: Lincoln, Clay, Seward, Lancaster Total amount requested: $47,338 Mentoring Programs Includes mentoring programs, training, supplies, materials, equipment, and any other expense that is not personnel. Participating counties: Lincoln, Clay, Seward, Lancaster, Douglas Total amount requested: $47,889 Youth Center Includes youth center personnel and programs. Youth go to youth centers during after school hours and, depending on the youth center, during the weekend, to hang out in a supervised and safe setting. Participating counties: Merrick, Box Butte, Hamilton, Seward, Santee, Sioux Total amount requested: $37,019 Youth Emergency Services Safe Place initiative that involves the whole community in providing safe havens and resources for runaway and homeless youth, as well as youth in crisis. Includes hiring a staff person to promote Safe Place within schools and educate youth and school staff on community resources available to those experiencing trouble at home or who are at risk of homelessness. Staff also work with businesses which are Safe Place sites, provide enhanced training, and increase the network of available services. Participating county: Douglas Total amount requested: $30,000 18
Youth Employment Preparation Includes classes and programs, such as Project HIRE, which help youth locate and secure employment. Teaches job skills and problem solving strategies to assist youth in finding employment. Participating county: Lancaster Total amount requested: $46,570 Why Try? Training Includes funding for ten community partners to attend Why Try training. Why Try covers a variety of subjects, such as overcoming challenges, social and emotional principles, and other important life skills. Participating county: Douglas Total amount requested: $6,000 19
SECTION 4: COMMUNITY-BASED AID ENHANCEMENT DOLLARS Ninety-three counties and four tribes may apply for community-based aid funding. Of these entities, 67 counties (72% of eligible counties) and two tribes (50% of eligible tribes) applied and were allocated funding. A total of $436,108 was left unallocated. In January 2014, these remaining dollars were made available to all counties and tribes on a competitive basis; they have been allocated to the following categories: A statewide evidence-based training scheduled for October 30-31, 2014 Probation expansion Equipment Additional diversion services Mental health assessments Winnebago strategic planning Specific dollar amounts were not available at the time of this report. 20