ImprovingOutcomesforYouthinColorado
FirstPresentationtoTaskForce:IOYouth ProcessandSystemOverviewMay14,2018
CSGJusticeCenterPresenters:NancyArrigona,ResearchManagerShanelleJohnson,PolicyAnalystNinaSalomon,ProjectManager
AboutTheCouncilofStateGovernments(CSG)JusticeCenter
CouncilofStateGovernmentsJusticeCenter|2
Nationalnonprofit,nonpartisan,membership
associationofstategovernmentofficialsthat
engagesmembersofallthreebranchesof
stategovernment
Providespractical,nonpartisanresearch-driven
strategiesandtoolstoincreasepublicsafety
andstrengthencommunities
AbouttheNationalReentryResourceCenter
CouncilofStateGovernmentsJusticeCenter|3
• AuthorizedbythepassageoftheSecondChanceActinApril2008
• LaunchedbyTheCouncilofStateGovernments(CSG)JusticeCenterinOctober2009
• AdministeredinpartnershipwiththeU.S.DepartmentofJustice’sBureauofJusticeAssistanceandtheOfficeofJuvenileJusticeandDelinquencyPrevention
TheCSGJusticeCenterhaspartneredwithnumerousstatestoprovidetechnicalassistance.
CouncilofStateGovernmentsJusticeCenter|4
IAIN OH
VANC
UTKS
NEPA
NV
ND
OK
WA
GA
DE
MA
01 Background02 IOYouthinColorado
03 SystemOverview
States’juvenileincarcerationrateshavedeclineddramaticallyoverthepastdecade.
CouncilofStateGovernmentsJusticeCenter|6
PERCENTCHANGEINSTATEJUVENILEINCARCERATIONRATES(1997-2015)
-150%
-100%
-50%
0%
50%
100% Co
nnecticut
Georgia
Tenn
essee
NorthCarolina
Miss
issippi
California
Arizo
naNew
York
Illinois
New
Jersey
Hawaii
Louisia
naMassachusetts
Virginia
Maryland
New
Ham
pshire
Washington
Texas
Kentucky
Wisc
onsin
Kansas
UnitedStates
Maine
Districto
fColum
bia
SouthCarolina
Ohio
Delaware
New
Mexico
Florida
Alabam
aAlaska
Michigan
Mon
tana
SouthDa
kota
Utah
Oklahom
aCo
lorado
Nevada
Wyoming
Indiana
Rhod
eIsland
Minne
sota
Iowa
Arkansas
Neb
raska
Oregon
Miss
ouri
Penn
sylvania
Verm
ont
NorthDakota
Idaho
WestV
irginia
-47%-61%
MelissaSickmund,T.J.Sladky,WeiKang,andCharlesPuzzanchera."EasyAccesstotheCensusofJuvenilesinResidentialPlacement."OfficeofJuvenileJusticeandDelinquencyPrevention.AccessedMay3,2018, http://www.ojjdp.gov/ojstatbb/ezacjrp/
Texascasestudy:systemimprovementscontributedtoover60percentdeclineinjuvenileincarcerationrates.
CouncilofStateGovernmentsJusticeCenter|7
2011LEGISLATUREMergedformerTexasYouthCommissionandTexasJuvenileProbationCommissiontoformTexasJuvenileJusticeDepartment(TJJD)
2009LEGISLATURE$45millionforCommitmentReductionProgram,withincentivefundingforcountiesandcommunitysupervision
2007LEGISLATUREProhibitedcommitmenttostate-runsecurefacilitiesformisdemeanoroffenses;ageofstatejurisdictionreducedfrom21to19;$60millioninnewfundingforcounties
0
1,000
2,000
3,000
4,000
5,000
6,000
2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013
REFORMHIGHLIGHTSandAVERAGEDAILYPOPULATIONINSTATE-RUNSECUREJUVENILEFACILITIES
2013LEGISLATUREMandatedTJJDtocloseoneadditionalstate-runsecurefacility;$25milliondesignatedforcommunitymentalhealthservices
CSGJusticeCenterusedmorethan1.3millionrecordstoanalyzerecidivismratesforsimilargroupsofyouth
CouncilofStateGovernmentsJusticeCenter|8
JuvenileProbationandSecureConfinementData
•899,101records•452,751juveniles
•Dispositionsandsecurereleases
CriminalHistoryandPrisonAdmissionData
•408,312records•242,541juveniles
•Arrestsandincarcerations
TwoCloser-to-HomeStudyCohorts
•Pre-reformcohort:27,131juveniles
• Post-reformcohort:31,371juveniles
“Applestoapples”comparisonofyoutheligibleforincarceration:• Youthsupervisedinthecommunity• Youthreleasedfromstate-runsecurefacilities
Youthkeptclosertohomehavebetteroutcomes.
CouncilofStateGovernmentsJusticeCenter|9
One-YearProbabilityofRearrest
ReleasedfromState-RunSecureFacilities
41%
SupervisedintheCommunity
34%
FirstRecidivismOffenseaFelony
ReleasedfromState-RunSecureFacilities
49%
SupervisedintheCommunity
17%
3xmorelikelytocommitafelonywhenrecidivating
21%morelikelytoberearrested
Percapitafundingforcountyjuvenileprobationdepartmentsincreasedsignificantlyaftersystemimprovements.
CouncilofStateGovernmentsJusticeCenter|10
FY2005 FY2012 %Change
Percentageoflocaljuvenileprobationdepartmentexpenditures
contributedbycounty
Percapitaexpendituresforlocaljuvenileprobationdepartments $3,555 $7,023 98%
77% 71% -8%
Expendituresadjustedforinflationto2014dollars
$4,337 $7,304 68%
Rearrest ratesforyouthonprobationwerecomparableregardlessofinterventionanddidnotimproveafterchanges.
CouncilofStateGovernmentsJusticeCenter|11
PRE-REFORMSTUDYGROUPOne-YearProbabilityofRearrest
TreatmentProgram
StateIncarceration 41%
Skill-BasedProgram
SurveillanceProgram
SecureCountyPlacement
Non-SecureCountyPlacement
NoIntervention
29%
28%
31%
33%
35%
33%
POST-REFORMSTUDYGROUPOne-YearProbabilityofRearrest
41%
27%
30%
29%
34%
35%
32%
INTERVENTIONTYPE
Asignificantpercentageoflowriskyouthreceivedsupervisionandservices.
CouncilofStateGovernmentsJusticeCenter|12
4%77%
35%91%
%ofLow-RiskYouthonSupervisioninPrograms
Victoria
Tarrant 44%
Travis 71%
Low-RiskYouthonSupervisioninPrograms%HighNeed
11%
22%
Harris 80%Lubbock 43%
4%
19%
ElPaso
Cameron 40%Dallas 55%
20%
18%
Lowriskyouthinmostcountiesstayedlongerinprogramsthanhighriskyouth.
CouncilofStateGovernmentsJusticeCenter|13
133136
69125
LOWRISKYOUTH
Victoria
Tarrant 105
Travis 115
77
112
Harris 75Lubbock 118
104
167
ElPaso
Cameron 193Dallas 124
135
94
HIGH-RISKYOUTH
MEDIANLENGTHOFSTAYINDAYSINAPROGRAMBYRISKLEVEL
Youthwerenotsufficientlymatchedwithservicesthataddressedtheirneedsandwithresearch-basedservices.
CouncilofStateGovernmentsJusticeCenter|14
0%**
0%*
PERCENT OFTHESEYOUTHINSUBSTANCEABUSETREATMENT
ORINTERVENTIONPROGRAM
Victoria
Tarrant 2%*
Travis 27%
Harris 12%
Lubbock 32%
ElPaso
Cameron 25%
Dallas 23%
518
0
659
497
3,731
131
287
1,835
NUMBER OFYOUTHATREFERRALIDENTIFIEDAS
HAVINGASUBTANCEABUSENEEDFY2012
Texascasestudyhasimplicationsforallstates:
CouncilofStateGovernmentsJusticeCenter|15
• Statescanreducethenumberofincarceratedyouthwithoutcompromisingpublicsafety.
• Youthsupervisedclosertohomehavelowerrearrestratesthansimilaryouthreleasedfromstate-runsecurefacilities.
• Increasedresourcesarenotsufficienttoreducerecidivismandimproveoutcomesforyouthoncommunitysupervisionandleavingincarceration.Resourcesmustbeusedefficientlytomatchyouthwiththeappropriatelevelandtypeofresearch-basedsupervisionandservices.
01 Background
02 IOYouthinColorado03 SystemOverview
ColoradoleadershiprequestedtechnicalassistancefromtheCSGJusticeCenterthroughIOYouth.
CouncilofStateGovernmentsJusticeCenter|17
IOYouth assistsstatestoanswerthefollowingquestions:
CouncilofStateGovernmentsJusticeCenter|18
Howwelldoourresources,policies,andpracticesalignwithwhattheresearchsaysworkstoreducerecidivismandimproveotheryouth
outcomes?
Towhatextentare leadersfromthethreebranchesofstate
governmentworkingtogetherandinpartnershipwithlocalgovernmentstoimproveoutcomesforyouthunderjuvenilejusticesystem
supervision?
Whatrecidivismandotheroutcomedatadoesourstatetrackforyouthunderthesupervisionofthejuvenile
justicesystem?
IOYouth canbuilduponColorado’srecenteffortstostrengthenthejuvenilejusticesystem.
CouncilofStateGovernmentsJusticeCenter|19
• Passageof2017legislationaimedatimprovingconditionsofconfinementinDepartmentofYouthServicesfacilities
• ExpansionoftheCollaborativeManagementProgram,whichprovidesfundingprogramsforchildren,youth,andfamiliesinvolvedwithmultipleagenciesin45counties
• ReductionofColorado’sjuveniledetentionadmissionsbydecreasingbedavailabilityandcreatingalternativesthroughtheeffortsofSB94(detentionbedcapat382)
GovernorHickenloopersupportedtheformationofastatewidetaskforcetoidentifywaystostrengthenpublicsafetyandimproveoutcomesforyouth.
CouncilofStateGovernmentsJusticeCenter|20
SenatorBobGardner,CochairColoradoGeneralAssembly
Rep.PeteLee,CochairColoradoGeneralAssembly
ReggieBichaColoradoDepartmentofHumanServices
JusticeBrianBoatrightSupremeCourtofColorado
StacieNelsonCollingOfficeoftheAlternateDefenseCouncil
JeffCuneoColoradoJuvenileDefenderCenter
SheriDanzOfficeoftheChildRepresentative
JulieDeNicolaSteppingStonesAdvocacy
Hon.LeslieJ.Gerbracht3rd JudicialDistrictCourt
RebeccaGleason18th JudicialDistrict
ArnoldHanumanColoradoDistrictAttorney’sCouncil
WillHaysHilltopCommunityResources,JJDPC
EmilyHumphrey8th JudicialDistrict
AndersJacobsonDivisionofYouthServices
BillKilpatrickCityofGoldenPoliceDepartment
Elizabeth(Elise)LogemannColoradoBarAssociation
Rep.PaulLundeenColoradoGeneralAssembly
DanielMakelkyDouglasCountyDepartmentofHumanServices
Hon.AnnGailMeinster1st JudicialDistrictCourt
Lanie Meyers-MirelesProwersCountyDepartmentofHumanServices
Rep.DafnaMichaelson- JenetColoradoGeneralAssembly
JeniferMorgen17th JudicialDistrict
BarrieNewberger-KingOfficeoftheColoradoStatePublicDefender
MikeO’Rourke11th JudicialDistrict
ChrisRyanColoradoJudicialBranch
LindseySandovalOfficeoftheColoradoStatePublicDefender
Rebecca WallaceACLU ofColorado
MegWilliamsOfficeofAdultandJuvenileJusticeAssistance&JuvenileParoleBoard
AdamZarrinOfficeofGovernorJohnHickenlooper
IOYouth hasfourphasesdesignedtoidentifyandadvancepolicies,practices,andfundingtoimproveoutcomesforyouth.
CouncilofStateGovernmentsJusticeCenter|21
Analyzedataandreviewpolicyand
practice
Presentsystem-improvement
recommendationsAdoptnewpolicies Implementnew
policies
12monthprocess 6-12monthprocess
Assessmentfindingswillbebasedondetailedcase-leveldatafrommanysources.
CouncilofStateGovernmentsJusticeCenter|22
Data Source Status
Diversions Multiplesources Requested
Detentions ColoradoDepartmentofHumanServices,DivisionofYouthServices Received
CourtFilings ColoradoJudicialBranch,OfficeoftheCourtAdministrator Requested
SB94RecordsColoradoDepartmentofHumanServices,DivisionofYouthServices Requested
ProbationRecords ColoradoJudicialBranch,OfficeoftheCourtAdministrator Requested
Commitments ColoradoDepartmentofHumanServices,DivisionofYouthServices Received
Assessmentfindingswillalsoreflectfeedbackfromextensiveinterviewsandfocusgroupswithsystemstakeholders.
•Governor’sOffice• Statelegislators• Stateagencyleadershipandstaff• Probationchiefsandofficers•Districtattorneys/publicdefenders• Judges
FebruaryStatewideInitialVisit
•GrandMesaleadership,staff,youth,parents• Residentialandnonresidentialserviceproviders•Districtattorneys/publicdefenders•Probationchiefsandofficers• Judges• LawEnforcement
AprilGrandJunction
• Judges•Probationchiefsandofficers•Districtattorneys/publicdefenders•Residentialandnonresidentialserviceproviders• Facilityleadership,staff,youth,parents•CountyDepartmentsofHumanServices
MayDenver/ColoradoSprings
CouncilofStateGovernmentsJusticeCenter|23
Theassessmentprocessisguidedbythecoreprinciplesshownbyresearchtoimproveoutcomesforyouthinthejuvenilejusticesystem.
CouncilofStateGovernmentsJusticeCenter|24
Principle1
Basesupervision,service,andresource-allocationdecisionsontheresultsofvalidatedriskandneedsassessments.
Principle2
Adoptandeffectivelyimplementprograms
andservicesdemonstratedto
reducerecidivismandimproveotheryouthoutcomes,andusedatatoevaluatetheresultsanddirect
systemimprovements.
Principle3
Employacoordinatedapproachacrossservicesystemsto
addressyouth’sneeds.
Principle4
Tailorsystempolicies,programs,and
supervisiontoreflectthedistinct
developmentalneedsofadolescents.
Commonchallengestoimprovingyouthoutcomesinclude:
CouncilofStateGovernmentsJusticeCenter|25
Usingresourcesefficientlyacrosssystemstoprovidetherightyouthwiththerightservices basedonriskandneeds
Evaluatingsystemandprogrameffectivenessandyouthoutcomesinasystematicway
o
Matchingyouthtothemostappropriatelevelandlengthofsupervisionand employinggraduatedresponsestoyouth’sbehavior
Implementingresearch-based programsandpracticeswith fidelity
o
o
ThetaskforceoverseestheinitiativeandisresponsiblefordetermininghowbesttoimproveColorado’sjuvenilejusticesystem.
CouncilofStateGovernmentsJusticeCenter|26
Overseeinitiativeandscopeofwork
Providestrategicdirectiononpolicyoptiondevelopment
Reachconsensusonpolicyoptions
ProvidededicatedstafftoColorado
Analyzesystemdataandconductextensiveinterviews/focusgroups
Deliverfindings,presentrecommendations,andassistwithtranslationintopolicyadoption
CSGJUSTICECENTERRESPONSIBILITIESTASKFORCERESPONSIBILITIES
Identifyjuvenilejusticesystempriorities
Passpackageofreformsin2019sessionandidentifyothermechanismsforpolicychange
IOYouth canhaveasubstantialimpactonpublicsafety,theefficientuseofresources,andyouthoutcomeswhen:
CouncilofStateGovernmentsJusticeCenter|27
1. Initiativeisstate- ratherthanCSGJusticeCenter- led
2. Transformationratherthanincrementalimprovementistheprimaryobjective
3. Communicationwithinandbetweentaskforcemembers,otherstakeholders,andtheCSGJusticeCenterisopen,active,andcollaborativearoundkeythemes,bestpractices,andpotentialconcerns
4. Dataissharedinatimelyfashionandatrustedsourceforunderstandingsystemfunctioningandperformance
ThroughIOYouth,Nevadaadoptedlegislationandappropriationchangestotransformitsjuvenilejusticesystem:
CouncilofStateGovernmentsJusticeCenter|28
Ø Requiresadoptionofstatewidevalidatedriskassessmenttoolandmentalhealthscreeningtools.
Ø Requiresthatallstatefundingisusedforevidence-basedpracticesandestablishesanevidence-basedresourcecentertoprovidetechnicalassistance.
Ø Establishesperformancemeasuresandreportingrequirementsandstrengthensstate/localagencydatacapacity.
Ø AlignscorrectionspoliciesandpracticeswithRiskNeedResponsivityprinciplesandrequiresannualfacilityassessments.
ThroughassistancefromtheCSGJusticeCenterandPewCharitableTrusts,Utahoverhauleditsjuvenilejusticesystem:
Expandeffectivepre-courtinterventions,focuspre-adjudicationdetentiononhigher-riskyouth,anddeveloplocaldetentionalternatives
statewide.
Prioritizespaceinstatefacilitiesandcommunitysupervisionforthosewhoposethehighestriskwhilereinvestinginevidence-basedprogramstohold
youthaccountableandreducerecidivism.
Supportperformance-basedcontractingforprogramsdeliveredtojuveniles,increasetrainingforstaff,andimprovesystemaccountability.
CouncilofStateGovernmentsJusticeCenter|29
ProgramClosures/Reductions Amount
WorkCamps $2.8million
ResidentialO&A’s $6.0million
CommunityPlacements $3.4million
TOTAL $12.2million
01 Background
02 IOYouthinColorado
03 SystemOverview
Colorado’sjuvenilejusticesystemiscomplex,withmultipleentitiesresponsiblefordifferentpointsofthecontinuum.
CouncilofStateGovernmentsJusticeCenter|31
Diversion
64DAOffices
County,school,LE,andgrantfunded
SB94
22JudicialDistricts
StatefundedthroughDYS
Detention
22JudicialDistricts
9DYSfacilities
StatefundedthroughDYS
Probation
23Probationdepartments
StatefundedthroughCJD/offenderfees,HB1451
Placement
23Probationdepartments
Communitycontractproviders
StatefundedthroughDHS
Commitment
DYSandJudicialDistricts
8DYSfacilitiesandcontractproviders
StatefundedthroughDYS
Coloradospendsover$130millionannuallyonthejuvenilejusticesystem.
CouncilofStateGovernmentsJusticeCenter|32
Agency FundingSource Amount
DYS AgencyAppropriationincluding$10millionforSB94
$125million
DYS Marijuana TaxRevenue
$2million
DAs(Diversion)* StateGeneralFund $1.2million
DAs(Diversion) MarijuanaTaxRevenue
$400,000
Judicial(Probation) AgencyAppropriation $7million
JuvenileJusticeBudgetFY2017-2018
*Doesnotincludelocalfundingfordiversion
Recidivismisreportedannuallythoughdifferencesexistinhowratesarecalculated.
DYSRecidivismRatesProbationRecidivismRates
RecidivismRateforDischargesFY2014andFY2016
Newadjudicationorconvictionforamisdemeanororfelonyoffenseafter
discharge.
Post-Release:Afilingforafelonyormisdemeanoroffensewithinoneyearoftermination.
Pre-Release:Adjudicationorconvictionforafelonyormisdemeanoroffenseor
atechnicalviolationwhileonsupervision.
8%
21% 71% FY2016
NewCrime Violation Successful
Pre-releaserecidivism
29%
RateforFY2016Terminations15%
28.1% 31.5%
FY2014 FY2016
1YearRate 3YearRate
55.2%
CouncilofStateGovernmentsJusticeCenter|33
BetweenFY2012-2016,juvenilearrestsdeclinedby18percentwhilejuveniledelinquencypetitionsdecreasedby9percent.
CouncilofStateGovernmentsJusticeCenter|34
0
5,000
10,000
15,000
20,000
25,000
30,000
35,000
7,800
8,000
8,200
8,400
8,600
8,800
9,000
9,200
FY2012 FY2013 FY2014 FY2015 FY2016
JuvenileDelinquencyPetitions JuvenileArrests
BetweenFY2012-2016,DYSdetentionadmissionsandnewcommitmentsalsodecreased.
CouncilofStateGovernmentsJusticeCenter|35
488 474
410387 381
FY2012 FY2013 FY2014 FY2015 FY2016
DYSNewCommits
-22%
7,3246,783
7,0246,510
5,980
FY2012 FY2013 FY2014 FY2015 FY2016
DetentionAdmits
-18%
JuvenileDetentionAdmissionsFY2012– FY2016
NewCommitmentstoDYSFY2012– FY2016
AveragedailypopulationinbothdetentionandDYScustodyalsodecreasedoverthesametimeperiod.
150
170
190
210
230
250
270
290
310
330
FY2012 FY2013 FY2014 FY2015 FY2016
DetentionADP
CouncilofStateGovernmentsJusticeCenter|36
400
500
600
700
800
900
FY2012 FY2013 FY2014 FY2015
CommitmentADP
-16% -19%
DetentionAverageDailyPopulationFY2012– FY2016
CommitmentAverageDailyPopulationFY2012– FY2016
CouncilofStateGovernmentsJusticeCenter|37
Juvenileprobationstartsandactiveclientshavedeclined;themajorityofyouthareonprobationforamisdemeanoroffense.
JuvenileProbationNewClientsAndActiveClients,*FY2012-FY2016
1500
2000
2500
3000
3500
4000
4500
5000
5500
FY2012 FY2013 FY2014 FY2015 FY2016
NewProbations ActiveClients
22%Decline
6% 9%
57% 59%
28% 31%
FY2012 FY2016
Petty Misdemeanor Felony
*ActiveClientsasof6/30
27%Decline
JuvenileProbationNewClientOffenseType,*FY2012andFY2016
*9%ofoffensesinFY2012wereclassifiedas“unknown”
Severalissueareashaveemergedfrominitialconversations,whichwillbeexploredinmoredepththroughtheassessment.
SystemComplexityandCoordination
DiversionCriteriaandProcess
UseofRiskandNeedsScreeningandAssessment
Tools
ServiceUse,Matching,andAvailability
TrackingSystemPerformanceandYouth
Outcomes
CouncilofStateGovernmentsJusticeCenter|38
Questionsfordiscussion
CouncilofStateGovernmentsJusticeCenter|39
Whatareyourprioritiesforthisinitiative?
Whatarepotentialbarriers/challengestosuccess?
Arethereotherpeople/organizationsthatweshouldtalkaspartofthisprocess?
IOYouth timelineandnextsteps
CouncilofStateGovernmentsJusticeCenter|40
May June July Sep Oct Nov Dec
TaskForce Meeting#1
ProjectLaunchTaskForceMeeting#2
2019SessionApril
InitialDataAnalysis
DetailedDataAnalysis FinalDataAnalysis ImpactAnalysis
StakeholderEngagement PolicyOptionDevelopment
BillDrafting
Policymakers,MediaandStakeholderEngagement
PolicyRolloutandBill
Introduction
TaskForceMeeting#3
TaskForceMeeting#4