HomeMy WebLinkAboutMINUTES - 01221991 - FC.2 TO: BOARD OF SUPERVISORS
s ` _ Contra
FROM: Finance Committee =_r
o, `s Costa
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DATE: January 22, 1991 �°srA-ci�U��:�,T County
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SUBJECT: JUVENILE{; CORRECTIONS MASTER PLAN UPDATE
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SPECIFIC REOUEST(S)OR RECOMMENDATIONS)&BACKGROUND AND JUSTIFICATION
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RECOMMENDATIONS:
1. Direct ;the County Administrator to coordinate efforts
between the Juvenile Correctional Facilities Task Force and
the Expanded Youth Services Board in the development of
long-term mission statement and goals for Juvenile
CorrectiGons.
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2. Accept the report from the Probation Department on the
resultsJ� of the Boys' Center closure to the County
Administrator.
3. Refer to the County Administrator the request from the
County ; Probation Officer for additional staffing for
Juvenile Hall.
BACKGROUND:
On January 7j!, the Finance Committee met to consider two Board
referrals onC Juvenile Corrections. The Board heard testimony
from Judge Minney, Jerry Buck, Joanne Aiello, and Mario Menesini
from the the Juvenile Justice Commission. The Committee
developed the following findings from the persons testifying:
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CONTINUED ON ATTACHMENT: DYES SIGNATURE:
RECOMMENDATION OF CO ISTRATOR RECOMMENDATION OF BOARD COMMITTEE
APPROVE _
SIGNATUREM:: {ischrode Tom Torlakson
ACTION OF BOARD ON January , 991 APPROVED AS RECOMMENDED X OTHER
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VOTE OF SUPERVISORS
I HEREBY CERTIFY THAT THIS IS A TRUE
X UNANIMOUS(ABSENT ) AND CORRECT COPY OF AN ACTION TAKEN
AYES: NOES: AND ENTERED ON THE MINUTES OF THE BOARD
ABSENT: ABSTAIN:
OF SUPERVISORS ON THE DATE SHOWN.
cc: Judge John C. Minney ATTESTED
CAO _ PH BATCHELOR, ERIC OF THE BOARD OF
Expanded Youth Services,` Board (via: CAO) SUPERVISORS AND COUNTY ADMINISTRATOR
Probation
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M382 (10/88) BY- DEPUTY
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1 The Correctional Plan should be expanded from its original
facilities orientation to include the programmatic side as
well;
2. Currently the Expanded Youth Services Bureau is working with
George Miller' s office to identify model service delivery
systems throughout the County; and
3 . The County Administrator should examine the matter of
JuvenilO Hall overcrowding.
In addition, ' participants offered the following suggestions or
comments on the subject.
1. Juvenile' Justice programs cannot take further budget
reductions, and the Probation Department " is currently
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adjusting to the elimination of the Girls' Center.
2. The Courts will be asked to review the option of commitments
to the Youth Authority.
3. The County should consider home placements for youths at
Byron Boys ' Ranch.
4. The Correctional Plan should consider linkages to schools,
to alcohol and drug programs, to social services and
programs for minority youth.
5. The County should consider reducing Adult Probation staff
and shifting resources to Juvenile Probation.
6. Juvenile Hall is overcrowded and has exceeded maximum
population at. various times in the last two months.
Based on these findings, the Committee felt that the Juvenile
Correctional Facilities Task Force and the Expanded Youth
Services Bureau should coordinate efforts to address the
programmatic elements of the Juvenile Corrections Master Plan.
The growing ,Juvenile Hall overcrowding problem was referred to
the Administrator' s Office for review.
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OFFICE OF THE COUNTY ADMINISTRATOR
CON T' QA COSTA COU N TY }
Administration BuildingXa_
651 Pine Street, 8th Floor
Martinez, California '-
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DATE: December 21, 1990
TO: Finance Committee
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FROM: Phil; Batchelgr ounty Administrator
By Julie Ene anagement Analyst
SUBJECT:. RESULTS OF B Y ENTER CLOSURE
The Board of Supervisors recently directed that a report be made to the Finance
Commitee reviewing the results and effects of the closure of the Boys Treatment
Center. Transmitted herewith is a report from the County Probation Officer
including an explanation of the effects of the closure which occurred November
1, 1989, and a O ist of current treatment programs and services available to
minors committed; at the Boys' Ranch.
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Probation Department Contra Gerald S. Buck
County Probation Officer
Administrative Offices Costa
10th Floor County
Administration Building
651 Pine Street
Martinez, California 94553-1289 ���•s.:.,c
(415) 646-2700 r1. tir
To: y ,4° Date: 12/4/9 0
Julie M. Enea,, �s• ���
Management Analyst ce-U
Finance Committee
From: Gerald S. Buck, Subject: Referral - Results
County Probatilon Officer of Boys ' Center
!� Closure
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One of the most significant results of closing Boys ' Center is the
loss of a dispositional option by Deputy Probation Officers and the
Juvenile Court. No longer are they able to sentence minors to a
local, securel; facility. Although the California Youth Authority
is an option, commitments have not increased during this past year.
These minors are now being committed to Byron Boys' Ranch or to
private placements.
Those minors sentenced to Boys ' Center were highly delinquent and
usually committed the most serious criminal offenses, i.e. , armed
robbery, assault and battery, felony drug sales, and homicide-
related offenses. Additionally, they often exhibited the highest
level of hostAe, acting out behavior, and in need of mental health
intervention. 0
The following '' are the observations by facility managers relative
to the three areas of inquiry as outlined in your memorandum dated
November 14, 1990:
1 . WHERE THE BOYS ARE BEING PLACED?
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JUVENILEIHALL: The population of boys previously committed
to the Boys ' Center Program were some of the most difficult
youngsters to place successfully. This population has been
problematic in that they are failing placements and the Boys '
Ranch and, consequently, spending more time detained at
Juvenile ! Hall awaiting disposition. During the month of
Novembers 1990, an average of 33 male residents ordered placed
were detained in Juvenile Hall pending delivery to an appro-
priate private placement.
BYRON BOYS ' RANCH: Previous to the closure of Boys ' Center,
highly delinquent minors and those needing mental health
intervention, would begin their county institution commitment
in Boys ' jCenter for the purpose of stabilizing their behavior
before delivery to Byron Boys' Ranch. This procedure allowed
the minor the opportunity to become invested in the program
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Memo to Julie Enea -2- 12/4/90
by earning 6-8 weeks of "good time" towards their date of
graduation, thereby, lessening the chance of their running
away.
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Currently'I, highly delinquent and problematic minors are
committed;; with no opportunity to stabilize their behavior,
resultingl; in a more delinquent and difficult population to
manage. Recent runaways, when interviewed upon their return,
acknowledged they had nothing to lose by running away from the
Ranch or ;by failing to return from a home visit.
2. WHAT SUPPORT SERVICES ARE THEY RECEIVING?
JUVENILE HALL: This population is not receiving any addition-
al support services at Juvenile Hall. These youngsters are,
for the most part, programmed for in the regular Juvenile Hall
population. As the Boys ' Center Program effectively dealt
with a very needy and emotionally disturbed clientele, the
housing of this population at Juvenile Hall has put an
additional burden on our already thin mental health and
support resources.
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BYRON BOYS ' RANCH: See attached description of the treatment
programs land services provided for residents committed to the
Ranch.
3. WHAT IMPACT HAS THE CLOSURE HAD ON THE JUVENILE HALL POPULA-
TION?
JUVENILE HALL: As the closure of BoysCenter represented the
loss of 20 residential beds (as well as the therapeutic loss) ,
the Juvenile Hall has experienced additional population =`
problems: Our County continues to not commit many youngsters
to the California Youth Authority, but makes every effort to
deal with them on the local level. Obviously, given this
circumstance, the loss of 20 residential beds contributes to
our population overcrowding and the quality of life issues
that detained minors and Probation staff must endure.
Although ten (10 ) beds have been added to Byron Boys ' Ranch,
the average waiting list for minors pending delivery is 12-
15.
Bill Thomas, Probation Director/Institutions, or I , will be present
to answer anyjquestions of the Committee members. Please contact
me if additional information is required.
GSB:sa
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Pr6batibn Department Contra Gerald S.Suck
County Probation Officer
Administrative Offices Costa
10th Floor Contra Costa Cour,,
Administration Building County RECEIVED
651 Pine Street
Martinez,California 94553-1289 JAN 2 1991
(415)646-2700
Office Of
COL'ntY AdMinl6trator
To: Board of Supervisors @ Date: 12/26/90
From: Gerald S. Buck, Subject: Juvenile Hall
County Probation: Officer
It has been projected the average Juvenile Hall census will
increase 61% from 1989 to 1995. Based on this projection there
will be need for a 196 bed capacity in 1995. The facility has a
maximum capacity of 181 beds, but only 140 beds are used due to
limits of authorized and budgeted staff. The closure of the
Boys' Treatment Center in 1989 and the Girls' Treatment Center in
1990 have accelerated the projected needs for Juvenile detention
.capacity and the facility has been dangerously overcrowded the
past 90 days despite adding Boys' Ranch beds, maximizing release
to alternative programs and emergency release procedures .
It is clear that the Boys ' Treatment Center living unit and,
perhaps, the Girls' Treatment Center living unit will soon have
•
to -be As 'Juvenile -.Hall-_4ete-nti*0n: :uniti-6.. * -The- lack of
authorized staff positions prevents full 'use, '06*f th6 JuVen' ile' Hdll
facility. Thiscondition begs your highest priority.
1i
Capacity Exceeded
In the past three months the census has exceeded the rate
capacity of 1401on a daily basis by as many as 28 residents (128%
of capacity) . On 13 days there were more than 154 youth in
Juvenile Hall. , One hundred fifty-four has been set as a maximum
safe populationflby Fire and Public Health officials. At noon on
December 17, 1990 there were 174 youth in Juvenile Hall. This
overcrowded condition 4ition invites a crisis of violence, tension,
unhealthy living conditions and life endangering environment.
Emergency release conditions were imposed December 18, 1990 and
will continue until the population drops to marginally safe
levels.
J
Average Daily Populations
A comparison of the average daily census for the past six months
with previous years validates projected needs and the predicted
impacts of closing the Boys' Treatment Center and Girls'
Treatment Center:
Board of Supervisors -2- 12/26/90
Average Monthly Population July-December
July Aug Sep Oct Nov Dec
1990 133 131 132 145 147 145
1989 134 117 105 114 109 115
1988 '119 119 113 124 134 124
A more detailed analysis of July-December, 1990 compared to July-
December, 1989 reveals the following from Table I:
• An average population increase of 23, (+20%)
• Boys in custody increased by 21, (+22%)
• Girls in custody increased by 1, (+5%)
• Since closure of Boys' Center the boys population has
risen by 28 (+32%) .
• Since closure of Girls' Center the girls population has
risen by, 7 (+38%) .
Post adjudicated cases continue to account for nearly half of the
confined population:
Youth ordered placed in -group -homes and detained in
'Ji Menile, Ha .increased averag6 of*.g'.in the
past year.
Youth in� Juvenile Hall awaiting openings at Byron Boys '
Ranch have decreased by an average of 7 in the past year.
Admissions and Length of Stay
The Juvenile Hall population is the product of admissions and
length of stay.;; In the past three years admissions per month
have increased 'by 52 (+20%) , but the average length of stay has
been reduced by 3. 2 days (-19%) which has helped control the
population.
Admissions include both new referrals and re-admission of youth
already under our jurisdiction. Data are not readily available
to differentiate admissions, but it is known that re-admission
accounts for a !high percentage of the total and staff note many
youth returning to Juvenile Hall due to failuretoadjust at home
or in placement.
Board of Supervisors -3- 12/26/90
Alternatives to Juvenile Hall Detention
Several alternatives to Juvenile Hall detention are already being
utilized and without them the population would have reached
crisis levels much sooner. The following have been in place the
past year:
I. Home Supervision
At any given time approximately 35 youth normally
detained are in their own homes under intensive
supervision. Those not released on Home Supervision
are too unstable to be released or have no suitable
home in which to reside.
2. Preplacement Group Homes
Wards ordered placed are removed from Juvenile Hall
pending placement in these two 6-bed group homes
operated by Youth Homes, Inc. and funded by AFDC-FC.
These 12 beds offer direct relief from Juvenile Hall
detention for boys and girls ordered placed.
3. Placement Diversion
Youth deem'6d to need long term out-of-home placement
typically heed to ,be. held in -Juvenile -Hall up. to 30
days-Ipdndinq placement.-` 1` X -"Probation aiv** orsion cag* eload.: '
of from 20 to 35 wards provides an' alt;�rnat alternative to' 'such
detention.,, In addition, delinquents ordered placed
have been returned home upon referral to the effective
Family Preservation Program in East County.
1
4. Reducing Length of Stay in Juvenile Hall
As noted earlier, the average length of stay in
Juvenile Hall has been reduced by 3.2 days over the
last three' years . The addition of 10 beds to Byron
Boys' Ranch has reduced the number of boys waiting at
Juvenile Hall for Ranch openings from 20 in 1989 to 13 in
1990, a gain of seven beds on average.
In all, these alternatives have saved need for at least 85 beds
on average. Had these alternatives not been in place, the
population in December of 1990 would have been 230 or 164% of the
Juvenile Hall rated capacity.
Board of Supervisors -4- 12/26/90
Measures Needed to Safely Meet Juvenile Detention Requirements
Consistent populations above the facility's rated capacity and
peak days well above the limits of fire and health safety demand
that immediate measures be taken to alleviate crowding beyond
alternative programs already in place. Unsafe conditions for
residents and staff simply cannot be tolerated.
The California Youth Authority sets the rated capacity of
Juvenile Halls and our Fire and Health officials have deemed that
+10% above ratedcapacity is unsafe. We have requested that the
CYA increase our rated capacity to 161, adding those beds
available to us in the facility formerly used as the Boys'
Treatment Center',. (See attached. ) The CYA has indicated they
would certify +2''1 beds but only when the County provided staffing
needed to utilize this living unit in accordance with staffing
standards. Staff positions to accomplish this are not currently
authorized. EleVen positions are needed at an annualized cost of
approximately $533,000.
In order to provide additional relief of projected population
increases, the probation Department will issue a request for
proposals
ls for aPreplacement Residential Program funded by AFDC-
FC which will be designed to address the needs of those placement
wards who remain detained in Juvenile Hall. It is planned that a
provider of these services be selected by March of 1991 .
of Expansionerva ti on s rvf--des-'thr6u4hoU'-E -t-fie -lcount�-
using AB 2939 funding should provide further relief in 1991 .
Since it is not likely Juvenile Hall will be rebuilt or replaced
in the next five years, ,it is absolutely essential that the
existing plant be fully used when needed. The Juvenile -Hall has
a capacity of 181 beds and it would appear all will be needed
before 1995, even with full use and development of alternatives .
The County Probation Officer, the Juvenile Court Judge and the
Board of Supervisors must not fail to act when the lives and well
being of youth under our care are endangered due to crowded
conditions.
Recommendation
It is recommended that the status of Juvenile Hall detention bed
needs be immediately referred to the Board of Supervisors Finance
Committee and that the Board authorize positions needed to
increase the Juvenile Hall capacity by 21 beds as soon as
possible.
Board of Supervisors -5- 12/26/90
Our responsibility is significantly greater for youth in
detention than it is for adults in jails and the time to face
this responsibility is upon us. It is, indeed, the worst
possible time t6' bring this to your attention. We are fully
aware of the broader implications of a fiscal crisis faced by the
County and the State. However, to fail to act on this matter
will not be excused by other County problems ' or fiscal
constraints if life endangering conditions are not corrected and
they lead to a crisis .
GSB:ds
Attachments
cc: Judge John ,!C. Kinney
Phil Batchelor, CAO
Juvenile Justice Commission
J#5-JH.WP
TABLE 1
JUVENILE HALL POPULATION
July - December, 1990
Days Days Place- Co.
Month Ave. Bays Girls High Low +140 +154 ment Inst
July 133.1 113 20 148 - 120 4 0 44 15
Aug 130.4 116 14 147 - 114 1 0 39 18
Sep 132. 1 1.14 18 153 - 111 8 0 42 11
Oct 144 . 6 121 24 156 - 130 20 4 47 10
Nov 146.9 1;20 27 164 - 121 24 6 47 10
Dec 144 .9 1!20 25 168 - 98* 27 3 45 11
{
Ave. 138.7 1'17 21 168 - 98 T=84 T=13 44 13
*Population reduced Dec. 24, 25, 26 due to Christmas Temporary
Releases
July - December, 1989
Days Days Place- Co.
Month Ave. Boys Girls High Low +140 +154 ment Inst
July 134.3 1.14 21 153 - 114 8 0. 38 23
Aug. 1.17'.4... 96. 21 13.4 -- 103. • 0. . . . 0 36 19
Sop 104 .7 ! 84• 20•' 116 - 92. 0 `0 38 13 "
Oct 113.6 '! 97 17 122 - 93 0 0 26 16
Nov 108,6 89 19 122 - 93 0 0 32 25
Dec 114 .9 j194 21 129 - 81* 0 0 37 23
Ave. 115.6 ;� 96 20 153 - 81 T= 8 0 35 20
r
*Populationlreduced Dec. 24, 25, 26 due to Christmas Temporary
Releases
0
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TABLE 2
JUVENILE HALL ADMISSIONS/AVERAGE LENGTH OF STAY
1988 - 1990
1990 1989 1988
Month Adm Days In Adm Days In Adm Days In
Jan 342 13. 2 272 21. 1 300 14 . 2
Feb 292 13. 2 216 16 .8 242 16 .7
Mar 329 13.2 348 13.7 287 17 . 5
Apr 316 12.5 285 16 .8 238 21 .0
May 325 13.8 266 15.8 258 19 .2
Jun 311 12.9 265 14 .2 244 19 .0
Jul 292 16.4 255 19 .9 254 17 . 8
Aug 299 14 .1 286 17 .8 278 18.6
Sep 2;80 15. 3 230 14 . 9 243 14 .7
Oct 332 13.8 300 13. 1 278 13.0
Nov 305 16 .3 252 13.8 239 18 . 9
Dec 280 14 . 1 243 16. 9
Monthly Ave. 3111 14 . 1 271 16 . 0 259 17 . 3
�I
i
STATE OF CALIFORNIA-YOUTH AND ADULT!!CORRECTIONAL AGENCY GEORGE DEUKMEJIAN, C--
DEPARTMENT OF YOUTH AUTHORITY
1234 E. 14th Street, Suite 24111
San Leandro, CA 94577
(415) 464-1236
�W. � �
CC)t 1 C
U
December 28, 1990 .►
Gerald S. Buck
Chief Probation Officer
Contra Costa County Probation Dept.
10th Floor Administration Building
651 Pine Street
Martinez, CA 94553-1289
Dear Mr. Buck:
Subject: Increase of Juvenile Hall Capacity
This letter is in response to your inquiry of November 5, 1990, requesting our review
of the feasibility of increasing the capacity of the Contra Costa County Juvenile Hall
by reopening a unit, previously designated as Boys Treatment Center. We have
now completed on-she.visits, discussed this issue with probation and juvenile hall
administrators, and have assessed the unit's physical structure. *We have concluded
that this unit has the potential to house up to twenty-one (21) additional minors.
Before making a final;determination on the feasibility of activating this unit, the
following additional information is needed:
!f
• Program statement which describes primary population, classification
plan andunit activities.
• Description of how this unit will be integrated into juvenile hall
operations, including areas of feeding, education and recreation.
• Plan fog staff training.
11
• Budgefand shift schedule which demonstrates that the staff-minor ratio
is 1-101i
For further expansion/explanation of these items please refer to California
Administrative Code! Title 15, Division 43, Chapter 2, Subchapter 3, Section 4272
through 4310.
II
Gerald S. Buck -2-
If you wish to proceed further with this action, please advise by letter, specifying your
desired capacity change, and accompanied by support documents.
If you have any questions or need further information, please call Loyd Wolfe, the
Consultant assigned to this facility, at (415) 464-1236.
Sincerely,
j
Marvin . Bibb ional Administrator
Preventi. m nity Corrections Branch
Region I
MDB:brd
i.
STATE OF CALIFORNIA—YOUTH AND ADULT,CORRECTIONAL AGENCY GEORGE DEUKMEJIAN, Go«e~r
DEPARTMENT OF YOUTH AUTHORITY
1234 E. 14th Street, Suite 201 F
San Leandro, CA 94577
(415) 464-1236
December 28, 1990
Gerald S. Buck
Chief Probation Officer
Contra Costa County' Probation Dept
10th Floor, Administration Building �`` : r`•�. vrr-,
ter_
651 Pine Street
Martinez, CA 94553-1289
Dear Mr. Buck:
Subject: Response to Fifth Progress Report
We are in receipt of your Fifth Corrective Action Plan Progress Report dated
November 5, 1990, addressing overcrowding in the Contra Costa County Juvenile
Hall. We note your active efforts to reduce the negative effects of overcrowding and
your plans for handling present and future problems.
We recognize the difficulty of balancing the pressures of overcrowding within tight .
budget restraints. The closure of Girls' Treatment Center was a loss, but appears
somewhat balanced by the opening of Monticello on a full-time basis. No doubt
juvenile hall pressures were relieved by having more young people on intensive
supervision or in group homes while waiting placement.
We strongly supportyour plan to add the space which was Boys' Treatment Center
as an additional unit-to the juvenile hall. The current practice of sleeping up to 21
residents is temporarily acceptable. It further identifies the need to add these beds to
the overall juvenile hall capacity. We have completed a preliminary examination of
this unit; our findings are contained in a separate letter addressing the issues of
increasing the juvenile hall capacity.
Based on .he-success of these activities, we look forward to closure of the curre^t
Corrective Action Plan. If we can be of further assistance, please contact myself or
Loyd Wolfe, the Consultant assigned to this facility.
SincereI ,
Marvin D. K� cnal Administrator
Preventio & ityCorrections Branch
Regi
MDB:brd