HomeMy WebLinkAboutMINUTES - 02262008 - D.5 TO: BOARD OF SUPERVISORS � ti..sE L-'°� Contra`
FROM: John Cullen, County Administrator s Costa
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DATE: February 26 2008 County
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SUBJECT: "Zero Tolerance for Domestic Violence" Initiative— Progress Report
SPECIFIC REQUEST(S)OR RECOMMENDATION(S)&BACKGROUND AND JUSTIFICATION
RECOMMENDATION(S):
1. ACCEPT the 2006-2007 report on the County's progress in reducing harm to victims of domestic
and family violence and their children through alignment of intervention, remediation and prevention
systems and supports.
2. APPROVE the recommended strategic directions contained in the progress report including
continuing to leverage and augment additional public and private funding, implement system review
strategies, strengthen evaluation, strengthen the functioning of the partnership, and develop
countywide materials for the public and professionals.
3. ACKNOWLEDGE partner Departments, Superior Court and community service provider agencies'
dedication and commitment to reducing domestic and family violence and elder abuse.
4. DIRECT the County Administrator to report back to the Board of Supervisors by February 2009.
FISCAL IMPACT: None.
BACKGROUND:
Annually, the Board of,Supervisors requests a progress report on the status of the Zero Tolerance for
Domestic Violence Initiative. Attached is an annual report covering the period July 2006 through
December 2007.
CONTINUED ON ATTACHMENT: ❑YES ONO SIGNATURE:
--------------------------------------------------------------------------------------------------------------------------------------------------------------------
ECOMMENDATION OF COUNTY ADMINISTRATOR RECOMMENDATION OF BOARD COMMITTEE
APPROVE OTHER
SIGNATURE(S): r
--------------------- ---- - --- ------ - - - - --------------------------------------------------------------------------------------------------------------ACTION OF
BOARD ON APPROVE AS RECOMMENDED X OTHER
VOTE OF SUPERVISORS I HEREBY CERTIFY THAT THIS IS A TRUE
J�' AND CORRECT COPY OF AN ACTION TAKEN
-UNANIMOUS(ABSENT NON N 1 AND ENTERED ON THE MINUTES OF THE
BOARD OF SUPERVISORS ON THE DATE
AYES: NOES: SHOWN.
,ABSENT: ABSTAIN:
ATTESTED:
CONTACT: JOHN CULLEN,CLERKCW THE BOAD OF
SUPERVISORS AND COUNTY ADMINISTRATOR
CC: CAO—Devorah Levine
Presiding Judge,Superior Court;Sheriff;District Attorney;
Public Defender;Chief Probation Officer;Health Services Director;
Employment and Human Services Director,
STAND!Against Domestic Violence—Exec.Director;
,Bay Area Legal Aid—Exec.Director;
Community Violence Solutions—Exec.Director c
BY 0-4EPUTY
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j` TOLERANCE
or domestic violence!
An Initiative of the Contra Costa County
Board of Supervisors
SEAL
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Progress Report; July 2006—December 2007
f' Compiled by:
Contra Costa County Office of the County Administrator
651 Pine St., 11"Fl., Martine CA 94553
TABLE OF CONTENTS
ExecutiveSummary...........................................................................1
Historyand Background....................................................................2
Results ..............................................................................................3
Financing...........................................................................................6
Challengesand Opportunities...........................................................7
StrategicDirections...........................................................................8
Appendix ...........................................................................................9
• Financing Chart
• Summary of Current Areas of Activity and Investment
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"The abuse that I had witnessed and received greatly affected my
TOURMCE life....1 began doing drugs, committing crimes....and continually had
c_ 1 psychiatric breakdowns. At the time I did not realize that a lot of this
Zero Tolerance is an` was the effect of the abuse. With hard work I got over it and now
»'initiative of the Board,, think of myself as a survivor. I would like people to realize that
,-of Supervisors.._ domestic abuse and child abuse is not a joke and must be stopped."
;Partners andAllies Danielle,Age 18
include: ;
@ay Area Leaai Aid
cotions yviolence
ra
otions The Board of Supervisor's "Zero Tolerance for Domestic Violence" Initiative
Contra costa coy: �a (Zero Tolerance)brings together a multi-jurisdictional partnership, focused on
} reducing domestic violence, family violence and elder abuse.
� Adult Protective;; z'
Services
Children and.Family .'' After six years of Zero Tolerance for Domestic Violence implementation,
Services Contra Costa County has demonstrated its success by building capacity within
Children's Mental the response system and improving the lives of families. Results to date
Health include:
Department of Child, • Increasing offender accountability;
Support Services'
za Family Maternal and
• Increasing(provider) capacity through training; and
Child Health " • Increasing funding for a coordinated system and individual
Office of the District g agencies.
Attorney :
orr,ce of the P�ti;c In the coming year Zero Tolerance will continue to build on the bold vision
af
Office Defender.
r established by the Board and work to implement system review strategies,
' orae tne.snerirt strengthen the functioning of the partnership, secure additional resources, and
Coroner
Probation Department
develop countywide materials for the public and professionals.
superior Court of
California This sixth annual report consists of a brief history of Zero Tolerance, results,
Workforce services financing, challenges and opportunities, and strategic directions. The
First s contra costs„ `4 J' Appendix includes a financing chart, and activities and projects description.
Children and'Families "
Commission
STAND!Againsf,,.
'Domestie.Violence :
TOLERANCE
domgtic violence!
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HISTORY AND BACKGROUND
In 1999, government, community service providers and law enforcement efforts to address domestic
violence, while individually valuable, were fragmented. Indeed, the complexity of domestic violence
and the diversity of approaches, policies and systems had led to single interventions which were
appropriate within each discipline, but had limited overall success in stopping domestic violence.
In February 2000, the Contra Costa County Board of Supervisors made a bold and laudable
declaration of"zero tolerance for domestic violence."' Subsequently in 2001, it launched the Zero
Tolerance for Domestic Violence Initiative (Zero Tolerance), a multi-agency system improvement
effort, providing funding and establishing accountability criteria for a variety of supports and services
designed to reduce domestic and family violence and elder abuse by breaking the generational,
traumatic and progressive cycle of violence. At the same time the Board sought legislative
authorization for oversight of systems change efforts.
SB 425 (Torlakson), the Zero Tolerance for Domestic Violence Act, authorized a five year pilot
program in Contra Costa County. Since then, the County's response to domestic violence has
undergone significant and wide-reaching improvements. Victim services are integrated across
multiple disciplines. Public/private partnerships have resulted in new, successful strategies for
addressing this widespread problem.
In 2006 the County reported to the California State Legislature on the results of its pilot program. The
Legislature response was permanent authorization of the Zero Tolerance for Domestic Violence Act
1
under SB 968 (Torlakson).
Zero Tolerance emphasizes system improvement activities centered on addressing domestic/family
violence and elder abuse early in order to reduce the need for expensive crisis services (savings in law
enforcement costs, court time, out-of-home placements). (See Appendix- Summary of Activities)
Zero Tolerance focuses on increasing safety for those who are abused, access to services for people
experiencing abuse and organizational capacity to reduce domestic/family violence and elder abuse.
Goals include 1) enhancing successful strategies and moving them toward institutionalization; 2)
maintaining "active" ownership and leadership; 3) securing additional funding and continually
reinvesting Zero Tolerance funds as strategies are institutionalized; and 4) utilizing results-based
accountability to demonstrate effectiveness.
Zero Tolerance is a collaborative effort among many disciplines: the Superior Court, the Office of the
Sheriff, District Attorney's Office, Public Defender's Office, Count Departments of Employment and
Human Services (Children & Family Services, Workforce Services, and Adult Protective Services),
Probation, and Health Services, and community service providers (STAND! Against Domestic
Violence, Bay Area Legal Aid, and Community Violence Solutions). Stronger coordination has
resulted in important new alliances with organizations such as First Five Contra Costa, Family
Maternal and Child Health, and the Department of Child Support Services.
!Zero Tolerance's efforts have received statewide and national recognition:National Association of County's 2002
Achievement Award winner;featured in the California Attorney General's'publication"Safe from the Start,Promising
Strategies and Programs Resource Guide";requested presentations at American Public Health Association Annual Meeting
in 2005 and 2006 q�
TOt,EFtAMCE
amnesdc malence! .2
RESULTS
Results based accountability is a cornerstone of Zero Tolerance. In previous years, partners
successfully reported their assigned performance or results indicators. This method of reporting
revealed numerous data deficiencies and limited the initiative's ability to measure progress across
partner agencies. Consequently, in 2007 we began collecting more salient measures of integrated data
- Law and Justice Information System (LJIS) and Automated Regional Information Exchange System
(ARIES). The goal is to have all partner agencies reviewing consistent system-wide data, assessing
for patterns, and evaluating the impact of their work as a partnership (a critical element of
empowerment evaluation). Significant corrections and refinements are still underway. Preliminary
information is included in this year's report.
Accomplishments and dilemmas from last year are described by briefly highlighting the system, from
intervention to prevention.
INTERVENTION
Offender Accountability
The Initiative's partners seek to intervene early and strongly with perpetrators of domestic violence
offenses to prevent the escalation of violence.
• Percentage of Arrests Has Increased
While the number of domestic violence reports prepared by law enforcement has declined slightly,
the total reports resulting in arrest has increased by 12%1. Of the reports referred to the District
Attorney's Office, 5932 resulted in the filing of a criminal case. The District Attorney's conviction
rate on cases of domestic violence continues to remain high for both felonies (93%) and
misdemeanors (73%)3. Overall, there continues to exist an opportunity for criminal justice
partners to enhance the implementation of promising practices (arrest) by assessing/improving
practices in investigating/prosecuting cases of domestic violence.
• 97% more offenders sent to a 52-Week Batterers Treatment Program in 2007 than in 2001.
If convicted of a misdemeanor offense, a victim's offender is now more likely to be ordered to a
52-week treatment program and monitored by specialized probation officers in order to ensure
attendance and compliance with all other terms of probation. These results are due to the
Initiative-supported, multi-agency Domestic Violence Court (MDVC). The number of offenders
ordered to MDVC increased significantly by 97% with the total MDVC caseload continuing to
climb(from 363 in 2001 to 715 in 2007).
'From July 2006 through December 2007
From July 2006 through June 2007
3 From July 2006 through June 2007
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� TOY.ERANCE
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Figure 1 - Number of Ofenders Referred to 52-Week Program
800-1 :--
7001
00
700 h
600
472'= 497
500 "
I
400
300 `g
200tF17 —
2
. '
2001 2002 2003 004 2005 2006 2007
Source:Law and Justice Information System(LJIS database),Contra Costa County.
Victim Safety
Ensuring the safety of victims and children while prosecution occurs or while the perpetrator is
receiving treatment is paramount. The number of services provided to victims (through STAND!
Against Domestic Violence) has increased in volume. Through the collaborative efforts of Bay Area
Legal Aid, STAND! and the Superior Court in assisting low-income victims of domestic violence in
!' completing restraining order applications, more victims are seeking protection from further violence
(a 41% increase over time). While more victims are accessing services, providing continued support
and advocacy throughout the entire system is a critical need.
Figure 2 - Number of Restraining Order Applications
1500
1400
1300
1200
1100
1000
900
800 Ie
Jan-June July-Dec Jan-June July-Dec Jan-June July-Dec
2005 2005 2006 2006 2007 2007
Source:Superior Court of California,Contra Costa County
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PREVENTION
Creating a Climate Where Violence is Not Tolerated
The Initiative's partners ultimately seek to prevent violence before it begins by creating a climate in
the county where violence is not tolerated. "After receiving the award I
felt more motivated to keep
The DELTA project, implementing prevention activities focused on doing the work that I had
men/boys, successfully engaged the community. This year the number been doing."Juan F. Prieto
of men taking action in their own communities more than doubled.' 2007 Men Of Merit alumnae
i
In addition, this year Zero Tolerance launched a highly successful effort to educate/train professionals
and raise public awareness. In October Zero Tolerance presented its First Bi-Annual Conference,
"Creating Responsive Systems for Children Exposed to Domestic Violence". Over 252 professionals
attended, many from throughout the state and nation. Participants rated their conference experience
`highly: 95% rated the overall conference program as good or excellent; 97% found that the conference
enhanced their understanding of how children are impacted by domestic violence. Follow-up
workshops and individual technical assistance and training were also provided to over 70 professionals
to date,with extremely positive results.
Participants commented:
I
"I liked being able to hear and see people from "The conference "Excellent
various professions and backgrounds. I liked the encourage[ed] robust conference
sharing of knowledgeable ideas and about how to
discussion...." —we need
work with the complexity of issues dealing with
more."
domestic violence."
Finally,over the course of a four-day workshop facilitated by the Center for Digital Storytelling, a
courageous group of young people gathered together and shared their stories and learned to edit them
into stirring, heartfelt personal videos. Through the generous support of Supervisor Glover through
the Keller Canyon Mitigation Fund,Zero Tolerance produced"Hear Our Voices—Stories of Children
Exposed to Domestic Violence" to raise awareness about the impact of domestic violence and build
capacity of professionals and community members to recognize and respond. The DVD includes five
short digital stories and a companion discussion guide. To date over 450 copies have been distributed
to public/private agencies and community members.
1 This project is coordinated and staffed by STAND! in partnership with Zero Tolerance staff. A highlight this year of the
DELTA project was the Men of Merit event held at Richmond High School. Twenty men were honored for being
excellent role models to young men and boys by showing that violence does not equal strength.
1
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7'QLERANG�
1 domesde vldence!
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FINANCING
The return on investment in the Zero Tolerance system is significant. The Board of Supervisors has
strategically infused limited general fund dollars (at its highest in 2001 at $2.3 million and today at
$1.4 million) and county agencies and community based organizations have invested funding for
services and in-kind staffing to support system improvements. These investments have been critical in
attracting additional funding: over $3 million in federal funding in the last three years.I SB 9682 fees
continue to support oversight and coordination for Zero Tolerance. (See Appendix for the allocation
of the Board's Zero Tolerance funding and grants for FY 07/08).
Figure 3 - Funding for Zero Tolerance Coordinated System
$3,500,000 Programs to prevent
interpersonal
$3,000,000 violence are cost
$2,500,000 beneficial and cost
effective.
$2,000,000
The Economic
$1,500,000 Dimensions of
Interpersonal Violence.
$1,000,000 Department of Injuries
III and Violence Prevention,
$500,000 World Health
Organization,Geneva
$0 1 _ ■ ■ I ■ 2004.
2000-2001 2001.2002 2002-2003' 2003-2004 2004.2005 2005-2006 2006.2007 2007-2008
i
est.
■Grant Dollars ®General Fund Dollars
❑NbneyInvested by Partner Agencies (estimated) ■Money Leveraged by Partner Agencies (estimated)
■SB 425(2000-2006)/SB 968 (Jan 2007-) ■TANF and CC Future Fund
The launch of Zero Tolerance's first bi-annual conference attracted$32,000 in sponsorship support.
In addition to the generous sponsorship by the Office of the California State Attorney General, Child
Abuse Prevention Council, First 5 Contra Costa,Kaiser Permanente,Westeorp Bank and Lesher
Foundation,the Walnut Creek Marriott Hotel was a major corporate sponsor. The conference
facilitated Zero Tolerance efforts to develop long-term relationships with sponsors, establish a
potential earned-income resource, secure regional/national attention and bring major contributors in
the field to the count
y 3
4
This year grant dollars enhanced service capacity;adding a misdemeanor domestic violence detective in the Office of the
Sheriff;expanding advocacy services for victims;establishing supervised visitation services for families experiencing
domestic violence,sexual assault,and stalking.
2 t September 2006 the Governor signed into law SB 968(Torlakson),permanent authorization of the pilot(SB 425)of
the"Contra Costa Zero Tolerance for Domestic Violence"Act.The act authorizes maximum fee levels for certified copies
of certain vital records for the purpose of oversight and coordination of Zero.Tolerance.
'To increase visibility,provide information to the public and linkages to partner agencies,Zero Tolerance launched a web
presence htti)://www.contracostazt.ors4.
i TOLERANCE
damesde vfalence!
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CHALLENGES AND OFFORTUMMES
Despite the fact that Zero Tolerance continues to produce positive outcomes, we face significant
challenges in the coming year, including the current uncertain financial climate and key system gaps.
Funding for core elements of the Initiative has remained static while demand for services has
increased.'
In addition, despite significant improvements in the criminal justice response to domestic violence,
some disturbing trends have emerged in the last year including lack of emergency protection orders
issued and a trend toward increased lethality. Renewed focus on supporting best practices with all law
enforcement jurisdictions and criminal justice agencies is needed.
Coordination is "the foundation" of the initiative; bringing various agencies to the table, creating
opportunities for people to communicate and understand agency functions/roles, create meaningful
connections, avoid duplication and create efficiencies in providing better prevention and intervention
strategies. The Zero Tolerance partnership has been continually re-inventing itself, a characteristic of
working on the cutting edge of this issue and navigating the complexity of domestic/family violence.
While partners have met with some success in shifting from operating independently to an aligned
collaboration, there is a need to put additional structures (communication, decision-making, leadership
and accountability) in place that strengthen and sustain the partnership as a coherent system,
establishes mechanisms for integrating additional partners and increases effectiveness of the system
over time.
Finally, partner agencies have identified a pressing need to develop countywide materials for the
public and professionals. Providing information to the public about the issue of domestic/family
violence and what can be done is critical in creating community norms that do not tolerate violence.
Developing materials for professionals with broad utility across sectors ensures consistent responses
and the institutionalization of policies and best practices.2
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Caseloads for Domestic Violence Court have more than doubled,the number.of temporary restraining orders sought has
increased,and services for victims and their children and system improvements focused on elder abuse are lacking.
In 2008 a sub-committee of Zero Tolerance began developing a field guide for law enforcement which will be provided to
jurisdictions countywide.
o-
7'OL E1INC1E
STRATEGIC DIRECTIONS
Zero Tolerance is a long term investment in system change. The next steps for the Initiative include:
INSTITUTIONALIZING THE INITIATIVE'S STRATEGIES AND BEST PRACTICES
➢ Implement system review strategies to track and develop methods for continued
implementation of best practices.
➢ Strategically involve new partners.
➢ Develop consistent educational materials for professionals.
SUSTAINING SYSTEM CHANGES
➢ Strengthen partnership development. Design new structures and processes for communication,
decision-making and leadership.
➢ Continue to improve data collection/accountability for results.
➢ Develop public education materials.
➢ Increase marketing of Zero Tolerance to increase public awareness and attract additional
revenue.
While domestic/family violence is deeply imbedded in our community, it is clear that the Board's bold
vision of Zero Tolerance for Domestic Violence, over time and with significant resources, has the
potential to permanently increase the efficiency and effectiveness of domestic violence prevention and
j interventions and create safer communities in Contra Costa County.
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IIS TOLE�AAN�CE
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APPENDIX
• Financing Chart
• Summary of Current Areas of Activity and Investment
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