Oregon is nationally
recognized as a leader in the effort to address disproportionate
minority contact (DMC) in the juvenile justice system because of its’
long-standing commitment to rethink and ultimately improve the juvenile
justice system. Since 1988, the former Oregon Commission on Children and
Families (and the newly formed Youth Development Council) have been
studying the problem of disproportionate over-representation of minority
youth in secure facilities and developing strategies to address the
problem. Oregon implemented local DMC six projects to address issues
related to overrepresentation of minority youth in the juvenile justice
system. Oregon Juvenile Justice Advisory Committee (JJAC) supported
these efforts through funding from the U.S. Department of Justice,
Office of Juvenile Justice and Delinquency Prevention (OJJDP).
The following are
examples of DMC reductions in local communities in Oregon that were
administered or coordinated by the Juvenile Departments or local
Commission on Children and Families.
CLACKAMAS COUNTY, OREGON
Background
Clackamas County Assessment of Disproportionate Minority Contact (DMC)
over the last five years has shown that minority youth experience
differential treatment at several crucial contact points in the
systems. Black/American American youth are arrested at a significant
higher rate than White youth; and they are referred to the Juvenile
Court at a higher rate. Hispanic/Latino youth are less likely to be
referred to local diversion program. Black/African American and
Hispanic/Latino cases are more likely to be involved in secured
detention. Both population cases are more likely to result in delinquent
findings. Hispanic/Latino youth cases are more likely to result in
secure confinement in the juvenile correctional facilities. An in-depth
examination of data in 2007 regarding minority referrals to the Juvenile
Department reveals: African American and Hispanic/Latino exhibited a
significant increase in delinquent behavior at age 13. The Juvenile
Crime Prevention (JCP)) risk assessment tool indicates that school, peer
relationships, family functioning, and behavioral issues are the high
risk factor domains in both populations. The JCP risk assessment also
indicated that 27% of African American youth have no protective factors.
Strategies
In order to fully understand community concerns around the issue of DMC,
information was also gathered from key leaders and community partners.
Together with the statistical data, this information resulted in a
multi-faceted approach to address DMC in Clackamas County. To mitigate
key criminogenic behaviors exhibited by youth at age 13, prevention and
intervention strategies was implemented at a middle school in an area
from which a significant number of minority youth are referred to CCJD.
Technical assistance and cultural competency training strategies
improved decision-making at all levels of the juvenile justice system,
particularly at crucial contact points identified during DMC analysis of
Clackamas County system change strategies will reduce procedural and
policy factors contributing to DMC.
Clackamas County intervention project centered on five different DMC
reduction efforts: 1) mentoring program (Big Brothers, Big Sisters
Columbia); 2) recreational program (Todos Juntos) that created
preventive and positive services to increase protective factors; (Our
model was built on fostering collaborative relationships between
community providers and fully integrating services with our targeted
school and communities.) 3) creation of two Bilingual/Bicultural
Division Panels as a mechanism to increase access to diversion resources
for Hispanic/Latino youth. 4) the Juvenile Department reexamined its
Detention decision making process.; and 5) community training organized
through the local Children, Youth and Family Division.
Results
The
Mentoring and Recreational Program served 122 youth and 118 tracked
during the past year; and only 1.7% youth had a delinquent offense.
Youth who were tracked after a 6 month period of exited the program
experience 0% recidivism. The mentoring program for Black/African
American youth had good results with youth who were matched with
mentors.
An
important aspect of the bi-lingual/bi-cultural panel’s effort was
creating panels whose members were culturally appropriate with
recruitment and training being an important emphasis. To this end,
Spanish speaking Bilingual/Bi-Cultural Diversion Panels were implemented
in two cities in the county. This has had a tremendous impact in
facilitating the process for Spanish-speaking families and ensuring they
receive the appropriate services. Latino youth whose offense and history
make them eligible for diversion services are being diverted to
culturally appropriate service that have enhanced their connection to
the community.
The
reexamination of the Juvenile Department detention decision making
process has resulted in a process that requires a clear written
detention decision justification for each youth that conforms to the ORS
statues.
The
Clackamas Children, Youth and Family Division provided or coordinated
training in the areas of Cultural Competency; Introduction of DMC in
Juvenile System to County agencies, Law Enforcement Administrators with
the goal of providing more formal training to Law Enforcement personnel
throughout the county; DMC Training: Needs of Hispanic/Latino youth and
Immigration issues; Cultural Diversity/DMC Training to school district
administrative staff.
Key Observations
When the DMC reduction strategy is specific and the solution is
specifically defined, the chance of success is enhanced.
The data consistently supports the focus on building protective factors
in our target age groups which can have an impact on preventing these
youth from entering the juvenile system in the first place.
Establishing the goal of
sustainability and finding the right community partners, increase the
chances that DMC reduction efforts will find the means to sustain
themselves even after initial funding has concluded.
In Clackamas County, the
Latino panels were integrated into the established City Diversion Panels
with a community provider assuming the contract at both of the existing
city sites assuring the continuity and the sustainability of this
service. This transition will continued to provide a bi-lingual,
bi-cultural coordinator to accommodate the populations. The other two
community providers for the Mentoring Program will continue providing
mentoring services; and the recreational program service provider has
secured funding from United Way to continue to provide recreational
services at the middle school.
Clackamas County has a practice in place where the yearly DMC
reports/Relative Rate Index (RRI) will be reviewed by the Juvenile
Department’s Strategic Planning Committee. The committee reviews, plans
and implement various policy initiatives and evidence based practices.
This is a natural fit for ongoing review of our status. Additionally,
DMC reports are conducted and discussed with the Local Public Safety
Coordinating Council.
Contact: Clackamas County Juvenile Department, 503-655-3842, Ext.
317
LANE COUNTY, OREGON
Lane County Youth
Services (YS) is in its second year of DMC implementation having worked
with community partners to identify internal systems changes as the
appropriate starting point for these efforts. We implemented a
detention screening tool and developed and implemented a program
services matrix to standardize decision making and reduce bias and are
funding a new alternative to detention, short term shelter care for
youth who are detained only because they cannot return home. In this
second implementation year we are also expanding efforts to our
community partners through law enforcement training and community
roundtable discussions of the data and our responses.
Data supporting the
approach: The RRIs examined in Year 1 showed statistically
significant results in overrepresentation on African American youth in
referrals, detention, Petitions and Secure Confinement;
underrepresentation of Hispanic youth at referrals and
overrepresentation of American Indian youth in detention.
In examining the
possible mechanisms leading to this disproportionality, differential
processing or inappropriate decision-making criteria seemed a likely
area for introducing bias as YS has no objective detention admission
screening instrument.
Additionally, there were
few alternatives to detention for youth who cannot safely return home
which may have an indirect effect on DMC. Evaluation of existing
programs will help establish ethnically neutral criteria for the
development of these programs. The data also suggest an accumulated
disadvantage for minority youth in differential handling as the
department also has no objective matrix for program services. Finally,
the qualitative data from community interviews and participants in a DMC
sponsored Problem Solvers Meeting indicated broad misunderstanding of
the mission, role and options available to DYS when working with youth.
Strategies:
We researched detention screening tools and adopted Multnomah County’s
RAI. We were successful in re-directing funding to develop a short term
foster care program as an alternative to detention. Juvenile Counselors
developed a Program Services Matrix, addressing what are appropriate
responses to a youth, based on their risk level and the severity of the
current offense. Department policies were re-written to address use of
the RAI and the PSM. We are actively involved in program evaluations to
determine which programs are effective with all youth and specifically
with which minority youth. We hired a consultant who provided a
research study on the effectiveness of tribal practices in increasing
protective factors in urban detained youth.
Community
partners/steering committee: Community partners participate on our
DMC Steering Committee which meets quarterly to review progress and
advise the effort. These partners include our juvenile judge, district
attorney office, DHS, CCF/YDC, our local treatment providers, school
districts, police force, research institutions and community members.
These partners sent line staff to a Problem Solvers meeting to help YS
set program priorities.
Youth Served and
Other Results: Youth Services expanded its use of the program
services matrix from a pilot group of 50 youth to the full 280 youth on
informal and formal supervision. The RAI is being administered to all
youth brought to detention. We expect to have a shelter program as an
alternative to detention in place during 2Q. The research review on
Native American cultural practices increasing protective factors in
urban Native youth is being shared at the state level. We have
established a protocol for program evaluation and have conducted both
process and outcome studies.
Sustainability: Because our focus has been on systems change,
DMC efforts have penetrated practices to become policy and Standard
Operating Procedures in dealing with youth. Our leadership team will
continue to monitor usage of the new tools and progress is reducing DMC
in Lane County.
Contact: Lane County Department of Youth Services, 541-682-4705
MALHEUR
COUNTY, OREGON
Background
Referral rates for both white and Hispanic youth in Malheur County
declined from the levels of 2003-2004. White rates continued to decline
in 2010, but Hispanic referral rates showed an increase. The
interpretation of the DMC data led us to the conclusion that the
highlighted decision point needs further examination, specifically
referral for Hispanic youth. In response to the assessment, the Malheur
County DMC Project focused on direct services to high-risk and
low-protective factors in Hispanic youth according to JCP Screens.
Services occurred through positive caring adult role models utilizing
proven practices at the Harvest House Missions’ SEASON Youth Program and
the Boys & Girls Club of the Western Treasure Valley.
Strategies
Malheur
Local Public Safety Coordinating Council (LPSCC) supports the direct
service component. Relationships have been developed and fostered with
the court system, Juvenile Department, law enforcement, Department of
Human Services, and schools.
Harvest House Missions SEASON Youth Program and the Boys & Girls Club of
the Western Treasure Valley target services for the purpose of
prevention and early intervention. These strategies are based upon our
DMC assessment findings and the experience of our first two years in
this project. Boys & Girls Club now serves youth who have a family
history of gang involvement with the evidence based program, “Gang
Prevention through Targeted Outreach.” SEASON Youth Program is focusing
services for kids who are homeless or at risk of homelessness, runaways,
and youth in transition, foster youth and case management. Both agencies
have improved relationships with law enforcement and schools. Juvenile
Department and court is utilizing strategies learned through the DMC
process. Partners collaborate in a manner that these services have the
best opportunity to be sustainable. Partners include Circuit Court and
Justice Court, Juvenile Department, law enforcement, Department of Human
Services, Boys & Girls Club, SEASON Youth Program, and schools.
Results
The
interpretation of the DMC data led us to the conclusion that the
highlighted decision point needs further examination, specifically
referral for Hispanic youth. Juvenile Department now uses a Supervision
Matrix to manage referrals that come through the juvenile system that is
based on needs assessments. This Matrix was a result of our DMC project
and refined by a committee consisting of law enforcement, circuit court
judge, district attorney and the Juvenile Department. Decisions are
based on information that was uncovered through an intense intake
process that used information provided by the family, the youth, school,
treatment programs and Department of Human Services.
Contact: Malheur County Commission on Children and Families,
541-889-4317
Marion County, Oregon
Implementation of the Crossover Youth Practice
Model in Marion County
Multnomah County, Oregon
Background
Reducing minority
over-representation has long been a top priority in Multnomah County
that the Department of Community Justice (DCJ), Juvenile Services
Division. DCJ regularly uses Relative Rate Index (RRI) data available
to monitor the impact on racial disparities of every key decision point
for youth within the juvenile justice system. Our findings from years
of analyses show that system referrals and detention admissions
contribute the most to minority over-representation and racial
disparities in the juvenile justice system.
Tremendous effort has
been made in reducing racial and ethnic differences at these key turning
points. This includes the use of a standardized assessment tool to
direct detention decisions when youth are brought to detention by
police; contracting with local service providers for culturally-specific
programming, and the provision of shelter care for youth who cannot be
at home for temporary periods of time. DCJ also received support
through the Oregon Commission of Children and Families to develop a
culturally-specific mentoring program, At-Promise Mentor Program, to
reduce disproportionate minority contact of African American young men.
Strategy
The At-Promise Mentor Program
provides culturally specific mentoring services to high risk, gang
affiliated/involved African American young men who have historically
been unable to access and remain engaged in community program. The
program helps youth develop academic and social skills within the
structure and supervision of a caring professional adult who will serve
as a mentor. These adults are volunteers who currently live and work in
the community in which these young men live. About 60 high-risk youth
have participated in the program since February 2010. To help sustain
this program, DCJ will be transitioning the management of the program in
2013 to a local community provider who will continue to help match
African American youth with supportive adult mentors.
Results
DMC is a complex issue
that requires ongoing cooperation between public safety agencies,
community providers, and the community leaders who compose the Multnomah
County Juvenile Justice Council. Working together on multiple fronts,
Multnomah County is starting to see some positive results from our
efforts. Multnomah County 2011 crime referral and recidivism data
indicate that, after many years of steady increase in RRI at the point
of youth referral, the RRI for African American youth receiving a
criminal referral finally dropped in 2011. The 12-months recidivism rate
for African American youth referred to the County Juvenile Services
Division has declined, as well as the percentage of chronic offenders
among African America youth.
Contact: Multnomah County Department of Community Justice,
Juvenile Services Division, 503-988-4171
WASHINGTON COUNTY, OREGON
Background
The initial phase of the
project was dedicated to a review of referral data, trends, Department
practices and community impressions. A Program Specialist was hired to
complete this work and she completed a Youth Profiles Report July
2008-June 2009. A key finding included a significant increase in
referrals by age 12 for Hispanic youth. This is consistent with previous
findings of the Juvenile Department and increased prevention efforts
with gang affected youth. In 2008, the Department started Sky’s the
Limit, a mentoring program designed to prevent high risk/ gang affected
middle school youth from moving deeper into the gang culture. DMC staff
and funds were used to expand Sky’s the Limit into the Tigard-Tualatin
School District. Unfortunately, due to continued state funding
reductions Sky’s the Limit ended in July 2011.
The assessment and
diagnosis phase also demonstrated the need for changes within the
Juvenile Department. Some key internal changes that were initiated and
completed include: re-training on the JCP Risk Assessment Screen and
Department policy on use of the tool; development of criteria and a
screening tool to determine when a youth should be admitted into secure
detention, development of a DMC Subcommittee and increased community
education efforts about the Juvenile Department and services provided to
youth and families.
Strategies
The Juvenile Department
enhanced and created many partnerships within the community during the
grant period. Those partnerships include: the Juvenile Crime Prevention
Advisory Committee (which includes membership from several local
schools, mental health agencies and the local Commission on Children and
Families), the Public Safety Coordinating Council, the Juvenile Court,
local practitioners and non-profit agencies serving minority youth,
which includes Centro Cultural, Copa Multicultural and CREATE. After
making the challenging decision to end the Sky’s the Limit program, the
department initiated a partnership with Big Brothers Big Sisters so that
youth historically served by our program could have an avenue to connect
with a mentor.
This effort, in
conjunction with the Safe Schools/ Healthy Students initiative,
eventually led to a larger partnership within the Tigard-Tualatin School
District in which faith based organizations were brought together to
identify mentors for high risk youth in their area.
Results
Throughout the grant
period 43 youth were served within the Sky’s the Limit Program; 16 youth
were served within the Summer Transitional Advocacy Program; and 72
eligible youth were served in the Comprehensive Supervision Unit (CSU)
between July 1, 2011 and June 30, 2012. Long term recidivism rates
remained relatively low for this high risk group of youth. Sky’s the
Limit youth recidivated at a rate of 14%. Of the 26 CSU youth who
successfully exited the program in June 2011 through December 2011, only
1 received a delinquency referral between April 2012 and June 2012.
Relative Rate Index (RRI) information is less encouraging, especially
with respect to Hispanic youth. While the RRI for cases referred to the
Juvenile Department decreased from 2010 to 2011 (1.63 to 1.42,
respectively), the RRI for cases petitioned to court, youth in secure
detention and youth confined to a youth correctional facility increased.
This may be attributed to increased attention and swifter consequences
for gang affected youth within CSU.
The Juvenile Department
continues to prioritize fair and equal treatment for all youth in
Washington County. The established DMC subcommittee will continue work
to internally address department practices that may impact DMC, in
addition to educating parents and the community about our role in
serving youth and families. The recently updated Strategic Plan includes
a continued focus on DMC issues. To demonstrate these efforts the
Department created a Juvenile Counselor I position on the CSU team,
continues to recruit bi-lingual staff and has recently initiated efforts
to establish a bi-lingual Senior Juvenile Counselor position.
Connections with community partners remain strong and discussion of DMC
issues regularly takes place, especially within the Juvenile Crime
Prevention Advisory Committee.
Contact: Washington County Juvenile Department, 503-846-8655
National Disproportionate Minority Contact (DMC) Reduction Strategies
Nationally, states have continued to work on specific DMC reduction
strategies that include policies, practices, prevention, intervention,
and after care programming to reduce the racial/ethnic disparities
within the juvenile justice system.
The Office of Juvenile Justice and
Delinquency and Prevention
(OJJDP) has established resources to assist states in addressing DMC
related issues (Model Program Guide, DMC Virtual Resource Center;
Training go to
www.ojjdp.gov for
more information.
The Juvenile Justice
Network
– Advances in Juvenile Justice Reform 2009-2011 Report -
Disproportionate Minority Contact (DMC) -2009;
pages 17-21
www.NJJN.org
