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CALIFORNIA UPDATE— CALIFORNIA UPDATE— JUVENILE JUSTICE TRENDSJUVENILE JUSTICE TRENDS

AND NEW LEGISLATIONAND NEW LEGISLATION

Roundtable - September 13, 2014Roundtable - September 13, 2014U.C. Berkeley Law SchoolU.C. Berkeley Law School

by David Steinhartby David Steinhart

PACIFIC JUVENILE DEFENDER CENTER

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COVERAGECOVERAGE

Juvenile crime and incarceration trendsJuvenile crime and incarceration trends Arrest and incarceration trendsArrest and incarceration trends Juveniles tried & sentenced as adultsJuveniles tried & sentenced as adults

Juvenile Justice RealignmentJuvenile Justice Realignment Division of Juvenile Justice– realignment trendsDivision of Juvenile Justice– realignment trends County level implementation issuesCounty level implementation issues State-local funds supporting realignment and related programsState-local funds supporting realignment and related programs

National and state law and policy trendsNational and state law and policy trends Shifting legal & constitutional framework: Shifting legal & constitutional framework:

SCOTUS decisions, adolescent science drive changes in SCOTUS decisions, adolescent science drive changes in state lawsstate laws

California legislative updateCalifornia legislative update

Shifting policy landscape in CaliforniaShifting policy landscape in California Board of State and Community Corrections– emerging roleBoard of State and Community Corrections– emerging role Turnover in the Legislature, new advocacy voicesTurnover in the Legislature, new advocacy voices Issues on tap for 2015 Issues on tap for 2015

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California juvenile arrest,California juvenile arrest,

incarceration & adult court incarceration & adult court trendstrends

4444

California Arrests of Juveniles 2012California Arrests of Juveniles 2012

Status Offenses 16,392

Felony other26,931

Felony violent9,437

Misdemeanor67,960

2012TOTAL JUVENILE

ARRESTS 120,720

(down by 50% from243,090 in 2002)

Source: California Department of Justice

Commonweal

55

8791685640

82748

76104

685036388963993

61539608785987161161651896619164963

58555

52020

43403

36368

0

20,000

40,000

60,000

80,000

100,000

0

500

1000

1500

2000

2500

3000

Total Juv. Felony Arrests (left scale) Fel. Arrest Rate Per 100,000 (right scale)

Source: California Department of Justice

California Juvenile Felony Arrests andCalifornia Juvenile Felony Arrests andJuvenile Felony Arrest Rate Per 100,000Juvenile Felony Arrest Rate Per 100,000

1995-20121995-2012

Commonweal

66

California Arrests for VIOLENT crimesCalifornia Arrests for VIOLENT crimesJuvenile and Adult Arrest Juvenile and Adult Arrest RateRate Per 100,000 Per 100,000

1995-20121995-2012

100

200

300

400

500

600

70019

95

1996

1997

1998

1999

2000

2001

2002

2003

2004

2005

2006

2007

2008

2009

2010

2011

2012

Juvenile Adult

Source: California Department of Justice Commonweal

77

County Juv. Facility ADP and Rated Capacity County Juv. Facility ADP and Rated Capacity Juvenile Halls & Probation Camps/ RanchesJuvenile Halls & Probation Camps/ RanchesFive year trend : 2009 – 2013 Five year trend : 2009 – 2013 (mid year counts)(mid year counts)

0

1000

2000

3000

4000

5000

6000

7000

8000

9000

2009 2010 2011 2012 2013

Juvenile Hall ADP Juvenile Hall RC

0

1000

2000

3000

4000

5000

6000

7000

2009 2010 2011 2012 2013

Camp/ Ranch ADP Camp/ Ranch RC

Juvenile Halls Probation Camps/Ranches

Source: CA Bd. of State & Community Corrections, Juv. Detention Profile Surveys Commonweal

88

All California Juvenile Justice FacilitiesAll California Juvenile Justice FacilitiesCombined Average Daily Population (ADP) Combined Average Daily Population (ADP)

for delinquency cases for delinquency cases (4(4thth quarter 2009 and 2012) quarter 2009 and 2012)

Three year decline of 25%Three year decline of 25%

2940 2560

59204350

3650

2750750

1400

02000400060008000

10000120001400016000

2009 2012

Private Placements Co. Juv. HallsCo. Probation Camps State DJJ

Commonweal

99

California Transfers of Juveniles California Transfers of Juveniles to Adult Criminal Court 2004 - 2011to Adult Criminal Court 2004 - 2011

252318 275

335 346254 226

283343

724

866769 716 686

535661

929

11231201

1115

970912

399

654

0

200

400

600

800

1000

1200

1400

2004 2005 2006 2007 2008 2009 2010 2011

Juvenile court remand to adult court

Prosecutor direct file in adult court

Total transferred to adult court

Source: California Department of Justice Commonweal

1010

Adult Court Dispositions of Juveniles – 2011

(N = 548 dispositions)

Convicted461 (84%)

Dismissed,Acquitted or

Rt’d to Juv. Ct.87 (16%)

State Prison291 (63%)

Probation10 (2%)

Probation with Jail140 (30%)

Jail8 (2%)

Fine / Other9 (2%)

Source: California Department of Justice.

DJJ Commitment 3 (<1%)

Commonweal

1111

Juvenile Justice Realignment:Juvenile Justice Realignment:

The CA Division of Juvenile Justice The CA Division of Juvenile Justice (DJJ)(DJJ)

1212

1996: 1996: Sliding scale feesSliding scale fees imposed for level V-VII imposed for level V-VII commitments– CYA population drops swiftly commitments– CYA population drops swiftly

2000: 2000: Proposition 21Proposition 21 opens new doors to adult court opens new doors to adult court

2004: 2004: Consent Decree in Consent Decree in FarrellFarrell case case vs. CYA– vs. CYA– generates generates program costs that are catalysts for SB program costs that are catalysts for SB 81 81

2007: 2007: SB 81SB 81 bans future commitments of non-707 bans future commitments of non-707 youthyouth

2010: 2010: DJJ parole is realignedDJJ parole is realigned to county probation to county probation

2012: Governor 2012: Governor proposes to close DJJproposes to close DJJ, proposal dies , proposal dies but time adds are banned, age of jurisdiction is but time adds are banned, age of jurisdiction is loweredlowered

Downsizing the CA Div. of Juvenile Downsizing the CA Div. of Juvenile Justice Justice

Major Milestones 1996 -2013Major Milestones 1996 -2013

DJJ POP

10,000

700

Commonweal

13131313

California Division of Juvenile FacilitiesCalifornia Division of Juvenile FacilitiesInstitutional PopulationInstitutional Population

1996 – 2013 (as of December 31 each year)1996 – 2013 (as of December 31 each year)

9572

85998083

76667305

6497

5557

4696

36782999

26472293

1734160212751031

752 689

0

1,000

2,000

3,000

4,000

5,000

6,000

7,000

8,000

9,000

10,000

19

96

19

97

19

98

19

99

20

00

20

01

20

02

20

03

20

04

20

05

20

06

20

07

20

08

20

09

20

10

20

11

20

12

20

13

Source: Ca. Dept. of Corrections & Rehabilitation

SB 81

Commonweal

1414

Annual Juvenile Court Commitments to Annual Juvenile Court Commitments to DJJDJJ

All Counties – 2003 through 2013All Counties – 2003 through 2013

1168

835 816

647

467402

333 341276

148 190

0

200

400

600

800

1000

1200

Juv. Court Commitments to DJ J

Commonweal

1515

Juv Court Commitment Adult Court E & M CasesCounty contract housing

Juvenile Court 1st Commitments (528)

Adult Court E & M Cases (139)

Juv. Court Parole Violators (0)

Source: CA Division of Juvenile Facilities, Research Div.

DJJ Institutional Population Dec. 31, 2013DJJ Institutional Population Dec. 31, 2013by Court and Type of Commitmentby Court and Type of Commitment

N= 689 inmatesN= 689 inmates

Commonweal

County contract housing ( 22)

1616

DJJ Realignment implementation--County issues and continuing

challenges State Auditor’s Report (Sep. 2012) slams BSCC and

Legislature on SB 81 (YOBG) performance measures and reporting

How are “realigned” juveniles doing at the county level? Performance and youth outcome data are generally lacking We see varied county programs and uses of YOBG funds:

Special custody programs– e.g. Los Angeles “SB 81” camp Juvenile halls increasingly used for commitments-- a growing but

poorly documented concern Re-entry grants– we have no data tracking outcomes Still unresolved: meeting mental health, other local treatment needs

State oversight of juvenile justice realignment— BSCC has only limited oversight functions– in effect local courts and

probation departments make their own spending & program decisions New round of SB 81 juv. Facility construction grants: $80 million in

pipeline

Commonweal

1717

Funding the CA Juvenile Justice Funding the CA Juvenile Justice System--System--

Annual costs and fund sources Annual costs and fund sources ((2013)2013)

State Div. of Juvenile Justice (DJJ)Total budget $ 170 million

$ 180 millionState General Fund

County Probation Juv. Justice facilitiesand programs- total $1.7 billion

$1.25 billion est.County General Funds

$390 millionCA State Grants and Funds

$15 million est.Federal Funds

Sources: CA State Dept. of Finance; CDCR (DJJ and the Corrections Standards Authority); CA State Juv. Justice Commission (Master Plan, 2009)

Commonweal

1818

State support for local juvenile justiceState support for local juvenile justice operations under 2011-12 realignmentoperations under 2011-12 realignment

Fund or ProgramFund or Program FY 12/13 FY 12/13 FY 13/14FY 13/14

2007 Juv. Justice 2007 Juv. Justice Realignment (SB 81)Realignment (SB 81)

$93 million$93 million $ 103 million$ 103 million

2010 Div. Juv. Justice 2010 Div. Juv. Justice Parole RealignmentParole Realignment

$ 6 million$ 6 million $ 6 million$ 6 million

Juv. Justice Crime Prev. Juv. Justice Crime Prev. Act (JJCPA)Act (JJCPA)

$ 107 million $ 107 million $ 107 million$ 107 million

Juvenile ProbationJuvenile Probation

Camp Funds- Camp Funds- CampsCamps$29 million$29 million $29 million$29 million

Juvenile Probation Camp Juvenile Probation Camp Funds- Funds- ProgramsPrograms

$ 152 million$ 152 million $ 152 million$ 152 million

TOTALTOTAL $ 387 $ 387 millionmillion

$ 397 million$ 397 million

CommonwealSources: CA Dept of Finance, Ca. State Association of Counties

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National law & policy trends in juvenile justice:

A shifting legal frameworkRecent US Supreme Court Sentencing cases Impose limits on life sentences for juveniles based on

developmental differences & “diminished culpability”

Findings in adolescent science drive changes Research explains adolescent behavior based on brain development Education and juvenile justice agencies adapt – e.g.,

school discipline reforms, youth corrections “downsizing”,state laws restoring juv. Jurisdiction, pullbacks on “direct file”

Best all-round summary: Reforming Juvenile Justice: A Developmental Approach, Nat’l Academy of Sciences (2013). Download at: http://www.nap.edu/catalog.php?record_id=14685

California laws adapt too SB 9 & SB 260: Sentence reviews for prisoners w/ crimes committed as

juveniles Other California legislation– e.g. SB 1296 (truancy) & SB 1038 (auto-

dismissal)Commonweal

2020

California Legislation -2014 Report

SB 838 (Beall), “Audrie’s Law”: High drama on expansion of direct file and mandatory minimum juvenile sentences. Signed, effective 1/1/15.

SB 1296 (Leno): Ends incarceration of truants using contempt power of the court (reverses In re. Michael G.). Signed, effective 1/1/15

SB 1038 (Leno): Auto-sealing and dismissal of court records in non 707 delinquency cases. Signed, effective 1/1/15.

Commonweal

Note: please consult the Commonweal “bill digest” handout for additional bills and details. Some bills may still be awaiting final Governor’s action at Roundtable time. The Gov. has until 9/30 to sign or veto bills in his possession.

2121

AB 388 (Chesbro): Detention law changes and new group home requirements for dual status youth

AB 2607 (Skinner): Limits on detention of minors awaiting placement

AB 2276 (Bocanegra) & SB 1111 (Lara): Education rights and placements for justice system youth

California Legislation -2014 Report

Note: please consult the Commonweal “bill digest” handout for additional bills and details. Some bills may still be awaiting final Governor’s action at Roundtable time. The Gov. has until 9/30 to sign or veto bills in his possession.

Commonweal

2222

Juvenile Justice Data Working Group Adopted in budget trailer bill (AB 1468)-- Inter-agency group at

BSCC Tasked with complete review & recommendations to upgrade

outdated and fractured state and local JJ data systems Also will review & recommend new JJ system performance

measures Report to Legislature by 1/1/16

MIOCR (mentally ill offender) grant program Renewed at $18 million for 3 year grants to counties Half to adult and half to juvenile offender programs Competitive grants administered by BSCC

CDCR Leadership Academy Planning grant in FY 14-15 budget at $850,000 Goal: establish a separate, privately funded facility for selected

age 18-25 CDCR inmates, with an intensive treatment and re-entry emphasis- other details under development

California Legislation -2014 Report

Commonweal

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Csa and bsccCsa and bscc

BSCC Juvenile Justice mandates includeBSCC Juvenile Justice mandates include Grants programs: JJCPA, YOBG, SB 81 construction, gang grants, Grants programs: JJCPA, YOBG, SB 81 construction, gang grants,

MIOCR, federal JJDPA fundsMIOCR, federal JJDPA funds Facility standards & inspection (camps/ ranches, juv. halls, jails)Facility standards & inspection (camps/ ranches, juv. halls, jails) Data, TA and leadership in defining system best-practicesData, TA and leadership in defining system best-practices

Juvenile Justice CommitteesJuvenile Justice Committees SACJJDP (State Advisory Group)SACJJDP (State Advisory Group) awards federal grant funds (EB awards federal grant funds (EB

practices, RED reduction, data developmentpractices, RED reduction, data development)) Juvenile Justice Standing CommitteeJuvenile Justice Standing Committee is working on: is working on:

Upgrading & coordination of state/local JJ Upgrading & coordination of state/local JJ data systemsdata systems Juvenile Justice- Education and mental health issuesJuvenile Justice- Education and mental health issues Facility issues– Standards (e.g., pepper spray), PREA, etc.Facility issues– Standards (e.g., pepper spray), PREA, etc.

Board of State and Community Board of State and Community CorrectionsCorrections

Juvenile Justice Mission & MandatesJuvenile Justice Mission & Mandates

Commonweal

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CA Policy Landscape-- Leadership changes, advocacy groups, upcoming

issues Legislative leaders & term limits

New Senate President & Assy. Speaker; Steinberg, Ammiano, Skinner, others termed out

Strong players remain but others need to be educated Advocacy organizations regrouping

Californians for Safety and Justice; CA Alliance for Youth & Community Justice; foundation initiatives & engagement

Upcoming in 2015? Juvenile sex offender registration? Attempts to change Prop 21 “direct file” law? More changes in education rights law for juvenile

offenders? Pepper spray confrontation? Juvenile Justice Data Work Group recommendations BSCC grants in progress– MIOCR, SB 81 construction, Byrne

JAG

Commonweal