CALIFORNIA UPDATE— JUVENILE JUSTICE TRENDS AND NEW LEGISLATION Roundtable - September 13, 2014
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Transcript of CALIFORNIA UPDATE— JUVENILE JUSTICE TRENDS AND NEW LEGISLATION Roundtable - September 13, 2014
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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
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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
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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
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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
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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
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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
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Juvenile Justice Realignment:Juvenile Justice Realignment:
The CA Division of Juvenile Justice The CA Division of Juvenile Justice (DJJ)(DJJ)
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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
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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
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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)
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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
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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
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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
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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.
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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
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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