child welfare watch: a need for correction

8/11/2019 Child Welfare Watch: A Need for Correction

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Child Welfare Watc

RECOMMENDATIONS AND SOLUTION

FAMILY COURT JUDGES SHOULDINSTITUTIONALIZE JUVENILE DELINQUENTSONLY WHEN THEY HAVE COMMITTED VIOLENTCRIMES OR THERE IS TRULY NO ALTERNATIVE.

Four-fifths of the young people in statefacilities are juvenile delinquents triedin Family Court (rather than juvenileoffenders accused of crimes such as rapeor murder, who are tried as adults). Somehave committed assault or other violentcrimes. Some are in institutions largelybecause judges and probation officersbelieve placement is necessary to provide atroubled young person with mental healthcare or substance abuse treatment. Othersare locked up because judges have little faith

that a parent or caretaker is able to providethe structure that will keep the teen fromcommitting further crimes. In a more adequate juvenile justice system,young people with serious mental illnesswould be treated in a mental health facilityor program. Young people institutionalizedonly because they have unreliable parentswould be placed with relatives or fosterparents along with wraparound supports,case management and counseling. Theseare ambitious but necessary goals, and therecommendations that follow aim to describesteps toward such a system. For the most

part, they build on the strong elements ofcurrent programs and services.

THE GOVERNOR AND STATE BUDGETOFFICIALS MUST CHANGE THE FUNDINGSCHEME FOR JUVENILES PLACED INNONPROFIT-RUN RESIDENTIAL ANDALTERNATIVE-TO-PLACEMENT PROGRAMS.

Today, 50 percent of the youth in custodyin state-run juvenile correctional facilitiesand 50 percent are in nonprofit residentialtreatment centers. This is a radical departure

from just eight years ago when about 75percent were in OCFS care. This trend towardprivatization is not sustainable, because city

and county taxpayers must bear the full costof placements of juvenile delinquents innonprofit centers, while the state pays halfthe cost of the remaining OCFS facilities.Similarly, the city pays the full cost of severalalternative-to-placement programs. Thus stategovernment has accrued more than a fairshare of the financial benefits of the systemstransformation in recent years. The cost-shareformula should be restructured and equalizedso that teenagers will benefit from whateverservices they need, and so that nonprofit andalternative programs are not subject to thevagaries of exclusively local funding.

THE GOVERNOR MUST REQUIRE THE STATEMENTAL HEALTH SYSTEM TO DIVERT ORTRANSFER SERIOUSLY MENTALLY ILL CHILDRENOUT OF OCFS FACILITIES.

A juvenile correctional facility is noplace for a child with a major psychiatricdisorder. Family Court judges do not havethe authority to send a child to a statepsychiatric facility, and judges complainthat it is next to impossible to persuade thestates Office of Mental Health (OMH) to

admit a child to in-patient treatment or tofind appropriate out-patient treatment. Thestates residential treatment facilitieswhichprovide long-term care for youth withserious psychiatric problemsroutinelyreject patients who are violent. In fact,OCFS officials complain privately thatOMH transfers youths with psychosis andschizophrenia from hospitals to juvenilecorrectional facilities if their behaviorbecomes difficult to control. As a result, the

juvenile correctional centers have some verysick, unmedicated children, in part because

OCFS has inadequate resources to care forthem. OMH must take responsibility forseverely disturbed children by setting aside

or developing residential treatment beds forviolent youth and by giving court-involvedyouth priority in admission to their facilities.

THE STATES JUVENILE FACILITIES MUST EMPLOYPSYCHIATRISTS AND PSYCHIATRIC NURSES.

Even if the most seriously ill children aretransferred out of OCFS facilities, manychildren with mental illness will remain. Thestate must improve the quality of care for allchildren in custody. About 50 percent of kidsin OCFS custody have mental illness, yet thereis not one psychiatrist or psychiatric nurse on

the agencys staff. Teams of clinicians fromnearby hospitals, including psychiatrists, visitthe facilities but are typically available onlya few hours a week. While OCFS recentlyhired two dozen clinicians, including socialworkers and psychologists, only a psychiatristcan prescribe and adjust psychotropicmedications and only a psychiatrist or apsychiatric nurse can monitor the side-effectsand effectiveness of these medications. OCFShas had difficulty recruiting highly-trainedpersonnel to the remote, rural locationsin which its facilities are located. If it is

impossible to adequately staff facilities inremote locations, children with mental healthneeds should not be sent there.

THE GOVERNOR SHOULD CLOSE OR SHRINK THELARGEST OCFS FACILITIES.

The state of Missouri has shown thatconditions of confinement are dramaticallyimproved by replacing large juvenilecorrectional centers with smaller homeswhere children and adults can form closerrelationships. New York closed a number of

THE GOVERNOR OF NEW YORK must use the federal Department of Justice investigation of the states juvenile justice

system as an opportunity to leverage financial resources and policy reforms. State officials should not wait for a lawsuit to force them to

establish a more effective and humane system, nor can they wait for an era of more plentiful budgets. Some of the recommendations below,

proposed by the Child Welfare Watchadvisory board, will require new funding. But over time they will save resources by diverting more

young people from lengthy stays in inappropriate and potentially damaging institutions. If the state had pursued such preventive strategies

years ago, its fiscal burden for institutions would be less now.

New York City and the state Office of Children and Family Services (OCFS) have made important recent advances, diverting a growing

number of young people from detention and placement, both before and after adjudication of cases in Family Court. But there remain

substantial gaps in the system that must be resolved.


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relatively small facilities last year, reducedthe number of young people at others, andhas pledged to close more. But OCFS hasrun into political opposition. The unionsrepresenting workers at the facilities, fearfulof losing jobs, have opposed these closings.Yet when institutional placement is necessary,a small facility closer to the young personshome is more likely to allow for productiveengagement with parents and relatives duringand after placementwhich is likely to helpreduce violence and re-incarceration rates.

THE STATE CIVIL SERVICE COMMISSION SHOULDCHANGE REQUIREMENTS THAT OCFS FACILITYDIRECTORS BE HIRED FROM WITHIN.

Currently, directors must be promotedfrom current staff, mostly from a poolof candidates who have worked theirway up from the position of youth

development aide, similar to a prisonguard. Some of these directors areeffective and resourceful. However, someare ineffectual and resist change. If OCFShad the opportunity to hire from outsideexisting staff, the pool of candidates couldbe expanded to include more clinicians,including social workers and psychologists.

THE STATE OCFS MUST BETTER TRAIN STAFF TOMANAGE VIOLENT YOUTH.

The Department of Justice found cases inwhich staff injured youth, causing brokenbones and teeth. The staff at some OCFSfacilities have undergone successful trainingin how to calm youth without causinginjuries. In some facilities, staffers havelearned how to deescalate volatile situationsand, as a result, rarely resort to the use ofrestraints. At some facilities, however,staff have resisted the training. They areignoring the training and doing what theyplease, says OCFS spokesman Eddie Borges.Staff members who violate OCFS rules arerarely disciplined, according to the federalinvestigation. The state must continue to

provide adequate trainings. At the same time,staff who resist regulations on restraintsmust be disciplined. In addition, OCFS shouldhave the authority to remove staff found tohave abused children in their charge.

PRIVATE FOUNDATIONS, THE GOVERNOR ANDCITY HALL SHOULD INCREASE THE AVAILABILITYOF ALTERNATIVES TO INCARCERATION FORMENTALLY ILL YOUNG PEOPLE.

Every year, about 60 juvenile delinquentsfrom Brooklyn and Queens are rejected by

alternative-to-placement programs solelybecause they have a mental illness, andare sent to juvenile correctional facilitiesinstead. Blue Sky, an alternative programrun by New York Foundling, serves mentallyill children in the Bronx and Manhattan;Blue Sky and ACS are seeking philanthropicsupport for $1.3 million to expand thisprogram to all five boroughs. Foundationsshould fill this gap as soon as possible,but ultimately this is governmentsresponsibility. In addition, Medicaid waiverprograms, including Bridges to Health,should be expanded to include juveniledelinquents who need community-basedcase management to treat mental illness. Over time, the state and city mightconsider a managed-care model ofalternative supports for families ofcourt-involved youth. For example, anaward-winning Wisconsin program called

Wraparound Milwaukee coordinates servicesfor several hundred children each year,crafting highly individualized plans and usingmore than 100 providers of a wide varietyof supports, paid on a fee-for-service basis.The program gives families broad choice asto which services they use, from mentoringto day treatment and mental health care. Itrelies on personalized case management. Thisapproach strives to give families the ability toidentify their own needs and greater controlof their own livesand it is far cheaper thanresidential care.

THE STATE OCFS SHOULD INVESTIGATEDRUG TREATMENT AS AN ALTERNATIVE TOPLACEMENT.

Alternative-to-placement programs oftenreject youth who abuse drugs or alcohol.Moreover, drug treatment programsdesigned for adults are rarely appropriatefor adolescents. However, other programshave been shown to be effective in reducingdrug use among adolescents. For example,Adolescent Portable Therapy, a program ofthe Vera Institute of Justice, sends counselors

into the homes of adolescent drug usersand works with parents and their childrentogether. We have individual conversationswith a kid about who they want to be, saysEvan Elkin, a psychologist and programdirector. You need to focus on what theywant to be and what they are good at,connect them with social activities anda good peer group. Adolescent PortableTherapy has generally been used as a four-month intensive program after dischargefrom OCFS facilities, but it could be used asan alternative to placement as well, says Elkin.

THE STATE OCFS AND PRIVATEPHILANTHROPY SHOULD SPONSORRESEARCH ON THE EFFECTIVENESS OFALTERNATIVE-TO-PLACEMENT PROGRAMS.

Family Court judges and city officials say itcan be hard to recommend alternatives toplacement without knowing how effective

these programs are at preventing violenceand criminal behavior. Many alternativeprograms have been the subject ofrigorous research in other states; however,these evidence-based models have beenchanged and adapted for application inNew York City and the research publishedin other states may not be applicable. Onething is clear: the alternatives have beenvery successful in terms of keeping morethan two-thirds of the children they serveout of institutional placements, at leastfor the period in which they are enrolledin the program. More extensive data have

been collected about participants in NewYorks programs, but there have been nostudies that provide information aboutlong-term recidivism and re-arrest ratescomparable across various programs. TheOffice of Children and Family Servicesshould apply some of the money savedfrom closing juvenile correctional facilitiesto thorough, rigorous research.

FAMILY COURT JUDGES AND OCFSSHOULD MAKE GREATER USE OF FOSTERFAMILIES AND KIN WHO ARE TRAINED

AND SUPPORTED TO WORK WITH COURT-INVOLVED YOUTH.

A young person without a supportivefamily is far more likely to be placed inan institution than one whose parentscan be involved. A few programs, likeCayuga Home in the Bronx, place juveniledelinquents with specially trained fosterparents and work closely with biologicalparents to improve a childs supportnetwork as well as his or her behavior.But Cayuga Home is underutilized, with acapacity of 20 young people but only 12

to 18 enrolled at any one time. We urgethe city and state to make better use ofthis program.

Of course, not every young personrequires this level of supportsomesimply need a relative to take them inand help provide structure in their lives.New York should also develop other, less-expensive models in which host families,foster families and relatives can make useof wraparound family supports as theywork with young people involved withthe courts.

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CHILD WELFARE WATCH

The Pyramid ReceptionCenter in the Bronx

evaluates the mentalhealth of young people

in state custody.

Wherethe SickGet SickerAs the juvenile correctional centersempty, the mentally ill remain.

BY CLARA HEMPHILL

CHRISTOPHER, A SLIGHT15-year-old boy with along history of psychiatric illness, spent three months in a state

juvenile correctional facility in upstate New York for pester-ing a girl and stealing a cell-phone. His mental health, alwaysprecarious, deteriorated further while he was incarcerated atthe Highland Residential Center near Poughkeepsie, one of

22 state juvenile justice facilities that house nearly 1,000 boysand girls between the ages of 12 and 18. He punched walls

with his fists and tried to strangle himself with his pajamas,his mother says. On one occasion, a staff member attemptingto break up a fight slammed Christophers head against a deskso hard that his face bled profusely. I was in a pool of blood,

he says. It seemed like hell. More than half of the children admitted to the juvenilecorrectional centers run by the state Office of Children andFamily Services (OCFS) suffer from mental illness, accord-ing to the agencys own statistics. Independent experts putthe number even higher. Some 72 percent of males and 87percent of females in secure facilities nationwide have at leastone mental health disorder, according to The Office of Juve-nile Justice and Delinquency Prevention, part of the U.S. De-partment of Justice. Children with serious mental illness may

wind up in juvenile lock-upseven if the charges againstthem are relatively minorbecause there are so few alterna-

tives for children who need psychiatric care, advocates say.They end up there because there are so few other other

options, says Leslie Abbey, executive director of the Juve-nile Justice Initiative, an alternative-to-incarceration pro-gram managed by the New York City Administration forChildrens Services. Psychiatric care for incarcerated youth in New YorkState is so deficient that the Civil Rights Division of the De-partment of Justice has threatened a lawsuit seeking a fed-eral takeover of four juvenile facilities unless the state takesprompt action both to improve the quality of services and totransfer to more appropriate settings any children who need

more intensive care than the facilities can provide. The JusticeDepartment gave Governor David Paterson until October torespond to its finding that conditions in four prisons violatedchildrens constitutional rights to protection from harm. Pa-tersons initial reply has not been made public, but its clearthe state is under enormous pressure to find a solution to theintractable problem of caring for children like Christopher. The states juvenile lock-ups house children convicted ofserious crimes (in secure facilities) as well as those accusedof less serious misbehavior (in limited-secure or non-securefacilities). Juvenile offenders, who make up about 20 percentof the population, are 14- and 15-year-olds accused of serious

crimes such as murder, robbery and arson, as well as 13-year-olds accused of murder. They are tried and sentenced in adultcourts. Juvenile delinquents, who make up 80 percent of thepopulation, are children under the age of 16 who are charged

with misbehavior ranging from graffiti and shoplifting to as-sault and third degree robberythat is, taking property byforce but without a weapon.

Juvenile delinquents are adjudicated by the citys FamilyCourts. Family Court judges may place juvenile delinquentsin juvenile lock-ups run by OCFS or in residential centers runby nonprofit agencies such as Childrens Village, Lincoln Halland Graham Windham. Or, they may order them to take part

Photo:ArpanMunier


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The longer they stay with us, the moremental health problems they have.


in one of several alternative programs that often allow youngpeople to remain living at home, in their own community. Over the past decade, the city and state have cut in halfthe number of children under 16 years of age who are sentto juvenile correctional facilities, relying instead on a rangeof these alternative-to-placement programs that offer closesupervision and guidance to juvenile delinquents. But theseprograms are generally only open to young people who have aparent or other responsible adult who is able to take an activerole in their therapy and treatment. Christophers mother,

who acknowledges she once had a drug problem and has beenhospitalized for psychiatric problems herself, visits him from

time to time but is not a reliable source of support.Inpatient psychiatric care is scarce: although Christopher

was approved for admission to a community-based psychiatricfacility soon after he was arrested, he had to wait months for abed to become available. So Christopher wound up in a correc-tional center, even though children accused of similar misbe-havior are often released or offered alternatives to placement. The biggest difference between the adult [criminalcourts] and the childrens [Family Court] system is that inthe adult system, your sentence is contingent on the sever-ity of your crime, says Tamara Steckler, attorney-in-chargeof the juvenile rights practice of the Legal Aid Society. In

the juvenile system, its contingent on the social supportsyou have.

Christopher says he had trouble following the rules at theHighland Residential Center, and was punished frequentlyfor breaking them. I didnt know how to make my bed theHighland way, Christopher recalled as he sat on his bedat the August Aichhorn Center for Residential Care, a psy-chiatric facility in Harlem where he was transferred in July.Theyd yell at me if my bed was wrinkled and now Im latefor breakfast, so I get another punishment, and then Im late

for school and I get in trouble again.In the prison school, he says, another child hit him, and

when he started to hit him back a staffer grabbed both boysand slammed them down on the floor to restrain them. Asthey fell, Christopher banged his head on the desk, causing acut so deep he had to go to the emergency room at a nearbyhospital for stitches. On another occasion, he says, he gotinto an argument over which channel to watch on television;again, a staffer restrained him by forcing him to the floor andbending his arm behind his back. When Christopher tried tosquirm, his face rubbed against the carpet. I got a rug burnon my face, he says.

Christopher has had mood swings and aggressive out-bursts since he was a toddler, according to his mother, wholives in East Harlem. He was first sent to a residential facilityin Westchester County for children with emotional problems

when he was 9 years old. When he was 14, he was releasedfrom residential care and placed with a foster family in theBronx. But he couldnt adjust to life outside an institution.He was innocent. He didnt know how to cross the street,says his mother, adding that he was injured slightly when he

was hit by a car. He also got into trouble with the law. He wasarrested twice in the first three weeks after he moved in withthe foster family, once for harassment of a girlfollowing

her aroundand a second time for stealing a cell phone, ac-cording to the Legal Aid Society, which represented him.

Christopher was approved for placement in a state in-pa-tient psychiatric facility, called a Residential Treatment Facility(RTF), but, because there were no available beds, he was placedon a waiting list. In the meantime, he was sent to the mentalhealth unit of a juvenile correctional center in mid-April, de-spite protests from his attorney, says Nancy Rosenbloom, di-rector of the juvenile rights practice of the Legal Aid Society. In mid-July, a space opened up at Aichhorn, an RTF onManhattans Upper West Side that houses 32 young people,and the only such facility in New York City. Christopher was

finally transferred. Dr. Michael Pawel, executive director ofAichhorn, says Christopher still lashes out at people whenhe feels hes being picked on. But with three highly-trainedstaff members on duty for every eight residents, Aichhorn isequipped to calm Christopher and control his outbursts. Ittakes a lot of time and it takes a lot of staff, says Pawel. OCFS, the state agency that runs the childrens prisons,has long struggled to care for mentally ill residents sent tothem by the courts. Were basically a mental health system

without mental health services, says an OCFS employee whoasked not to be identified. This is a system that re-traumatiz-es the children. The longer they stay with us, the more mental

health problems they have.

The federal investigation, made public in August, foundwidespread abuse of children by staff in four of the statesjuvenile facilities: Lansing Residential Center, Louis Gos-sett Jr. Residential Center (both near Ithaca), Tryon Resi-dential Center and Tryon Girls Center (both northwest ofSchenectady). The investigation found that staff membersregularly used excessive force to restrain children, resultingin broken teeth, broken bones and concussions. In addition,the Justice Department found the facilities failed to pro-


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CHILD WELFARE WATCH

vide adequate mental health care and treatment for seriouslydisturbed residents. For example, the staff was at a lossfor how to address the problems of a girl who urinated anddefecated on the floor of her room, refused medication, andstayed in her pajamas all day. She was isolated in a cottage

without other girls for three months. A boy who had anupsetting phone call from his family hurt himself repeatedly

by rubbing a scratch on his finger raw. The staff didnt knowhow to stop himso they handcuffed him and took him toan emergency room. Psychiatric evaluations were incomplete, and staff ap-parently failed to review childrens previous medical records,the report found. Children were given powerful psychotropicmedications without proper monitoring to see if they were ef-fective or if they were causing side effects. One boy was takingsix psychotropic medications, but federal investigators couldfind no rationale for the prescriptions. Even after he bangedhis head against the wall, there was no change in the prescrip-tions, the investigation found.

Unions representing the workers at the state prisons ac-knowledge that abuses by staff occur, but say they are the re-sult of understaffing and poor training. Supervising aggressive,often violent youth is a stressful job. Staffers are frequentlyassaulted by young people in their care, the unions say. Staff-ers may overreact to childrens outbursts because of their owntrauma experienced on the job, says Jonathan Rosen, director

of health and safety for the Public Employees Federation, theunion that represents social workers, counselors, teachers andother professional staff at the OCFS facilities. Both the youth and the staff have been traumatized,says Rosen. People who have been traumatized have an in-creased reaction to normal stimulus. Its a fight or flight re-sponse. So you have an increased startle effect among the staffcombined with an increased startle effect of the youth. Wow!Its not geared toward de-escalating the situation. The situation is exacerbated by what the unions describeas chronic understaffing. They say many staff members areforced to work 16-hour shifts. Vacancies are not filled because

The Department of Justice has threatena federal takeover of the Tryon Residen

Center in Johnstown, New York, unlthe state provides adequate mental hea

services for children in custody the


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of a hiring freeze, the unions say, and turnover is high. People dont want to work there, and even when youdo get people they dont stay, says Mark Davis, a youth aide(whose function is similar to a prison guard in an adult prison)at Brookwood Residential Center, a secure facility for boysnear Albany. Davis, CSEA chair of the labor managementcommittee for OCFS, says he is required to work 16-hourdays at least three days a week. Although he says he loves thekids and the pay is goodwith overtime, some aides make$80,000 to $90,000 a yearthe hours are grueling. Up at4:15 a.m., he leaves his home at 5:30 a.m. to arrive at work at6:30 a.m.

When he works two shifts, he leaves at 10:30 p.m. and ishome by midnight. You dont really sleep, you keep lookingat the clock knowing you have to get up in four hours. Davis, who has worked in OCFS facilities for two de-cades, says he has seen a change in the kind of kids who havebeen incarcerated. When I started, you were dealing withstreet thugs, he says. It used to be 10 or 20 percent of thepopulation had mental illness. Now its 80 to 90 percent.

Youre dealing with kids who just dont understand directions.And the vast majority of people there just dont know how todeal with kids with mental health issues. You have a combus-tible mix of tired workers and mentally unstable kids.

Gladys Carrion, state commissioner of children and familyservices, has struggled to improve conditions in the juvenilecorrectional system in a time of severe budget restraints. For-merly a lawyer for Bronx Legal Services and executive direc-

tor of a foster care agency for pregnant and parenting teens,Carrion was named commissioner of OCFS soon after EliotSpitzer became governor in January 2007. She moved quicklyto hire an experienced administrator as her deputy commis-sioner: Joyce Burrell, former president of the Council of Juve-nile Correctional Administrators who had run juvenile justicesystems in Washington, D.C. and Philadelphia. Carrion alsohired Lois Shapiro, a psychologist from the state Office ofMental Health, to serve as the agencys director of behavioralhealth services, and nearly tripled the number of social work-ers and clinical psychologists on staff, increasing the numberof mental health professionals from about 20 to nearly 60.

Carrion has also moved aggressively to close empty ornearly empty facilities and to reduce the size of those thatremain, reflecting the fact that the number of children admit-ted to OCFS facilities declined from 1,938 in 2001 to 813in 2008. She has also sought to transform the culture of the

juvenile prisons from a correctional model of custody andcontrol to one based on a therapeutic model that assumes

juvenile delinquents and juvenile offenders need treatmentrather than punishment. Despite these moves, care for the mentally ill remains

woefully inadequate, advocates say. For example, OCFS ac-knowledges there is not a single psychiatrist or psychiatric

nurse on the staff of OCFS. Psychologists may offer psycho-therapy, but only psychiatrists may prescribe and adjust thepowerful psychotropic medications that some severely men-tally ill children need.

OCFS has a contract with the state Office of MentalHealth to provide mobile mental health teams of psychi-atrists and other clinicians who prescribe medication andoffer individual therapy to the severely ill children who areassigned to seven small, specialized, 10-bed mental healthunits within the OCFS facilities. However, these psychia-trists and clinicians are on the staff of nearby hospitals andare typically available to OCFS only four or five hours a week,OCFS sources say.

Psychiatric care is even more limited for the hundreds ofchildren with mental health diagnoses who are not assigned tothese seven mental health units. For example, a 2006 report bythe state inspector general found that a consulting psychiatristat the Gossett facility allocated just 90 minutes per week tomanage 34 residents taking psychiatric medications

All children entering OCFS facilities are evaluated formental illness (as well as medical issues) at reception centerssuch as Pyramid in the Bronx, where Christopher spent two

weeks. Once the evaluation is completed and a treatment planis drawn up, a child is transferred to one of the states juve-nile justice facilities, most of which are in rural areas upstate.However, staff at the facilities often fail to follow treatmentplans, sometimes because records are lost, says Rosenbloomof the Legal Aid Society.

There is also poor coordination between the profession-als charged with treating children and the front-line workers

who are with the children throughout the day. There hasbeen a huge issue with turnover of mental health staff at Lan-sing because they feel so unwanted by the line staff, saysMishi Faruqee, director of the Youth Justice Program at Chil-drens Defense Fund-New York. Children who are not assigned to mental health unitsreceive little in the way of therapy, Rosenbloom says. Ratherthan individual psychotherapy by trained psychologists,children tend to receive group counseling offered by youthdevelopment aides (who typically have a high school di-ploma) or youth counselors (who have a bachelors degree),she explains. These counselors have no specialized mental

health training. Carrion declined to be interviewed for this article, citingthe sensitivity of negotiations with the Justice Department.However, other state officials acknowledge that OCFS has dif-ficulty recruiting professional staff, particularly in facilities inrural areas. There is a national shortage of child psychiatristsand psychiatric nurses; finding professionals willing to work inremote areas of the state is particularly difficult, they say.

Carrion has sought to transform the culture of OCFS byadopting a therapeutic design called The Sanctuary Model,


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FOR YEARS, CITY OFFICIALShave sought to reduce the number of juveniledelinquents sent to institutions, relying instead on cheaper and more humane alternativesto incarceration that offer close supervision and guidance to youths in their own homesand communities. But even as the number of juvenile delinquents admitted to institu-tions has declined dramatically over the past eight years, the cost to the city of caring forthem has increased because of flukes in the formulas that divide costs between the cityand state. Now, in an attempt both to save money and to give juvenile delinquents alternativesthat child welfare experts believe they should have, the citys Administration for ChildrensServices (ACS) has asked the citys Family Court judges to send about 100 fewer youth thisyear to the private residential treatment centers run by nonprofit agencies such as Chil-drens Village, Lincoln Hall and Graham Windham. Instead, ACS has asked the judges toconsider programs to keep juveniles at home, with close monitoring and supports in theirown communities. ACS has also informed the nonprofit agencies that it has placed a capon the number of juvenile delinquents it will pay for in the privately run facilities. Family Court judges have wide discretion in deciding the fate of children under 16

who are accused of misbehavior that would constitute a crime if committed by an adult.Judges may dismiss a case, order supervision by the probation department, enroll a childin an alternative-to-placement program, or send a child to an institutionwhich may beeither a juvenile justice facility run by the states Office of Children and Family Services(OCFS) or a residential center run by a private agency. The city and state share the cost ofOCFS facilities, while the city bears almost the entire cost of sending a child to a privateresidential treatment center. The number of youths sent to OCFS facilities declined sharply from 1,938 in 2000 to 813in 2008, while the number of youths sent to private residential treatment centers increased from539 in 2000 to 813 in 2008. The overall number of children placed in either type of institu-tion has declined largely because of the expansion of alternative-to-placement programs, wherechildren receive services and support while living at home. In other words, about one-half of the young people in custody in New York are now

sent to private residential centers, up from about one-quarter just eight years ago. (See table,page 12.) The states OCFS facilities have long been considered expensive and ineffective. Thefederal Department of Justice recently documented brutal treatment of youth by staff andfound that conditions in four OCFS facilities were so bad that they violated childrensconstitutional rights. The OCFS facilities cost between $140,000 and $200,000 per per-son per year, according to Mishi Faruqee, director of the Youth Justice Program at theChildrens Defense Fund-NY. In 1999, a state government study found that 81 percentof young men and 45 percent of young women were arrested within three years of theirrelease from state juvenile facilities during the early 1990s. An OCFS study released thisyear found that 89 percent of the young men and 81 percent of the young women releasedfrom juvenile correctional facilities in New York State from 1991 and 1994 were rearrested

Private Institutions,

Public CostsJuvenile incarceration has become increasinglyprivatized, yet costs keep rising. New York City wantsjudges to keep more delinquents out of institutions.

BY KENDRA HURLEY


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When a judge does want to placesomeone, theyre more likely toplace them in a private agency.

CHILD WELFARE WATCH

by the time they were 28 years old. Moreover, 71 percent of the young men and 32 percentof the young women spent time in an adult jail or prison by age 28.

Many of the state facilities resemble adult prisons, their walls topped with razor wire. They

require young people to wear uniforms, and have a reputation of being dangerous andpoorly run.

Advocates say that many Family Court judges consider the privately run institutions to bebetter places for youth than state facilities. The private campuses are often described as bu-colic and leafy. Juvenile delinquents living there do not wear uniforms, and in some casesthey may roam about the campus and interact with children who are in foster care or whohave been sent there by the Department of Education for special education services. Thesecampuses are also closer to New York City than most state-run facilities, making it easier foryoung people to remain connected to their families and communities.

When a judge does want to place someone, theyre more likely to place them in aprivate agency, says Faruqee, I think theres a myth among judges that private agenciesare better facilities so theyll consider a private placement first.

Faruqee and other advocates warn that little is known about the outcomes of youngpeople at private facilities. The 1999 state study suggested that young people released fromprivate residential centers in the early 1990s had the same high re-arrest rates as young peopleleaving state-run facilities. In 2007, nearly 30 percent of all juvenile delinquents admitted toprivate centers were moved to the more secure state-run facilities, either because they brokethe rules, were not making progress or were presenting dangerous behavior, or because theagency was unable to provide necessary services. As a growing percentage of children areplaced in the private centers many experts expect the rate of transfers to increase. Moreover, the length of stay is longer at private campuses, averaging 12 to 14 months,about six months longer than OCFS facilities, according to the New York City IndependentBudget Office. And, unlike youth at the state-operated facilities, most teens at the privateagencies do not receive support, called after care, when they return home.

The kids in the voluntary agencies arent getting home sooner, says OCFS AssociateCommissioner Felipe Franco.It costs $80 million a year to house young people in these facilities, according to the citys

Administration for Childrens Services, which foots the bill for nearly all of it. In early 2007, the city created the Juvenile Justice Initiative (JJI), an alternative to incar-ceration program that was expected to save the city money by reducing the number of youngpeople placed in any facility. Though the program has succeeded at keeping more youth outof placement, it has not yet saved the city money. With nearly $11 million of city money in-vested in the community-based JJI each year, the city nonetheless continues to spend the sameamount on housing young people in private facilities. In fact, the cost of housing a decliningnumber of young people in OCFS facilities has increased sharply, thanks to complicated bud-get formulas and the expense of maintaining half-empty facilities.


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ADMISSIONS OF JUVENILE DELINQUENTS

AND JUVENILE OFFENDERS TO INSTITUTIONS 1998-2008

The number of court-involved youth admitted to state-run OCFS facilities has declined dramatically inrecent years, while the number sent to private residential treatment centers (such as Childrens Village

and Lincoln Hall) has increased. The city (or county) bears most of the cost of housing children in privatecenters, but the cost of OCFS facilities are shared between the city (or county) and the state.

0

500

1000

1500

1998

2000

1999 2000 2001 2002 2003 2004 2005 2006 2007 2008

OCFS Facilities

Private Residential Centers

1,938

539

813

813


Despite the steep drop in the citys use of OCFS place-ment, the costs to the city have not been reduced, saidthe citys then-commissioner of probation and corrections,Martin Horn, in a talk he gave last June at John Jay Col-lege of Criminal Justice, just before leaving the Bloomberg

administration for an academic post. He argued that be-cause of archaic and counterproductive accounting rulesdetermined by the state the cost of running this bloatedsystem has been unfairly apportioned to the localities, in-cluding the city.

One way to reduce the cost burden to the city, Horn says,is to place fewer teens in any kind of facility, private orpublic, so long as there is a safe alternative.

So last March, OCFS Commissioner Gladys Carrionand ACS Commissioner John Mattingly informed Family

Court judges that they intended to limit the number of de-linquent youth who could be placed at privately operatedresidential treatment centers. Starting April 1, for the re-mainder of 2009, they wrote, no more than 300 New York

City adjudicated delinquent youth could be admitted to avoluntary agency placement. We have determined that a target is the best meansto continue to reduce our reliance on institutional place-ments and to more fully encourage use of the alternative-

to-placement programs that have been developed, thecommissioners wrote. We are doing this to make sure thatyouth who can be served in structured community-basedprograms are not sent to more restrictive ones. Since then, ACS has raised that target slightly, butplans to keep setting a new limit each year.

There is no guarantee judges will respond to this limit byrelying more heavily on community programs. They couldsimply send young people to state-run facilities instead. How-ever, providers of community-based programs for juvenile de-linquents say they are cautiously optimistic that judges areon-board with the effort to keep more kids at home.

I would hope the judges would think that if a kid wasa good fit for a private [center], he should then be given achance in an alternative, says Jenny Kronenfeld, executivedirector of Esperanza. e


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Police arrest youth, take himto precinct. Police may:

Release youth to parents,possibly with desk appearanceticket. (If child is foster child,police should call agency.)

Send youth home (low risk).

Bring youth directly to FamilyCourt, where a probationofficer will interview him.

Send youth to alternative todetention while awaiting court

date (medium risk).

Take him to a juveniledetention facility, if court isclosed, parents unavailable, orchild is considered dangerous.

Send youth to detention whileawaiting court (high risk).

NOTE:

Youths 13, 14, and 15 accusedof crimes such as murder, rapeand armed robbery are tried asadults in State Supreme Court.All others are adjudicated inFamily Court.

At initial court appearance(arraignment),

probation uses riskassessment instrument todecide whether to:

Youths who violate terms ofprobation (skip school, misscurfew) or are rearrested (even

for minor offenses such asturnstile jumping) may be sentto OCFS facilities.

Similarly, children whoconsistently break rules atnonprofit institutions may besent to OCFS facilities.

Probation officer in FamilyCourt interviews child,parents, police and victim(complainant). Probation may:

At fact-finding (trial), prosecutor presents case withwitnesses and other evidence. Youths lawyer may crossexamine witnesses. Judge may dismiss case or make afinding against youth.

Probation does a second assessment, called an

investigation & report, on youths behavior in schooland home.

Refer case to Law Department(Corporation Counsel) for apetition in Family Court(equivalent to prosecution bydistrict attorney in CriminalCourt).

Adjust case. If victim andpolice agree, child mayoffer an apology, restitution,or community service.Adjustment may includereferral to drug treatment ormental health services.

At disposition hearing,probation recommends

1. Discharge2. Probation3. Alternative to placementOR4. Out-of-home placement ina state-run correctional facilityor in a nonprofit institutionsuch as Childrens Village.

Judge issues disposition(sentence), usually based onprobations recommendation.Judge may order youth to payfor damage to property orvictims medical expenses.

2. FACT-FINDING (TRIAL)

3. DISPOSITION (SENTENCING)

Youth stays at home,supervised by probation oralternative-to-placement

program.

Youth is sent to nonprofitinstitution.

Youth is sent to statecorrectional facility (OCFS).

1. ARREST AND PRE-TRIAL

OR:

OR:

OR:

OR:

OR:

OR:

OR:

CHILD WELFARE WATCH

How New Yorks JuvenileJustice System Works


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15/24

CHILD WELFARE WATCH

Evidence-based modelsdepend on parents andcommunities.

NEW YORK CITYS FAMILY COURT judgesare increasingly sending juvenile delin-quents to alternative-to-placement pro-grams rather than to juvenile lock-ups.Some of these alternatives are based onthree evidence-based modelsthat is,rigorous research studies have shownthat the models have been significantly

effective in reducing youth violence. Allthree keep children in their own commu-nities and work directly with parents tohelp them manage their children moreeffectively and to reduce antisocial be-havior. Each program costs significantlyless than the $140,000 or more that itcosts to incarcerate a child for a year.The citys Administration for ChildrensServices (ACS) has adapted all threemodels as part of its Juvenile Justice Ini-tiative, launched in 2007 to try to keepchildren out of foster care and institu-tional placement.

Functional Family TherapyIn Functional Family Therapy (FFT), atherapist meets with each family, oftenin their own home, once a week for threeto five months. The therapist seeks to es-tablish goodwill among family membersand to persuade them that change is pos-sible. The therapist helps family memberstrust one others intentions and moti-vations before attempting to change a

childs behavior. Practitioners are trained

to reframe a childs problematic behav-ior in more positive terms. For instance,a therapist might help a family see howthe child arrested for dealing drugs hadnoble intentions of helping the familyfinancially, even as he or she acknowl-edges the act as criminal, says SylviaRowlands, director of Blue Sky, which ispart of the Juvenile Justice Initiative. FFT was designed for a popula-tion that therapists traditionally did notknow how to helpfamilies and youngpeople whod already received a num-

ber of interventions and did not believethey could change. This model has beenproven to work well with families thathave significant family violence, saysRowlands, including children who haveassaulted parents with weapons.

Studies have found that youngpeople enrolled in FFT are far less likelyto be placed in foster care or an institu-tion than a control group, and one 2000study at the University of Utah found theprogram reduced recidivism to about 20percent, as opposed to nearly 90 percentfor the comparison group. FFT is the leastintensive of the three evidence-basedmodels. Each therapist has a caseload ofeight families.

Multi-systemic TherapyIn Multi-systemic Therapy (MST), case-workers meet with family members two tofour times a week for four to six months.The therapist will sometimes work withparents without the child present. MST ismore intensive than FFT. Each therapist

has a caseload of about four families. The

therapists are available by cellphone tothe youths and their families 24 hours aday, 7 days a week.

The therapists goal is to create ahealthy circle of influence in a childslife when a parents influence has bro-ken down, says Edward Hayes, chiefexecutive officer of Cayuga Home forChildren. Hayes compares this circleof influence to the solar system, withthe child at the center. The therapistsinfluence is like the ring where Plutowould be, says Hayes, suggesting that

ultimately a therapist has very little in-fluence over a child. The goal of therapyis to make the parents influence centralto the child, so that they can continueto manage a childs behavior for yearsto come. Developed in the 1970s, MST hasbeen the subject of several research stud-ies. Studies have found that long-termrates of re-arrest for MST participantswere 25 to 70 percent less for programparticipants than a control group, andparticipants had 47 to 64 percent fewerout-of-home placements.

MultidimensionalTreatment Foster CareOne criticism of both the MST and FFTmodels is that because they are family-driven, they can not engage young peoplewithout family members who are willingand able to participate. In Multidimen-sional Treatment Foster Care (MTFC), themost intensive of the three models, chil-dren live with a specially trained host

Keeping it in the Family

were designed, implemented and tested in other cities andstates. For the moment, alternatives to youth incarcerationin New York are still a work in progress, part of a justicesystem eager to test the watersand a city still waiting forassurances that this is the answer.

There was a time not long ago when those working in thecitys juvenile justice system believed the best way to reformyoung people who had committed crimes was to isolate themin costly institutions and treat them apart from the influencesof the streets and people that had led them to trouble. Itsa belief that Edward Myers Hayes, chief executive officer ofCayuga Home (which used to provide purely residential, in-

stitutionalized care for juvenile delinquents) now recalls witha grimace. He remembers it as faith-based work, meaninghe and his colleagues once had great faith in what they weredoing, but no proof it was effective. Back then, adds Laurence Busching, chief of the Fam-ily Court division of the New York City Law Department,

judges had only two options for young people charged withcrimeseither keep them at home and put them on proba-tion, or send them to a juvenile lock-up. More often than not,

when judges had trouble deciding between the two optionsfor particular young people, they opted to remove the youngperson to prevent them from committing further crimes athome. The system tended to err on the side of placement

when there were grey areas, says Busching.


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Proof of the systems failures arrived with a damning1999 study by the states Division of Criminal Justice Ser-vices, which found abysmal recidivism rates of young peoplereleased from residential programs. More than 80 percentof young men locked up in New Yorks juvenile correctionalcenters during the early 1990s were re-arrested within threeyears of their release, the study found. Hayes, judges, and many others in the juvenile justicesystem began viewing incarceration not as a necessary moveto give a young person a fresh start, but as an interruption, a

respite from their usual lives and pressures. They recognizedjuvenile justice institutions as schools for learning criminalbehavior from peers. And they interpreted the 1999 study tosuggest that the bond between young people and their par-ents is only weakened by time spent apart, making it evenharder for parents to exercise authority over their childrenafter they return home. Meanwhile, national researchers rigorously studied pro-grams intended to prevent youth violence. They were in searchof promising program models. Blueprints for Violence, a re-search center at the University of Colorado, determined thatsome popular programs, like Scared Straightwhich tried to

scare young people into staying on the straight and narrowactually did more harm than good. The center deemed otherless well-known models to be truly evidence-based, the so-cial science fields jargon meaning they had demonstrated,through high-quality evaluation research, that they reducedyouth violence. For a program to be considered evidence-based, Blue-prints required that participants improve not only during theprogram, but also for several years after. Program models alsohad to achieve the same positive results when replicated atother organizations.

From a pool of more than 700 programs emerged three

family-centered models, each of which would eventuallyheavily influence the juvenile justice landscape in New YorkCity. One of them, Multi-systemic Therapy (MST), was athree-to-five month intensive program for delinquents andtheir families, developed at the Medical University of SouthCarolina. A study found that a year after treatment began,only 20 percent of participants had been re-arrested, com-pared to 68 percent of non-MST participants. The effectslasted, though they were far from perfect. About two andone-half years after the program began, 61 percent of par-

ticipants had been re-arrested, compared to 80 percent in acontrol group.

Studies found that young people enrolled in FunctionalFamily Therapy (FFT), a model developed in the early 1970sat the University of Utah, were far less likely to ever be placedin foster care or in an institution for delinquents, comparedto a control group. One study also demonstrated that siblings

were still reaping the benefits of the family therapy three yearslater. (See Keeping it in the Family, page 15, for more infor-mation on each of the models.)

And a study of Multi-systemic Therapeutic Foster Care(MTFC), developed at the Oregon Social Learning Center

and the model used today at Cayuga Home, found that oneyear after treatment, young men had significantly fewer ar-rests and were incarcerated less often than boys in institu-tional care.

Although the three evidence-based models have manydifferences, each of them subverts the usual paradigm forrehabilitating young people. Theyre family-focused, with arecognition that young people dont live in a vacuum, saysMishi Faruqee, director of the Youth Justice Program at theChildrens Defense Fund-New York. Its about not onlybuilding strengths of young people, but also strengths of theirfamily and their community.

parent for about nine months, instead ofin their own homes. The host parent setsclear rules and boundaries for the young

person and monitors the teen closelyand constantly. Meanwhile, one therapistmeets with the teen regularly, helping theyoung person learn skills and attitudes toavoid crime, and another meets with theteens parents to support them and teachthem how to set rules. The program is tightly structured. Ayoung persons positive behavior is re-warded through a point system, and asteens receive points they move to higherlevels with different rules and privileges,including home visits or unsupervised

time with friends. These privileges in-crease in length as the program pro-gresses, giving the teens more freedomand, with it, more chances to practicetheir new skills in the real world. Both

Cayuga Home and the Juvenile JusticeInitiative use MTFC.

Youth who participated in MTFCwere found to have spent 60 percentfewer days incarcerated within a yearthan a control group, and had sig-nificantly fewer arrests. They also ranaway from the program about threetimes less often than youth in a con-trol group and had better school atten-dance.

New York Citys foster care systemis exploring the possibility of using MTFC

with young people who do not have fam-ilies with whom they can live and whoneed this kind of intense structure. Ca-yuga Home has applied to create 30 bedsfor this population, which, if approved,

could be up and running as soon asJune 2010, says Troy Brathwaite, directorof Cayuga Homes New York City MTFCprogram. One potential model would useMTFC with young people living in fostercare who are preparing to live indepen-dently. Another is to adapt the model towork with foster youth who have a goalof returning to their biological families.In the latter, the model would help pre-pare their families to manage their be-havior even after theyve left the fostercare system. Kendra Hurley

continued from page 16


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CHILD WELFARE WATCH

Unlike conventional therapy, which can drag on foryears, these evidence-based models are time-limited. Thegoal is for counselors to help familiesmany of whom areregular recipients of social services and supportsto be-come self-regulating. They focus on behavior rather than

insight, teaching young people to better navigate the chal-lenges of their daily livesincluding negative peer influ-ences, which are considered in these programs to be conta-gions, sometimes compared to viruses. At the same time, the counselors try to empower parentsto become authority figures capable of enforcing rules andhelping their children stay out of trouble even after the pro-gram has pulled out. All of the programs rest on the notionthat children learn these skills not in an institution, but in thecommunity, where teens and parents learn through experi-ence, through trial and error. The threat of being sent awayserves as an incentive to keep the young person engaged.

The real work is trying to really put the internal forti-tude in the family and the young person so they dont get introuble again, explains Felipe Franco, associate commission-er of community partnerships at the states Office for Chil-dren and Family Services (OCFS) juvenile justice division.The real work happens in the ecology of the community.

Barely a month before he met Jackson, Donald Franklin pre-pared to say goodbye to another young man hed taken intohis home. The boy, Jason, was a 16-year-old with braids, ashy smile and a charge of assault. He had lived with Franklin

for the full nine months of the Cayuga Home program. Heofficially graduated at a ceremony filled with balloons, tearfulspeeches, and a home-cooked meal of collard greens, beansand rice, baked ziti, macaroni and cheese, and fried chicken.That week, at a meeting where a group of host parents re-ceived coaching from a Cayuga Home counselor, Franklingot misty-eyed as he spoke about Jason, whose rough back-ground reminded him of his own.

He did just great, Franklin said. We had a ball. Ilearned a lot from him. I think hes going to do great. Imgoing to monitor him all summer. My household is his. See? We can reform a criminal, right? In nine months,

right? joked Antoinette Dawkins Grant, the therapist whocoordinates all the elements of each casethe host parent,the parents therapist and the young persons therapist. So intwo weeks youll take another kid, right? Franklin paused for a long time. Im thinking about it,he finally said. Dont think too much!

I learned a lot from him, Franklin continued. You re-ally need your parents. I was showed how much he loved hismother. Youre going to miss him? the therapist asked.

Yes, Franklin said wistfully. Im always going to check

A family-focused approachgets one young mother-to-be

in synch with her parents.Shayla Gomez* is a soft spoken young woman who issix-months pregnant. When she was 13the same yearher brother was murderedShaylas uncle began molest-ing her. Soon, she began acting out, and Shayla says theFamily Court sent her to the residential campus of Leakeand Watts in the Bronx following charges of fighting androbbery. Shayla does not remember getting any therapythere.

Eventually, Leake and Watts sent Shayla to a grouphome in Staten Island where she began therapy. It wasgood to talk to somebody, she recalls, but she doesnt

think it helped improve her life. Back then, she adds, shehad two modes of communicating with her parentsone was to shut down, and the other was to curse themoutand the therapy did nothing to help break the si-lence and anger that had come to define her relation-ship with them. She never really did anything with the family, Shaylaremembers about that therapist. She just spoke to me. Eventually Shayla went to live with her father, butshe had not been home five months before things escalat-ed. Shayla got pregnant; her mother threatened to get thebabys 19-year old father beat up and arrested for statu-tory rape; and her father kicked Shayla out of the house.

Once again, the court got involved, this time sendingShayla to Cayuga Home, where she began living with ahost family. As specified by Cayuga Homes multi-systemic thera-peutic foster care model, it is no longer just Shayla doingthe hard work of therapy. Her parents are now requiredto meet with a therapist as well, and to stay involved inShaylas life. Cayuga Home actually loses money from itscontract with OCFS if one of its therapists does not makecontact with a parent each week. For Shayla, this fam-ily approach has worked wonders. Now she says she feelsless like a problem child, and more like part of a familysomething that is especially important to her as she imag-ines becoming a mother. Now, when Shayla feels herself

getting so angry at her mother that she wants to shut herout, she writes her a letter, instead.

Now me and my mom, we just got back on the samepage, she says. Now I speak with her every single day.When I have the baby, I cant shut down. Meanwhile, Shaylas mother has begun talking withthe father of Shaylas baby, preparing for the babys birth.And perhaps most significant, Shaylas two parents nowtalk, as well, often conferring about their daughter. Shaylasees that as nothing short of amazing. Kendra Hurley

*Not her real name.

On the Same Page


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up on him. He wants to be an accountant and I think he cando it. Hes very good at math. Now, Franklin hopes he can be as successful with Jacksonas he was with Jason.

Jackson, two weeks into the program, does not considersuccess to be likely, though he knows that if he messes up he

may be placed in a juvenile lock-upsomething he desperate-ly wants to avoid. Already he has been pegged for giving lipall day to Cayuga Home staff, Grant says, and hes gotten introuble for taking change off a table to buy a sandwich whileFranklin was in the shower. That would have been perfectlyacceptable behavior in his fathers Bedford-Stuyvesant home,but not in Franklins. In my home, Franklin explained, youhave to ask for permission to come and go. You can have what-ever you want, but you have to ask. Rules are different here.

Jackson had been in a therapeutic program before, and sofar the Cayuga Home staff seemed no different from all theother counselors who had tried to help him. Records show

Jackson had a poor track record in a previous, more tradition-al program he attended sporadically for about three years fol-lowing his first arrest. It was a waste of time to me, Jacksonshrugs. Being there got me madder, so the more I showed Ididnt learn, the longer I had to stay there. At least there, he says, he could leave anytime he wanted.Not so here. Franklin logs every phone call Jackson makesor receives, and at school Jackson has to get signatures fromeach of his teachers to prove he attended class. Jackson

who quickly earned the nickname of Dennis the Menace atCayuga Home for being hyper and disrespectfulcant gainprivileges, like the right to hang out with friends, without

first proving himself responsible by abiding Franklins rules. Jackson and his father talk almost daily on the phone,which is expected of all the kids and parents in the programto help maintain family bonds. But they see each other onlyat the Cayuga Homes office. When Jackson earns more privi-leges he will spend every other weekend at his fathers house,

where the two of them will put to practice the skills they arelearning. Jackson cant wait for home visits to start. I want tosleep in my bed, he says. I want to step in my shower.

The juvenile justice system is historically more concerned

with public safety than with the ability of parents to supportand guide their teenage children. Seeing the value in directingservices to caregivers has been an adjustment for some judges,

who are the ones ultimately responsible for deciding whichkids are locked up and which stay home. It is asking them tothink like social workers. Although its nice for judges to hear that the parent isresponding to support and services, what they really wantto know is whether the kid is doing what theyre supposedto be doing, says Leslie Abbey, executive director of the

Juvenile Justice Initiative, which is the largest alternative-to-incarceration program in the city and is based at the citys

Administration for Childrens Services. Bridging that gap ischallenging.

This is exactly the reason why the Cayuga Homes board-ing home program is underutilized, suspects Troy Brathwaite,its director. Though it is small, with the capacity to work withonly 20 young people and their families, only 12 teens were

enrolled as of early this year. By October, the number had ris-en to 18. Brathwaite says that even convincing OCFS, whichfunds the program, to take the chance of sending young law-breakers here has been an uphill battle.

Cayuga is the most expensive of the alternative programs,costing about $60,000 per child when at full capacity. Otherless comprehensive programs are far cheaper: the Juvenile Jus-tice Initiative estimates its cost at about $17,000 per child,and another program, Esperanza, based very loosely on theMST model, is somewhat less for a six-month program. Bycomparison, the annual cost of housing a teen in an OCFSfacility is at least $140,000, according to city officials.

Directors of Esperanza and the Juvenile Justice Initiativesay they sometimes struggle to convince judges that sendingyoung people to their programs rather than juvenile correc-tional facilities will not lead to an uptick in criminal activity.Sometimes the court feels as though they gave the youthenough chances, and they have to react to certain bad behav-ior or else lose their credibility, explains Abbey. Esperanza, started in 2003, works with up to 216 kids ayear. The Juvenile Justice Initiative (JJI), launched in 2007, di-verts about 280 young people from incarceration. Both work

with teens initially recommended for placement in a juvenilecorrectional facility. Their crimes often involve harming other

people, sometimes violently. About 57 percent of the youngpeople participating in JJI in 2007 had been arrested for com-mitting a crime against a person, such as assault or robbery, andone-third of Esperanza participants had been charged with aviolent offense. Most of these were misdemeanor-level crimes,not felonies. But they are often serious offenses nonetheless. The Juvenile Justice Initiative is a collection of programsusing different evidence-based models. When the Administra-tion for Childrens Services (ACS) first created the initiative, theagency sought to reassure stakeholders in the system, includingFamily Court judges, that they would use evidence-based pro-grams that were scientifically proven to reduce youth violence.

Judges and the City Council agreed to work with them, butsaid they thought the MST models three-to-five month time-line was too short, and that kids diverted from jail needed moretime in a program. So program developers tweaked MST tomake it last as long as seven months for each young person.

Its great to find options on how to keep the young peo-ple in the community as long as its consistent with publicsafety, says Busching, who oversees the citys prosecutors inFamily Court. He adds that these programs are especially ap-propriate for young people charged with misdemeanors, whomake up a fast-growing percentage of the number of youngpeople brought to court each year.


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CHILD WELFARE WATCH

As acceptance of the programs has grown, judges havebegun permitting a few very young people suspected of com-mitting crimes with weapons, such as 13-year-old Jackson,to participate, so long as they are confident that parents orcaregivers will closely monitor the young people along withprogram staff.

Not everyone is convinced these New York experiments willreap the same results that evidence-based programs have inother cities. On the surface, extending the length of the MSTmodel was a small concession. But practitioners of much-tested models warn that small changes can have serious con-sequences; these models are only proven to work if programsstay faithful to the original. Hayes compares it to a cookierecipe. You may come up with something better, but youmay come up with a disaster, he says. When ACS added an extra few months of therapy to as-suage judges and victim advocates, there was no guarantee

they would get the results they wanted, warns Sylvia Row-lands, director of Blue Sky, a program at New York Foundlingthat is part of the Juvenile Justice Initiative. All of the modelsoperate on getting families [to be] independent of services,says Rowlands. Letting them stay too long means they canbuild reliance [on the program]. Officials have tracked participants in Esperanza and JJI

since the programs started. Nonetheless, the city has sharedonly general statistics to show how well the programs are per-forming. Only Blue Sky is planning a close evaluation of out-comes, and that wont be available for some time.

In the absence of such a thorough assessment, theres al-ways the danger that a single bad story could derail the work.All it will take is one major disaster, one case that blows upin the media, and this could come apart, says a city official

who supports JJI but would only speak anonymously.In fact, one recent case came close, raising concerns

voiced by Judge John M. Hunt of Queens Family Courtwhen he reviewed a teenage boys probation violation in July.

A host parent oversees the homework of daughter and a Cayuga Home participant, who w

be part of the household for nine mont

Photo:ArpanMunier


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Ronald B., a 17-year-old young man, had first been ar-rested at age 15 for assault and menacing a witness. Insteadof sending him upstate, the court put Ronald on probation.

When he violated probation for not going to school the fol-lowing year, the court sent him to the Juvenile Justice Ini-tiative. In January 2009, while still enrolled in the program,

he and an accomplice wrapped T-shirts around their faces,forced their way into an apartment and threatened a woman

with handguns. After they forced her to the floor, they robbedthe apartment and fled. By the time Judge Hunt reviewed the case, the teen hadbeen arrested, convicted and sentenced to an adult prisonupstate. When standard probation supervision failed, Multi-sys-temic Therapy through the Juvenile Justice Initiative program

was implemented. Unfortunately, for reasons which maynever be known to this Court, the juveniles criminal activityprogressed to the point where he committed an armed felony

offense which ultimately led to his incarceration in a correc-tional facility, Judge Hunt wrote about the case. While this

juvenile delinquency proceeding has reached its conclusion,those administering the JJI/MST program are encouragedto thoroughly review the circumstances of this case so thatstructural and programmatic problems can be identified andchanges implemented where necessary. Recently, JJI determined that about 35 to 40 percentof its participants were rearrested while participating in theprogram in 2008. The vast majority of these arrests werefor minor offenses, like rollerblading on a subway platformor jumping a turnstile. Abbey views such arrests as one ele-

ment of the participants learning processes. The rehabilita-tion trajectory is not going to be straight with kids, she says.Perfection is not going to happen on day one or month oneor month two. The important issue is progress.

Rowlands of Blue Sky agrees. We know how bad place-ment is, she adds. We know kids are coming back madderand doing more stuff. Similarly, Esperanza reports that among young people

who have been enrolled in the program, 55 percent haveavoided incarceration for at least the following two years.

While these results are far better than for young people whoare sent to institutions in the first place, many young people

still fail the program. For his part, prosecutor Busching would like to see moredata. In evaluating the success of the programs and in de-termining which respondents are appropriate for them, a keyfactor in making those decisions will be a review in data. And

we need to have as much data as possible in making thesedeterminations.

At Cayuga Homes weekly meetings, host parents often com-plain about the young peoples parents. He just loves to speakto his moms, Franklin tells the group about Jackson at one

recent meeting. It makes his day. But too often when Jack-son calls his mother, who long ago lost her legal right to bea parent to her son, she cant be bothered, says Franklin. Shesays shell call back, then doesnt. It just kills him, Franklinsays, shaking his head, as other host parents murmur support.It gets him down, he says.

Yet Franklin has nothing but praise for Jacksons father,who has quickly become Cayuga Homes model parent, neverfailing to travel from Brooklyn to the Bronx for his weeklytherapy sessions. Sometimes he takes his son to lunch. Hes areal gentleman, Franklin says.

After two months in the program, Jackson is doingwell. Though Franklin and Cayuga staff think he needs tokeep working on communicating respectfully with adultsand staying away from negative peers, Jackson abidesby Franklins house rules without complaint and has evenstarted doing chores without being asked. Whenever theresa dirty plate lying around, he washes it, basking in Frank-

lins praise.Clean dishes might sound trivial when the task at hand is

the rehabilitation of a young teen accused of robbery at gun-point. But Franklin and the other host parents describe their

work as strong parenting, centered around the kind of mun-dane details that many parents of teens must grapple with:how to get a young person to do their chores, stop cursing, orstart dating nicer boys or girls. At Cayuga Home, instead ofone or two parents mulling endlessly over these details, its anentire team, with lots of support. Jackson, for his part, says he now likes the program andits structured approach. Hes bonded with Franklin and has

started reading The Autobiograhy of Malcolm Xat his host fa-thers suggestion. On weekends back home, hes eager to showhis father all hes learning, surprising his dad by taking out thetrash or making his bed.

Jackson has noticed that his father is learning new skills,too. In the past, the two would have yelling matches that lednowhere. On a recent visit, when Jackson came home pasthis 8 p.m. curfew, his father tried something new. He stayedcalm and reminded Jackson that there were consequences tobreaking the rules. At the suggestion of Cayuga Home staff,

Jacksons father has also begun drawing on the support of hissiblings who live nearby, enlisting them to help keep Jackson

on track.Were both changing, says Jackson. Hes trying towork with me. I think it builds a better relationship. What if someday his friends try to lead him into trouble?Ill walk away, he says. Then he adds, Or go to the otherside of the street. Then, with a moment of reflection, hesettles on a remarkably realistic answer. I would have to be inthat position, he says. I would say I would walk away now,but I would have to be in it to really know.

Franklin prefers optimism, imagining only bright thingsin Jacksons future. If he stays away from negative peers, hesays, he is going to shock everyone. e


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CHILD WELFARE WATCH

Enhanced Supervision Program (ESP)The Enhanced Supervision Program (ESP), run by the citys Department of Probation, providesmuch closer supervision than a typical youth on probation receives. ESP probation officers workwith all family members, not just the probationer. They maintain a caseload of 25 cases and arerequired to have more frequent contact with the youngster and the juveniles family, school andtreatment programs than they would under standard probation. Youngsters assigned to ESPare required to perform 60 hours of community service. ESP generally lasts nine months.

EsperanzaEsperanza offers six months of family therapy and crisis management. Under a contract withthe citys Department of Probation, counselors work with families in their homes and helpset up a system of rules, reward, and consequences. Esperanza helps families develop goalsthat build on personal and family strengths while also addressing areas they would like tochange. Young people continue to attend their school and meet regularly with a probationofficer. Launched in 2002 as a project of the Vera Institute, Esperanza became an indepen-dent nonprofit organization in 2006.

Esperanza is not equipped to take children who are abusing drugs, who have majormental illnesses, or who are sexually aggressive. The program can only take children whohave a family member willing and able to participate.

Juvenile Justice InitiativeThe Administration for Childrens Services (ACS) launched the Juvenile Justice Initiative(JJI) in 2007. The program emerged within ACS largely because the agency is responsiblefor the full cost of placement for juvenile delinquents sent to nonprofit residential treat-ment centers by the courts. With JJI, the agency offers judges an alternative to placement,in hopes of making better use of limited resources by providing services in communitiesrather than institutions. ACS has contracted with social service agencies in the Bronx, Queens, and Staten Islandto provide a modified version of Multi-Systemic Therapy (MST). (See Keeping it in the Family,page 15.) Therapists meet with families in their homes several times a week to help reestablishparents as authority figures. The therapists are available by cellphone to the young people andtheir families 24 hours a day, 7 days a week. These programs are available to juvenile delin-quents who have family members willing and able to participate. Most of the JJI programs arenot available to youngsters with mental health issues or who abuse alcohol or drugs.

What are the

alternatives tojuvenile institutions?LAST YEAR, ABOUT 5,900 CASESwere pursued against juvenile delinquents in Family Court. At a fact-

finding hearing, the citys Department of Law presents the case before a judgeand if the judge finds for the

prosecution, the case moves to its disposition phase. At this point, the court and city probation officers must decide

whether to send the young person to an institution or to an alternative program, assign him or her to the supervision

of the city Department of Probation, or simply set conditions for his or her release to family members.

In 2008, the courts sent almost 1,100 juvenile delinquents to alternative-to-placement programs. Below areshort descriptions of the most common of these programs:

CHILDREN ADMITTED IN 2008: 633COST PER CHILD: $3,743

CHILDREN ADMITTED IN 2008: 115COST PER CHILD: $13,000 PER CHILD.

CHILDREN ADMITTED IN 2008: 278COST PER CHILD: $17,000


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The exception is Blue Sky, a project of New York Foundling, which contracts with ACS to providea range of services to families in the Bronx and Manhattan, including some that are significantly moreintensive than those available from the other agencies. Blue Sky employs all three of the evidence-basedmodels of family therapy. (See Focus on the Family, page 15.) Depending on the need, families maymeet with a therapist as little as once a week or as often as four times a week. A particularly needy childmay be placed with a host family while therapy continues with the biological family. Blue Sky is one

of the few programs in the city equipped to serve children with severe mental health needs through atherapy called the MST-psychiatric adaption team. Blue Sky serves about 130 families in Manhattan and the Bronx, about half of whom have either achild or a parent with mental illness. New York Foundling and ACS have applied for a grant to expand theMST-psychiatric program to other boroughs. About 60 children in Brooklyn and Queens who are rejectedfrom alternative-to-placement programs each year solely because of mental illness; the new programwould serve them as well.

Cayuga Home Host Family ProgramJuvenile delinquents live with specially-trained host parents for nine months while a team of thera-pists work with both the teens and their families. (See Homes for Teens, Not Lock-Ups, page 14.)Young people learn to manage their behavior by earning privilegeslike home visitsthrough a highlystructured point system. Families learn how to help manage their teens behavior. Also called Multi-

dimensional Treatment Foster Care (MTFC), this is the most expensive ATP program. (See Keeping itin the Family, page 15.) Right now, the program can only engage young people whose families agreeto participate. The program does not take sex offenders or young people with serious mental illnessor substance abuse issues. The program, under contract to the states Office of Children and FamilyServices (OCFS), serves youth who are in detention, at risk of placement within the states juvenile cor-rectional system, or returning home from a correctional placement.

SNAPSHOT OF JUVENILE JUSTICE IN NYC 2008

TOTAL JUVENILE ARRESTS 12,558(INCLUDES JUVENILE OFFENDERS, WHO ARE TRIED IN CRIMINAL COURT)

JUVENILE MAJOR FELONY ARRESTS (FY 2009) 4,207

JUVENILE DELINQUENCY CASES ADJUSTED 3,569(VICTIM AGREES TO APOLOGY OR RESTITUTION, CASE NOT BROUGHT TO FAMILY COURT)

CITY PRESSES CHARGES IN FAMILY COURT 5,905

COURT SENTENCES YOUTH TO PROBATION 2,452(INCLUDES FOLLOWING ALTERNATIVES-TO-PLACEMENT)Enhanced Supervision Program 633Juvenile Justice Initiative 278

Esperanza 115Other ATP 71

COURT ORDERS CHILD PLACED IN NONPROFIT RESIDENTIAL TREATMENT CENTER 547

COURT ORDERS CHILD PLACED IN OCFS CORRECTIONAL FACILITY 461(INCLUDES JUVENILE OFFENDERS SENTENCED FOR MAJOR CRIMES)

JUVENILE OFFENDERS, SENT TO SECURE FACILITIES 120

Data from citys Criminal Justice Coordniator, the New York City Mayors Management Report, and OCFS.

Compiled by the NYC Independent Budget Office for Child Welfare Watch.

CHILDREN ADMITTED IN 2008: 29COST PER CHILD: $60,000.


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FOSTER CARE SERVICES

NUMBER OF CHILDREN ADMITTED TO FOSTER CARE: 6,201 4,813 6,213 7,132 7,460 7,474

The number of children placed in care remained consistent three years after the Nixzmary Brown murder.

NUMBER OF CHILDREN DISCHARGED FROM FOSTER CARE: 8,854 7,907 6,625 7,219 7,587 7,557

Discharges kept pace with admissions.

TOTAL FOSTER CARE POPULATION (ANNUAL AVERAGE): 22,082 18,950 16,645 16,854 16,701 16,440

The number of children in foster care declined slightly.

MEDIAN LENGTH OF STAY FOR CHILDREN BEFORE RETURN TO PARENTS (MONTHS): 7.6 8.2 10.3 11.5 9.3 8.3

Children entering foster care for the first time returned home more quickly than in the past.

PERCENTAGE OF CHILDREN WITH REUNIFICATION GOAL (PREVIOUS CALENDAR YEAR): 44.0 44.3 45.5 55.3 51.3 51.6

More than half of the children in foster care in December 2008 were expected to return home.

PERCENTAGE OF SEPARATED SIBLINGS (PREVIOUS CALENDAR YEAR): 51.4 50.7 49.3 47 48.3 44.2

The rate of siblings who are separated is at an all-time low.

RECIDIVISM RATE (%) (PREVIOUS CALENDAR YEAR): 12.8 13.6 11.5 9.1 10.0 12.3

The percentage of children returning to foster care within two years of discharge increased.

PERCENTAGE OF FOSTER CHILDREN IN KINSHIP CARE: 26.0 24.6 24.3 28.3 32.3 33.9

The proportion of children in kinship care continued to increase.

PERCENTAGE OF FOSTER BOARDING HOME PLACEMENTS IN BOROUGH OF ORIGIN: 72.4 76.8 74.1 65.7 54.0 57.8

The rate of in-borough placements rose slightly in FY 2009.

PERCENTAGE OF FOSTER BOARDING HOME PLACEMENTS IN COMMUNITY DISTRICT: 23.7 21.7 17.8 13.5 11.2 13.6*

*This figure is for only January through March 2009. Data for the full year are not available.

FY 04 FY 05 FY 06 FY 07 FY 08 FY 09

REPORTS OF ABUSE AND NEGLECT: 51,477 50,251 62,585 64,190 64,572 64,748

The pace of reports to the state hotline remained near historical highs.

PERCENTAGE OF REPORTS SUBSTANTIATED: 33.7 32.6 36.7 39.8 39.9 42.1

Child protective services more frequent validation of suspected abuse or neglect appears to be an enduring change.

PENDING RATE: 5.9 6.1 7.5 6.0 5.4 4.8

The monthly average of new cases per child protective worker was at the lowest it has been in over a decade.

AVERAGE CHILD PROTECTIVE CASELOAD: 12.1 12.1 16.5 15.1 11.6 9.6

Caseloads were at the lowest theyve been in over a decade.

FAMILIES RECEIVING ACS COURT-ORDERED SUPERVISION (ACTIVE, JUNE): 2,289 1,947 2,689 3,570 3,865 3,682

Court orders for families to be supervised by child protective services have become a more routine practice.

CHILD FATALITIES IN CASES KNOWN TO ACS (CALENDAR YEAR): 33 30 44 41 49 NA

PROTECTIVE SERVICES

PERCENTAGE OF CHILDREN WITH ADOPTION AS A GOAL: 38.8 39.8 37.4 31.0 29.2 28.0

With fewer children in foster care, a smaller proportion moved toward adoption.

NUMBER OF FINALIZED ADOPTIONS: 2,735 2,364 1,831 1,562 1,472 1,344

Finalized adoptions continued to decline.

AVERAGE TIME TO COMPLETE ADOPTIONS (YEARS): 3.6 3.4 3.5 3.4 3.4 3.2

ADOPTION SERVICES

FAMILIES RECEIVING ACS-CONTRACTED PREVENTIVE SERVICES (MONTHLY AVERAGE): 11,622 11,542 11,695 12,889 13,868 13,785

The number of families receiving preventive services each month flattened out.

NUMBER OF CHILDREN IN PREVENTIVE CASES (ACTIVE, JUNE): 30,033 29,405 28,663 30,358 33,022 31,584

Preventive programs continued operating at full capacity.

PERCENT OF PREVENTIVE CASES REFERRED BY ACS: 50 49 52 68 76 68

After spiking in FY08, the rate of new cases referred to general preventive agencies from ACS declined.

PREVENTIVE SERVICES

All numbers above reported in NYC fiscal years unless otherwise indicated. Sources: NYC Mayors Management Reports; NY State Office of Child

and Family Services Monitoring and Analysis Profiles; NYC Administration for Childrens Services Updates and Performance Repo

A six-year statistical survey monitoring New York Citys child welfare syste

WATCHING THE NUMBER


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CITY FUTURES, INC.120 Wall Street, 20th FloorNew York, NY 10005

NON-PROFITU.S. POSTAGEPAIDNew York, NYPERMIT #3372

CHILD WELFARE WATCH ADVISORY BOARD

David Tobis, Fund for Social Change, ChairMichael Arsham, Child Welfare Organizing ProjectLinda Lausell Bryant, Inwood House

Bernadette Blount, Child Welfare Organizing ProjectAndy Breslau, City FuturesJohn Courtney, Fund for Social ChangeMario Drummonds, Northern Manhattan Perinatal PartnershipJames Dumpson, New York Community TrustKara Finck, The Bronx DefendersEdythe FirstMichael Garber, ConsultantMarty Guggenheim, New York University School of LawKeith Hefner, Youth CommunicationGiselle John, Voices of YouthJeremy Kohomban, Childrens VillageJack Krauskopf, Baruch College School of Public AffairsBetsy Krebs, Youth Advocacy CenterMadeline KurtzGary Mallon, Hunter College School of Social Work

Nora McCarthy, RiseMagazineKathy McGladeLawrence Murray, National Center on Addiction

& Substance AbuseSharwline NicholsonSharonne Salaam, People United for ChildrenLauren Shapiro, South Brooklyn Legal ServicesAndrew White, Center for NYC Affairs, The New SchoolFred Wulczyn, Chapin Hall Center for Children

CHILD WELFARE WATCHis a project of theCenter for New York City Affairs at MilanoThe New School for Management and UrbanPolicy and the Center for an Urban Future.

Reported and edited by Andrew White,Clara Hemphill and Kendra Hurley, Center forNew York City Affairs

Graphic Design: Design Confederation

Photography: Arpan Munier

Cover Graphic: Jeffrey Gladstone

Child Welfare Watchis made possible thanksto the generous support of theChild Welfare Fund, The Ira W. DeCampFoundation, the Viola W. Bernard Foundationand the Sirus Fund

72 Fifth Avenue, 6th FloorNew York, NY 10011(212) 229-5418www.centernyc.org

The Center for New York City Affairs is anonpartisan institute dedicated to advancinginnovative public policies that stengthenneighborhoods, support families and reduceurban poverty.

Center for an Urban Future120 Wall Street, 20th FloorNew York, NY 10005(212) 479-3344www.nycfuture.org

The Center for an Urban Futu

child welfare watch: a need for correction

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