Juvenile Justice and Delinquency Prevention JUSTICE

ENT OF TM JU R ST U.S. Department of Justice A I P C E E D

O J C S Office of Justice Programs F A V M F O A I N C I S R E J BJ G O OJJ DP O F PR Office of Juvenile Justice and Delinquency Prevention JUSTICE

Volume I • Number 2 Fall/Winter 1993 JUVENILE JUSTICE

A National Agenda for Children: On the Front Lines With Attorney General Janet Reno

Also ◆ National Youth Service ◆ Rejuvenating Juvenile Justice ◆ 1993 Gould-Wysinger Awards

A Journal of the Office of Juvenile Justice and Delinquency Prevention From the Administrator

It is easy to see why the Attorney General makes an impression wherever she goes. It is not simply what she says. It is also the conviction with which she says it. Attorney General Janet Reno began our interview by stressing that “it is imperative that we look beyond the role of the prosecutor and understand what causes delinquency problems in the first place.” I was immediately struck by two facts. First, with Janet Reno everything about A National Agenda for Children is imperative. Sec- ond, our Nation’s chief prosecutor is concerned about prevention, especially when it comes to young people. You will want to read every word from our candid and committed Attorney General. Prevention of delinquency requires a broad approach, what Robert Smith calls a “denominator” approach. As In the Service of Youth illustrates, National Youth Service is an effective way to provide young people with essential opportunities to participate, learn, earn, and serve their community and country. Restitution, as Thomas English points out in TQM and All That Jazz is another way to involve juveniles in community service, but it is just part of what we must do to rejuvenate juvenile justice and rescue it from the outdated and outmoded bureaucracy of top-down management. Finally, I am pleased to announce The 1993 Gould- Wysinger Awards. Pam Allen of the Coalition for Juve- nile Justice provides us a thumbnail sketch of the winners. As we approach the New Year, I take this occasion to wish you the joys of the season and every success in the year ahead in our common concern: a better year for juveniles and their families.

John J. Wilson Acting Administrator Office of Juvenile Justice and Delinquency Prevention JUVENILE Office of Juvenile Justice and Delinquency Prevention

JUSTICE Acting Administrator Volume I • Number 2 Fall/Winter 1993 John J. Wilson

Executive Editor FEATURES Earl E. Appleby, Jr.

A National Agenda for Children: On the Front Lines Assistant Editor With Attorney General Janet Reno ...... 2 Catherine M. Doyle “It is essential that we view a child’s life as a continuum and provide a support system Managing Editor for those times when the family is unable to provide that support on its own.” John D. Kotler

In the Service of Youth: Juvenile Justice Staff A Common Denominator by Robert L. Smith ...... 9 David L. Schmidt A youth service program provides an effective way for all American youth to make Marilyn Silver Joellen M. Fritsche Talbot significant contributions to society and to be rewarded for them.

TQM and All That Jazz: Rejuvenating Juvenile Justice by Thomas R. English ...... 16 Juvenile Justice is published by The public bureaucracies in which juvenile justice programs are administered mirror the Office of Juvenile Justice and Delinquency Prevention the outdated, top-down management of mass-production industrial economies. (OJJDP) to advance its man- date to disseminate informa- The Gould-Wysinger Awards: tion regarding juvenile A Tradition of Excellence by Pam Allen ...... 23 delinquency and prevention Established by OJJDP in 1992, the Gould-Wysinger awards honor two programs (42 U.S.C. 5652). OJJDP professionals who dedicated their lives to helping young people. Points of view or opinions ex- pressed in this publication are those of the authors and do not IN BRIEF necessarily represent the official positions or policies of Justice Matters OJJDP or of the U.S. Depart- Safeguarding Our Youth ...... 29 ment of Justice. Profile of Juvenile Victims ...... 30 RECLAIM Ohio ...... 31 The Office of Juvenile Justice Across Our Desk and Delinquency Prevention Reinventing Juvenile Justice ...... 32 is a component of the Office of Justice Programs, which also OJJDP Publications includes the Bureau of Justice Announcing the OJJDP Summary Series ...... 33 Assistance, the Bureau of Jus- Comprehensive Strategy for Serious, Violent, and Chronic tice Statistics, the National Juvenile Offenders...... 34 Institute of Justice, and the Office for Victims of Crime. ORDER FORM ...... 35 Juvenile Justice

A National Agenda for Children: On the Front Lines With Attorney General Janet Reno

Juvenile Justice: Attorney General got to make a major effort against teen Reno, you have called for a National pregnancy in America. And we’ve got to Agenda for Children. Could you please offer parenting skill courses in every describe the broad outlines of such an school so that children who have been agenda and how it would affect children raised without quality support from par- in the justice system. ents learn how to give it to their own children. Attorney General Reno: I feel very strongly that it is imperative that we look Second, we must provide proper preven- beyond the role of the prosecutor and un- tive medical care for all children. I’m derstand what causes delinquency prob- troubled that in this Nation a 70-year- lems in the first place. I don’t think that old person can get an operation to ex- there is any one point at which you can tend his or her life expectancy by 3 years, intervene in a child’s life to make a sig- but the family of a small child with no nificant difference. Instead, it is essential other health care benefits may make too that we view a child’s life as a continuum much money to be considered eligible for and provide a consistent support system Medicaid. I think that every child in for those times when the family is unable America should have current immuniza- to provide that support on its own. tions, and every pregnant woman in America should have access to proper There are many things we can do that preventive medical and prenatal care. are far more cost-effective than waiting for the crisis of delinquency or crime to Third, I strongly support educare pro- occur. First, we need to develop family grams—and by educare I mean safe, con- preservation programs that offer support structive child care for all children on a to families before they are in a crisis situa- comprehensive basis, not just for those Janet Reno is the 77th Attorney tion so they are much more likely to stay whose parents can afford a child care General of the United States. This interview was conducted for Juve- together through life’s difficulties. We’ve center or live where one is readily avail- nile Justice by John J. Wilson, got to make sure that our parents are old able. However, these types of programs Acting Administrator of the Office enough, wise enough, and financially are especially important for at-risk of Juvenile Justice and Delin- quency Prevention. able to take care of their children. We’ve

2 A National Agenda for Children

children who need an opportunity to develop as strong, constructive human beings because—for whatever reason—they lack proper supervision in the home. Educare programs should be linked with expanded and improved Head Start programs that are available to all children in need. I believe that educare programs for small children are essential because the ages of 0 to 3 are the most formative time in a child’s life—a time when child development experts say that children learn the concept of reward and punishment and develop a conscience. Fourth, I support conflict resolution programs in our public schools to teach our children how to resolve conflicts peace- fully. We have accomplished a great deal in developing education and prevention programs, such as DARE [Drug Abuse Resistance Education], that can deter children from drug use, and I think that Attorney General Janet Reno we can do the same with respect to violence and guns in the school. afternoon and evening programs for chil- Fifth, we must free our teachers’ time to dren who are unsupervised because par- teach. I think it would be very effective ents are working or otherwise to develop full-service schools in areas unavailable. Such programs, including where there are a significant number of those that do not involve sports or recre- children at risk—that is, schools that ation, could help our children get started have social service providers on campus in the right direction. to address the social needs of the child. We also need to look at our curriculum to make sure we’re doing everything we It is imperative that we look beyond the can to make school relevant and interest- ing for our children. We should develop role of the prosecutor and understand school-to-work programs that provide what causes delinquency problems in the career tracks that students can pursue and know that when they graduate they first place. will have developed a skill that will enable them to earn a living wage. Early assessment of interest and aptitude Sixth, truancy prevention programs should be used to chart an educational should be developed in every elementary and work experience program, and sum- school so that at the first sign of truancy, mer job programs should be linked with police, social service agencies, and the educational and work experience pro- school join together to identify the cause grams as part of a comprehensive effort to and do something about it before it is too prepare our children for the workplace late. Unfortunately, there is a tendency of tomorrow. We also should develop for police to take a truant child to school,

Fall/Winter 1993 3 Juvenile Justice

and if the parent doesn’t come for the too late to intervene. This occurs in the child, the principal often sends the child juvenile justice system not because of a home without investigating why the lack of concern, but because the system is child was truant. I would love for police absolutely overwhelmed. officers, social service counselors, and I would love to see us develop a means of public health nurses to make a home visit identifying those children who are at and find out why students were truant greatest risk of continued delinquency. In and what could be done to intervene those cases we must do everything we with them. can to determine the cause of the problem and what we can do about it. A risk and needs assessment would allow us to The juvenile justice system tends to wait determine what programs would best ad- until the child has been delinquent two or dress the needs of children who may be at greater risk of continued delinquent three times before evaluating the child’s behavior. However, we must take care needs and developing a comprehensive that we do not label children uninten- tionally or inappropriately because many intervention program. children are going to turn out okay. Juvenile Justice: In fact, statistics show that 50 percent of the juveniles who Finally, employers should do everything have contact with the juvenile justice they can to put the family first in the system for delinquency never come back workplace so that parents have sufficient a second time. The trick is to figure out time to care for and spend quality time which 50 percent. with their children. Attorney General Reno: That is the Juvenile Justice: According to OJJDP’s great difficulty because some people want Conditions of Confinement study, three to do nothing and wait to see which of out of four confined juveniles are de- those juveniles come back. However, tained in overcrowded facilities. Over- I think that approach runs the risk of crowding often results in violence against allowing the behavior to become staff and other juveniles and an increased ingrained. number of attempted suicides. It also gives rise to a lot of other problems, and Juvenile Justice: Often it’s not two or security becomes an overriding concern three times, it’s seven or eight times. It’s of the institution. What do you think seven or eight stolen cars or seven or should be done about this issue? eight aggravated assaults before anybody does anything, and by then not only has Attorney General Reno: Obviously, one a delinquent pattern of behavior devel- of the first steps that can be taken is to oped, but juveniles have stopped taking develop the type of preventive programs the system seriously. That’s why OJJDP’s I just described, but beyond that, we must Comprehensive Strategy calls for imme- intervene earlier once the child has com- diate intervention. Turning to another mitted a delinquent act. The juvenile matter, studies indicate there is a dispro- justice system tends to wait until the portionate representation of minority child has been delinquent two or three youth in secure facilities. How do you times before evaluating the child’s needs think the Justice Department should ad- and developing a comprehensive inter- dress this problem? vention program. At that point it is often

4 A National Agenda for Children

Attorney General Reno: It is important services, should act as advocates for chil- for the Justice Department to assist dren by seeking community programs States in analyzing every level at which that will help them develop into success- intervention occurs to ensure that a ful, contributing members of society. young minority child is treated in the There is a lot that can be done in this same way as any other child. Often I find area. that people react to situations without having the data to make an informed judgment. For example, in Florida we Often I find that people react to situations conducted an independent study of the without having the data to make an application of Florida’s Career Criminal Statute because some people felt that it informed judgment. unfairly discriminated against the minority population. The study indicated that only 2 of the 20 circuits did not discrimi- Juvenile Justice: While the number of nate in any way, and many of those juvenile offenses has remained relatively found to discriminate were shocked to static, the level of violent offenses has learn that they did. They wanted to take increased. How can we address the prob- steps to avoid discrimination in the fu- lem of the small number of serious, vio- ture. Consequently, I think it’s important lent, and chronic juvenile offenders? that we develop mechanisms in the juve- Attorney General Reno: I think that nile and adult justice systems to show ju- youth violence is probably the most seri- risdictions how we can properly apply the ous crime problem that we face in law to ensure that it’s imposed even- America today. And unfortunately, I handedly. I also feel that the Department have seen too many juveniles who have of Justice needs to explore sentencing lost their fear of the juvenile justice sys- practices in the Federal system. tem because they don’t think anything is It’s also imperative that we develop ad- going to happen to them. vocates for children who are entering the We urgently need to develop fair, reason- system. For example, if a middle-class able sanctions that fit the crime—no child comes into the system with two matter how old the offender. If a 13- or parents who work, are devoted to the child, and are present in the courtroom with a minister and a psychologist offer- There is no justification for hurting ing alternative programs to recommend to the court, that child is going to have a someone or putting a gun against a better chance of staying out of the system than the child who has no advocate in person’s head. court. Unfortunately, public defenders are so overwhelmed and their case loads 14-year-old commits armed robbery, that so large that it is difficult for them to fol- child has got to know that there is a fair, low up on a child. Often they think they reasonable sanction to fit the crime and have been successful if they get a child that there is no justification for hurting off on a motion to dismiss or a motion to someone or putting a gun against a suppress. But I think it’s important that person’s head. they follow up through a summons—and At the same time, we need to provide if they are unable to do so, then members aftercare and followup that address the of the private bar, through pro bono

Fall/Winter 1993 5 Juvenile Justice

Attorney General Reno: I am concerned that typically when we talk about child abuse and neglect, we’re talking about child welfare. In my experience in the juvenile justice system, there seems to be a gap between professionals working in child welfare and those working in juvenile justice. Instead of working together in a coordinated effort to help the child and the family, they work apart, not knowing what the other is doing. I think many children coming into the juvenile justice system are there because of neglect in the sense that they have not had a strong family network. In some cases they have been unsupervised and lacked order, structure, and clear limits in their lives. In other cases they have OJJDP’s John Wilson discusses mutual concerns with the Attorney General. come to think of violence as a way of life because they have observed it in the home. In either case, it is important that we look at children coming into the system and determine not only what fair, causes that generated the crime in the appropriate sanctions would be, but also first place. We can’t simply punish young what can be done to rebuild the fabric of offenders and return them to the commu- society around them. nity where the problem arose and think that they are going to succeed—particu- Juvenile Justice: How do you see the De- larly if they don’t have a strong family partment of Justice working with other system and are living in circumstances Federal agencies to help children and rife with risk factors. For these reasons I their families remain drug-free? And support programs with job training and what role do you see the Coordinating placement, treatment, counseling ser- Council on Juvenile Justice playing in vices, aftercare, and followup to help ju- this regard? venile offenders reenter the community. Attorney General Reno: I think it is Juvenile Justice: Our Causes and Corre- crucial that the Federal Government de- lates study confirms that there is a direct velop a coordinated effort among the dif- link between physical child abuse and ferent agencies that touch on children neglect and subsequent violent delin- and families. Currently the Department quency, and more significantly, that the of Justice is trying to develop such a com- amount of domestic violence to which a prehensive effort along with the Depart- juvenile is exposed or victimized by is di- ments of Commerce, Education, Health rectly proportional to the violent con- and Human Services, Housing and Ur- duct in which the juvenile later engages. ban Development, and Labor. We are What are your views on physical child trying to focus on the National Agenda abuse and neglect and its relationship to for Children by developing a partnership delinquency? with communities.

6 A National Agenda for Children

For example, we know that local commu- Attorney General Reno: They do de- nities are better able to assess their own velop a remarkable expertise. Yet, often needs than the Federal Government. We those programs are overwhelmed, and also know that the Federal Government judges have little say in the administra- could use its community resources more tion of programs that are not working. effectively if individual agencies did not have arbitrary barriers to program eligibility. The Federal Coordinating Council For too long we have forgotten and is in a good position to play a role as well, by bringing together the heads of various neglected our children. Federal agencies and looking at the broad issues facing families and children. I be- Juvenile Justice: All too often our efforts lieve that much could be done if our lim- seem to be a case of “too little, too late.” ited community and Federal resources How can we help children grow up to be were used in the most comprehensive law-abiding, contributing citizens, rather manner possible. And we must begin by than delinquents or even adult criminals? investing dollars up front in prevention programs. Let’s encourage communities Attorney General Reno: I think that the to address the children’s agenda, develop problems of delinquency—drugs, youth job training and retraining programs for gangs, teen pregnancy, and youth vio- those who have lost their jobs, and create lence—are symptoms of a deeper prob- programs that enable the elderly to be lem in society. For too long we have more self-sufficient by remaining in their forgotten and neglected our children, homes. and there is no one specific delinquency prevention effort that can make a differ- Juvenile Justice: How do you see the ence. Instead, I think it is imperative role of the juvenile court? How might it that this Nation develop the National be strengthened? Agenda for Children I discussed earlier Attorney General Reno: It is time to and that communities, States, and the recognize that juvenile court judges need Federal Government commit themselves more say in structuring programs that fit to meeting that agenda. the needs of the child. Judges would be more effective if they had a comprehen- Let’s organize efforts that attract sive evaluation and assessment of the child and of the child’s needs. And if the our young people and give them an social service components in youth service programs were better linked with opportunity to serve this Nation. the court and the court had more of a say in the program, the entire juvenile In addition, it is important that we focus justice system would work together on the issue of family violence and that better and be more accountable to the when we see evidence of it among chil- community. dren, we take immediate action. The Juvenile Justice: After a relatively short child who watches his father beat his period of time on the bench, juvenile mother inevitably comes to accept vio- court judges develop a remarkable exper- lence as a way of life. tise in knowing the programs and the re- We must encourage our children to take sources that are available. part in public and community service. So

Fall/Winter 1993 7 Juvenile Justice

many children join gangs in order to Attorney General Reno: I certainly belong and to participate. Let’s organize don’t presume to tell other professionals efforts that attract our young people and how to deal with children in crisis be- give them an opportunity to serve this cause I think these people are the heroes Nation and to develop a feeling of self- and heroines of our society. They have respect through constructive activity. one of the most difficult jobs of anyone in public service. It’s much easier and much less costly However, I think it’s important that we do everything we can to prevent crises to prevent than to wait until after a from occurring. It’s much easier and much less costly to prevent than to wait crisis occurs. until after a crisis occurs. But when a crisis situation does occur, we need to bring Finally, we must make sure that police as many resources to bear to solve the officers, school teachers, and all who problem quickly and restore that child come in contact with young people learn and family to self-sufficiency in a safe, how to talk with them. We must under- positive atmosphere. stand that children want limits, that they Juvenile Justice: Thank you very much understand that they will be punished for for your time and your thoughts on these wrongdoing, but that they want to be important issues facing the Nation’s chil- treated with respect. They don’t want to dren and their families. be put down, and they don’t want to be hassled. They want to be treated as responsible young people. Juvenile Justice: What advice do you have for the professional working on the front line with children in crisis?

8 In the Service of Youth

In the Service of Youth: A Common Denominator By Robert L. Smith

T o make a serious dent in delinquency, we must shift our focus from problem-focused (numerator) approaches to universal (denominator) approaches. If young people are to develop attachments to society and to societal norms, they must be provided opportunities to participate, learn, earn, and serve their community and their country. A National Youth Service program is an effective way of providing all American youth constructive opportunities to make significant contributions to society and to be rewarded for them. Such a program is a prime example of a denominator approach to youth development.

Adolescent affection, esteem, security, recognition, and belonging—a panoply normally asso- Development ciated with the family. But the needs of late adolescence are quite distinct, and as All societies have processes that facilitate adult needs and traits emerge, the self the transition from childhood to adult- becomes more defined and less depen- hood as well as barriers that hinder it. A dent on others for a sense of identity. healthy transition period prepares adolescents for the responsibilities of adult- As important as early adolescence is in hood, while allowing contact with their forming later attitudes and values, it is quickly outgrown. Nevertheless, Ameri- own youth culture, a significant factor in Robert L. Smith is a private con- shaping later life. The stresses of the late can society is preoccupied with early ado- sultant and Assistant Master for adolescent years (15 to 18 years of age) lescence; and the latter stage, in which the Jay Lee Gates et al. Consent affect all youth, not just delinquent and participation, learning, earning, and serv- Decree under the U.S. District Court, Eastern District of Cali- problem youth. As commendable as the ing are crucial, is undervalued. Yet, in fornia. An expert in the fields of Clinton administration’s proposal is for a designing programs for older juveniles, it corrections and juvenile justice, he National Youth Corps Program, it is de- is precisely these needs that should be has published widely on delinquency prevention, supervision, signed for young adults, not adolescents. taken into account. standards, and classification and Like adults, youth do not live entirely in has led professional delegations to During early adolescence (10 to 14 the People’s Republic of China years of age), youth require rectitude, the present. They anticipate their future. and the Soviet Union.

Fall/Winter 1993 9 Juvenile Justice

However, optimal growth cannot occur represent themselves politically in any when young people do not regard their significant way.2 future as worthwhile. Youth need a milieu that renders their future valuable: constructive work, positive contribu- Numerator Versus tions, and genuine self-assertion. When Denominator the future is painted with the bright hues of promise and expectation, the dark tur- Approaches moil and gray anxieties of daily life are A number of alternatives can be used to lightened.1 analyze the development of delinquency prevention programs. The one presented here—the denominator approach—can Optimal growth cannot occur when young be applied to a variety of social problems. people do not regard their future as That logic, and the adolescent developmental theory previously discussed, pro- worthwhile. vide the basis for a proposal to reduce delinquency for older adolescents— national youth service.3 Institutional Barriers A phenomenon is often described in The problems plaguing our young— terms of its prevalence, that is, the fre- alienation, isolation, dependency, and quency with which the phenomenon oc- delinquency—are related to the gradual curs in a population. For example, if the but progressive deprivation of opportuni- prevalence of alcoholism in this country ties to participate in family and commu- were estimated to be 5 percent, that nity life. Children are expected to mature number would be calculated by dividing at progressively younger ages at the same the number of alcoholics—the numera- time that youth are increasingly treated tor—by the number of people in the as children. Both are nurtured, cared for, population—the denominator. educated, recreated, and even alienated Historically, programs to reduce the by strangers and large anonymous institu- prevalence of alcoholism have been di- tions within which they hold little status rected at the numerator, and therefore and exercise even less power. such programs customarily have treated Everyone wants to be regarded favorably. known alcoholics. Yet, there is no evi- As human beings we have an innate dence that treatment centers for alcohol- need to make a difference. Whether on ism, mental illness, crime, or deviant Main Street or Mean Street, we want behaviors have significantly reduced someone to know that we exist and to their prevalence. This is not to imply believe that we matter. that numerator approaches have been ineffective for particular individuals. It is Efforts to develop a national policy to simply to note the absence of demon- guide delinquency program development strated prevalence change using exclu- generate more rhetoric than attention. sively numerator approaches. Unlike universal programs for older Americans such as Medicare, youth pro- Similarly, most service programs con- grams are selective responses (largely tinue to focus on numerators. Delin- those in vogue) to highly visible prob- quency programs that focus solely on lems. These programs are developed and juvenile offenders will not reduce the operated by adults because youth do not prevalence of youth crime any more than

10 In the Service of Youth

employment programs that focus exclu- sively on the unemployed will lower un- Delinquency programs that focus solely on employment rates. juvenile offenders will not reduce the The medical and scientific model demonstrates the effectiveness of the denomi- prevalence of youth crime. nator approach. For example, numerator approaches in polio, tuberculosis, and other infectious diseases have made little A Level Playing Field impact on prevalence; but denominator If, as argued earlier on the basis of adoles- approaches, such as vaccination, screen- cent psychology, youth need the oppor- ing, and the like, have virtually eradi- tunity to participate, learn, earn, and cated a number of these diseases. The serve, why should government become results have been dramatic and lasting. involved in what traditionally has been a Denominator approaches work because matter for the family and the private sec- they deal with the general public health tor? The answer is that the nature of our as well as specific symptoms. They do not society and its institutions has changed rule out logical remedies simply because significantly in the half century since the they are not in vogue, politically correct, Second World War. The traditional lad- or familiar. der of success has uneven, broken, and The denominator concept makes sense to even missing rungs.5 most people. Conventional wisdom, If current trends continue and programs however, generates professional resis- remain focused on numerator solutions, tance to implementation. Rejection is youth crime rates will grow in the latter rationalized in terms of complexity, tradi- half of the 1990’s as increasing numbers tion, scope, and the impulse to do some- of teenagers enter the population. The thing now to relieve individual suffering large proportion of children reared in rather than focus on a broader perspec- poverty, the high number of school drop- tive that will prevent systemic suffering outs, and the persistent high level of in the future.4 youth unemployment are troubling social Simply put, denominator approaches indicators. Teenagers with a high school tend to be ignored because they generate education or less already compete for turf fights and require innovative ap- fewer jobs, and because those from the proaches to problems with which we have grown comfortably familiar. They demand that we think in time frames The traditional ladder of success has considerably longer than sound bites. Consider, for example, the admin- uneven, broken, and even missing rungs. istration’s proposals to immunize every child in America and to establish a poorest families have the lowest school National Youth Service Program. Few enrollment rates, their chances for suc- people challenge these ideas directly, cess in the job market are further reduced but many oppose the President’s new and the cycle of poverty is likely to be approaches to accomplish what we know perpetuated. is needed and what we realize is right. Vested interests, turfs, and procedures are Significant structural shifts are closely threatened by different views of problems associated with urban problems, particu- with which we have become only too larly unemployment among the poor. familiar. Fall/Winter 1993 11 Juvenile Justice

from postsecondary education into a labor force that values their skills and National Youth Service: qualifications do well, but teenagers at- An Idea Whose Time Has Come? tempting to enter the force directly from high school soon discover they lack the “The best of Bill Clinton has gone the 18-year-old approaching the skills and training needed to climb the up to Capitol Hill. It’s his idealistic American altar and saying: You have ladder of success. but shrewd proposals for ‘national given me the Bill of Rights, the service’ and student loan reform. Constitution, protection from for- Changes associated with where we live, Between them, they bring back eign powers. I will give you 1 year of how we produce goods, and the way we memories of the Peace Corps and my time in exchange.”—William invest our national resources impact de- the G.I. bill.”—Mary McGrory F. Buckley, Jr. linquency. Such changes affect who comes into the juvenile justice system “Service builds character, a trait in “Under the proposed National Ser- and how long they stay. Any serious pre- short supply in the nineties. And vice Corporation, young people with the Nation’s schools, cities, who agree to work in community vention program must recognize the new and health care system in crisis, service can receive up to $10,000 to reality created by these changes—and there is no shortage of socially use- pay for college. Ideally, the program that programs directed only at young ful work to be done. But at its best, will help restore to the fabric of our adults will have limited impact on youth ‘service,’ like charity, is given freely society the understanding that help- crime. and voluntarily, without expecta- ing others is an important and val- tion of personal gain.”—Denis P. ued endeavor. . . . But Washington Doyle can’t and shouldn’t be solely re- The G.I. Bill “The Peace Corps, the Mormon sponsible for national service pro- The model outlined here is based on the grams. The whole Nation should be young missionaries—the spirit assumption that work experience is a vi- there is different. For them, the involved—State and local governments, private organizations, uni- tal part of how we deal with the world. It idea is to submit to sacrifice in draws from adolescent development exchange for the benefits—not of versities and colleges.”—Gregory S. theory, denominator theory, and a pro- room and board and tuition—of Prince, Jr. life in America. The symbol is of gram created after World War II known as the G.I. bill of rights. Perhaps no single legislative act has had Movement of capital from the United as profound an influence on our history States to foreign nations, from the cities as the G.I. bill. Strongly supported for to the suburbs, and from the North to the patriotic and economic reasons, this Sunbelt has resulted in a substantial loss social-educational policy enacted in the of manufacturing jobs. Technology has 1940’s enabled the Nation to go to the taken a toll in blue-collar and white- moon in the 1960’s. With eligibility collar employment, with automation based on satisfactory military service, the eliminating jobs in the office suite as well G.I. bill facilitated the mass training of as on the factory floor. The skills re- educators, engineers, secretaries, truck quired for entry-level positions, especially drivers, and members of Congress. Veter- those leading to viable careers, are ans themselves decided for what purpose changing rapidly. The expansion of they would use their benefits. No one women in the work force and changes in dictated what the training was to be, immigration patterns in the last decade where it had to be taken, or when or if it have produced a highly competitive em- had to be completed. No one identified ployment market, closing doors to entry- the need, and no one said that the poor level jobs for young people. These shifts or the rich were more or less entitled to have created deep divisions within the benefits because of income, social status, labor force. Young people who move or race. All veterans were eligible

12 In the Service of Youth

because of the public service they had supplemented by the benefit package performed. earned through service. In the half century that has passed since the G.I. bill was enacted, virtually no The national work experience program one has said that the money was badly spent. A similar effort is needed for youth for youth should avoid junior adult work today and for the same reasons—to pre- opportunities that compete with serve the future and to afford our young people the opportunity to offer the best unemployed adults. they have.

To the extent possible, the national work A National Youth experience program for youth should Service Program avoid trying to find junior adult work opportunities for youth. If the program is Assume that Congress, in concert with predicated on work experience that is the President, enacted a National Youth competitive with unemployed adults, Service Program that, on the basis of particularly during a high unemployment freely selected work in public service, period, then few adults and even fewer would entitle youth—all youth and not businesses realistically will support the just special or disadvantaged youth—to effort. However, that does not mean that various benefits. These benefits might youth do not have opportunities to pro- include educational scholarships, unem- vide public services that do not compete ployment compensation, cash bonuses, or with adult workers, nor does it mean that a myriad of other desirable rewards for the private sector could not find creative public service. ways to employ youth offering their Eligibility could be based on satisfactory services. public service, but the value of the benefit received could be determined by New Worlds of Work length of service and national priorities. For example, eligibility credits could be Street programs, telephone hotlines, awarded differently depending on the peer social service centers, counseling form in which they were claimed: educa- projects, and runaway residences are but tion could have a 100 percent value for a few of the efforts that emerged during the service rendered, unemployment the 1960’s. In today’s National Youth compensation might be worth only 50 Service Program, young people should be percent of the value, and a cash bonus encouraged to become involved in both only 25 percent. In this way priorities design and implementation to reinforce could be set according to national inter- the basic principles of participation, ests, but the type of benefit awarded learning, earning, and serving. could accommodate individual needs. Some of the programs for which youth Individuals could choose how they wish have already demonstrated both enthusi- to spend their eligibility credits. During asm and interest include programs for periods of inflation or recession, vouchers persons with developmental disabilities; could be substituted for cash in education urban restoration teams; environmental and other areas. Private and public em- preservation groups; drug abuse centers; ployers could pay minimum wages crime suppression information programs;

Fall/Winter 1993 13 Juvenile Justice

delinquency prevention efforts; crisis mental programs in favor of specific intervention projects; and aid to law statements about expected goals and enforcement, justice agencies, and fire measurable objectives. departments. Other possibilities are endless—meals on wheels, escort services for the elderly, housekeeping assistance, A Closing Thought visitor programs, cross-teaching projects, The theoretical model we have proposed community prevention programs, and deals with only one area of healthy de- school courts. In the private sector, new velopment, but it is a critical one that affects the lives of youth in many ways. It argues that work opportunities should be Work is important in defining who we available to all youth between the ages of are. It helps us measure our value to 15 and 18, not just to special categories. Work is important in defining who we ourselves and others. are. It helps us measure our value both to ourselves and others. Youth know that forms of apprenticeships could be devel- the ability to engage in worthwhile work oped, particularly in science and elec- and to make a significant contribution tronics. All of these programs also are part and parcel of self-definition. happen to be exactly the types of services That definition determines youths’ per- needed by the community. ceptions about where they are going and what kind of future they will have. The mechanics of the National Youth Service Program—that is, the means by Work as we have known it has changed. which funds are disbursed—can follow Helping youth to accommodate to that any number of models such as prime change is an effective way to reduce sponsor, special revenue sharing, block crime and delinquency and to begin to grants, or formula grants. More important diminish the gulf between the have’s and is the design for the delivery of funds, the have not’s. which should be community-based; pro- If we truly believe that America’s youth vide an equal opportunity for all youth; are our future, we must develop programs and promote youth involvement, that enable them to grow and prosper, voluntarism, and the principles of par- not wither and decay. The model of Na- ticipation, learning, earning, and serving. tional Youth Service we have outlined is And yes, the program should be stripped but one example of a denominator ap- of the usual voluminous rules, regula- proach to preventing delinquency, but it tions, and procedures that guide govern- is a potent one.

14 In the Service of Youth

Notes Conrad, D., and D. Hedin. Youth Service: A Guide- book for Developing and Operating Effective Pro- 1. J.J. Mitchell, The Adolescent Predicament grams. Washington, D.C.: Independent Sector, (Toronto: Holt, Reinhart, and Winston of 1987. This manual provides background informa- Canada, 1975). See also J.J. Mitchell, “The Na- tion and instructions on how to begin, expand, or ture of Adolescence: Some General Observa- promote programs of youth community service, tions,” mimeo (Department of Educational with emphasis on school-based programs. Psychology, University of Alberta, Edmonton, Gold, L.N. States and Communities on the Move: 1976). Policy Initiatives To Create a World-Class 2. Theory Validation and Aggregate National Data: Workforce. Washington, D.C.: American Youth Integration Report of OVD Research, vol. 12 (Boul- Policy Forum (formerly William T. Grant Founda- der, Colorado: Behavioral Research and Evalua- tion), 1991. This booklet describes programs de- tion Corp., 1975). See also Theoretical Section of signed to enhance the employability of high Revised Work Plan for the National Evaluation of school graduates and increase their options for Diversion Projects (Boulder, Colorado: Behavioral completing postsecondary education. Research Institute, 1977). Lacy, G., and C. Johnson. State Youth Employment 3. I am indebted to Dr. Donald Muhich, psychia- Initiatives: A Resource Guide and Framework for trist, associate, and long-time friend, for this Action. Washington, D.C.: Children’s Defense concept. Fund, 1989. This report helps policymakers and community leaders identify new ways to meet the 4. D.A. Schon, Beyond the Stable State (New York: employment and training needs of youth, includ- W.W. Norton, 1971). ing the youth service corps. 5. K. Auletta, The Underclass (New York: Vin- National Commission on National and Commu- tage, 1983). See also B. Bluestone and B. Garri- nity Service. What You Can Do for Your Country. son, The Deindustrialization of America (New York: Washington, D.C.: Commission on National and Basic Books, 1982); J. Bound and R.B. Freeman, Community Service, 1993. This report summarizes “Documenting the Dimensions of Change,” un- the current state of community service in the published report (U.S. Department of Labor, United States, discusses actions the Commission Washington, D.C., 1984); and T. Duster, “Crime, has taken, and sets out goals for the development Youth Unemployment, and the Black Urban of a national community service program. Underclass,” Crime and Delinquency 33 (1987): 2. Sagawa, S., and S. Halperin, eds. Visions of Service: The Future of the National and Community Service Supplemental Readings Act. Washington, D.C.: American Youth Policy Forum (formerly William T. Grant Foundation), Bazemore, G. “New Concepts and Alternative 1993. This compilation of 38 essays by leading Practice in Community Supervision of Juvenile practitioners and strategic thinkers in the national Offenders: Rediscovering Work Experience and service field discusses the past, present, and future Competency Development.” Journal of Crime and of the National Service Plan. Justice, vol. 14, no. 1 (1991), pp. 27–52. This article describes 20 community-based correctional programs that emphasize employment and work experience for juvenile offenders.

Fall/Winter 1993 15 Juvenile Justice

TQM and All That Jazz: Rejuvenating Juvenile Justice

By Thomas R. English

he anointing of Total Quality Management (TQM)1 and “rein- T 2 vention”—the cluster of ideas described in Reinventing Government —as the royal road to economic and political revitalization has sometimes led to overexpectations by those seeking quick fixes to long-term problems. Nonetheless, concepts such as TQM and reinvention have the potential to address many of the problems of the juvenile justice system, especially when integrated with the social development model3 and the work of the Balanced Approach/Restorative Justice (BA/RJ) group.4 Each of these approaches complements the other. Together, they can lead to change in the juvenile justice system, not the customary minor changes that come from periodically finetuning our focus, but historic change that is profound and radical—a new paradigm.

Paradigm, another concept in vogue to- This inability to see beyond the status day, comes from the Greek paradeigma, quo can lead to what may be called the meaning model, pattern, or example. But John Wayne effect—“If it doesn’t work, the word is used here in a broader sense. do more, and try harder, Pilgrim!” The In The Structure of Scientific Revolutions, BA/RJ group has identified three trends Thomas Kuhn uses the term to describe in juvenile probation and parole super- how prevailing scientific models, theo- vision that illustrate the John Wayne ries, and assumptions impede the ability effect: of scientists to observe and understand Thomas R. English is executive ◆ Increasing commitments to State in- director of the Oregon Council on new data.5 He points out that scientific stitutions, especially for drug-involved Crime and Delinquency and presi- advances often require viewing a problem dent of the American Restitution youth. Association. A former commis- in a new light—a new paradigm. As with sioner of Oregon’s State Juvenile Kuhn’s scientists, many of us in the juve- ◆ Expanded out-of-home and Services and chair of the State nile justice field often fail to recognize quasiresidential placements. Juvenile Justice Advisory Group, Mr. English provides consulting the imperative to change the way we ◆ Widespread transferring of juvenile services to private organizations work with our clients, our communities, offenders to adult court.6 and State agencies on behalf of and each other. OJJDP.

16 TQM and All That Jazz

Despite serious questions about the effec- was “very important.”11 Why, then, do tiveness of these approaches, they con- most juvenile courts lack a systematic tinue to be used, if for no other reason approach to restitution and community than that they have been used in the service? past. As Satchel Paige once observed, “It’s not what you don’t know that hurts you: it’s what you do know that just ain’t “It’s not what you don’t know that hurts so.” you: it’s what you do know that Supporting Restitution just ain’t so.” Juvenile justice professionals realize that many of the traditional approaches to “Nothing Works” addressing juvenile delinquency have been ineffective, yet they are frustrated Syndrome because the juvenile justice system seems Part of the answer lies in the “nothing unable to accommodate programs that works” syndrome that has affected many show greater promise. We know that ap- policymakers and others after a number proaches such as restitution and com- of highly publicized theories and pro- munity service can work. Research grams of the 1980’s failed to meet expec- demonstrates that juvenile offenders as- tations. But there is more to the problem. signed to formal restitution programs are If we examine the public bureaucracies in capable of completing restitution and which juvenile justice programs and ser- 7 community service, that restitution’s ef- vices are delivered, we find that they 8 fect on victims has been positive, and mirror the outdated, top-down manage- that its impact on recidivism is promis- ment protocols of mass-production indus- 9 ing. Despite initial resistance, restitution trial economies. and community service sanctions are be- ginning to gain new advocates at the This approach has led to a juvenile jus- community level. A number of commu- tice bureaucracy whose hallmarks include nities have adopted special programs for categorical funding; large caseloads; top- offenders, such as employment and work down management; limited professional experience projects.10 training; and accountability based on eligibility, rule compliance, and contract In a recent national public opinion sur- monitoring. vey, respondents ranked restitution as the juvenile offender program they would In contrast, current research and the ex- most like to see enhanced. Eighty-one perience of many juvenile justice profes- percent of respondents said that it is sionals indicate that effective programs “very important” for State juvenile delin- and services are characterized by a more quency control funds to be spent on flexible, community-based approach in restitution programs; 70 percent viewed which: on-the-job training and employment pro- ◆ Front-line workers are accorded wide grams as “very important”; 69 percent discretion. viewed community-based programs and ◆ 57 percent viewed community-based A broad spectrum of responsive, con- counseling as “very important,” respec- venient, and timely services is provided. tively. However, only 36 percent said ◆ Collaboration across traditional and that spending money on training schools professional boundaries is encouraged.

Fall/Winter 1993 17 Juvenile Justice

◆ Children are viewed in the context of institutions and programs runs counter to the family and the family in the context what Alden Miller and Lloyd Ohlin have of neighborhoods and communities. identified as two key features of successful youth programs—they are located in ◆ Programs have deep roots in the com- the community and they involve local munity and are customized to meet cul- leaders in day-to-day operations.13 J.D. tural needs. Hawkins and J. Weise emphasize that ◆ Parental cooperation and participa- communities create the environments tion are solicited. that produce healthy or delinquent 14 ◆ Establishing a relationship of trust kids. They point out that the family, with children and their extended families school, and peer group are critical units is a priority. of socialization that provide youth with opportunities to develop the skills ◆ A long-term preventive orientation needed to become successful adults and predominates. with rewards for gaining these skills. ◆ The organizational milieu is based When opportunities and rewards are not primarily on outcomes rather than on present, the results include behavior regulation.12 problems, school dropouts, delinquents, adult offenders, and career criminals. The Perry preschool study not only For decades government has systemati- shows that prevention can work but confirms the findings of Hawkins and Weise cally shifted authority and resources from that even later efforts to reward prosocial communities to bureaucracies. behavior can overcome predictors of delinquency.15 Creating Bureaucracies Bigger, Not Better For decades government has systemati- Where did we go wrong? We took the cally shifted authority and resources from wrong road for what we thought were the communities to bureaucracies. Rather best of reasons—to provide more and than improving programs and services, better services. In Reinventing Govern- this approach has often led to greater ment, David Osborne and Ted Gaebler problems. For the juvenile justice system, discuss the bureaucratic concentration of the trend has resulted in crowded facili- authority and services in an historical ties and bloated caseloads. It is little context that is consistent with the devel- wonder that 40 percent to 60 percent of opment of juvenile courts.16 training school residents have had their In the 1970’s we believed that bigger was status revoked or have been resentenced. better, especially when it came to child It is much easier to remove such youth welfare services. The Federal Govern- from the community than to expend the ment encouraged this attitude by pro- effort and resources required to reinte- moting the creation of State agencies to grate them into the community—espe- receive and process Federal funds. Many cially when many communities don’t States established bureaucratic mega- want “State kids” back. departments of human services that Yet moving juvenile offenders out of usurped responsibilities formerly under- their communities into State-operated taken by counties, cities, and charitable

18 TQM and All That Jazz

organizations. Local governments were tinkering could significantly improve the happy to relinquish these obligations and defect rate of the entire operation. From expenses. Many local government offi- this insight grew the concept of total cials felt that States had the resources to quality management, which requires provide better services. every employee—from managers to line staff—to determine whether their opera- What has been lost is the ability of local tions and activities are helping to communities, agencies, and organizations achieve the organization’s mission. This to develop programs and approaches that approach often leads to dramatic changes meet the needs of the communities in in the way a company operates. which they operate and the individuals with whom they work. Hawkins and Weise point out the importance of pro- The Balanced Approach focuses on three viding a continuum of effective community-level services. However, the current objectives—competency development, paradigm in juvenile justice makes providing a variety of high-quality, conve- accountability, and community protection. nient, customized, and timely services nearly impossible. Although we have made some adjust- ments in programs for children, youth, TQM and families, we have not made the far- reaching changes needed to create a truly How can concepts such as TQM and effective system. We have increased op- reinvention and the findings of current portunities for preschool pupils but not research help us rejuvenate juvenile jus- for high school dropouts; we have estab- tice? If the social development model can lished child abuse reporting but not be deemed analogous to a manufacturing parent training; we have implemented production system, perhaps W. Edward mastery teaching but not peer group Deming’s TQM (zero-defect philosophy empowerment. and methods) can be applied to deliver- 17 Taking our cue from TQM, we are begin- ing services to youth and families. One ning to take a closer look at the juvenile of Deming’s essential points is that the justice system and to identify new and top-down organizational design generates better ways of carrying out our mission. defects. Although the global economy is For example, the Balanced Approach/ forcing us to rethink our traditional ways Restorative Justice project is creating of doing business in both the private and new approaches that can significantly public sectors, many businesses and gov- broaden the range of juvenile justice pro- ernment programs, including juvenile grams and services, including model sys- justice agencies, still operate under a tems for community supervision of management system designed for an juvenile offenders. The Balanced Ap- outdated economy. proach focuses on three objectives— Deming, a statistician, developed a competency development, account- method for identifying sources of defects ability, and community protection—and in industrial operations. If workers con- attempts to strike a balance between the tributed to the problem, changes could needs of victims, offenders, and the be implemented through training. But community. Deming found that the process itself was The BA/RJ team believes that commu- often the problem and that no amount of nity support is essential to the success of

Fall/Winter 1993 19 Juvenile Justice

juvenile justice programs. According to a weakness. We have been attempting to Gordon Bazemore: force the square peg of community-based programs into the round hole of what Achieving each of the objectives Osborne and Gaebler call “professional [of the project] implies a vital role bureaucracies.” for what some called the socializing institutions of community (e.g., schools, employers, and advocacy All That Jazz and youth development groups) that are ultimately responsible for In seeking to reinvent juvenile justice, helping youth make the transition we could use the symphony orchestra as a to productive citizenship (compe- guide. In an orchestra, many different tency development). These institu- musicians and instruments contribute to tions also provide essential support the presentation of a musical work. Al- in helping young offenders and the though the musicians read from the same justice system address the needs of score, each instrument or group of instru- victims and in providing the infor- ments has its unique part—sometimes mal social control necessary to playing in unison, sometimes sounding achieve real community protection. different notes. Duplication of sound is often encouraged when it creates the de- sired harmonic effect. For example, a vio- Bigger is not better; in fact, bigness is lin and trumpet might each play the same notes, but the impact of both in- part of the problem. struments is greater than if only one instrument were playing. In the same way, there is room for many different Taking the Initiative approaches and programs in juvenile justice. A number of States have come to the conclusion that bigger is not better when To continue the musical analogy, per- it comes to juvenile justice—that, in haps an even better model for a new ju- fact, bigness is part of the problem. In venile justice system would be the jazz “Juvenile Justice at the Local Level,” I band. In his article “Leadership Jazz,” G. describe how the Oregon State Advisory Worth George notes that business and Group led a largely successful effort to government leaders can learn much from return juvenile justice resources, author- the jazz band. Jazz requires both ensemble ity, and responsibility to communities. playing and individual initiative. Each Other States are joining the effort to re- musician must be adept at handling lead invent juvenile justice and redefine the and supporting roles. Jazz also requires role of juvenile corrections as part of a improvisation—an ability to build on the continuum of services in the community, original melody and create new notes balancing the needs for community and themes. safety, accountability, and competency We can learn from this jazz band ap- development by youthful offenders. proach as well. We must learn to work as One of the most frequent criticisms of an ensemble within each community; at the juvenile justice system is that it is too the local, State, and Federal levels; as fragmented, with no central authority public and private organizations; and and no uniform policies. But I believe as individuals and groups—each tak- that fragmentation can be a strength, not ing the lead at times and playing a

20 TQM and All That Jazz

supporting role at others. We must en- 8. Peter R. Schneider, A.L. Schneider, P. Reiter, courage innovative and creative ap- C. Cleary, and Michael J. Wilson, Two-Year Re- port on National Evaluation of Juvenile Restitution proaches to the problems posed by Initiative: An Overview of Program Performance juvenile delinquency. The time has come (Eugene, Oregon: Institute of Policy Analysis, to abandon the one-man-band approach 1982). in which juvenile justice is managed by a 9. Anne L. Schneider, “Restitution and Recidi- mega-agency and instead emulate the vism Rates of Juvenile Offenders: Results From Four Experimental Studies,” Criminology 24 creative harmony and innovative impro- (1986): 533–552. See also Jeffery A. Butts and visation of a jazz band. On that note, Howard N. Snyder, Restitution and Juvenile Recidi- we can be upbeat about the future of vism (Pittsburgh: National Center for Juvenile our youth and of a rejuvenated juvenile Justice, 1991). justice system. 10. Gordon S. Bazemore, “Work Experience and Employment Programming for Serious Offenders: Prospects for a ‘Productive Engagement’ Model of Notes Intensive Supervision.” In Intensive Intervention With High-Risk Youth: Promising Approaches in Ju- 1. “Clinton Copies Xerox Way of Management,” venile Probation and Parole, edited by L. Armstrong USA Today, February 25, 1993. Troy (Monsey, New York: Criminal Justice Press, 1991). 2. David Osborne and Ted Gaebler, Reinventing Government: How the Entrepreneurial Spirit Is 11. Ira Schwartz, Shenyang Guo, and John Kerbs, Transforming the Public Sector (Reading, Massachu- Public Attitudes Toward Crime and Juvenile Justice: setts: Addison-Wesley Publishing Co., 1992). Implications for Public Policy (Ann Arbor: Center for the Study of Youth Policy, University of 3. J.D. Hawkins and J. Weise, “The Social Devel- Michigan, 1992). opment Model: An Integrated Approach to Delin- quency Prevention,” Journal of Primary Prevention 12. Lizabeth Schorr, Within Our Reach: Breaking (Winter l985): 73–97. the Cycle of Disadvantage (New York: Doubleday, 1988). See also Alden Miller and Lloyd Ohlin, 4. The Balanced Approach/Restorative Justice Delinquency and Community: Creating Opportunities (BA/RJ) Project was funded by a grant from the and Controls (New York: Sage, 1985). U.S. Department of Justice, Office of Juvenile Jus- tice and Delinquency Prevention. The Principal 13. Miller and Ohlin, Delinquency and Community. Investigator is Gordon S. Bazemore, Ph.D., of 14. Hawkins and Weise, “Social Development Florida Atlantic University. Dr. Bazemore was a Model.” senior member of the Juvenile Restitution Train- ing and Technical Assistance Program. Other 15. J.R. Berrueta-Clement, L.J. Schweinhart, W.S. members of the BA/RJ team include Dennis Barnett, A.S. Epstein, and D.P. Weikart, Changed Maloney, Mark Umbreit, Peter Schneider, An- Lives: The Effects of the Perry Preschool Program on drew Klein, and Troy Armstrong. Youth Through Age 19 (Ypsilanti, Michigan: High/ Scope Educational Regional Foundation, 1984). 5. Thomas Kuhn, The Structure of Scientific Revo- lutions (Chicago: University of Chicago Press, 16. Osborne and Gaebler, Reinventing Government. 1962). 17. Mary Walton, Deming Management at Work 6. Gordon S. Bazemore et al., “Proposal for a Bal- (New York: Perigee Books, 1990). anced Approach/Restorative Justice Approach to Juvenile Restitution” (Florida Atlantic University, unpublished paper, 1992). 7. Anne L. Schneider and Peter R. Schneider, “Comparison of Programmatic and ‘Ad hoc’ Resti- tution,” Justice Quarterly 1 (1984): 529–547.

Fall/Winter 1993 21 Juvenile Justice

Supplemental Readings Martin, J.J. “Total Quality Management: The New Managerial Wave.” Administration in Social Armstrong, T., ed. Intensive Interventions With Work, vol. 17, no. 2 (1993). The author examines High-Risk Youth: Promising Approaches in Juvenile TQM as a philosophy of management and the Probation and Parole. Monsey, New York: Criminal potential benefits and pitfalls of its application to Justice Press, 1991. This compilation includes ar- human service organizations. ticles on the use of restitution and community Swiss, J.E. “Adapting Total Quality Management service as part of a probation plan and work expe- to Government.” Public Administration Review, vol. rience/employment program. The authors empha- 52, no. 4 (1992). The author argues that a modi- size restitution as a genuine alternative to fied form of TQM emphasizing client feedback, traditional sanctions. performance monitoring, continuous improve- Bazemore, G.S. “On Mission Statements and ment, and worker participation will work best in Reform in Juvenile Justice: The Case of the government agencies. ‘Balanced Approach.’” Federal Probation, vol. LVI, no. 3 (September 1992). The author discusses the “balanced approach” as it applies to agencies re- OJJDP Publications sponsible for community supervision of juvenile The following materials, published by OJJDP, may offenders. be ordered from the Juvenile Justice Clearing- Galaway, B., and J. Hudson, eds. Criminal Justice, house (see the OJJDP publications order form on Restitution, and Reconciliation. Monsey, New York: page 35 for information). Single copies are free. Criminal Justice Press, 1990. Contributors to this Bazemore, G.S. The Restitution Experience in Youth compilation analyze sentencing applications of Employment: A Monograph and Training Guide to restitution, community service orders, and victim- Job Components, 1989. This monograph presents a offender reconciliation. model curriculum for the development of employ- Klofas, J., S. Stojkovic, and D. Kalinich. Criminal ment programs within juvenile restitution pro- Justice Organizations: Administration and Manage- grams. ment. Pacific Grove, California: Brooks/Cole Pub- Butts, J.A., and H.N. Snyder. Restitution and Juve- lishing Co., 1990. This book provides an overview nile Recidivism, OJJDP Update on Research, 1992. of management theories, techniques, and research This update reports findings from a study on the as applied to criminal justice organizations. association between the use of restitution and sub- Krisberg, B., and J.F. Austin. Reinventing Juvenile sequent recidivism. Justice. Newbury Park, California: SAGE Publica- English, T. Improving Juvenile Justice at the Local tions, Inc., 1993. The authors explore problems Level, OJJDP Update on Research, 1990. This up- confronting the current juvenile justice system date describes the steps taken by one State to im- and suggest pathways to reform. prove juvenile justice at the local level, including Maloney, D., D. Romig, and T. Armstrong. “Juve- implementation of restitution, community service, nile Probation: The Balanced Approach.” Juvenile and job training programs. and Family Court Journal, vol. 39, no. 3 (1988). This series of articles published by the National Council of Juvenile and Family Court Judges explains the principles, practices, and benefits of the “balanced approach” to juvenile probation and uses examples from several jurisdictions to show how this approach works in practice.

22 Gould-Wysinger Awards

The Gould-Wysinger Awards: A Tradition of Excellence By Pam Allen

Established by the Office of Juvenile Justice and Delinquency Prevention in 1992, the Gould-Wysinger awards honor James Gould and Deborah Wysinger, two OJJDP professionals Office of Juvenile Justice and Delinquency Prevention who dedicated their lives to helping young U.S.people. Department In its inaugural of Justice year 18 winners were selected. This year each State and territory was invited to designate one program, funded in whole or in U.S. Department of Justice part with OJJDP funds, as1992 its Gould-Wysinger Gould/Wysinger award winner. The 1993 Award Gould-Wysinger awards represent national recognition of local achievement in improving the juvenile justice system and helping our Nation’s youth. The 20 award winners continue to reflect a tradition of Office of Juvenile Justice and Delinquency Prevention excellence. is bestowed upon 1992 Gould/Wysingeris bestowed upon Award Alabama Colorado for exceptional achievement in juvenile justice Juvenile Work Restitution Juvenile Intervention Project Gerald (Jerry) P. Regier Located in Tuscaloosa, this program instills a sense of per- The goals of the Juvenile Intervention Project are jail re- for exceptional achievement in juvenile justiceAdministrator (Designate) sonal accountability, improves behavior, and reduces recidi- moval and deinstitutionalization of status offenders. A train- vism. Jobs are created in the public and private sectors, and ing program for sheriff’s officers explains screening criteria juvenile offenders are matched to an appropriate job. Offend- and procedures. Officers who perform intake screening are ers work to reimburse victims and provide community trained to provide status offenders with appropriate services. service. The program contracts with a host home to ensure a bed is available for status offenders. Crisis intervention, temporary In operation since 1987, the program has helped reduce mi- holding or attendant care, and volunteer tracking and nority overrepresentation in the State school and develop mentoring are also provided. greater confidence in the juvenile justice system. Recidivism Gerald (Jerry) P. Regier has been reduced by 10 percent. The programAdministrator resulted (Designate) in an immediate decrease in juvenile arrests and detention, and new patrol officers now participate For further information, contact: in a special 4-hour field training program. John Upchurch For further information, contact: Tuscaloosa County Commission Director of Court Services Kim Andree 6001 12th Avenue East Eagle County Sheriff’s Department Tuscaloosa, AL 35404 P.O. Box 359 (205) 349–3870 Eagle, CO 81631 (303) 328–6611

Fall/Winter 1993 23 Juvenile Justice

Florida Kansas

Griffin Alternative Learning Academy Kansas Children’s Service League Griffin Alternative Learning Academy (GALA) diverts stu- Juvenile Assessment and Intake Service dents from failing in school, being suspended, needing court The Juvenile Assessment and Intake Service (JAIS), which intervention, or dropping out of school. The program focuses serves Topeka and Shawnee Counties, protects children from on disruptive, unsuccessful, disinterested, and otherwise prob- unnecessary out-of-home placement and involvement with lematic students at Griffin Middle School in Leon County. Social and Rehabilitation Services (SRS) and the juvenile The objective is to mainstream or promote 75 percent of the court. The program advises SRS and the juvenile court about at-risk students back into regular classes by providing indi- children who need special guidance, structure, or protection; vidualized academic assistance and business mentoring. reduces the number of children classified as Children-in- Started in 1989, during the 1991–92 school year GALA ex- Need-of-Care who may be placed unnecessarily in locked de- ceeded its expected 30-percent level of participation by mi- tention; and assists law enforcement officers with decisions nority youth and economically disadvantaged juveniles. A involving the placement of children. project evaluation confirmed overall improvement in partici- Law enforcement officers, who provide all referrals to JAIS, pants’ grade-point averages, a decrease in the number of ab- increasingly use the service, and the number of contacts for sences and suspensions, and a reduction in delinquency information or referral has grown consistently. The rate of referrals. All participants were promoted to the next grade. unnecessary placement of Children-in-Need-of-Services in Because of the success of the program, the Governor’s JJDP locked detention has significantly decreased. In 1992 JAIS Advisory Committee funded replications of the project in two diverted 58 percent of youth for whom a diversion option was other schools during the 1992–93 school year. available from out-of-home placement. For further information, contact: For further information, contact: Susan E. Foster Mike Patrick Coordinator of Special Programs 2600 SE 23rd Street Leon County Schools Topeka, KS 66611 2757 West Pensacola Street (913) 234–5424 Tallahassee, FL 32304–2998 (904) 487–7322 Maryland Iowa Partnership for Learning, Inc. Rites of Passage Partnership for Learning (PFL) was established in 1991 to screen first-time juvenile offenders appearing before juvenile Rites of Passage was developed to address minority over- court in Baltimore City and to identify and assist offenders representation by reducing the delinquency rate among diagnosed as learning disabled. After first-time offenders have middle school African-American males from high-risk situa- been identified, tested, and interviewed, the requirements for tions. The project involves tutoring, mentoring, crisis inter- participating in PFL are presented. Once an agreement has vention, individual and family counseling, and recreational been executed, the child’s case is postponed, and the child is activities. Development of participants’ self-esteem and per- matched with a tutor trained in a special reading and spelling sonal responsibility are emphasized. The project is so safe and program. Of the children matched with tutors, over 80 per- supportive that participants come even when activities have cent have successfully completed or are actively involved in not been scheduled. Since its inception in 1991, the project the program and have not reoffended. has built a community of trust among participants and their mentors. As a result, participants’ family lives and academic PFL is a joint project of the Office of the State’s Attorney for performance have significantly improved. Baltimore City, the Office of the Public Defender, the De- partment of Juvenile Services, the Maryland State Depart- For further information, contact: ment of Education, the Baltimore City Department of Karl Werner Education, and the Maryland Associates for Dyslexic Adults Jane Boyd Harambee House and Youth. It has gained national and international attention 943 14th Avenue SE. as a cost-effective program that reduces the rate of recidivism Cedar Rapids, IA 52401 among youthful offenders. (319) 366–0431

24 Gould-Wysinger Awards

For further information, contact: a craft program, and instruction in creative writing. Opportu- nities to attend church services are available. Andrea D. Mason, Esquire Baltimore City State’s Attorney’s Office As a result of the Center’s programs, recidivism has been re- 206 Clarence M. Mitchell, Jr., Courthouse duced by 50 percent. Acceptance of the Center has grown as 110 North Calvert Street other communities and counties increase their use of the Baltimore, MD 21202 facility. (410) 396–5092 For further information, contact: Mississippi Denise Shiffermiller Juvenile Detention Center 830 Kimball Avenue Hollandale Temporary Holding Facility P.O. Box 206 Gering, NE 69341 The Hollandale Temporary Holding Facility was established (308) 436–2204 to provide a separate facility that meets all Federal and State standards for juveniles awaiting further action by a youth au- New Hampshire thority. Facility staff are on call 24 hours a day. Emergency care and crisis intervention include youth court counselors’ services and referrals to a local community health service. The facility also provides supervised educational and recre- Earn-It Project ational activities while youth are awaiting disposition or Earn-It is a victim restitution program that serves as a sen- placement. tencing alternative for juvenile court and the Juvenile Con- ference Committee. Juvenile offenders are referred to the Between September 1991 and August 1992, the facility held program for monetary and community service work place- 156 juveniles who would otherwise have been placed in an ments. Earn-It arranges the work placement in an area busi- adult jail or lockup—decreasing by 90 percent the number of ness, nonprofit agency, or municipality by matching the juveniles held in adult jails and lockups in the six counties offender’s strengths with the needs of the worksite and served. monitors the youth’s performance. For further information, contact: Since 1988 Earn-It has worked with more than 400 juvenile John McClay, Director offenders in 17 towns within the jurisdiction of the Keene City of Hollandale District Court. Over 80 percent of the offenders have com- Hollandale Temporary Holding Facility pleted their court-ordered community service obligations and P.O. Box 395 restitution to their victims. Participants have performed hun- Hollandale, MS 39748 dreds of hours of community service work and have given (601) 827–7276 thousands of dollars to victims. The recidivism rate for youths completing the program is below 30 percent. Nebraska For further information, contact: Jane E. Beecher Juvenile Detention Center Juvenile Conference Committee 3 Washington Street Western Nebraska Juvenile Services Keene, NH 03431 The Juvenile Detention Center was established to provide (603) 357–9810 programming, intervention, and rehabilitation services for juveniles. A 20-bed facility serving Scotts Bluff County and New York the surrounding area, it is the only secure juvenile detention center in western Nebraska. The Center has a transitional living program designed to pro- Prosocial Gang vide juveniles with the knowledge, skill, and experience to This unique intervention program implements Aggression live independently. A family preservation component encour- Replacement Training (ART) with gang members who ages the family to cooperate in the reconciliation of the of- are involved in delinquent behavior. The program is con- fender to the family unit. A substance abuse program provides ducted at two Brooklyn sites—the Brownsville Community intervention and treatment. An educational program offers Neighborhood Action Center and Youth DARES. ART im- four types of programs: class continuation, credit work, GED programs, and college. The Center also offers a 4–H program,

Fall/Winter 1993 25 Juvenile Justice

channeling aggressive behavior into a positive force so gang members become a constructive influence in the community. North Dakota Four evaluations found that the ART program significantly improves the quality of the youths’ interpersonal skills; en- Anger Management Program hances their ability to reduce and control anger; decreases the level of egocentricity and increases concern for the needs of Located in Bismarck, the Anger Management Program works others; substantially decreases antisocial behaviors; substan- with youth and their parents to help them control outbursts tially increases prosocial behaviors; improves community of angry, aggressive behavior. The 10-week training program functioning, especially with peers; and decreases criminal reduces the frequency of aggressive or violent incidents by recidivism. developing awareness of anger patterns and teaching new skills for handling anger-provoking situations. The curricu- For further information, contact: lum includes separate groups for parents, junior and high Howard Schwartz school students, and fifth and sixth graders. New York State Division of Criminal Justice Services The program completed its first year of operation in 1991 Executive Park Tower and has served more than 150 adolescents and 160 parents. Stuyvesant Plaza Young people enrolled in the program have reduced their in- Albany, NY 12203 volvement in aggressive and violent incidents. The program (518) 485–7919 draws on the resources of virtually every youth-serving agency, public and private, that maintains a local staff. The North Carolina State training school and a private residential facility have requested training in anger management so that they can in- corporate a similar component in their programs. Project HELP For further information, contact: Project HELP (Helping Equip Little People) is an early inter- Mark LoMurray vention program that concentrates on delinquency preven- Bismarck Police Youth Bureau tion. The goals of the program are to promote wholesome 700 South Ninth Street values and moral living, impart work-readiness skills, develop Bismarck, ND 58501 social and cultural skills, give youth an opportunity to interact (701) 222–6738 with positive adult role models, and involve parents in all phases of the program. Ohio The program serves 20 youth age 6 to 10 who have exhibited behaviors that make them at-risk of entering the juvenile justice system. Volunteers, who are matched with an appropriate Sex Offender Assessment youth, work with program staff, parents, and youth to develop individual programs and create opportunities for leadership The Sex Offender Assessment research project, which in- development. volves 76 youths and 45 parents, was created to improve the assessment and treatment of juvenile sex offenders and en- To date, every parent of a child in the program has become hance understanding of the victimization process. The involved, and three-quarters of the children have participated project evaluates how offenders attempt to gain a victim’s in the social and cultural enrichment programs. Everyone has trust; what types of nonsexual behaviors are engaged in prior participated in community service activities either through to the abuse; and how enticements, bribes, threats, and coer- the schools, local civic groups, or the housing authority. Not cion are used to obtain cooperation in sexual activity. The one participant has become involved with the juvenile justice last part of the project is to disseminate the study findings to system. practitioners during a daylong, Statewide workshop. For further information, contact: Prior to the project, little research was available to guide the Daryl Woodard assessment and treatment of adolescent offenders. The results Wayne County Youth Outreach will provide professionals with critically needed information P.O. Box 1051 and will improve caretakers’ ability to treat offenders and Goldsboro, NC 27530 victims. (919) 735–0008 For further information, contact: Keith L. Kaufman, Ph.D. Children’s Hospital Research Foundation 700 Children’s Drive Columbus, OH 43205 (614) 461–2100 26 Gould-Wysinger Awards

Oklahoma Tennessee

McAlester Alternative School Project Bright Future Project The McAlester Alternative School Project was developed to This juvenile delinquency prevention project provides aca- provide education services to at-risk students in the demic and social support to African-American youth age 5 to McAlester Public School District. The school allows students 15. Bright Future provides study resources to help youth com- to learn at their own pace in a more relaxed setting. It pro- plete their homework assignments. Reading and comprehen- vides onsite child care for teen parents and teaches funda- sion testing and prescribed tutoring are available for a limited mentals of child care. Class sizes are small, and a counselor is number of youth. Decisionmaking rap sessions, discussions, available throughout the day to provide personal, crisis, and and practice sessions are also provided. Supervised opportu- career counseling. Attendance is voluntary. nities allow youth to contribute to their community by participating in neighborhood improvement projects. In 3 years the program has served 174 students; 58 have graduated from high school, and 27 have entered vocational- The program serves some 30 children per day during the technical training programs. Twenty-one students have been school year. About 330 young people have taken advantage able to continue their education because of the onsite child of the afterschool tutoring and resource center, and 22 young care, and 9 parent/students have graduated. Increases in staff people have participated in the special testing and size have allowed the school to serve even more students, and remediating program. Teachers note that the quantity and initial enrollment has grown from 40 to 75. The school has quality of schoolwork of participants have improved. helped meet the needs of a community experiencing serious The program has gained the respect of the community, and socioeconomic problems. the Neighborhood Association has become the center of For further information, contact: community life largely as a result of this project. Lucy Smith For further information, contact: Superintendent Henry I. Hargrow, Jr. McAlester Public Schools Memphis Area Neighborhood Watch P.O. Box 1027 37 West Fairway McAlester, OK 74502–1027 Memphis, TN 38109 (918) 423–4771 (901) 789–5942 Puerto Rico Virginia

Home for the Prevention of Study of Serious Juvenile Offenders Juvenile Delinquency This comprehensive study of serious juvenile offenders de- fines the population of juveniles who have been convicted in This program provides shelter and other support services to circuit court by offense and service history, compares trans- 28 girls, the majority of whom have been removed from their ferred and convicted juveniles to those retained in the juve- homes because of sexual abuse or abandonment. Most of the nile justice system and committed to learning centers, girls, who range in age from 4 to 18, have parents who are identifies jurisdictional variation in the transfer option, physically or mentally unable to care for them adequately. evaluates which factors influence the decisionmaking process The program provides crisis intervention, counseling, tutor- for transfer-eligible juveniles, and develops recommendations ing, educational placement, community services, and recre- for policymakers. Study findings are available in a detailed ational and social activities. report. In the past year the program has acquired its own building, The project makes a substantial contribution toward devel- and the staff now includes a psychologist, a social worker, and oping an informational base from which legislators can draw four instructors. in deciding juvenile justice issues. There is a commitment to For further information, contact: continue this important research. Sister Georgio Reiyo For further information, contact: Santa Ana Institute for Juvenile Development Marian Kelly P.O. Box 554 Department of Criminal Justice Services Adjuntas, PR 00601 805 East Broad Street, 10th Floor (809) 829–2504 Richmond, VA 23219 (804) 225–4072

Fall/Winter 1993 27 Juvenile Justice

for high-risk youth, many of whom are involved in gangs, has Virgin Islands been implemented. For further information, contact: “Graffiti Street” Dan Bond “Graffiti Street” is a teen talk show designed to prevent juve- Northwest Youth Services nile delinquency by improving communication and develop- P.O. Box 2717 ing understanding between youth and adults. The format uses Everett, WA 98203 a teen panel, guest speakers, and guest performers. Partici- (206) 388–7200 pants represent a cross-section of the population. The show is very popular with youth and adults and has received a na- Wyoming tional public broadcasting award. For further information, contact: Fremont County Youth Services Calvin Bastian or Allison Petrus WTJX–TV, Channel 12 Begun in 1983, this program received its first OJJDP funding Barbel Plaza South in 1988. Its goals are to improve the efficiency and the effec- St. Thomas, VI 00801 tive use of the juvenile justice system and existing services in (809) 774–6255 Fremont County, to develop programs to serve county youth, to assist the county in developing policies for secure deten- Washington tion of juveniles as well as for alternatives to detention in the county jail, and to reduce the liability of the board of com- missioners and Sheriff regarding detention of juveniles prior Regional Juvenile Justice to a court hearing. The program provides report/intake for law enforcement and the county attorney, a deferred prosecu- Program Development tion program, a youth council coordinator, a work alterna- The Regional Juvenile Justice Program Development (RPD) tives program, a sentencing alternatives program, presentence program is an interagency approach to developing strategies investigation for county courts, formal probation supervision, for preventing and reducing juvenile delinquency in limited predispositional reports for juvenile court, home de- Snohomish County. The major goal of the program is to tention program supervision, 24-hour intake at county jails, implement the Juvenile Justice and Delinquency Prevention youth advocacy, a cooperative agreement to provide staff- Act. Efforts continue to maintain local committee member- secure shelter care, and a jail removal transportation subsidy ship consistent with Section 223 (a) A through E; encourage program. and assist compliance with Sections 223 (a) 12, 13, and 14; Serving hundreds of children a year in a county of more than and monitor the local detention facility. Project staff develop 9,000 square miles, the program has enabled the county to and recommend procedures for coordination of local juvenile address the mandates of the Juvenile Justice and Delinquency justice activities and work to ensure that duplication and con- Prevention Act. flict between agencies are minimized, service gaps are identified, and systemwide problems are addressed. The program For further information, contact: serves as a resource for the State Advisory Group (SAG) in Charles Kratz identifying technical assistance and training needs, providing Fremont County Youth Services information and assistance to local agencies to help them de- Fremont County Court House velop proposals responsive to SAG priorities, and reviewing Lander, WY 82520 and prioritizing proposals for SAG funding. (307) 332–1085 Other program activities include collecting data for a needs assessment to identify local juvenile justice needs. In addi- Pam Allen, J.D., is the editor of JJ Coalition News. As director of special tion, RPD was involved in developing a proposal to address projects for the Coalition for Juvenile Justice (formerly the National the Target Site Program Area. One component, “Neutral Coalition of State Juvenile Justice Advisory Groups), she oversaw the Zone,” a collaborative effort to provide recreational services Coalition’s administration of the 1993 Gould-Wysinger award solicitation process.

28 IN BRIEF SafeguardingJUSTICE Our Youth MATTERS Safeguarding Our Youth: Violence Prevention for Our Nation’s Chil- dren brought nearly 300 persons to Washington, D.C., on July 20–21, 1993, to discuss the impact of violence on our Nation’s youth and the need for prevention. This historic forum was cosponsored by the De- partments of Education and Justice in cooperation with the Depart- ments of Health and Human Ser- vices (HHS) and Housing and Urban Development (HUD). For 2 days, parents, educators, re- searchers, community organizers, youth service providers, and young scribed alarming incidents of vio- The Department of Education’s people met in small working groups lence they had experienced. In one Goals 2000 Satellite Town Meeting to suggest specific actions that com- dramatic moment, a young man re- coincided with the forum. Speakers munity organizations and local, vealed that he had lost 13 friends to included Attorney General Reno, State, and Federal agencies should murder. Education Secretary Richard Riley, take to curtail violence. To ensure HHS Secretary Donna Shalala, and diversity, each group consisted of Cochaired by Deputy Attorney Director of Office of National Drug participants from: General Philip B. Heymann and Policy Lee Brown. They were joined Assistant Secretary of Education ◆ Education. in a panel discussion by Peter Madeline M. Kunin, the forum also Blauvelt, director of security for ◆ Criminal and juvenile justice. featured Beverly Watts Davis, ex- Prince George’s County (Maryland) ecutive director of San Antonio ◆ Health and human services Public Schools; Beverly Watts Fighting Back; Dr. J. David agencies and youth-serving Davis; and Edith Langford, director Hawkins, professor of social work organizations. of the Weed and Seed project in and director of the Social Develop- Richmond, Virginia. ◆ Housing and neighborhood ment Research Group at the Uni- organizations. versity of Washington at Seattle; The forum renewed participants’ ◆ Media. Dr. Hope M. Hill, professor of psy- conviction that by working together chology at Howard University; Dr. juvenile violence could be curtailed. One highlight of the forum was an Mark L. Rosenberg, acting associate Deputy Attorney General Heymann address by Attorney General Janet director for public health practice of indicated that the Coordinating Reno, who emphasized the need for the Centers for Disease Control and Council on Juvenile Justice and early, positive intervention in the Prevention; Senator Paul Simon of Delinquency Prevention would be a lives of children. She also stressed Illinois; Dr. Terence P. Thornberry, primary mechanism for further in- conflict resolution, parent educa- professor of criminal justice at the teragency cooperation on violence tion, and family support systems. State University of New York at Al- prevention. OJJDP will continue to Another highlight was a youth bany; and Dr. Cornel West, profes- explore avenues to safeguard our panel moderated by local news an- sor of religion and director of youth from violence. chor Susan Kidd. Six youths who Afro-American Studies at Princeton ranged in age from 11 to 21 de- University. Fall/Winter 1993 29 IN BRIEF ProfileJUSTICE of Juvenile Victims MATTERS Every act of violence is tragic, par- ◆ Six out of 10 ticularly when the victim is young. adolescent homicide Teens are more likely than adults to be victims of violence Although the public is acutely victims age 10 to 17 Victimizations per 1,000 in age group Violent crimes aware of juvenile perpetrators, more were killed by a friend 80 Age 16–19 attention should be focused on juve- or acquaintance. 70 60 Age 12–15 nile victims. ◆ 50 Among adolescents 40 Research indicates that young age 10 to 17, 7 out of 10 30 20 Age 20 and older people disproportionately suffer the homicide victims were 10 effects of violence and underscores male. 0 1979 1980 1981 1982 1983 1984 1985 1986 1987 1988 the need to find lasting solutions, ◆ Firearms were in- especially for violence in its most Note: Violent crimes include rape, robbery, aggravated assault, and volved in the deaths of simple assault. destructive forms—homicide and Source: Bureau of Justice Statistics, Teenage Victims: 8 in 10 victims age 15 A National Crime Survey Report, 1991. suicide. to 19. Violent Crime ◆ From 1984 to 1991, the prevalence of homi- The homicide victimization rate among black youth According to the National Crime has increased substantially in recent years cide victims age 14 to 17 Victimization Surveys (1985–1988): Homicide victimizations per 100,000 youth more than doubled. 20 ◆ Nearly one million youth age Black 12 to 19 are victims of violent Suicide 15 crimes—including rape, robbery, The National Center for and assault—every year. 10 Health Statistics reports 5 ◆ Sixty-seven out of every 1,000 that of youth age 15 to White youth age 12 to 19 are victims of a 19 in 1989: 0 violent crime each year, compared 1976 1979 1982 1985 1988 1991 ◆ More than 2,000 with 26 per 1,000 persons age 20 or teens committed suicide. Source: FBI, Supplemental Homicide Reports, 1976–1991. older. ◆ In 6 out of 10 of these ◆ Thirty-seven percent of violent suicides, firearms were crime affecting youth age 12 to 15 used. Homicide victimization rates vary by age and sex occurs at school. ◆ Seven out of 10 sui- Homicide victimizations per 100,000 youth 16 Homicide cides were committed by 14 12 white males. Male According to the Federal Bureau of 10 Investigation, in 1991: ◆ In the decade ending 8 6 ◆ in 1989, teen suicides in- 4 More than 2,200 youth under 2 creased by more than a Female age 18 were murdered—more than 0 third. 6 homicides a day. 0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 Age

◆ Black youth were six times more Note: Rates are based on the 1976–1991 combined average. likely to be victims of homicide Source: FBI, Supplemental Homicide Reports, 1976–1991. than white youth.

30 IN BRIEF RECLAIMJUSTICE Ohio MATTERS Ohio has enacted an ambitious ini- nonviolent offenders, but will also a community-based correctional fa- tiative to reduce overcrowding in allow institutions the opportunity to cility and must pay 75 percent of State correctional facilities and in- improve services to youth who need the daily cost of care. crease the number of youth being to be in secure care by reducing The initiative does make an excep- served in community-based pro- overall numbers. tion, setting aside money so that grams. Enacted by the General The RECLAIM Ohio initiative counties can continue to commit, at Assembly in June 1993 and titled calls for the pooling of Department no charge, juvenile offenders fitting RECLAIM Ohio (Reasoned and of Youth Services’ funds allotted for into a “public safety” category, pri- Equitable Community and Local the operation of institutions, insti- marily those adjudicated for murder, Alternatives to Incarceration of tutional programs, private facilities, aggravated murder, or rape. Minors), this statewide plan to re- community rehabilitation facilities, duce the number of juveniles held The new initiative will begin in and Community Corrections grants in secure correctional facilities has 1994, with $7 million of the Depart- into one large Care and Custody been called by advocates “the most ment of Youth Services budget allo- Fund, which will then be divided positive change in juvenile justice cated to fund five to seven counties among Ohio’s 88 counties based on in Ohio in a decade.” volunteering to use the new funding a formula that considers the per structure during the year. The full In the past 10 years the number of diem cost for care and custody of initiative is to take effect in all 88 youth incarcerated by the Ohio De- felony delinquent youth, the pro- counties on January 1, 1995. partment of Youth Services has in- jected length of stay, the number of creased 30 percent, resulting in an youth in custody, and the number of The State has established an over- escalating daily institutional popula- juveniles adjudicated delinquent for sight committee to review application reaching a high in the spring of felonies. tions and select the pilot counties 1992 of more than 2,500 youth (or for 1994. The committee will also This new system would allow juve- roughly 180 percent of the system’s be responsible for monitoring the nile court judges to use county Care capacity). effectiveness of the initiative’s and Custody Funds to “purchase” implementation strategy and make According to an article by Donna home-based, community-based, or recommendations for legislative Hamparian in Ohio’s Children, a residential placements, including and/or administrative changes. statewide youth services newsletter, day treatment programs, electronic many offenders in the State’s secure monitoring, placement in a special- For further information on the correctional facilities have commit- ized treatment program, intensive RECLAIM Ohio Initiative, contact ted property or drug offenses. In supervision, tracking services, and Caroline Rankin, Office of Legisla- fact, 75 percent of the youth com- other services. tion and Public Information, at mitted have never been adjudicated (614) 466–8657; Linda Modry, Sub- Before the new system was devel- delinquent for a violent offense. sidy Division, at (614) 752–8130; or oped, juvenile court judges could Melissa Dunn, Juvenile Justice Spe- Because studies demonstrate that place juvenile offenders in secure cialist, Office of Criminal Justice institutional overcrowding leads to institutional beds at no cost to the Services, 400 East Town Street, ineffective programming and poor county. Under the RECLAIM Ohio Suite 120, Columbus, OH 43215, or conditions of confinement for juve- plan, counties must now use part of call (614) 644–6797. nile offenders, it is hoped that this the Care and Custody allocation new initiative will not only allow to “purchase” placements at the for more community-based care for Department of Youth Services or

Fall/Winter 1993 31 IN BRIEF

S OUR OS DE ding List R General Rea S Reinventing Juvenile Justice C K

A Barry Krisberg and James F. Austin. Newbury Park, California: SAGE Publications, Inc., 1993.

Contemporary American society As Barry Krisberg and James Austin gender on decisions to take young has been described as the most vio- observe, “Answers to these ques- people into custody. lent in human history. The upsurge tions are inextricably tied to the so- Not content to criticize, Krisberg in juvenile violence is particularly cial forces impacting children and and Austin recommend solutions, as disturbing. their families.” in their alternative to the failed Families, along with the neighbor- In Reinventing Juvenile Justice, “lock-’em-up-and-throw-away-the- hoods in which they live, are falling Krisberg and Austin, of the Na- key” approach: into decay. Youth may be more tional Council on Crime and Delin- We believe a more promising likely to find guns and drugs on the quency, present a candid and cogent direction for the future of U.S. streets than Mom and Dad in their view of the state of juvenile jus- juvenile justice is the rediscovery homes. tice—and injustice—in America: and updating of the juvenile Will the juvenile court survive The juvenile court presents us court’s historical vision. Reforms these paradigmatic societal changes? with a curious mixture of uplifting that emphasize the best interests of children must pursue the true Should it? And if so, how can it be ideology and harsh daily realities. Its rhetoric is steeped in concepts individualization of treatments improved to meet the current and the expansion of the range of challenges that face it? such as “comprehensive care” and “individualized treatment.” Yet, dispositional options available to too often the reality is assembly- the court. line justice in which large numbers of youngsters are quickly The road to “reinventing” juvenile “disposed of” through a limited justice lies in rediscovery of the set of options that rarely are time-tested principles of the past adequately funded. and applying them to the pressing problems of the present. While not In dissecting the dichotomy a road map, Reinventing Juvenile Jus- between the ideal and the tice is an informative travel guide real, the authors address well worth taking on the journey. such timely topics as juvenile laws and court procedures, probation and detention deter- minations, and the effect of race and

32 IN BRIEF OJJDP PUBLICATIONS Announcing the OJJDP Summary Series

Findings from OJJDP-funded initia- a review of statistics, research, and ◆ Urban Delinquency and Sub- tives often have major implications program evaluations (see page 34 for stance Abuse: Initial Findings Re- for the future of juvenile justice further description). port—David Huizinga, Rolf Loeber, policies and practices. Now OJJDP and Terence P. Thornberry. ◆ Conditions of Confinement: A is making these findings available Study To Evaluate Conditions in Presents preliminary findings of lon- through a new publications series Juvenile Detention and Correc- gitudinal research on the causes and that presents concise, yet compre- tions Facilities—Dale G. Parent. correlates of juvenile delinquency. hensive information on today’s is- Examines the age of onset and Reports the latest findings on condi- sues of concern. prevalence of delinquency, drug use, tions in juvenile confinement facili- and other problem behaviors and The OJJDP Summary Series consists ties. Examines overcrowding, youths’ relationships to peers and of four categories: violence, suicidal behavior, and es- family. Describes characteristics of ◆ capes. Institutional security, treat- OJJDP Research Summary—Re- effective intervention programs. ports key research and evaluation ment programming, education, health care, and protection of juve- findings to enhance future juvenile To obtain any of these OJJDP Sum- niles’ rights are also analyzed. justice policies and practices. mary Series publications, complete ◆ OJJDP Program Summary— ◆ Minorities and the Juvenile the order form on page 35 or call Highlights delinquency prevention Justice System—Carl E. Pope and the Juvenile Justice Clearinghouse programs implemented at the William Feyerherm. at 1–800–638–8736. national, State, and local levels Analyzes the effects of minority sta- to serve as models for other tus on the processing of youth in jurisdictions. the juvenile justice system. ◆ Provides policy and program OJJDP Training Summary—De- U.S. Department of Justice Office of Justice Programs scribes training initiatives offered to recommendations to address Office of Juvenile Justice and Delinquency Pr evention

ME NT OF RT JU A S P T E I C D E

O the issue of disproportionate F J F A

C S CI N V I O M E J A O O J S R F JJDP B G juvenile justice professionals and RO J UST I CE P provides recommendations for their representation of minorities replication. in the system and to ensure equitable treatment. ◆ OJJDP Statistics Summary—Pre- sents key findings and trends de- rived from data collection projects to assist administrators in planning and policy development. Research Summary Titles soon to be released include: ◆ Comprehensive Strategy for Se- rious, Violent, and Chronic Juve- nile Offenders—John J. Wilson and James C. Howell.

A Publication of the Explains the principles and compo- Office of Juvenile Justice and Delinquency Pr nents for implementing OJJDP’s ini- evention tiative to combat violent and chronic juvenile offenders. Includes

Fall/Winter 1993 33 IN BRIEF OJJDP PUBLICATIONS Comprehensive Strategy for Serious, Violent, and Chronic Juvenile Offenders

OJJDP recently made available its intensive supervision programs for ◆ Increased prevention of delin- first OJJDP Summary, Comprehen- serious and violent offenders. quency as fewer young people enter sive Strategy for Serious, Violent, and the juvenile justice system. Secure corrections provide a struc- Chronic Juvenile Offenders by John J. tured treatment environment for ◆ Enhanced responsiveness by, Wilson and James C. Howell. A more serious, violent, and chronic and decreased costs for, the juvenile comprehensive approach that tar- offenders. Small, community-based justice system. gets juveniles at risk of delinquency facilities offer the best hope for suc- for family support, prevention, ◆ Decreased crime as fewer serious, cessful treatment of youth requiring treatment, and rehabilitation ef- violent, and chronic delinquents a structured setting. Intensive after- forts, the new OJJDP strategy can be become adult criminals. care programs are critical to the implemented in any jurisdiction. success of juveniles once they For high-risk youth, the strategy Detailed information about the return to their neighborhoods and couples graduated sanctions with strategy, including the supporting communities. treatment through a network of research, statistics, and program community-based services. Implementing the strategy is a ma- evaluation, is included in the jor priority for OJJDP. In September OJJDP Research Summary, which OJJDP’s comprehensive strategy in- 1993 OJJDP selected a grantee to can be obtained by calling the Juve- cludes a prevention component, identify effective prevention and nile Justice Clearinghouse toll free which is based on a risk-focused ap- intervention program models, pro- at 1–800–638–8736. proach. This approach recognizes vide jurisdictions with a blueprint that protective buffer programs must for assessing their juvenile justice be established to counter major risk systems, and help communities factors, including high-crime neigh- plan new programs that respond U.S. Department of Justice borhoods, weak family attachments, Office of Justice Programs to local needs. OJJDP antici- Office of Juvenile Justice and Delinquency Pr lack of consistent discipline, and evention NT TM E OF R J U AP S E T D IC E

O B

pates that funds will be avail- F J

F C CI N V S I O M E J A O O J S R F J D P B G J U RO physical or sexual abuse. STI C E P able in fiscal year 1994 to award The strategy’s intervention compo- competitive grants to a limited nent comprises a range of options, number of jurisdictions to carry including both immediate interven- out the assessment, planning, tions and intermediate sanctions. It and implementation process. calls for extensive use of nonresi- Training and technical assis- dential community-based programs tance will be provided to par- such as referral to prevention pro- ticipating communities. Program Summary grams for most first-time offenders. OJJDP anticipates a number Community policing shows consid- of benefits for communities erable promise as a means of early that adopt the comprehen- intervention. Intermediate sanc- sive strategy, including: tions use both nonresidential and residential placements consisting of ◆ Greater accountability Office of Juvenile AJustice Publication and Delinquency of the Pr among youth. evention

34 Juvenile Justice Order Form JUVENILE Please print your name and mailing address or affix your mailing label here. JUSTICE Name Address Check this box if the information on Volume I • Number 2 State ZIP your address label is incorrect and make Fall/Winter 1993 corrections on your mailing label.

PUBLICATIONS AVAILABLE FREE. Indicate how ___ Minorities and the Juvenile Justice System—Full Report. many copies of each item you wish to order. NCJ 139556. $11.50 (U.S.), $13.65 (Canada), and $17.75 (other international orders). ___ Gould-Wysinger Awards (1992): Mark of Achievement. NCJ 142730. ___ National Survey of Reading Programs for Incarcerated Juvenile Offenders. NCJ 144017. $6.75 (U.S.), $6.75 ___ Improving Juvenile Justice at the Local Level. (Canada), and $9.20 (other international orders). NCJ 125549. ___ Obstacles to the Recovery and Return of Parentally Ab- ___ Restitution and Juvenile Recidivism. NCJ 137774. ducted Children. NCJ 144535. $22.80 (U.S.), $27.10 ___ Restitution Experience in Youth Employment: A (Canada), and $43.65 (other international orders). Monograph and Training Guide to Jobs Components. ___ Strengthening America’s Families: Promising Parenting NCJ 115404. Strategies for Delinquency Prevention. NCJ 140781. From the OJJDP Summary Series $9.15 (U.S.), $10.80 (Canada), and $14.00 (other international orders). ___ Comprehensive Strategy for Serious, Violent, and Chronic Juvenile Offenders. NCJ 143453. To order other publications from OJJDP, fill in the form ___ Conditions of Confinement: A Study To Evaluate below: Conditions in Juvenile Detention and Corrections Qty. NCJ No. Title Price Facilities. NCJ 141873. ___ Minorities and the Juvenile Justice System. NCJ 139557. ___ Urban Delinquency and Substance Abuse: Initial Findings Report. NCJ 143454.

PUBLICATIONS AVAILABLE FOR A FEE. Indicate how many copies of each item you wish to order and total the cost in the payment section at the bottom of the form. ___ Law Enforcement Policies and Practices Regarding Miss- To add your name to the Juvenile Justice mailing list, ing Children and Homeless Youth. NCJ 144765. $13.00 complete the following: (U.S.), $15.10 (Canada), and $20.80 (other interna- Name tional orders). Organization Address City State ZIP

Total $______Deduct the total from my NCJRS Deposit Account. Enclose payment or provide account number. Acct. No. ______All payments must be in U.S. dollars and drawn on a Charge my MasterCard VISA U.S. bank. Card No. ______Check or money order enclosed, payable to Juvenile Justice Clearinghouse. Exp. Date ______Signature ______Please provide a daytime telephone number in case we need to contact you regarding your order. (_____) ______

Allow 6 to 9 weeks for delivery. You will be notified by mail within 30 days if your paid order cannot be filled.

Fee orders are shipped UPS. Because UPS cannot deliver to post office boxes, please provide a street address for shipment of orders requiring payment. JUVENILE JUSTICE

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Juvenile Justice Juvenile Justice Clearinghouse/NCJRS P.O. Box 6000 Rockville, MD 20850 Publications From OJJDP

The following lists OJJDP publications Status Offenders Restitution Improvement Curriculum: A available from the Juvenile Justice Guidebook for Juvenile Restitution Clearinghouse. To obtain copies, call Assessing the Effects of the Workshop Planners. 1988, NCJ 110007. or write: Deinstitutionalization of Status Offenders. 1989, NCJ 115211. Juvenile Justice Clearinghouse Corrections Box 6000 Impact of Deinstitutionalization on Recidi- American Probation and Parole Rockville, MD 20850 vism and Secure Confinement of Status Association’s Drug Testing Guidelines and 800–638–8736 Offenders. 1985, NCJ 099808. Practices for Juvenile Probation and Parole Runaways in Juvenile Courts. 1990, Agencies. 1992, NCJ 136540. Most OJJDP publications are available free NCJ 124881. of charge from the Clearinghouse; requests Conditions of Confinement: A Study To for more than 10 documents require pay- Law Enforcement Evaluate Conditions in Juvenile Detention ment for postage and handling. To obtain and Corrections Facilities—Executive information on payment procedures or to Drug Recognition Techniques: A Training Summary. 1993, NCJ 141873. Program for Juvenile Justice Professionals. speak to a juvenile justice information spe- Desktop Guide to Good Juvenile Probation cialist about additional services offered, 1990, NCJ 128795. Practice. 1991, NCJ 121218. contact the Juvenile Justice Clearinghouse Evaluation of the Habitual Serious and National Juvenile Custody Trends: 1978– Monday through Friday, 8:30 a.m. to 5:15 Violent Juvenile Offender Program— p.m., e.s.t. Executive Summary. 1986, NCJ 105230. 1989. 1992, NCJ 131649. National Survey of Reading Programs for Delinquency Prevention Innovative Law Enforcement Training Programs: Meeting State and Local Incarcerated Juvenile Offenders. 1993, NCJ 144017, $6.75. Education in the Law: Promoting Citizen- Needs. 1991, NCJ 131735. ship in the Schools. 1990, NCJ 125548. Joint Investigations of Child Abuse. 1993, OJJDP Helps States Remove Juveniles Missing, Abducted, Runaway, and NCJ 142056. From Adult Jails and Lockups. 1990, Thrownaway Children in America, First NCJ 126869. Report: Numbers and Characteristics, Law Enforcement Custody of Juveniles: Video. 1992, NCJ 137387, $13.50. Private-Sector Corrections Program for National Incidence Studies. 1990, NCJ Juveniles: Paint Creek Youth Center. 1988, 123668, $14.40. Law Enforcement Custody of Juveniles: NCJ 113214. Video Training Guide. 1992, NCJ 133012. Mobilizing Community Support for Law- Privatizing Juvenile Probation Services: Related Education. 1989, NCJ 118217, Law Enforcement Policies and Practices Five Local Experiences. 1988, NCJ $9.75. Regarding Missing Children and Homeless 121507. Youth—Full Report. 1993, NCJ 144765, National Youth Gang Suppression and $13.00. Public Juvenile Facilities: Children in Cus- Intervention Program. 1990, NCJ 130917. tody 1989. 1991, NCJ 127189. Targeting Serious Juvenile Offenders Can OJJDP and Boys and Girls Clubs of Make a Difference. 1988, NCJ 114218. Reduced Recidivism and Increased Em- America: Public Housing and High-Risk ployment Opportunity Through Research- Youth. 1992, NCJ 136397. Courts Based Reading Instruction. 1993, NCJ Preserving Families To Prevent Delin- 141324, $7.70. The Child Victim as a Witness. 1989, quency. 1992, NCJ 13639. NCJ 118315. General Juvenile Justice Strengthening America’s Families: Promis- Court Careers of Juvenile Offenders. 1988, Comprehensive Strategy for Serious, Vio- ing Parenting Strategies for Delinquency NCJ 110854, $8.40. Prevention. 1993, NCJ 140781, $9.15. lent, and Chronic Juvenile Offenders. 1993, Helping Victims and Witnesses in the NCJ 143453. Missing and Exploited Children Juvenile Justice System: A Program Hand- Gould-Wysinger Awards: Mark of Achieve- book. 1991, NCJ 139731, $15. America’s Missing and Exploited ment. 1993, NCJ 142730. Children—Their Safety and Their Future. Juvenile Court Property Cases. 1990, Guide to the Data Sets in the National 1986, NCJ 100581. NCJ 125625. Juvenile Court Data Archive. 1991, Child Abuse—Prelude to Delinquency? Juvenile Court’s Response to Violent NCJ 132073. 1985, NCJ 104275, $7.10. Crime. 1989, NCJ 115338. Habitual Juvenile Offenders: Guidelines for Investigator’s Guide to Missing Child Offenders in Juvenile Court, 1989. 1992, Citizen Action and Public Responses. 1991, Cases: For Law Enforcement Officers NCJ 138740. NCJ 141235 . Locating Missing Children. 1987, NCJ Juvenile Justice. Volume 1, Number 1, 108768. Restitution Spring/Summer 1993, NCJ 141870. Missing, Abducted, Runaway, and Guide to Juvenile Restitution. 1985, Minorities and the Juvenile Justice System. Thrownaway Children in America, First NCJ 098466, $12.50. 1992, NCJ 139556, $11.50. Report: Numbers and Characteristics, Juvenile Restitution Management Audit. National Incidence Studies—Executive Minorities and the Juvenile Justice Sys- 1989, NCJ 115215. tem—Executive Summary. 1992, NCJ Summary. 1990, NCJ 123667. Liability and Legal Issues in Juvenile 139557. Missing Children: Found Facts. 1990, Restitution. 1990, NCJ 115405. OJJDP Brochure. 1993, BC 000450. NCJ 130916. National Directory of Juvenile Restitution OJJDP Funds 21 New Projects During Obstacles to the Recovery and Return of Programs 1987. 1987, NCJ 105188. Fiscal Year 1988. 1989, NCJ 116872. Parentally Abducted Children—Full Report. 1993, NCJ 144535, $22.80. National Trends in Juvenile Restitution Urban Delinquency and Substance Abuse: Programming. 1989, NCJ 115214. Initial Findings Report. 1993, NCJ 143454. OJJDP Annual Report on Missing Children. Restitution and Juvenile Recidivism. 1992, Violent Juvenile Offenders: An Anthology. 1990, NCJ 130916. NCJ 137774. 1984, NCJ 095108, $28.00. Sexual Exploitation of Missing Children: A Restitution Experience in Youth Employ- Research Review. 1988, NCJ 114273. ment: A Monograph and Training Guide to Statistics Stranger Abduction Homicides of Children. Jobs Components. 1989, NCJ 115404. National Juvenile Justice Statistics 1989, NCJ 115213. Assessment: An Agenda for Action. 1989, NCJ 119764. CoalitionCoalition forfor JuvenileJuvenile JusticeJustice

The Coalition for Juvenile Justice comprises State Juvenile Justice Advisory Group members from every State and territory participating in the Juvenile Justice and Delinquency Prevention Act. The Coalition is committed to the intent, purpose, and mandates of the Act.

The Coalition’s membership is a unique blend of volunteers and professionals who care about youth who are in the juvenile justice system now as well as those who are at risk of developing delinquency problems in the future. Members share information about the programs and policies that best serve this population and communicate their expertise and recommendations to the President, Congress, the Office of Juvenile Justice and Delinquency Prevention, and others who share their interest and commitment.

The Coalition gives a voice to the children it serves.

U.S. Department of Justice BULK RATE Office of Justice Programs POSTAGE & FEES PAID DOJ/OJJDP Office of Juvenile Justice and Delinquency Prevention Permit No. G–91

Washington, D.C. 20531 Official Business Penalty for Private Use $300