6HQDWH,QWHULP &RPPLWWHH RQ *DQJVDQG-XYHQLOH-XVWLFH §7KLQNLQJ2XWVLGHWKH%R[¨ 2FWREHU Acknowledgments During the course of its study, the Senate Interim Committee on Gangs and Juvenile Justice received the invaluable assistance of a great many individuals, state agencies, and organizations throughout the state. The committee wishes to express its deepest appreciation collectively to all of those who gave so generously of their time, resources, information and judgement in preparation of this report. The members of the committee are particularly grateful to those individuals who truly went “above and beyond the call of duty” in providing assistance. The following state agencies and/or departments deserve a special thanks for their tireless efforts on the committee’s behalf: Communities in Schools, Texas Workforce Commission Office of Court Administration Office of the Attorney General Prairie View A&M University Juvenile Crime Prevention Institute Senate Research Department, Texas Senate Texas Criminal Justice Policy Council Texas Department of Criminal Justice Texas Department of Mental Health and Mental Retardation Texas Parks and Wildlife Department Texas Department of Protective and Regulatory Services Texas Department of Public Safety Texas Education Agency Texas Health and Human Services Commission Texas Juvenile Probation Commission Texas Youth Commission Special thanks also goes to the following individuals and groups: Texas Center for Educational Research Professor Robert Dawson Maryanne Wiley, Lt. Governor’s Office Johnny Sutton, Governor’s Office Lisa Kaufman, Senator Robert Duncan’s Office David Quin, Senator Mike Moncrief’s Office Lauren Donder, Senator Jon Lindsay’s Office Janna Burleson, Committee Director Tracy Levins, Policy Analyst Susie Ramirez, Committee Clerk Kwame Walker, Committee General Counsel A special debt of gratitude goes to the law enforcement officers of Texas for their dedication and commitment to protecting the lives of all Texans. CHARGES OF THE SENATE INTERIM COMMITTEE ON GANGS AND JUVENILE JUSTICE INTERIM COMMITTEE CHARGES The Senate Interim Committee on Gangs and Juvenile Justice shall: 1. Study and make recommendations to address the increasing gang problem in Texas, including consideration of: collaboration between law enforcement, education officials, and state and local juvenile justice agencies; prevention and intervention efforts; needs of prosecutors and law enforcement agencies; and, criminal information systems. 2. Study the need, if any, for additional juvenile court masters to assist courts with juvenile jurisdiction in providing speedy and effective justice for juvenile offenders and their victims. Identify jurisdictions most significantly impacted by juvenile justice caseloads. If necessary, make recommendations for the number of any such masters and the fiscal implications with potential funding sources. 3. Monitor the implementation of HB 1550, passed by the legislature during the 1997 session, regarding progressive sanctions. Study the impact of progressive sanctions on juvenile facilities and upon program needs to make recommendations, if any, for statutory or funding changes. 4. Monitor the STARS (Services to Runaways At-Risk Youth) program and community youth development grants to evaluate their effectiveness and continued implementation. REPORT 1. The Committee should submit copies of its final report as soon as possible, but no later than October 1, 1998. Copies of the final report should be sent to the Lieutenant Governor, Secretary of the Senate, Legislative Council and the Legislative Reference Library. 2. The final report of the Committee should be approved by a majority of the voting members of the Committee and include any recommended statutory changes. A draft bill prepared by the legal staff of the Texas Legislative Council containing any recommended statutory changes should be attached to the report. Recommended agency rule changes should also be attached to the report. BUDGET AND STAFF The Committee may submit a proposed budget for staff and resources to the Senate Administration Committee for approval. The Committee may receive assistance from the Senate Jurisprudence Committee with the approval of Senator Rodney Ellis, Chair. Where appropriate, the Committee should obtain assistance from the Senate Research Center and legislative agencies, including the Legislative Budget Board, the Legislative Council and the State Auditor. The Committee should also seek the assistance of the Executive Branch agencies with responsibilities in the areas of the Committee’s interim charge. ADVISORY MEMBERS On agreement of the Committee, any Senator may serve as a non-voting, advisory member. OPEN MEETINGS The Committee should follow the provisions of HCR 212, 75th Legislature, regarding open meetings, including providing advanced public notice of all scheduled meetings to the Secretary of State, the Lieutenant Governor and the media, so the public may participate. TABLE OF CONTENTS EXECUTIVE SUMMARY OF RECOMMENDATIONS............................................................. 1 OVERVIEW .................................................................................................................................. 7 CHARGE 1: Study and make recommendations to address the increasing gang problem in Texas, including consideration of: A. Collaboration between law enforcement, education officials, and state and local juvenile justice agencies....................................................................................... 17 B. Prevention and intervention efforts...................................................................... 27 C. Needs of prosecutors and law enforcement agencies........................................... 71 D. Criminal information systems.............................................................................. 83 CHARGE 2: Study the need, if any, for additional juvenile court masters to assist courts with juvenile jurisdiction in providing speedy and effective justice for juvenile offenders and their victims. Identify jurisdictions most significantly impacted by juvenile justice caseloads. If necessary, make recommendations for the number of any such masters and the fiscal implications with potential funding sources................................................................................................................ 96 CHARGE 3: Monitor the implementation of HB 1550, passed by the legislature during the 1997 session, regarding progressive sanctions. Study the impact of progressive sanctions on juvenile facilities and upon program needs to make recommendations, if any, for statutory or funding changes.................................. 102 CHARGE 4: Monitor the STARS (Services to Runaway At-Risk Youth) program and community youth development grants to evaluate their effectiveness and continued implementation....................................................................................... 108 APPENDICES........................................................................................................................... 118 Appendix A......Analysis of School Gang Survey Appendix B......Chart of State Funded Programs Targeting At-Risk Youth Appendix C......Chart of State Funds Used Toward Prevention/Intervention Programs Appendix D......Chart of Collaborative Efforts Appendix E......Analysis of Juvenile Court Survey Appendix F......References EXECUTIVE SUMMARY OF RECOMMENDATIONS Charge I Study and make recommendations to address the increasing gang problem in Texas, including consideration of: A. collaboration between law enforcement, education officials, and state and local juvenile justice agencies; B. prevention and intervention efforts; C. needs of prosecutors and law enforcement agencies; and D. criminal information systems. I. A. Address the increasing gang problem in Texas, including consideration of collaboration between law enforcement, education officials, and state and local juvenile justice agencies. 1. Establish a statewide multi-jurisdictional Violent Gang Task Force Unit to facilitate better collaboration and communication among local and state law enforcement, corrections, parole and probation, and prosecutors. The Task Force would be required to meet on a regular basis for the purpose of exchanging information on violent gangs from various regions of the state, to identify and disseminate information on migration trends and offense trends of violent gangs, and to identify areas of the state where additional law enforcement and prosecutorial assistance is needed to immediately respond to significant increases in violent gang activity. 2. Require TDCJ, through administrative policy, to develop a formal process to make information on known prison gang members released from prison available to the Parole Division and local and state law enforcement agencies. Policies should include additional steps to ensure effective collaboration among criminal justice agencies in the supervision of gang members. 3. In order to enhance officer safety and provide for more accurate estimates of gang- related crime in Texas, require DPS to add an additional field on an individual’s criminal history record notating that the offense was gang-related, or that the individual is a confirmed member of a prison gang. Senate Interim Committee on Gangs and Juvenile Justice Report Page 1 4. Require TEA or the regional education service centers, in conjunction with Prairie View A&M Juvenile Crime Prevention Institute, to work with law enforcement