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Extracted from Consolidated Report
This investigation was originally published as part of a larger consolidated report containing multiple investigations. View the consolidated PDF for the complete document.
Los Angeles County Grand Jury
• 2007-2008
Jail Inmate Personal Accounts:
⚠️ Translation Notice: This content has been automatically translated. The original English text is the official version. Translation may contain errors.
⚠️ Este contenido ha sido traducido automáticamente. El texto original en inglés es la versión oficial. La traducción puede contener errores.
Note: Missing finding numbers detected: F9, F10, F11, F12, F13, F14, F15, F16
Findings 9 findings
F1
Page 18
There is now a recently implemented cap of $900 on the amount an inmate may have in his or her account, whether deposited by outside third parties, or in the inmate’s possession at the time of booking. The $900 maximum on inmate accounts is excessive, and it creates an opportunity for disparity in the jail setting, where there are many rules and regulations in place for the express purpose of maintaining a level playing field among inmates. Inmates who are able to amass such a substantial sum of money, and the amenities that money can buy, have an opportunity to use such money or amenities to barter for extraordinary privileges.
F2
Page 18
Government Code § 26640 does not speak to whether the Sheriff may release money in an inmate’s account to outside third parties at the direction of the inmate, except for that money in the inmate’s possession at the time he or she is booked into custody. There is no legitimate purpose in permitting a jail inmate to function as a cash conduit by directing the release of funds to outside third parties that were initially deposited by persons outside the jail system. 2007-2008 Los Angeles County Civil Grand Jury Final Report - 11 -
F3
Page 19
The Sheriff does not require identification from outside third parties who make cash deposits to an inmate’s account through the cashier’s office.
F4
Page 24
The fourth recommendation involves organizational changes to improve trust by youth already in the system. Many young people mistrust adults even when they are motivated by the highest ideals. Mentoring has proven successful in many instances especially when the ratio of youth to mentor is low. Continuous training for caregivers and foster parents is imperative in order to provide the best possible role models. Communication skills, early interventions to offset problems, and decision-making skills are crucial if programs are to have the positive impact we strive to achieve. Better and more effective communication is needed between the Probation Officers and schools with students in the probation system.
F5
Page 24
The fifth recommendation involves enhanced educational improvements for TAY. Vocational training, life skills programs, enriched music and art programs, as well as apprenticeship and on-the- job training will do much to support the regular high school curriculum required by State law to ensure that students graduate from high school equipped with the tools needed for successful adulthood.
F6
Page 24
The sixth recommendation calls for improved programs for post-emancipation TAY.
F7
Page 24
The seventh recommendation calls for the development of a comprehensive information system that captures the records on all current wards and continues to collect information through surveys on successes and problems after emancipation. This information is vital as a planning, evaluation, and budgeting tool. 2007-2008 Los Angeles County Civil Grand Jury Final Report - 17 - Our recommendations are deliberately directional. We hope we have provided enough specificity to make our intent clear while leaving room for creativity. We strongly encourage the many intelligent and dedicated people who are involved in the lives of TAY to set the bar even higher by focusing on the real life results achieved by all TAY.
F8
DCFS YOUTH OMBUDSMAN OFFICE ANNUAL REPORT 2007 In 2007 the Ombudsman received 236 complaints from TAY as follows: DCFS Probation Total Pre-emancipated youth 53 16 69 Emancipated youth 156 11 167 Total 209 27 236 2007-2008 Los Angeles County Civil Grand Jury Final Report - 33 - Their top 5 concerns were: Housing (103), ILP issues including Life Skills Classes (45), School Assistance (38), Transportation (13), and Documentation (13). A summary of the report is available in Appendix E.
F17
Page 51
• The LOFT (Larkin Opportunities for Transition) is a licensed transitional-living facility designed to meet the unique needs of underage homeless and runaway youth. • The Ellis Street Apartments supply permanent housing, coupled with an array of support services, including six units specifically reserved for youth diagnosed with HIV/AIDS. • LEASE is a supportive residential program for youth who have emancipated from San Francisco’s foster care system. The program uses scattered-site apartments, and participants are linked to a range of supportive services, including employment, education, and life skills training services. • Larkin Street Youth Services serves more than 3,000 youth and young adults ages 12-23. Approximately 80% of the young people who have completed Larkin Street’s counseling programs have left street life permanently. More than 85% of graduates from Avenues to Independence, a unique transitional-living program for young adults ages 18-23, have secured and retained permanent housing and career-track employment. Of the 84 young people served by the Aftercare Program, which helps young adults ages 18-23 living with HIV/AIDS achieve self-sufficiency, 92% successfully stabilized their lives off the street.” 3) Colorado Department of Human Services, Family Unification Program (FUP) Location: State of Colorado Contact: Valerie Jenkins, Independent-Living Coordinator, Colorado Department of Human Services, 303-866-4539, valerie.jenkins@state.co.us. Target Population: Youth ages 18-21 that left foster care at age 16 or older for housing support program; youth ages 16-21 for mentoring services Purpose: Provide housing assistance and after-care services to former foster youth. 2007-2008 Los Angeles County Civil Grand Jury Final Report - 44 - Features: Housing vouchers provided to youth through Colorado’s Department of Human Services partnered with Supportive Housing and Homeless Programs. Chafee funding is used to provide aftercare services with Family Tree, Volunteers of America, and Urban Peak – non- profits that provide 18-month aftercare services to young people in this program. “Colorado has also developed a unique partnership with AmeriCorps for youth in transition. AmeriCorps members located at FUP agencies support the development of local partnerships to assist youth ages 16-21 in successfully transitioning to adulthood. Members provide comprehensive mentoring services and help youth obtain employment and educational opportunities.” 4) Connecticut Department of Children and Families, Housing Continuum Location: State of Connecticut Contact: Bill Pinto, Independent-Living Coordinator, Connecticut Department of Children and Families, 860-550-6471, william.pinto@po.state.ct.us. Target Population: Youth up to age 23 Purpose: To assist youth in transitioning to adulthood by providing support to foster youth up to age 23. Features: “Connecticut’s Department of Children and Families provides adolescents in foster care a broad continuum of housing options. Youth move from highly structured, supervised living arrangements to a transitional living program where support is provided while structure and restrictions are decreased. Part of the department’s housing continuum includes a Community Housing Assistance Program, which provides youth with a subsidy to cover living expenses such as rent, food, utilities, telephone, transportation, and clothing. Youth are required to complete the department’s life skills program, be employed and enrolled in an educational or vocational program, and contribute a portion of their income toward expenses and a savings account. The average length of stay in this program is two years. Connecticut allows youth to remain in foster care up to age 23 if enrolled in post-secondary education.” 5) Illinois Dept. of Children and Families, Youth Housing Assistance Program Location: State of Illinois Contact: Ted Ernst, Youth Housing Assistance Coordinator, Illinois Department of Children and Family Services, 312-814-5571, Ternst@idcfs.state.il.us Target Population: Youth who have aged out or are preparing to age out of the foster care system; youth age 17-20 are eligible for housing advocacy services and youth 18-21 for cash assistance services Purpose: Provide housing assistance to youth at risk of becoming homeless who have aged out or are preparing to exit from the foster care system. Features: “Housing advocacy services include assisting youth in obtaining and maintaining stable housing, providing consumer education and budget counseling, linking youth to community-based resources, and follow-up services for a minimum of three months after youth secure housing. Cash assistance services are available to help newly emancipated foster youth or former foster youth before their 21st birthdays when in crisis. Cash assistance may be used for housing and utility deposits, emergency rental assistance, temporary rental subsidies, and necessary furniture or appliances. Sixteen housing advocates throughout the state help youth locate, secure, and maintain affordable housing. Illinois uses 30% of its Chafee funding for room and board services for youth ages of 18-21.” 2007-2008 Los Angeles County Civil Grand Jury Final Report - 45 - 6) Lighthouse Youth Services Location: Cincinnati, Ohio Contact: Mark Kroner, Director of Self Sufficiency Services, Lighthouse Youth Services, 513- 487-7130, mkroner@lys.org. Target Population: Independent Living Program targets foster youth and juvenile offenders ages 16-19. Transitional Living Program targets homeless youth ages 18-25. Purpose: “Lighthouse is committed to continuously educating public systems about the importance of giving youth opportunities to live on their own and the need for affordable housing at discharge.” Features: “Lighthouse Youth Services prevents youth in child welfare from becoming homeless and prevents young adults in the adult shelter system from remaining homeless through Independent Living and Transitional Living Programs. In 1981, Lighthouse developed a semi- supervised scattered-site apartment model based on the philosophy that young people learn best by doing and that youth should have opportunities to live on their own and develop self- sufficiency skills before discharge from care. The agency has served more than 1,000 youth in its model and averages around 80 youth a day living in their own apartments.” 7) New York City, Section 8 Priority Code Location: New York City Contact: Nancy Martinez, Independent Living Coordinator, New York State Office of Children and Family Services, 518-474-9586, nancy.martinez@dfa.state.ny.us Target Population: Youth aging out of the foster care system Purpose: Provide housing support for youth aging out of the foster care system, with some housing units set aside for those with mental health needs. The Administration for Children’s Services (ACS) and the Office of Housing Policy and Development (HPAD), in cooperation with the New York City Housing Authority provide this program. Features: “This program provides Section 8 vouchers or public housing units to qualified current and former ACS Independent Living clients. As of December 2002, more than 1,700 youth had utilized this program. ACS and HPAD, in conjunction with other private not-for- profit housing developers, continue to support the development of supportive housing for young people aging out of the system. Currently, at least 25 ACS Independent Living clients reside in a permanent supportive housing program by using their Section 8 vouchers, accessed through the Independent Living Priority Code Program. In February 2003, five units of permanent supportive housing were made available to former Independent Living clients with mental health needs.” 8) New Jersey Community Housing Demonstration Program, Shared Living Residence Rental Housing Program Location: State of New Jersey Contact: Bruce Blumenthal, New Jersey Mortgage Finance Agency, 609-278-7449, Bblumenthal@njhmfa.state.nj.us Target Population: “Eligible clients include persons with specials needs over age 18 and adolescents who are referred in writing by the New Jersey Department of Human Services or other DHS-approved sponsors.” Purpose: “The program assists persons with special needs to live independently within the communities of their choice by expanding the supply of affordable and quality housing.” 2007-2008 Los Angeles County Civil Grand Jury Final Report - 46 - Features: “The New Jersey Community Housing Demonstration Program (NJCHDP) is a partnership between the Department of Human Services and the New Jersey Mortgage Finance Agency (NJMFA). The NJCHDP Shared Living Residence Rental Housing Program provides financing to non-profits, for-profit developers, and municipalities for the acquisition of land and buildings, new construction, or the rehabilitation or conversion of buildings as transitional or permanent rental units for persons with special needs. The entire community residence or a portion of the units (as determined by the appropriate division of the New Jersey Department of Human Services) can be set aside for these individuals.”
Recommendations 10
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R1Page 18The Sheriff should impose a limit of $500 on the total amount of money an inmate has in his or her account at any given time. If the inmate is booked into custody with a sum greater than $500 in his or her possession, the inmate should be required to draw down on the amount until it falls below $500 before any deposits from outside third parties are accepted.
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R2Page 19The Sheriff should discontinue and prohibit the practice of allowing an inmate to authorize the release of funds to outside third parties, except for money that was in the inmate’s possession at the time of booking. All money deposited by outside third parties to inmate accounts should only be for use by inmates in purchasing phone cards and items from the jail store.
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R3Page 19The Sheriff should implement procedures requiring cashier staff to request valid identification from outside third parties making deposits to an inmate’s account, unless the amount is less than a pre-determined nominal sum, such as $100. 2007-2008 Los Angeles County Civil Grand Jury Final Report - 12 - 2007-2008 Los Angeles County Civil Grand Jury Final Report - 13 -
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R4Page 44DCFS, Probation, and DMH should develop a multi-faceted organizational plan including a comprehensive mentoring program that increases each child’s level of trust of the system. At a minimum, we believe the following changes should be considered: 4a) A suitable overlap of mentors should be built into the program to ease a child’s transition to the new mentor. 4b) The training provided to foster families and group home staff should be increased and should include ongoing evaluation, continuous training, and recertification. 4c) The interagency teams should be trained in team building skills to ensure they can make effective group decisions and are able to connect effectively with each child. 4d) Two-way communication with the children should be the norm and to the extent possible the children should be involved in key decisions affecting them. 2007-2008 Los Angeles County Civil Grand Jury Final Report - 37 -
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R5Page 45The directors of DCFS, Probation, DMH, and LACOE should design and implement jointly a curriculum that addresses practical educational skills for all children to better prepare them for independence. 5a) All programs should contain an identified minimum level of understanding on the part of the recipients before the program is considered delivered. 5b) Enhanced study skills and courses on practical living skills should be part of the curriculum of juvenile halls and camps. DCFS should include such courses in the schedules of students attending public schools whenever possible. 5c) Foster children should be encouraged to participate in music, art, and other nonacademic programs. Probation should seek volunteers to provide these services in juvenile halls and camps. 5d) Probation camps and halls should provide vocational training for all detainees utilizing ROP services when possible. DCFS should encourage TAY to enroll in experiential, vocational, and ROP courses. 5e) Probation and DCFS should develop additional apprentice, job training and part-time job programs with all levels of government and business to provide more practical work experience for TAY. 5f) Probation and DCFS should invite representatives from organizations such as the Forestry Service and various branches of the U.S. military to 2007-2008 Los Angeles County Civil Grand Jury Final Report - 38 - make presentations to youth that fully describe their educational opportunities and obligations. 5i) DCFS and Probation should develop significant incentives and rewards to encourage their wards to obtain high school graduation, or a GED, and high scholastic achievement. POST-EMANCIPATION TAY While 18 may be the age of majority, in our view a large percentage of 18 to 25 year olds currently leaving the system do not have the experience, education, maturity or means to thrive without the emotional and financial support of a family. The financial dimension is particularly difficult in Los Angeles where the cost of living is high and accommodation costs are typically double the national average. The following recommendations will help to mitigate the lack of “a safety net” that most families provide to their 18 to 25 year olds:
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R6Page 46Under the leadership of the Deputy CEO, DCFS, Probation, DPSS, and DMH, improved programs should be provided to youth 18 – 25 who have left the system. 6a) Either through the development of affordable housing supply and/or direct subsidy, all post transition youth should have access to good quality housing at a reasonable rate. 6b) A wider range of educational supports should be made available to post transition youth including tuition, room & board, books, and other expenses required when they attend school. 6c) Independent living supports should be provided such as health care insurance, transportation assistance, food vouchers, auto insurance subsidies, clothing allowances, and access to community-based support groups. The cost of these services should be partially borne by the post- transition youth based on an income means criterion to be developed by the departments. SYSTEM IMPROVEMENTS The development of a comprehensive and integrated information system was the most frequently mentioned requirement for improvement by County officials during the Entrance Conference. This requirement, and the need to deal with confidentiality rules to allow information sharing, was raised by last year’s CGJ and the ECC Blueprint. There is no doubt that this will be a costly exercise but the need is as obvious as the need for leadership to ensure the development of a comprehensive system. Our concern is that without comprehensive and integrated information systems, optimal decisions in the best interest of the child are unlikely. During this investigation it was clear that while evidence-based reviews are the mantra, in many programs there were not regular and systematic output-oriented evaluations. 2007-2008 Los Angeles County Civil Grand Jury Final Report - 39 - According to DCFS and Probation officials, many youth chose not to engage in TAY programs. We understand that teenagers can be difficult but at a minimum the evaluations of each program should include input from all youth to understand why some are not participating. There is evidence that the programs are not getting the results hoped for: - there are high incarceration rates of former system children - there is a high homeless rate - there are high pregnancy rates Conceptually, all of the programs and the resources expended on them are to have a positive impact on this population. Without follow-up data on the children, the evaluation of the real results of a program is not possible. We recognize that once a child leaves the system they are under no legal or other obligation to stay in touch and provide information on how they are doing. The departments need to stop thinking of this as an impassable roadblock and explore ways to obtain high quality follow-up information on former TAY.
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R7Page 47Under the leadership of the Deputy CEO, DCFS, Probation, and DMH, in consultation with LACOE and other school districts, should develop a plan and a timetable for a comprehensive information system to capture all records on all children in the system. The plan should include: cost estimates to develop and operate the system, a proposal for funding, and a timetable for implementation. Progress on development and implementation should be reported every four months to the Board of Supervisors. In order to facilitate the evaluation of the effectiveness of programs and future programs and policy initiatives: 7a) The new information system should be designed to allow for the tracking of all children once they leave the system. 7b) Appropriate incentives and commitments should be developed to encourage former TAY to remain in contact with the system to facilitate the gathering of information on them. 7c) Until data on former TAY is available routinely, the departments should pursue sampling and other survey methods to gain an understanding of the real results of TAY programs. 7d) Until the new information system is implemented, Probation should have access to all of DCFS’s data systems to help their staff track their youth and improve their services. 2007-2008 Los Angeles County Civil Grand Jury Final Report - 40 -
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R8Page 36DCFS YOUTH OMBUDSMAN OFFICE ANNUAL REPORT 2007 In 2007 the Ombudsman received 236 complaints from TAY as follows: DCFS Probation Total Pre-emancipated youth 53 16 69 Emancipated youth 156 11 167 Total 209 27 236 2007-2008 Los Angeles County Civil Grand Jury Final Report - 33 - Their top 5 concerns were: Housing (103), ILP issues including Life Skills Classes (45), School Assistance (38), Transportation (13), and Documentation (13). A summary of the report is available in Appendix E.
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R17Page 48• The LOFT (Larkin Opportunities for Transition) is a licensed transitional-living facility designed to meet the unique needs of underage homeless and runaway youth. • The Ellis Street Apartments supply permanent housing, coupled with an array of support services, including six units specifically reserved for youth diagnosed with HIV/AIDS. • LEASE is a supportive residential program for youth who have emancipated from San Francisco’s foster care system. The program uses scattered-site apartments, and participants are linked to a range of supportive services, including employment, education, and life skills training services. • Larkin Street Youth Services serves more than 3,000 youth and young adults ages 12-23. Approximately 80% of the young people who have completed Larkin Street’s counseling programs have left street life permanently. More than 85% of graduates from Avenues to Independence, a unique transitional-living program for young adults ages 18-23, have secured and retained permanent housing and career-track employment. Of the 84 young people served by the Aftercare Program, which helps young adults ages 18-23 living with HIV/AIDS achieve self-sufficiency, 92% successfully stabilized their lives off the street.” 3) Colorado Department of Human Services, Family Unification Program (FUP) Location: State of Colorado Contact: Valerie Jenkins, Independent-Living Coordinator, Colorado Department of Human Services, 303-866-4539, valerie.jenkins@state.co.us. Target Population: Youth ages 18-21 that left foster care at age 16 or older for housing support program; youth ages 16-21 for mentoring services Purpose: Provide housing assistance and after-care services to former foster youth. 2007-2008 Los Angeles County Civil Grand Jury Final Report - 44 - Features: Housing vouchers provided to youth through Colorado’s Department of Human Services partnered with Supportive Housing and Homeless Programs. Chafee funding is used to provide aftercare services with Family Tree, Volunteers of America, and Urban Peak – non- profits that provide 18-month aftercare services to young people in this program. “Colorado has also developed a unique partnership with AmeriCorps for youth in transition. AmeriCorps members located at FUP agencies support the development of local partnerships to assist youth ages 16-21 in successfully transitioning to adulthood. Members provide comprehensive mentoring services and help youth obtain employment and educational opportunities.” 4) Connecticut Department of Children and Families, Housing Continuum Location: State of Connecticut Contact: Bill Pinto, Independent-Living Coordinator, Connecticut Department of Children and Families, 860-550-6471, william.pinto@po.state.ct.us. Target Population: Youth up to age 23 Purpose: To assist youth in transitioning to adulthood by providing support to foster youth up to age 23. Features: “Connecticut’s Department of Children and Families provides adolescents in foster care a broad continuum of housing options. Youth move from highly structured, supervised living arrangements to a transitional living program where support is provided while structure and restrictions are decreased. Part of the department’s housing continuum includes a Community Housing Assistance Program, which provides youth with a subsidy to cover living expenses such as rent, food, utilities, telephone, transportation, and clothing. Youth are required to complete the department’s life skills program, be employed and enrolled in an educational or vocational program, and contribute a portion of their income toward expenses and a savings account. The average length of stay in this program is two years. Connecticut allows youth to remain in foster care up to age 23 if enrolled in post-secondary education.” 5) Illinois Dept. of Children and Families, Youth Housing Assistance Program Location: State of Illinois Contact: Ted Ernst, Youth Housing Assistance Coordinator, Illinois Department of Children and Family Services, 312-814-5571, Ternst@idcfs.state.il.us Target Population: Youth who have aged out or are preparing to age out of the foster care system; youth age 17-20 are eligible for housing advocacy services and youth 18-21 for cash assistance services Purpose: Provide housing assistance to youth at risk of becoming homeless who have aged out or are preparing to exit from the foster care system. Features: “Housing advocacy services include assisting youth in obtaining and maintaining stable housing, providing consumer education and budget counseling, linking youth to community-based resources, and follow-up services for a minimum of three months after youth secure housing. Cash assistance services are available to help newly emancipated foster youth or former foster youth before their 21st birthdays when in crisis. Cash assistance may be used for housing and utility deposits, emergency rental assistance, temporary rental subsidies, and necessary furniture or appliances. Sixteen housing advocates throughout the state help youth locate, secure, and maintain affordable housing. Illinois uses 30% of its Chafee funding for room and board services for youth ages of 18-21.” 2007-2008 Los Angeles County Civil Grand Jury Final Report - 45 - 6) Lighthouse Youth Services Location: Cincinnati, Ohio Contact: Mark Kroner, Director of Self Sufficiency Services, Lighthouse Youth Services, 513- 487-7130, mkroner@lys.org. Target Population: Independent Living Program targets foster youth and juvenile offenders ages 16-19. Transitional Living Program targets homeless youth ages 18-25. Purpose: “Lighthouse is committed to continuously educating public systems about the importance of giving youth opportunities to live on their own and the need for affordable housing at discharge.” Features: “Lighthouse Youth Services prevents youth in child welfare from becoming homeless and prevents young adults in the adult shelter system from remaining homeless through Independent Living and Transitional Living Programs. In 1981, Lighthouse developed a semi- supervised scattered-site apartment model based on the philosophy that young people learn best by doing and that youth should have opportunities to live on their own and develop self- sufficiency skills before discharge from care. The agency has served more than 1,000 youth in its model and averages around 80 youth a day living in their own apartments.” 7) New York City, Section 8 Priority Code Location: New York City Contact: Nancy Martinez, Independent Living Coordinator, New York State Office of Children and Family Services, 518-474-9586, nancy.martinez@dfa.state.ny.us Target Population: Youth aging out of the foster care system Purpose: Provide housing support for youth aging out of the foster care system, with some housing units set aside for those with mental health needs. The Administration for Children’s Services (ACS) and the Office of Housing Policy and Development (HPAD), in cooperation with the New York City Housing Authority provide this program. Features: “This program provides Section 8 vouchers or public housing units to qualified current and former ACS Independent Living clients. As of December 2002, more than 1,700 youth had utilized this program. ACS and HPAD, in conjunction with other private not-for- profit housing developers, continue to support the development of supportive housing for young people aging out of the system. Currently, at least 25 ACS Independent Living clients reside in a permanent supportive housing program by using their Section 8 vouchers, accessed through the Independent Living Priority Code Program. In February 2003, five units of permanent supportive housing were made available to former Independent Living clients with mental health needs.” 8) New Jersey Community Housing Demonstration Program, Shared Living Residence Rental Housing Program Location: State of New Jersey Contact: Bruce Blumenthal, New Jersey Mortgage Finance Agency, 609-278-7449, Bblumenthal@njhmfa.state.nj.us Target Population: “Eligible clients include persons with specials needs over age 18 and adolescents who are referred in writing by the New Jersey Department of Human Services or other DHS-approved sponsors.” Purpose: “The program assists persons with special needs to live independently within the communities of their choice by expanding the supply of affordable and quality housing.” 2007-2008 Los Angeles County Civil Grand Jury Final Report - 46 - Features: “The New Jersey Community Housing Demonstration Program (NJCHDP) is a partnership between the Department of Human Services and the New Jersey Mortgage Finance Agency (NJMFA). The NJCHDP Shared Living Residence Rental Housing Program provides financing to non-profits, for-profit developers, and municipalities for the acquisition of land and buildings, new construction, or the rehabilitation or conversion of buildings as transitional or permanent rental units for persons with special needs. The entire community residence or a portion of the units (as determined by the appropriate division of the New Jersey Department of Human Services) can be set aside for these individuals.”
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R16-17Page 5618-19 20 or older Overall EDUCATION