Documente Academic
Documente Profesional
Documente Cultură
DependencyRolesWorkgroup
April2016
MikeCarroll
Secretary
RickScott
Governor
Mission:WorkinPartnershipwithLocalCommunitiestoProtecttheVulnerable,PromoteStrongand
EconomicallySelfSufficientFamilies,andAdvancePersonalandFamilyRecoveryandResiliency
TableofContents
Introduction..................................................................................................................................................3
WorkgroupMembers....................................................................................................................................3
WorkgroupMethodology.............................................................................................................................5
Findings.........................................................................................................................................................6
Background.................................................................................................................................................10
StatutoryFramework..............................................................................................................................10
StagesoftheDependencyProcess.........................................................................................................11
Investigation:......................................................................................................................................12
Adjudication:.......................................................................................................................................12
Disposition:.........................................................................................................................................13
Appeal:................................................................................................................................................13
ChildrensLegalServices.............................................................................................................................13
History:....................................................................................................................................................13
TwoModelsofRepresentationinChildDependencyCases:.................................................................15
TheRoleandResponsibilitiesoftheAgencyLawyer:.............................................................................16
AreasofConfusionIdentified:................................................................................................................17
NewPracticeModel....................................................................................................................................18
TurnoverandRetentionofChildWelfareProfessionals............................................................................19
OtherFindings.............................................................................................................................................20
Conclusion...................................................................................................................................................20
AppendixA2015AnnualCriticalIncidentRapidResponseTeamAdvisoryCommittee
AppendixBSurveyRespondentDemographics
AppendixCWorkgroupAgendasandMinutes
AppendixDFocusGroupAssignments,QuestionsandSummaryofResults
AppendixETimelineHRSDCF19652015
AppendixFReportoftheDepartmentofChildrenandFamiliesLegalWorkgroup,September17,2007
AppendixGOrganizationalCharts
AppendixHChildProtectiveInvestigatorandChildProtectiveInvestigatorEducationalQualifications,
Turnover,andWorkingConditionsStatusReport,October1,2015
AppendixISupportingData
Introduction
InNovember2015,SecretaryMikeCarrolloftheFloridaDepartmentofChildrenandFamilies(DCFor
theDepartment)establishedaworkgroupdesignedtoidentifytheoperationalroleofthreeprimary
professionalgroupsinthedependencyprocess:ChildrensLegalServices,CaseManagementandChild
ProtectiveInvestigations.ThischargeoriginatedasafocusonChildrensLegalServicesonlyinthe
SouthernRegionduetofeedbackfromlocalstakeholdersaboutthelackofacommonunderstandingof
therolesandresponsibilitiesofthethreeprofessionalgroups.Shortlythereafter,itbecamemore
apparentthattherecouldbeabroaderissueofroleconfusionamongallthreeprofessionalgroupsand
morewidespreadthanjusttheSouthernRegion.Inresponse,SecretaryCarrollaskedforastatewide
assessmentoftherolesandhowtheyareoperationalizedineachregionandjudicialcircuitacrossthe
State.Thefocusoftheworkgroupconcentratedontherolesandresponsibilitiesasprescribedinthe
applicablestatutesincomparisonwithhowthesethreeprofessionalgroupswereactuallyperformingin
theverycomplexchildwelfaresystemestablishedinFlorida.SecretaryCarrollschargesetforththe
needanddesiretoclarifytherolesofallthreeprofessionalgroupsinordertoimprovethecritical
decisionmakingopportunitiesforeachgroupandtoprovidebetteroutcomesforFloridaschildren.
InanefforttomeettheSecretaryscharge,theworkgroupexaminedtheDepartmentsinitiativesthat
affecttheworkofthechildwelfareprofessionals,thestatutoryframeworkandrulesthatgovernhow
theworkistobeperformed,andthebusinessandlegalrelationshipswithstakeholders.Additionally,
theworkgrouplookedatexistingmaterialssuchasCriticalIncidentRapidResponseTeam(CIRRT)
reports1,LegislativeOfficeofProgramPolicyandPlanning(OPPAGA)reports,internaldata,andreports
relatingtotheworkforce.
TheDepartmenthasundertakentwolargeinitiativesalmostsimultaneously:first,arestructuringofthe
legalunitin2008inanefforttoprofessionalizetheworkforceandbringmorecredibilitytothe
Departmentwhenappearingbeforethejudiciary.
Secondly,in2011whilethelegalrestructurewasstillongoing,theDepartmentoperationalizedanew
practicemodelforchildprotectiveinvestigationsandcasemanagement.Thechangesembodiedinthis
newpracticemodelarefarreachingandambitious.Whilethispracticemodel,uniquetoFlorida,
incorporatesthebestinformationavailableaboutchildwelfarepracticefromaroundthecountry,asa
hybridmodel,itisstillbeingdevelopedandrefinedevenasitsbeingimplemented.
Incollectinginformationforthisreport,itwascleartotheworkgroupthatwhilethesetwoinitiatives
haveprovidedbenefitstotheDepartmentandthefamiliesitserves,theyhavealsoproducedsome
unintendedconsequencesaffectingtherelationshipsamongtheChildWelfareProfessionals,aswillbe
discussedbelow.
WorkgroupMembers
PeggySanford,Chair
MemberoftheFloridaBarsince1981;retiredfromtheFloridaSenate.AmongthefirstCWLS
lawyerstopractice.FormerstaffdirectorfortheFloridaHouseSelectCommitteeonChildAbuse
andNeglectandformerSeniorAttorneyfortheDCFOfficeofGeneralCounsel.
VickiAbrams
See2015AnnualReport,CriticalIncidentRapidResponseTeamAdvisoryCommittee,October2015,AppendixA.
AssistantSecretaryforOperations,DCF.Morethan36yearsofexperienceinthehealthand
humanservicesfield.Hasadministeredchildwelfare,adultprotection,substanceabuseand
mentalhealthservicesandeconomicselfsufficiencyprogramsthroughoutFlorida.
SandyBohrer
Partner,Holland&Knight.Boardmemberandformerboardchair,OurKidsofMiami
Dade/Monroe.SpecialcounseltoDCFSecretaryGeorgeSheldon.AdjunctProfessor,University
ofMiami,ChildrenandtheLaw.Advisor,AmericanLawInstituteproject,Childrenandthe
Law.
KarenHill
ChildrensLegalServices.DivisionDirector/AssistantStateAttorney,6thJudicialCircuit.Child
WelfareLegalServices/ChildrensLegalServicessince1992;AssistantStateAttorneysinceMay
2000,DivisionDirectorsinceMay2012.
RebeccaKapusta
GeneralCounsel,DCF.TenyearsofservicewithDCF;hasservedinseveralrolesbeginningwith
CWLSin2001.HasservedasAssistantGeneralCounsel,AssistantRegionalCounsel,andmost
recentlyasRegionLegalCounselintheDCFSunCoastRegion.
BillyKent
NortheastRegionFamilyandCommunityServicesDirector.Nineteenyearsofpublicservice;
withDCFsince2006.HasbeenaChildProtectiveInvestigator,aChildProtectiveInvestigator
Supervisor,aChildProtectiveInvestigatorSpecialist,aRegionPlanner,andDirectorofStrategic
Planning(KidsCentralInc.),andaFamilySafetyOperationsManagerfortheDCFCentralRegion.
TraciLeavine
DirectorofChildWelfarePractice,DCF.Hasworkedsince1999invariouscapacitieswithinDCF
andcommunitybasedcareorganizations,includingchildprotectiveinvestigations,case
management,supervision,training,dataspecialistandProgramManager.Spentsevenyearsas
theOperationsManagerincircuits2and14priortojoiningtheOfficeofChildWelfarein2014.
GrainneOSullivan
StatewideDirector,CLS.JoinedtheOfficeoftheAttorneyGeneral(OAG)in2001asatrial
attorneyintheChildrensLegalServicesBureau.PromotedtoDivisionChief.JoinedDCFinMay
2013asCLSSoutheastRegionalDirector.PromotedtoStatewideDirectorDecember2013.
StephenPennypacker
President/CEO,PartnershipforStrongFamilies,Inc.Hasworkedinchildwelfaresince1998,
servingasaCWLSmanagingattorneyandaCLSRegionalDirector.Hasalsoservedasstatewide
InterstateCompact(ICPC)Administrator,StatewideCLSDeputyDirector,andAssistantSecretary
forProgramsforDCF.FormerGeneralMagistrate.AdjunctProfessor,UFCollegeofLaw.Author,
ICPCChapterintheFloridaJuvenileLawandPracticeManualfortheFloridaBar.
JimSewell
RetiredasAssistantCommissioneroftheFloridaDepartmentofLawEnforcementinFebruary
2005,followinga32yearcareerwithuniversity,municipal,andstatelawenforcementagencies
inFlorida.Sincehisretirementfromactivelawenforcement,hehasprovidedtrainingand
managementconsultingservicestoanumberoflawenforcementandsocialservicesagencies,
notforprofitorganizations,andprofessionalassociations.FromJanuary2007throughJanuary
2011,heservedasanadvisortoSecretariesBobButterworthandGeorgeSheldonofFloridas
DepartmentofChildrenandFamilies.Dr.SewellreceivedhisB.S.,M.S.andPh.D.inCriminology
fromFloridaStateUniversity.2
CharlesScherer
RegionalOperationalManagerforChildProtectiveInvestigationsforDCFSouthernRegion.
SixteenyearsofpublicserviceandelevenandahalfyearswiththeFloridaDepartmentof
ChildrenandFamilies.ServedasaChildProtectiveInvestigator,ChildProtectiveInvestigator
Supervisor,ActingProgramAdministratorforChildProtectiveInvestigations,Government
AnalystIIintheOfficeoftheDCFAssistantSecretaryforOperations,OperationsManagerinthe
OfficeoftheDCFAssistantSecretaryforOperations/DeputySecretary,andDeputyDirectorof
theFloridaAbuseHotline.
DavidSilverstein
AttorneySupervisorandTrainingDirector,OfficeoftheAttorneyGeneral,ChildrensLegal
Services,HillsboroughCounty.AdmittedtoFloridaBar1991.Former,DCFCWLSSeniorAttorney
andManagingAttorney.FormerChairoftheJuvenileRulesCommitteeoftheFloridaBar.Has
authoredseveralrulerevisionsandformstoimprovethedependencyprocess.Hasauthored
PreliminaryDependencyProceedings,FloridaJuvenileLawandPractice,since2005.
BronwynStanford
RegionalManagingDirector,SouthernRegion,DCF.FormerlyCLSStatewideDeputyDirectorand
ChiefLegalCounsel.
Staff:CristinaBatista
GubernatorialFellow,20152016.CandidateforMastersinSocialWork,FSU,April2016.Along
withcompletingcoursework,hasworkedoncompletingFellowshiprequirementswhileassigned
toDCF.Theseincludestaffingthisworkgroupaswellasprovidingdataanalysisandperformance
improvementrecommendationsforDCFprogramoffices,regions,andstatehospitalfacilities.
WorkgroupMethodology
TheDependencyRolesReviewWorkgroupwasestablishedinNovember2015,andteammemberswere
finalizedinDecember.TheDependencyRolesReviewSurveywasavailableontheDepartmentof
ChildrenandFamiliesintranetwebsitefromDecember14throughDecember17,2015.Thesurveywas
reopenedfromJanuary4throughJanuary6,2016toallowforadditionalresponsesfromunderreporting
counties.Thesurveyreceivedatotalof1,670responses[1],yieldingaresponserateof29%acrossall
categoriesofpotentialrespondents.1623individualsidentifiedaRegionofemployment.
AlthoughscheduleconflictspreventedDr.Sewellfromfullparticipationintheworkgroup,hisadviceandcounsel
wereextremelyvaluableandappreciated.
[1]
SeeAppendixBforthequestionsaskedinthesurveyanddemographicsregardingthesurveyrespondents.
ThefirstworkgroupmeetingoftheDependencyRolesReviewWorkgroupwasheldJanuary6,2016at
theDCFSouthernRegionoffice3.
Aftertheworkgroupmeeting,regionalmeetingswereconductedwithleadershipinthesixregions.
Thesemeetingsoccurredasfollows:SouthernandSoutheastRegionsonJanuary7,2016;Centraland
SunCoastRegionsonJanuary13,2016;NorthwestRegiononJanuary19,2016;andNortheastRegionon
January21,2016.ThesemeetingswereledbyVickiAbrams,RebeccaKapusta4,GrainneOSullivan,and
PeggySanford.Focusgroupfacilitatorsforeachregionattendedwhenavailable.Themeetingswere
heldeitheratlocalDCFlocationsorcommunitybasedcareleadagencylocations.Thepurposeofthese
meetingswastoexplainthereviewtoregionalleadershipandtofinalizeplansforthefocusgroupsin
eachregion.
Facilitatorsbeganfocusgroupsaftertheregionalmeetingswerecompleted.
SouthernRegionfocusgroupswereconductedJanuary19and20,2016.
SoutheastRegionfocusgroupswereconductedJanuary20and21,2016.
NorthwestRegionfocusgroupswereconductedJanuary20and21,2016.
NortheastRegionfocusgroupswereconductedJanuary25and26,2016.
SunCoastRegionfocusgroupswereconductedFebruary1and2,2016.
CentralRegionfocusgroupswereconductedFebruary2and3,2016.
Focusgroupscoveringsevenfocusgroupsessionswereheldovertwoconsecutivedays.5Thesesessions
separatedgroupsbyroles:ChildProtectiveInvestigators,includingrepresentativesforsheriffsoffices
wherethoseofficeshaveresponsibilityforchildprotectiveinvestigations,(CPI),CPISupervisors,Case
Managers(CM),CaseManagerSupervisors,ChildrensLegalServices(CLS)attorneys,andCLS
Supervisors.Thecompositionoftheseventhgroupwasleftopenforassignmentbyregionalleadership.
TwofocusgroupfacilitatorswerechosenfromtheDependencyRolesReviewworkgroup.These
facilitatorsdidnot,however,holdfocusgroupsintheircurrentregionofemployment.Inaddition,each
focusgroupteamwasprovidedwitharecordertotranscribeascloselyaspossiblethecommentsmade
duringthefocusgroups.
ThesecondworkgroupmeetingwasheldFebruary4,2016attheDCFSunCoastRegionoffice.Atthat
meeting,focusgroupleadersinformedtheworkgroupofthemajorpointslearnedfromthegroups.The
workgroupalsoreviewedslidesshowingsomepreliminaryresultsfromthesurveys.
ThethirdworkgroupmeetingwasheldFebruary23,2016,inDCFheadquartersofficeinTallahassee.At
thismeeting,membersreviewedadraftoutlineofthefinalreportandprovidedcommentsfordrafting
thereport.
ThefinalmeetingoftheworkgroupoccurredbyVideoTeleconferenceonMarch9,2016.
Findings
1. StatutoryandRuleFramework
SeeAppendixCforworkgroupagendasandminutes.
UnabletoattendNortheastmeeting.
5
SeeAppendixDforFocusGroupAssignments,QuestionsandSummaryofResults.
4
1.1. ThemissionoftheDepartmentofChildrenandFamiliesissetforthats.20.19(1)(a),Florida
Statutes:
ThemissionoftheDepartmentofChildrenandFamiliesistoworkinpartnershipwithlocal
communitiestoprotectthevulnerable,promotestrongandeconomicallyselfsufficient
families,andadvancepersonalandfamilyrecoveryandresiliency.
1.2. TherolesassignedtocarryoutthismissionintheChildWelfarearenaaretheChildWelfare
Professionals:ChildProtectiveInvestigators,CaseManagers,andChildrensLegalServices
Attorneys.Throughoutthisreport,thesethreeactorsarereferredtoasChildWelfare
Professionals.
1.3. AlltheauthorityandresponsibilityforactionsinthedependencysystembyalltheChild
WelfareProfessionalsflowfromthelegislativegrantofauthoritytoDCF.NoneoftheChild
WelfareProfessionalshaveindependentauthoritytoactcontrarytothemissionandposition
oftheDepartment.
1.4. TheLegislaturehasdirectedthattheCPIfunctionbeperformedbygrantstolocalsheriffsin
fourcounties(Broward,Manatee,Pasco,Pinellas),andauthorizedDCFtoenterintosimilar
grantagreementswithsheriffsofothercountiestoprovidechildprotectiveservices.DCF
enteredintograntagreementswithSeminoleandHillsboroughCountysheriffsunderthis
provision.TheLegislaturehasfurtherdirectedthatallcasemanagementfunctionsbe
performedthroughcontractwithcommunitybasedcare(CBC)leadagencies,whichareprivate
nonprofitagencies.CBCshaveforthemostpartsubcontractedthecasemanagementfunction
tocasemanagementagencies,whicharealsoprivatenonprofitagencies.Inthe6thJudicial
Circuit(PinellasandPascoCounties),CLSservicesareperformedundercontractwiththeOffice
oftheStateAttorney,andinthe13thJudicialCircuit(HillsboroughCounty)andthe17thJudicial
Circuit(BrowardCounty),CLSservicesareperformedundercontractwiththeOfficeofthe
AttorneyGeneral.
1.5. AsaresultoftheoutsourcingdirectedorauthorizedbytheLegislature,noneoftheChild
WelfareProfessionalsinPinellas,Pasco,Hillsborough,orBrowardcountiesareDCFemployees.
ChildwelfareservicesintheremainingcountiesareperformedbyacombinationofDCF
employees(CPIsandCLS)andCBCorcasemanagementorganizationemployees.
1.6. ThelegislatureandtheFloridaAdministrativeCodehavedefinedtherolesoftheChildWelfare
Professionals:
1.6.1.TheChildProtectiveInvestigator(CPI)respondstoreportsofchildabuse,abandonment,
orneglectreceivedfromthepublicandreferredtothelocalCPIunitfromtheFloridaChild
Abusehotline;gathersinformation;andperformssafetyassessmentsofchildren.Ifachild
isfoundtobeunsafe,theCPIcreatesandimplementssafetyplans,takesnecessarysteps
toensurethesafetyofchildren,includingrequestingcourtaction,ifneeded.TheCPIalso
refersfamiliestoCaseManagersforongoingservices.TheCPIprovidesnecessary
documentationandtestimonyindependencycourt.
1.6.2.TheCMmonitorsthesafetyplanandthesafetyofthechild;createsacaseplanfor
servicesforthefamily;refersfamilieswithunsafechildrentoservices;takesnecessary
actionstoensurethesafetyofchildren,includingrequestingcourtactionwhenneeded;
andprovidesnecessarytestimonyanddocumentationindependencycourt.
1.6.3.ChildrensLegalServices(CLS)representstheDepartmentinitsmissiontoprotectchildren
inallcourtproceedingsandcoordinatesthenecessarydocumentationandtestimonyas
neededindependencycourt.Asanofficerofthecourt,CLSactsasadvisor,advocate,
negotiator,andevaluatorforitsclient,theDepartmentofChildrenofFamilies.
7
1.7. TheChildWelfareProfessionalrolesareinterdependent.Eachservesthestatutorymissionof
theDepartmenttoprotectvulnerablechildren,promotestrongandeconomicallyselfsufficient
families,andadvancepersonalandfamilyrecoveryandresiliency.Noneismoreimportantthan
theothers,andappropriatedecisionmakinginthedependencyprocessrequirestheexpertise
ofall.
1.8. ThelegislativelymandatedoutsourcingofCMand,insomeareas,CPIandCLSfunctionshas
increasedthecomplexityofthesystembuthasnotchangedthebasicresponsibilitiesofeach
role.
2. ThechildwelfaresysteminFlorida,recognizedasoneofthemostcomplexinthenation,hasbeen
subjecttothreemajorstressorsthathaveintensifiedroleconfusion.Thesethreestressorsare:the
restructuringoftheChildrensLegalServicescomponent;theimplementationoftheNewPractice
Model;andveryhighturnoverratesforChildWelfareProfessionals,particularlyamongCPIs.The
turnoverissueisbeingaddressedextensivelyinotherreportsandwillnotbeexaminedinthis
report.
3. ChildrensLegalServices(CLS)
3.1. TheLegislaturehasrequiredthatDCFberepresentedbycounselindependencyproceedings.
CLS,thegroupselectedbytheDepartmenttoperformthisrole,includesattorneysunder
contracttorepresenttheDepartmentthrougharrangementswiththeOfficeoftheAttorney
GeneralandtheStateAttorneysOfficeinthe6thJudicialCircuit.
3.2. In2008,theDepartmentbeganimplementingamodelofrepresentationsometimesreferredto
astheprosecutorialmodel,whichemphasizedtheroleoftheattorneyindependency
decisionmaking.Inthismodel,attorneyshavedescribedtheirallegianceprimarilytotheState
ofFlorida,ratherthantoDCF.Inthisview,ratherthanbeingcontractedrepresentativesof
DCF,CMsandCPIsareviewedasexpertwitnesses,theeyesandearsoftheattorney.Insome
areasofthestate,theprosecutorialmodelhasbeenmisinterpretedtoauthorizeCLStomake
independentdecisionsregardingallcourtissues,includingwhethertotakeorcontinueexisting
courtaction.
3.3. Thisattempttoimplementaprosecutorialmodelwithintheagencycontexthascompounded
analreadycomplexdependencysystem,furtherconfusingtheroleofCLSanditsrelationship
withotherchildwelfareprofessionals.Thisconfusionisabarriertothecooperationand
communicationthatisrequiredamongtheseprofessionalstobestservetheDepartments
statutorymissiontoprotectFloridaschildren.
3.4. CPIsandCMshavecontributedtotheconfusionofrolesrelatingtoCLSbyinvitingCLStoactas
CPIandCMsupervisorsandtomakedecisionsthatmoreproperlybelongtotheCPIorCM.
4. NewPracticeModel
4.1. TheNewPracticeModelisasignificantchangetoDCFspriorfocusandtheDepartmentisstill
inthemidstofimplementingit.Thisprocesshasnotoccurredseamlessly,andprofessionals
havevaryinglevelsofunderstandingofthemodelanditsimplicationsfortheirroles.
4.2. Acrossregionsandacrossroles,keyconceptsarecomplexandnotconsistentwithprior
practiceandareinterpretedwithoutconsistency.Inotherwords,fidelitytothenewmodelisa
challenge.
4.3. CPIsstrugglewiththedefinitionoftheirrole,especiallyasrequirementschangeundertheNew
PracticeModel.Manyexpressedfrustrationwithbeingforcedtobesocialworkerswhenthey
believetheirappropriateroletobeinvestigativeinnatureonly.
4.4. Becausetraininghasofnecessitybeendoneamidstongoingcaseassignmentresponsibilities,
thistraininghasnotbeenconsistentacrossregionsorevenwithinregionsasthemodelhas
beenimplemented.Traininghasbeenlargelyprofessionspecific,withlittletonotraining
occurringwiththethreeprofessionalssimultaneouslyasateam.Thisstyleoftraininghas
8
resultedinroleconfusionaseachoftheprofessionsinterpretsitsroleslightlydifferently,and
thereisnoopportunityduringtrainingforteamstoworkoutforthemselvesacoherent
approachforimplementingthemodel.
4.5. Thenewmodelrequiresadditionalassessmentanddifferentdataentryfrompriorpractice.
Respondentsreportthatoncethenewrequirementsareimplemented,betterdecisionmaking
occurs.
4.6. TherelationshipbetweencurrentstatuteandtheNewPracticeModelisnotfullyunderstood
bymanyoftheChildWelfareProfessionalsortheirsupervisors.Thisinabilitytoarticulatethe
coordinationbetweencurrentstatuteandtheNewPracticeModelhasledtoconfusionasto
applicationofthemodelatvariousstagesofthedependencyprocess.Aswellastoconfusion
astohowtoapplytheprovisionsofthestatutetothenewmodel.Thisconfusionhascaused
frustrationinsomeinstancesonthepartoftheChildWelfareProfessionalsthemselvesaswell
astheGuardianadLitem(GAL).
5. OtherFindings
5.1. Childwelfareprofessionalsreportthattheyelecttodothisworkforthemostpartbecauseofa
desiretoprotectchildren.Theysaytheyleavebecausetheyareunabletocarveouttimefor
theirownfamiliesandbecausetheyfeelunsupportedintheirjobs.Theyalsoreportedfeeling
overwhelmedbythepaperworkrequiredintheirjobs.
5.2. Specificareasofroleconfusionoccurwhenachildisremovedfromthehome,whenanin
homesafetyplanisnotfunctionaloradequate,andattheappellatestageofthedependency
process.
5.3. Accordingtosurveyrespondents,CLSmakesvirtuallyalldecisionsregardingtheappealofcases
inthedependencysystem.ThelevelofconsultationwithanyoftheotherChildWelfare
ProfessionalsorwithDCFadministrationinfilingappealsisreportedtobelowasisthesharing
ofinformationaboutthestatusoftheappealsortheimplicationsofthedecisionsinthe
appeals.
5.4. CPIsareperformingdutiesthatcouldbedelegatedtolesshighlytrainedindividualsifpositions
stillexistedintheDepartmenttoperformthoseduties.
5.5. Thelackofteamwork,whenitoccurs,leadseachprofessionaltofeelboththatheorshedoes
notownthecaseandthatheorsheisdoingadisproportionateamountofworkonthecase.
5.6. Outsideplayerssuchasthejudiciary,theGALandthemediaexertsignificantpressureonthe
professionals,contributingtoroleconfusionandstaffturnover.
5.7. Someregionshaveidentifiedstrategiestoincreasethesupportfeltbytheteammembers.
TheseeffortsincludedecisionsupportteamcallswhenCPIsidentifypresentdanger,co
location,jointtrainingsessions,andrecognitionofteamratherthanindividual
accomplishments.
5.8. Barrierstoteambuildingcitedwererequirementsforcompletionoflegalstaffingrequest
formspriortotalkingwithalawyer,professionalsnotrespondingtocallsoremails,offices
physicallyseparated,andcaseassignmentsystemsthatinvolvecourtliaisons.
5.9. Mostparticipantsinthefocusgroupsandsurveysaidtheywereawareoftheproceduresin
placeforresolvingdisagreementsamongthevariousrolesbuttherewasawidespreadbelief
thattheprocesswasgenerallynoteffective.Whileleadershipreportedthattheresolution
processworkedwell,thelinestaffwerelesssupportive,insomeinstancesreportingtheywere
sodefeatedbyittheynolongereventriedtouseit.
5.10.
TheDepartmenthasnotkeptanyorganizedhistoryofitssuccessesandfailuresover
time.Thisfailuretohaveeitherahardcopyoranelectroniclibraryofeffortsforimprovement
overtheyearsmakeslearningfrompasteffortsverydifficult6.Otheragenciesmaintain
historiesontheirwebsites,aversionofwhichwouldhavebeenveryhelpfulinpreparingthis
report.Seeforexample,theDepartmentofCorrectionswebsite,
http://www.dc.state.fl.us/oth/timeline/index.html.
Background
StatutoryFramework
TheFloridaConstitutioncontemplatestheseparationofpowersamongthelegislative,executive,and
judicialbranchesofthegovernment.Theexecutivebranchhasthepurposeofexecutingtheprograms
andpoliciesadoptedbytheLegislatureandofmakingpolicyrecommendationstotheLegislature.7
Theheadof(eachexecutive)departmentmayrecommendtheestablishmentofadditionaldivisions,
bureaus,sections,andsubsectionsofthedepartmenttopromoteefficientandeffectiveoperationof
thedepartment.However,additionaldivisions,orofficesintheDepartmentofChildrenandFamilies
maybeestablishedonlybyspecificstatutoryenactment.Newbureaus,sections,andsubsectionsof
departmentsmaybeinitiatedbyadepartmentandestablishedasrecommendedbytheDepartmentof
ManagementServicesandapprovedbytheExecutiveOfficeoftheGovernor,ormaybeestablishedby
specificstatutoryenactment.8
TheDepartmentiscreatedinsection20.19,FloridaStatutes:
ThemissionoftheDepartmentofChildrenandFamiliesistoworkinpartnershipwithlocal
communitiestoprotectthevulnerable,promotestrongandeconomicallyselfsufficientfamilies,
andadvancepersonalandfamilyrecoveryandresiliency.9
ThissectionoflawoutlinestheservicestheDepartmentistoprovideanddescribesthestructureofthe
Departmenttodelivertheseservices,asfollows:
TheDepartment,throughoffices,shallprovideservicesrelatingto:
1.
2.
3.
4.
5.
6.
7.
8.
9.
Adultprotection.
Childcareregulation.
Childwelfare.
Domesticviolence.
Economicselfsufficiency.
Homelessness.
Mentalhealth.
Refugees.
Substanceabuse.10
6
ThepartialtimelineatAppendixEwasdevelopedforthepurposeofthisreportandisincludedforanyvalueit
mighthaveindevelopingamorecomprehensivehistoryoftheDepartmentinthefuture.
7
Section20.02(1),F.S.
Section20.04(7)(b).F.S.
9
Section20.19(1)(a),F.S.
10
Section20.19(4)(a),F.S.
8
10
TheSecretaryoftheDepartmentisauthorizedtoconsolidate,restructure,orrearrangetheofficesof
thedepartmentinconsultationwiththeExecutiveOfficeoftheGovernor,providedanysuch
consolidation,restructuring,orrearrangingiscapableofmeetingfunctionsandactivitiesandachieving
outcomesasdelineatedinstateandfederallaws,rules,andregulations.TheSecretaryisalsoauthorized
toappointadditionalmanagersandadministratorsasheorshedeterminesarenecessaryforthe
effectivemanagementoftheDepartment.11
Totheextentallowedbylawandwithinspecificappropriations,theDepartmentmustdeliverservices
bycontractthroughprivateproviders.12
TheDepartmentsstatutoryresponsibilityforchildwelfareincludesthedependencyprocessfromthe
calltothemandatedstatewidehotline13throughthejudicialandnonjudicialdecisionsrelatedto
dependency,totheclosingofthedependencycaseeitherjudiciallyornonjudicially.Theservicesare
deliveredbychildwelfareprofessionalsemployedbytheDepartment,itscontractors,orits
subcontractorsor,inthecaseofsheriffsofficesperformingprotectiveinvestigations,bygrant
agreements.
ThelawrequiresthattheDepartmentberepresentedbycounselateachdependencyproceeding.
Throughitsattorneys,theDepartmentisrequiredtomakerecommendationstothecourtonissues
beforethecourtandmaysupportitsrecommendationsthroughtestimonyandotherevidencebyits
ownemployees,employeesofsheriffsofficesprovidingchildprotectionservices,employeesofits
contractors,employeesofitscontractorssubcontractors,orfromanyotherrelevantsource.14
Allproceduresunderchapter39aretobeconductedaccordingtotheFloridaRulesofJuvenile
Procedureunlessotherwiseprovidedbylaw.15Additionally,DCFhasbeengrantedrulemakingauthority
fortheefficientandeffectivemanagementofallprograms,services,facilities,andfunctionsnecessary
forimplementingtheprovisionsofchapter39,solongasthoserulesdonotconflictwiththeFlorida
RulesofJuvenileProcedure.16
StagesoftheDependencyProcess
Therearefourmajorstagesofthedependencyprocess:investigation,adjudication,disposition,and
appeal.Therearethreemajorchildwelfareprofessionalsresponsibleforthedeliveryofservicesforthe
Departmentateachlevel:investigators(CPIs),casemanagers(CMs)andlawyers(CLS)17.18Eachofthese
hasaroleateachstageoftheprocess.
11
Section20.19(4)(b),F.S.
Section20.19(1)(c),F.S.
13
Section39.201(2),F.S.
14
Section39.013(12),F.S.
15
Section39.013(1),F.S.
16
Section39.012,F.S.
17
Inadditiontothesechildwelfareprofessionals,manyotherindividualsandgroupsareinvolvedinthe
dependencyprocess.Theseincludethejudiciary,theGAL,parentsattorneys,childrensattorneys,law
enforcement,andothers.Forthepurposeofthisreport,thefocuswillbeonlyonthoseprofessionalshiredbyor
contractedtotheDepartment.Contractedtoincludesemployeesofsubcontractorsandemployeesofsheriffs
departmentsperformingchildprotectiveservices.Theseotherindividualsandgroupswillbereferencedonlyin
conjunctionwiththeirimpactontheprocessandtheDCFchildwelfareprofessionals.
18
TheDepartmenthasinitsrulesdefinedchildwelfareprofessionaltoincludeonlyCPIsandCMs,65C
30.001(22)and(23),FAC.ThisdefinitionitselfsetsCLSapartfromtheotherprofessionalsandwillnotbefollowed
inthisreport.
12
11
Investigation:
Broadlyspeaking,theinitiationofachildprotectioncasebeginswhenacallisacceptedbytheFlorida
ChildAbuseHotlineandreferredforprotectiveinvestigation.19ACPI20isassignedtoinvestigatethe
report.ThedutiesoftheCPIincludemakinganinitialsafetyassessmentandperceivedneedsforthe
childandhisorherfamily.21Thespecificactivitiesrequiredtodeterminechildsafetyarestatutorily
outlined.22Thesedutiesincludeutilizingastandardizedsafetyassessmentinstrumenttodeterminethe
presentandimpendingdangerspresentforeachchild.Ifpresentorimpendingdangerisidentified,the
CPImusteitherimplementasafetyplanortakethechildintocustody.Ifasafetyplanisrequired,the
CPImustcollaboratewiththecommunitybasedcareleadagencyinitsdevelopment.23
IftheCPIdeterminesthatthechildisinneedofprotectionandsupervision,theDepartmentmayfilea
petitionfordependency.IftheCPIdeterminesthattheinterestsofthechildandthepublicwillbebest
servedbyprovidingchildcareorothertreatmentvoluntarilyandtheservicesofferedareacceptedby
thechildscaretakers,thefamilymaybereferredforvoluntaryservices.24
CPIsareauthorizedtotakechildrenintocustodywhentheCPIhasprobablecausetosupportafinding:
1. thatthechildhasbeenabused,neglected,orabandoned,orissufferingfromoris
imminentdangerofillnessorinjuryasaresultofabuse,neglect,orabandonment;
2. thattheparentorlegalcustodianofthechildhasmateriallyviolatedaconditionof
placementimposedbythecourt;or
3. thatthechildhasnoparent,legalcustodian,orresponsibleadultrelative
immediatelyknownandavailabletoprovidesupervisionandcare.25
CMsarenotpermittedtotakeachildintocustodywithoutapriorcourtorderauthorizingtheremoval
orchangeofplacement.IfthechildistakenintocustodybyaCPI,theCPIisrequiredtoreviewthefacts
supportingtheremovalwithanattorneyrepresentingtheDepartment.Thepurposeofthisreviewisto
determinewhetherthereisprobablecauseforthefilingofashelterpetition.26Ifthefactsaresufficient
andthechildhasnotbeenreturnedtothecustodyoftheparentorlegalcustodian,theDepartmentis
requiredtofilethepetitionandtheattorneyrepresentingtheDepartmentisrequiredtorequestthata
shelterhearingbeheldwithin24hoursaftertheremovalofthechild.27
Adjudication:
Theprocessforadjudicatingachilddependentbeginswithfilingadependencypetitioninthecircuit
court.ThepetitionmaybefiledwhetherornotthechildisinthecustodyoftheDepartment.This
petitionmustbefiledbyanattorneyfortheDepartmentorbyanyotherpersonwhohasknowledgeof
thefactsallegedorisinformedofthemandbelievesthemtobetrue.28Thefilingofthepetitionis
19
Section39.301(1),F.S.Whilespecialcircumstancesrequiringotherinvestigationsarestatutorilydescribed,they
arenotrelevanttothisoverview.See,forexample,s.39.301(2),F.S.
20
ACPImaybeadepartmentemployeeormaybeanemployeeofoneofthesixsheriffsofficesprovidingchild
protectiveservices,s.39.3065,FS.
21
Section39.301(7),F.S.
22
Section39.301(9),F.S.
23
Section39.301(9)(6),F.S.
24
Section39.301(9)(b),F.S.
25
Section39.401(1)(a),F.S.
26
Section39.401(3)(a),F.S.
27
Section39.401(3)(b),F.S.
28
Section39.501(1),F.S.
12
followedbyanarraignmenthearing29and,ifnecessary,byanadjudicationhearing.30Ifachildis
adjudicateddependent,thecourtconductsadispositionhearing.31
Ifacontestedadjudicatoryhearingisheld,theattorneyfortheDepartmentwillpresentwitnessesto
supporttheadjudicationofdependency.ThesewitnessesmayincludetheCPIinvestigatingthecaseand
theCMwhohasprovidedservicesduringthependencyofthecase.
Disposition:
Ifachildisadjudicateddependent,thecourtreviewsandacceptsthecaseplanwhichcontainsthetasks
andservicestheparentsarerequiredtocomplete.Thecourtretainsjurisdictionoverthecaseandis
requiredtoconductjudicialreviewseverysixmonthstomonitorthefamilysprogressuntilthechild
achievespermanency.32Oneoftheoptionsforpermanency,adoption,requirestheterminationof
parentalrights.AllpetitionsseekinganadjudicationtoterminateparentalrightspursuanttoChapter39,
FloridaStatutes,mustbeinitiatedbythefilingofapetitionbytheDepartment,theGAL,oranyother
personwhohasknowledgeofthefactsallegedorisinformedofthemandbelievesthemtobetrue.33
Atthejudicialreviewhearings,theattorneyfortheDepartmentwillpresentdocumentsandmay
presenttestimonyfromtheCMassignedtothecase.TheroleoftheCPIislesssignificantatthisstage
thaneitheroftheothers,butmaybecomeimportantifachangeofplacementissought.TheCPIs
testimonymayalsobenecessaryinestablishingthegroundsforterminationofparentalrights.
Appeal:
Thepartiesinadependencycasehavearighttoappealordersgrantingordenyingadependency
adjudicationorterminationofparentalrights.CLShastheresponsibilitytopursueappealsandtoinform
theotherChildWelfareProfessionalsofthestatusoftheappealaswellastheimplicationsofany
rulingsbytheCourtontheappeal.
ChildrensLegalServices
History:
Theevolvingroleofdepartmentlawyershaspresentedchallengestothedependencysystem.Priorto
1990,DCFhadnolawyersemployedspecificallytorepresentChildWelfareProfessionalsindependency
court.In1988,thefirstrequestevermadetotheFloridaSupremeCourtforanadvisoryopinionwas
madebytheDepartmentofHealthandRehabilitativeServices(HRS),thepredecessoragencytoDCF.
ThisrequestaskedtheCourttodeterminewhetheritsnonlawyercounselors(atthattimeallemployed
byDCF)couldprepareandfilepleadingsandappearincourtonbehalfofHRSinuncontested
dependencycases.TheCourtissuedtwoopinions,bothholdingthatthesenonlawyercounselorswere
29
Section39.506,F.S.
Section39.507,F.S.
31
Section39.521,F.S.
32
Section39.701(1),F.S.
33
Section39.802,F.S.
30
13
engagedintheunauthorizedpracticeoflaw.ThefinalopinionorderedHRStoendthepracticeoflawby
itslaycounselorsbyJanuary1,1990.34
Inresponsetotheseopinions,thelegislatureappropriatedfundsforHRStohirelawyers,andChild
WelfareLegalServices(CWLS)wasestablishedwithinHRS.Whiletherewasneveranyspecific
substantivelegislationoutsideoftheappropriationsbilldescribingtheprogram,therewasneverany
doubtthatthepositionswereestablishedtorepresenttheagency(thenHRS,nowDCF)independency
hearings.Thereportingstructureforthelawyersvariedslightlyovertime,butuntil2008always
involvedboththeOfficeofGeneralCounselandtheregionaladministrationoftheDepartment.
In2004,proposalsweremadetotransfertheCWLSfunctionfromDCF.Fouroptionswereexploredby
theLegislaturesOfficeofProgramPolicyAnalysisandGovernmentAccountability(OPPAGA).These
were:contractingwithothergovernmentalentities,forprofitlawfirms,ornotforprofitentities,or
retainingtheservicewithinDCF.OPPAGAconcludedthattransferringthefunctiontostateattorneysor
theAttorneyGeneralwasnotfeasiblebecausetheseentitiesdidnotwishtoexpandtheirinvolvement
inthefunctionandthatcontractingwith(communitybasedcare)leadagencieswasnotfeasibleasit
wouldcreatepotentialconflictsofinterest.Thereportpointedouttheuncertaincostimpactsof
contractingwithprivatelawfirmsandrecommendedthat,ifthefunctionwastoberetainedwithinDCF,
theDepartmentshouldtakestepstoimprovestaffprofessionaldevelopmentandaccountability.The
reportrecommendedthatthelegislatureshouldconsiderclarifyingwhoseinterestsarerepresentedby
CWLSattorneysindependencyproceedings.35
InSeptember2005,inafollowupreporttothe2004SpecialReport,OPPAGAreportedthatCWLSwas
makingsomeimprovementsbutcontinuedprogresswasneeded.36Specifically,OPPAGArecommended
thatCWLSadoptacasetrackingsystemandaqualityassurancesystem,whilerecognizingthatstepshad
beentakentoreducecaseloads,enhanceprofessionaldevelopment,andimprovetheaccountability
systemforCWLSattorneys.
InMay2007,thenSecretaryRobertButterworthconvenedaworkgrouptoexaminethedeliveryof
servicesbyboththeGeneralCounselsOfficeandChildWelfareLegalServices.TheSecretaryschargeto
theworkgroupwastodeveloprecommendationstoresultin:
OrganizationandreportingstructureoftheGeneralCounselandDistrictLegalCounseloffices,
reflectiveoftheproposedregionalandcircuitbasedstructureoftheDepartment;
Organization,management,andreportingstructureofChildWelfareLegalServices,including
theattorneyclientrelationship,therelationshipwithcommunitybasedproviders,andthe
decisionmakingprocesses;
TheinteractionbetweenGeneralCounselstaffandChildWelfareLegalServicesattorneysin
representingtheDepartment,incarryingouttheirroutineresponsibilities,andwithrespectto
appellatepracticeandcasesofstatewideconcern;
Staffsupport,legalresourcesandtoolsavailabletotheDepartmentsattorneys;
Thelegalbudgetprocess,withemphasisonlitigationexpense,expertwitnesses,andtheuseof
outsidecounsel;
ThedocketingandcasetrackingsystemcurrentlyusedbytheDepartmentsOfficeofGeneral
CounselandChildWelfareLegalServices;
34
TheFloridaBarRe:AdvisoryOpinionHRSNonlawyerCounselor,518So.2d1270(Fla.1988),andTheFloridaBar
Re:AdvisoryOpinionHRSNonlawyerCounselor,547So.2d909(Fla.1989).
35
SpecialReport,OfficeofProgramPolicyAnalysisandGovernmentAccountability(OPPAGA),January2004.
36
ChildWelfareLegalServicesMakesSomeImprovements,ButOtherChangesNeeded,OPPAGA,September2005.
14
Theprocessandsubstanceofinitialtraining,capacityforongoingcontinuingeducation,and
professionaldevelopmentofDepartmentalattorneys;and
Theprocessesforrecruitment,selection,andretentionofDepartmentalattorneys.37
Thisreportcontained123recommendations,themostpertinentofwhichwereforreorganizationofthe
CWLSfunctionintoanautonomousunitreportingtotheStateCWLSDirector,apartfromtheGeneral
CounselandRegionalLegalCounseloffices.ThenewstatewidelawfirmnameshouldbeChildrens
LegalServices.ThisreportrecognizedthatallCWLSlawyers,whetheremployedbytheDepartment,the
OfficeoftheAttorneyGeneral,orastateattorney,representthelegalinterestsoftheDepartmentas
theclient.Laterinthereport,theclientofCWLSattorneysisdescribedastheStateofFlorida,
DepartmentofChildrenandFamilies.ColocationwithCPIsandCMswasrecommendedwhenever
feasible,aswasbetterroledefinition,professionalism,andbudgetcontrol.Thereportdidnotmake
specificrecommendationsastoeitheranagencymodeloraprosecutorialmodeltobeadoptedby
theagencyforitslegalrepresentation.
ByJanuary16,2008,manyofthestructuralchangesrecommendedbythereporthadbeenmade.Atthe
sametime,theDepartmentbegantoanalogizeitsattorneystoprosecutorsincriminalcasesandto
characterizeCPIsandCMsasexpertwitnesses,thecriticaleyesandearsoftheattorneyinthefield.38
UsingtheresourcesnowunderthebudgetarycontroloftheCLSStatewideDirector,atrainingeffortfor
lawyerswasundertakenwiththegoalofincreasingtheprofessionalismofthelawyersandconveying
thevisionoftheirroleastheprosecutionarmofthedependencysystem.39Thatefforthasculminated
inayearroundtrainingcurriculumdevelopedandledbyathreememberCLSStatewideTrainingTeam.
TheTrainingTeamconductsanintensemultidayNewAttorneyTrainingeveryquarter,abiannual
multidayAdvancedLitigationAcademy,bimonthlyhottopicwebinars,monthlycaselawconference
calls,practicepointers,andonsitelivetrainingforattorneys,CPIs,andcasemanagement.40
By2015,thevisionoftheCLSlawyerasaprosecutorwhoseclientistheStateofFloridahadevolvedto
thepointwheretheDepartmentwasnotevenrecognizedintheoverviewpostedontheCLSwebsite.
Thisoverviewspecificallyrejectedtheagencymodelofrepresentation,sayinginpartthattheCLS
modelcanbeanalogizedtothatoftheprosecutorwhichallowsCLSattorneystofurthertheStates
positionregardingachildsbestinterestasopposedtodefendingtheDepartment.41
TwoModelsofRepresentationinChildDependencyCases:
Itisimportanttounderstandthetwodifferingmodelsofattorneyrepresentationindependency
cases.42
37
ReportoftheDepartmentofChildrenandFamiliesLegalWorkgroup,September17,2007,pageii.NOTE:this
documentisunpaginated,andrecommendationsareunnumbered,soexactreferencestorecommendationsare
difficult.ThefulltextofthereportisincludedinAppendixFofthisreport.
38
Thepurposeofdependencyproceedingsistheprotectionofthechildandnotthepunishmentoftheperson
creatingtheconditionofdependency,s.39.501(2),F.S.Oneoftheconcernsaboutusingaprosecutorialmodelin
thedependencyprocessisthepotentialforlosingthiscriticaldistinctionfromcriminallaw.
39
http://eww.dcf.state.fl.us/cls/docs/CLSmodel.pdf
40
Theincreasedemphasisonlegaltrainingandprofessionalismhasbeenamajorbenefitoftheprosecutorial
modelasimplementedinDCF.
41
http://eww.dcf.state.fl.us/cls/
42
ThisdiscussionisexcerptedfromStandardsofPracticeforLawyersRepresentingChildWelfareAgencies,
AmericanBarAssociation,2004.
15
Intheagencyrepresentationmodel,theagencyattorneyrepresentstheagencyasalegalentity,much
thesameasinhousecounselsroleinrepresentingacorporation.AccordingtotheAmericanBar
Association(ABA),thebenefitsofthismodelinclude:
Relianceonagencysfamiliaritywithachildandfamilyindecisionmaking;
Valueplacedontheagencysexpertiseinmakingdecisionsregardingthesafety,permanency
andwellbeingofchildrenandonthelawyerslegalexpertiseonlegalmatters;
Consistentdecisionmakingandinterpretationoflaws;
Legalactionsupportedbycaseworkeropinion,thusboostingcaseworkercredibilityincourt,for
exampleindecidingwhentofileaninitialpetition;and
Theattorneyisveryfamiliarwiththeagencyanditspracticesandpolicies.
TheonlydrawbacktothismodelcitedbytheABAisthepotentialforcaseworkerstobelievethatthe
attorneyrepresentsthempersonallyratherthantheagencyasawhole.InFloridasdecentralized
system,thisconfusioncouldalsomeanthatleadagenciesortheirsubcontractorsbelievethatthe
attorneysrepresentthemortheiragenciesratherthanrepresentingtheDepartment.
Intheprosecutorialmodel,anelectedorappointedattorneyoremployeeofthatelectedorappointed
attorneyfilespetitionsandappearsincourtonbehalfoftheagencyandrepresentsthestateorthe
peopleofthejurisdiction.Thismaymeantheelectedattorneymayoverridetheviewsoftheagencyin
court.TheonepositiveaspectofthismodelcitedbytheABAisthattheattorneymaybemoreintune
withthewishesandbeliefsofthecommunityandhowthecommunityfeelsabouthandlingchild
welfarecases.Concernswiththemodelinclude:
Thecaseworkerisoftentheonlypartyincourtwithoutanattorneyspeakingforhimorher;
Thecaseworkersexpertisemaybeignored,astheattorneyhastheultimatesay;
Theattorneymaybehandlingallthebusinessforthecommunityandthereforenotbeableto
specializeinchildwelfarelaw;
Politicalagendasmayplayalargeroleindecisionmaking;
Theagencyasawholemaynotbegettinglegaladviceonpolicyissues;
Theattorneyspersonalbeliefsaboutissuessuchaspermanencyratherthancaseworker
expertisedictatewhatwillhappenforachild;andpotentialconflictsofinterestmayarise,such
aswhentheprosecutorispursuingadelinquencypetitionagainstachildwhoisintheagencys
custody.
TheABAcommitteedraftingthestandardsofpracticerecommendedtheagencyrepresentationmodel,
butrecognizedthatstatelegislationmaydictatewhatmodeleachattorneymustfollow(emphasis
added).Further,thereportrecommendedagainstdevelopinghybridmodelsincorporatingelementsof
theagencymodelandtheprosecutorialmodelbecauseoftheinherentriskscreatedbysuchhybrid
models.
TheRoleandResponsibilitiesoftheAgencyLawyer:
SinceDCFistheclientoftheCLSlawyer,certainobligationsareimposedonthelawyerbytheFlorida
BarCodeofProfessionalResponsibility.AlawyersresponsibilitiesareoutlinedinthePreambletothe
Codeasfollows:
Alawyer,asamemberofthelegalprofession,isarepresentativeofclients,anofficerofthe
legalsystem,andapubliccitizenhavingspecialresponsibilityforthequalityofjustice.
16
Asarepresentativeofclients,alawyerperformsvariousfunctions.Asanadviser,alawyer
providesaclientwithaninformedunderstandingoftheclientslegalrightsandobligationsand
explainstheirpracticalimplications.Asanadvocate,alawyerzealouslyassertstheclients
positionundertherulesoftheadversarysystem.Asanegotiator,alawyerseeksaresult
advantageoustotheclientbutconsistentwithrequirementsofhonestdealingwithothers.As
anevaluator,alawyeractsbyexaminingaclientslegalaffairsandreportingaboutthemtothe
clientortoothers.43
TheRulesofProfessionalConductapplytolawyersrepresentingorganizations,andlawyersrepresenting
governmentalagenciesareasubclassofthiscategoryoflawyers.44Governmentallawyersmayhavea
specialresponsibilitytothepublicinbalancingconfidentialityrequirementsandthepublicinterest,but
areotherwiseheldtothesamestandardsaslawyersrepresentinganyorganization.45
AreasofConfusionIdentified:
Applyingtheseprinciplestothedependencyprocess,theCLSlawyerisrequiredtoinformDCFofits
legalrightsandobligationsandtoexplaintheirpracticalimplications.ItisalsoincumbentonCLSto
educatetheotherprofessionalsabouttheimportanceofcaselawininterpretingstatutes,especiallyin
areasthatmaylimittheabilityoftheDepartmenttoacttoprotectchildren,suchasdomesticviolence
andsubstanceabusecases.ThelawyerisrequiredtozealouslyrepresentDCFspositionconsistentwith
theDepartmentsmissionundertherulesoftheadversarysystemasestablishedbystatute,rule,and
caselaw.CLSisrequiredtoseekresultsadvantageoustoDCFbutconsistentwithhonestdealingwith
others.Finally,CLSisrequiredtoacttoexamineDCFslegalaffairsandreportaboutthemtotheclient
orothers.
Threespecificareasofconfusionwereidentified.Thefirstisintheareaoffindingsofprobablecause.46
TheCPIsdiscussionwithCLSaboutprobablecausetoremoveachildfromthechildshomeisnotfor
thepurposeofdeterminingwhetherprobablecauseexists,sincethisisafunctionofthecourt.The
purposeofthediscussionistodeterminewhetheracrediblecasecanbemadeforprobablecause
basedonthefactssotheDepartmentandtheCLSattorneywillnotfacesanctionsforpursuingfrivolous
claims.TherehasbeenconfusionwiththeprosecutorialmodelwhichhasledsomeChildWelfare
ProfessionalstobelievethatCLShastheauthoritytomakethedecisionastowhetherprobablecause
existstoremoveachild.ThisconfusionledtotheprofessionalsbelievingthatCLSisthefinaldecision
makeronhowandwhethertoproceedwiththedependencycaseasitmovesthroughthecourt
process.
Secondly,adeterminationoflegalsufficiency,anotherphraseusedbyCLStoguideotherchildwelfare
professionals,isnotadeterminationofthelikelihoodofprevailingonanissue,orevenadetermination
ofthewisdomofthepathproposed,butmerelyadeterminationastowhetheracrediblecasecanbe
43
PreambletotheRulesofProfessionalConduct,RulesRegulatingtheFloridaBar.
Rule41.13,FLRulesofProfessionalConduct
45
Commentary,Rule41.13,FLRulesofProfessionalConduct.
46
Probablecauseisnotdefinedinchapter39.Itisatermmostcommonlyusedincriminalcasesandisa
requirementoftheFourthAmendmentoftheUnitedStatesConstitution.Itisusuallyrequiredbeforepolicemake
anarrest,conductasearch,orexecuteawarrant.Courtshaveattemptedtoclarifythetermonseveraloccasions,
whilerecognizingthatprobablecauseisaconceptthatisimprecise,fluid,andverydependentoncontext.TheU.S.
SupremeCourt,inIllinoisv.Gates462U.S.213,232(1983),inacriminalcase,favoredaflexibleapproach,viewing
probablecauseasapractical,nontechnicalstandardthatcallsuponthefactualandpracticalconsiderationsof
everydaylifeonwhichreasonableandprudentmenact.CornellUniversityLawSchool,
www.law.cornell.edu/wex/probablecause.
44
17
made,onthefactsavailable,applyingcurrentstatutoryandcaselaw,thatthefilingisnotmade
frivolously.47
AnotherareaofroleconfusionariseswhenCPIsandCMsturntoCLSforanswerstoquestionsbetter
directedtotheirownsupervisors.ThispracticemayresultfromthefactthatCLShasalowerturnover
rate,highereducationrequirements,andmoresophisticatedtrainingthantheotherprofessionals.Inan
efforttobehelpful,itiseasyforCLStooverstepitsareaofexpertiseintodecisionmakingmore
appropriatelydonebytheotherprofessionals.
Finally,theorganizationalstructureoftheDepartmentandofCLSdonotsupportinteractionand
communicationbetweenCLSandtheotherChildWelfareProfessionals.InthemostcurrentDCF
organizationalchart,CLSoperatesasasilo,reportingdirectlytotheSecretary,withoutanystructured
interactionwiththeOfficeofChildWelfare(wheretheotherprofessionalsarehoused),theOfficeofthe
GeneralCounsel,orRegionalAdministrators.48
NewPracticeModel
AnotherDepartmentinitiativetobringthebestinterestofthechildtotheforefrontofpracticebegan
afterthetragicdeathofNubiaBarahonainFebruary2011.TheDepartmentassembledaspecialreview
paneltoexaminethehistoryofthecaseandproviderecommendationstoimproveFloridaschild
welfaresystem.49Thepanelrecommendedareengineeringofchildprotectiveinvestigationsthat
encompassedrecruitment,selectionandtraining,aswellastechnologyenhancements,reviewof
investigativeprocessesandpractices,andcollaborationwithlawenforcementandexternalpartners.
ThisNewPracticeModel,uniquetoFlorida,incorporatesthebestinformationavailableaboutchild
welfarepracticefromaroundthecountry.Themodelisdesignedtoestablishastandardizedteamwork
approachtoassessingchildsafetyandrisk,utilizinginternalandexternalexpertise.Thevisionwasto
transformtheroleofthehotline,investigationsandcasemanagement,sothateachcomponentofthe
systemworksasanintegratedandhighlyinterdependentunit,equippedto:
gatherbetterinformation;
relayinformationfaster;
conductbetterqualityinvestigationsthroughanassessmentprocessthatfocusesona
setofnewsafetyconstructstoprovideacompletepictureofthechildandfamily;and
offeramoreeffectiveengagementstrategytoensurethechildandfamilyssafetyand
independence.
Thisholisticapproachassessesthechildandfamilysstrengthsandneedsanddeterminesthesafetyof
thechild.Theevaluationofthefamilyassistschildwelfareprofessionalsindeterminingtheunderlying
conditionsthatarecreatingthethreatorrisktothechild.Informedbytheevaluation,thechildwelfare
professionalworkswiththefamilytoovercomethoseunderlyingissueswhilemaintainingchildsafety.
47
SeeRule43.1,FLRulesofProfessionalConduct.
TheDCFOrganizationalChart,updated3/11/16,andtheCLSLeadershipOrganizationalChartareattachedas
AppendixG.
49
TheNubiaReport,March10,2011
48
18
ImplementationplansweredevelopedattheregionalandcircuitlevelthroughRegionalChampions,
whobecameinstrumentalinmovingthevisionandpracticeforward,despitemultiplechangesin
leadershipandprojectleads.
Floridanowhaswhatmanyexpertsdescribeasoneofthenationsmostcomprehensiveandcomplex
childwelfarepracticemodels.TheDepartmenthasembarkedonamonumentalshiftinhowcasesare
handled,movingawayfrombeingincidentfocusedtoassessmentfocused.50Developingand
maintainingahighlyskilledworkforceisessentialforbothinvestigationsandcasemanagement.Key
skillsworkersmusthavetoeffectivelyapplythepracticemodelandappropriatelyinterveneinclude
criticalthinking,interviewingandtheabilitytoengagefamilies.
OperationalizingtheNewPracticeModelhasinvolvedchallenges,includingverylimitedresourcesata
headquartersandregionalleveltoprovidehandsonsupporttofrontlinestaffandalackofalignmentof
policy,ruleandstatutewiththenewpractice,whichinturncreatedconflictamongchildprotective
investigators,casemanagers,ChildrensLegalServices,andthejudiciary.
Additionalchallengeswerefacedintrainingtheworkforce.Becauseworkershadtobetrainedwhile
continuingtocarrytheirfullcaseloadsandresponsibilities,astaggeredimplementationtothenew
practicewasdeployed.Limitedresourcesfortrainingfrontlinestaffinthemandatoryeightdaytraining
forcedtraininginsingleprofessionalgroupsinmanyareas.Currently,skilllevelvariesthroughoutthe
systemofcare,rangingfromathoroughlevelofunderstandingtheNewPracticeModeltoverylittle
understanding.ThereisaperceptionamongtheChildWelfareProfessionalsinterviewedthatothersin
theirlocalsystemsofcaredonotunderstandthemodelaswellastheydo.Thisperceptionhas
contributedtoroleconfusionaseachoftheprofessionalsinterpretsitsrole(andtherolesoftheothers)
differently.
Manystaffinterviewedreportedfeelingillequippedtopracticethemodelwithfidelity,ashighand
constantturnoverhaveledtolittleopportunitytoattendavailabletrainings.Highcaseloadsand
pressuretoclosecasesinatimelyfashionhaveresultedinalargeportionoftheworkforcethat,despite
havinglessthantwoyearsonthejob,reportedfeelingburntoutandnotsupported.
JudgesandGuardiansadLitemvaryintheirunderstandingandacceptanceoftheNewPracticeModel,
andCLSvariesinitsabilitytoarticulatetheconnectionsbetweensubstantialcompliancecontainedin
thestatuteandconditionsforreturncontainedinthenewpracticemodel.Theexplanationanduseof
thenewterminology,suchaspresentdangerandimpendingdanger,aswellastheredefinitionof
existingtermssuchasriskandsafety,havenotbeenunderstoodbythejudiciary,Guardiansat
Litem,orotherkeystakeholderssuchasChildProtectionTeams.
TheworkgrouprecognizesthatmanyofthechallengesandstressesoftheimplementationoftheNew
PracticeModelareinherentinmakingsuchawiderangingandsignificantchangeinphilosophyforthe
Department.Thesechallengeswerenotunexpectedandcanbepredictedtolessenovertimeasthe
modelbecomesmorewidelyunderstoodandaccepted.
TurnoverandRetentionofChildWelfareProfessionals
WhileitisclearthattheunacceptablyhighrateofturnoveramongChildWelfareProfessionals,withits
impactontrainingandcaseloadsandcommunicationingeneral,isamajorcontributortorole
50
SourcesincludeActionforChildProtectionandtheNationalCapacityBuildingCenter
19
confusion,thereasonsandremediesforthisissuearebeyondthescopeofthisreportandprovidemore
thanadequategroundsforseparateexploration.51
OtherFindings
Findingsinthereportnotspecificallyaddressedinthebackgroundinformationwerebasedon
informationgatheredfromthesurveyandthefocusgroups,withtheexceptionofthefinalfinding,
whichwasbasedonattemptstogatherDCFhistoryforthepreparationofthisreport.52
Conclusion
TheDepartmenthasmadegreatstridesinmeetingitsmissionstatementbyrestructuringthelegalarm
oftheorganizationwhileatthesametimedeployingaNewPracticeModelforitsoperationalteam.The
initiativeshavethecommonthreadofdrivingthebestinterestsofchildrentotheforefrontofdecision
makingwhileprofessionalizingtheworkforce.Bothrequiredaveryrobusttrainingprocesstobe
implementedwithinthelimitationsofresourcesandworkforceneeds.Theimplementationprocessfor
thenewpracticemodelandtheshifttoamoreprosecutorialmodelforCLS,havecreatedanimbalance
towardownershipofdecisionmakingincasesbyCLS,ratherthantotheidealofeachprofessional
havingequalandinteractivedecisionmakingresponsibility.TheimbalanceofpoweramongtheChild
WelfareProfessionalshascompoundedtheunderlyingroleconfusionresultingfromhighturnoverand
trainingnotcoordinatedamongtheprofessionals.Someregionsandcircuitshavetakenstepsto
improvecommunicationsandtosupportfrontlineworkers.Colocationisessential,asissupported
decisionmakingandrealistictimeexpectationfortheprofessionals.Coordinatedtrainingefforts,in
whichteamsconsistingoftheprofessionalswhowillworktogetheroncasesaretrainedtogether,have
beentriedonalimitedbasisandshowthepotentialforabetterunderstandingofrolesonthepartofall
theprofessionals.
51
See,forexample,ChildProtectiveInvestigatorandChildProtectiveInvestigatorEducationalQualifications,
Turnover,andWorkingConditionsStatusReport,AnnualReport,DCFOfficeofChildWelfare,October1,2015.This
reportisattachedinitsentiretyatAppendixH.
52
Apresentationofthedatareceivedfromseveralofthesurveyquestionsandthefocusgroupsisincludedat
AppendixI.
20
Appendix A:
2015 Annual Critical Incident Rapid Response Team Advisory
Committee
Appendix A
Appendix A
Appendix A
Appendix A
Appendix A
Appendix A
Appendix A
Appendix A
Appendix A
Appendix A
Appendix A
Appendix A
Appendix A
Appendix A
Appendix B:
Survey Respondent Demographics
Appendix B
Appendix B
Appendix C:
Workgroup Agendas and Minutes
Appendix C
AgendaInitialWorkgroupMeeting
January6,2016
401NW2ndAve
SuiteN1007VisionaryRoom
MiamiFL33128
Begin1:00pm
Welcome/OverviewofProject/Introductions
RebeccaKapusta
10minutes
OpeningRemarks/History/Workgroupmeetingschedule
PeggySanford
15minutes
OutlineofMaterialsalreadyprovidedandhowtoaccess
CristinaBatista
5minutes
CIRRTSummary
TraciLeavine
20minutes
SummaryofSurveyResults
PeggySanford
30minutes
TraciLeavine
BREAK
(2:302:45)
ScheduleandPurposeofFocusGroups
15minutes
PeggySanford
CristinaBatista
5minutes
ReviewofFocusGroupAssignments
PeggySanford
10minutes
ReviewofFocusGroupQuestions
PeggySanford
20minutes
FocusGroupTeamBreakouts
All
20minutes
QuestionsandComments
All
20minutes
Thanksandclose
PeggySanford
5minutes
ClearDates
Reviewregionspecificsurveyresults
Endby5pm
Appendix C
January7SouthernandSoutheastregionalmeetings
January13CentralandSuncoastregionalmeetings
January19Northwestregionalmeeting
January21Northeastregionalmeeting
February4TeammeetinginTampaDCFOffice,9am4pm
February23FinalteammeetinginTallahasseeDCFOffice,12pm4pm
CristinaBatistainformedteamofDropboxonlinerepositoryforhistoricalandrelevant
documentstobeaccessedbyteammembers.
TraciLeavinepresentedanoverviewoftheCriticalIncidentRapidResponseTeams(CIRRT)
processandimportanttrends.ShespoketothethemesoftheCIRRTsandhowthereports
revealedconcernsofdependencyprocessasitrelatestoroleandfunctionofemployees.
PeggySanfordandTraciLeavinepresentedapreliminarysummaryofsurveyresults,
acknowledgingthattwolargecountiesdidnotparticipateinthesurvey.
GrainneOSullivanandPeggySanfordpresentedtheteamwithareviewoffocusgroup
assignments.Theteammembersweregivenadraftfocusgroupguidewiththeinitial
statementandquestionsbrokendownbyrole.PeggySanfordreviewedthefocusgroup
questionswiththeteamandrequestedinputfromallattendees.
Teammemberswereinformedoftheirassignedpartnersandregion(s)andselecteddatesfor
focusgroupmeetings.
Actions
Reopensurveytoobtainresponsesfromcountiesthatdidnotparticipateinthesurvey.
TeammemberswillprovidefeedbackforfocusgroupquestionsandguidestatementbyFriday
January8,2016.
Teammembersmaydecidetobringanotherindividualfromtheirregiontotakenotesduring
thefocusgroupsessions,andwillinformCristinaBatistaofdecision.
CristinaBatistawilladdcontinuetoadddocumentstotheDropboxandwillinformregion
contactsofdatesforfocusgroupsessionsasteamsdecide.
End:4:30PM
Appendix C
Agenda
DependencyRolesWorkgroupMeeting
February4,2016
Tampa
Welcome
RebeccaKapusta
MinutesofJanuaryMeeting
CristinaBatista
SurveyResults(draft)
PeggySanford/CristinaBatista
ProcessOutlineforFocusGrouppresentation
PeggySanford
SouthernRegionFocusGroup
Pennypacker/Hill
SoutheastRegionFocusGroup
Stanford/Kent
Lunch
NorthwestRegionFocusGroup
Borher/Sherer
NortheastRegionFocusGroup
Kent/Leavine
SuncoastRegionFocusGroup
Bohrer/Sherer
CentralRegionFocusGroup
Stanford/Silverstein
Discussion/NextSteps
PeggySanford
Appendix C
rolegroup,circuitorregionspecificresponses,andcriticalinformationtobeshared(ifnotalready
covered).Teammemberspresentedasfollows:
KarenHillandStephenPennypackerSouthernRegion
BillyKentandBronwynStanfordSoutheastRegion
SandyBorherandCharlesSchererNorthwestRegion
SandyBorherandCharlesSchererSunCoastRegion
BillyKentandTraciLeavineNortheastRegion
DavidSilversteinandBronwynStanfordCentralRegion
Actions
TeammemberswereaskedtoprovideasummaryofeachregioninwrittenformbyThursdayFebruary
11,2016.
Teammemberswereaskedtoprovidecategorizationforsurveyquestionsbasedonfocusgroupresults
byeitherreport,Tableaupresentation,orirrelevant.
End:4:00PM
Appendix C
Agenda
DependencyRolesWorkgroup
1317WinewoodBoulevard
TallahasseeFL
February23,2015
124pm
Begin12:00pm
Welcomeandthanks
SecretaryCarroll
5minutes
Administrativeissues(traveletc)
PeggySanford
5minutes
ApprovalofMinutesofFebruary4meeting
PeggySanford
5minutes
Planforgivingfeedbacktoregionalleadership
PeggySanford
15minutes
Feedback:Whathavewelearned?
PeggySanford
30minutes
Reviewofproposedfirstfinding
PeggySanford
30minutes
Discussionre:additionalfindings
All
1hour
Nextsteps
PeggySanford
15minutes
Additionalquestionsorremarks
All
15minutes
Thanksandclose
RebeccaKapusta
5minutes
Endby4pm
Appendix C
Therewasahighlevelofparticipationanditwasclearthatindividualsfeelpassionatelyaboutthis
processandwantedtocontributetheirconcernsandperspectives.Individualsareexpectingandexcited
tohavechangethatwouldclarifytherolesfortheminthisdependencyprocess.Thereneedstobe
engagementwithCPIandCMwiththefamiliesweserve.WithmostofthecasesthattheDepartment
goesthroughgoodoutcomesareachieved,butwhenthereisntcommunication,theconsequencesare
toohigh.
DebriefingofRegions
Theteammemberswillpresentahighlevelsummaryofthefocusgroupsessionstoregionalleadership.
ProposedFirstFinding
Theteammembersreviewedthefirstproposedfindingandprovidedinputandrevisions.
Actions
TeammemberswillgiveCristinaBatistadatesofavailabilitytomeetwithregionsfordebriefing
meetings.
PeggySanford,RebeccaKapustaandGrainneOSullivanwillmeettodecideuponareasonableamount
offindingsanddistributealisttotheteam.
TheteamwillmeetoverVTConWednesdayMarch9thtodiscussthefinallistoffindings.
End:4:00PM
Appendix C
Agenda
DependencyRolesWorkgroup
VTC
March9,2016
35pm
Welcome
ReviewofMinutesforFebruary24meeting
ReportfromFocusGroupLeaders
Northwest
Bohrer/Sherer
Northeast
Kent/Leavine
Suncoast
Bohrer/Sherer
Southern
Pennypacker/Hill
ReviewofDraftFindings
NextSteps
Appendix D:
Focus Group Assignments, Questions, and Summary of Results
Appendix D
Dates
Times
Region
Location
Jan 19 & 20
January 19
CPIs and Intake Group, CPI Sup, CM
CM Sup
9-10:30, 11-12:30, 1:30-3, 3:30-5pm
January 20
CLS Attorneys, CLS Supervisors, Lead
CBC and Admins
9-10:30, 11-12:30, 1:30-3pm
January 20 CPI, CPI Sup, CM, CM Sup
9-10:30, 11-12:30, 1-2:30, 3-4:30pm
Southern
Region
Brickell Room
Southeast
Region
Central
Region
Suncoast
Region
Northwest
Region
Panama City
Karen Hill
Bronwyn
Stanford
Jan 20 & 21
Billy Kent
Bronwyn
Stanford
David
Silverstein
Sandy Bohrer
Feb 1 & 2
Charles
Scherer
Sandy Bohrer
Jan 20th
and 21st
Charles
Scherer
Traci Leavine
Billy Kent
Jan 26 & 27
DCF Office
2505 West 15th St, Panama
City, Florida, 32401
Northeast
Region
St. Augustine
Appendix D
2.
When do CPIs and CLS communicate? When do CMs and CLS communicate?
When do CPIs and CMs communicate? When do any of these communicate
with DCF administration? Is the communication professional and helpful? Is the
communication usually face to face, by email, telephone, or other? Are there
barriers to effective communication? What could made the communication
better?
3.
Who makes the decision to remove a child, CPI, CM, CLS, DCF? Is this answer
different for different circumstances? Describe.
4.
5.
What happens when there is disagreement between CLS and either CPI or
CM? For example, if the CM believes a motion should be filed in a case and
CLS disagrees? Or if a CPI believes a dependency petition should be filed and
CLS disagrees?
6.
What are the important outside influences that affect the workers in the
dependency system? For example, the judiciary, the Guardian ad Litem, the
press, parents attorneys, etc. What impact do these have on the way the
system works?
7.
What is the most important thing that needs to be changed in the dependency
system today to improve our ability to keep children safe?
8.
9.
Do you feel that your area is unique to the rest of the region? In what way?
Appendix E:
Timeline HRS-DCF 1965-2015
Appendix E
Year
1969
1973
1978
1989
1990
1991
1992
1994
1994
1996
1996
1998
2002
2004
2006
2006
2007
2009
2011
2015
2015
Action
Department of Health and Rehabilitative Services (HRS) created by the Florida
Legislature. Consolidated sixteen separate agencies, councils, and programs into seven
divisions of one department: Corrections, Family Services, Health, Mental Health,
Retardation, Vocational Rehabilitation, and Youth Services.
Two new divisions added to HRS: Aging and Childrens Medical Services.
Department of Corrections created.
Florida Supreme Court issues advisory opinions invalidating portions of chapter 39 and
ruling that by January 1, 1990, HRS must end the practice of law by its lay counselors
under these statutes.518 So.2d 1270 (FL 1988); 547 So.2d 909 (FL 1989).
Child Welfare Legal Services (CWLS) lawyers begin practice, using agency model.
Department of Elder Affairs created
Agency for Health Care Administration created
Department of Juvenile Justice created.
Legislature enacts s. 409.1671, directing the outsourcing of the provision of foster care
and related services statewide.
HRS divided into two entities: Department of Children and Families and Department of
Health
Legislature authorized, in the general appropriations act, pilots for legal services to be
delivered for DCF by the Office of the State Attorney in the 8th and 16th Judicial Circuits
and by the Office of the Attorney General (OAG) in the 17th Judicial Circuit. Currently, the
Office of the State Attorney provides legal services in the 6th Judicial Circuit and the OAG
provides the services in circuit 13 in addition to circuit 17. The state attorney offices in
the 8th and 16th circuits no longer provide these services.
Legislature grants authority for child protective investigations to sheriffs in Pinellas,
Manatee, Broward, and Pasco counties. Later extended to Seminole (2000), Hillsborough
(2005), and Citrus (2007) counties. Citrus County SO ended its CPI program in 2012.
Division of Vocational Rehabilitation moved to Department of Education
Agency for Persons with Disabilities created
Transfer of transfer of family preservation, emergency shelter, foster care, and adoption
services to community based care (CBC) agencies complete
Pilot project outsourcing quality assurance (QA) activities to CBC agencies for 3-years
DCF Legal Workgroup convened; CWLS renamed CLS; prosecutorial model adopted.
Office of Program Policy Analysis and Government Accountability (OPPAGA)
recommends not continuing or expanding the QA pilots due to distancing the
department from the lead agencies and reduc(ing) its firsthand knowledge about the
quality of child welfare services.
43 QA FTEs converted to dollars and shifted to CBCs for Quality Assurance activities
within the CBC. 49 positions remained in DCF. These were later reduced by 19, leaving 30
FTEs statewide, most of whom are in the regions. There is no longer any requirement for
joint QA activities between DCF and CBCs.
CIRRT teams fully operational
CIRTT data and Annual Report available on DCF website
Appendix F:
Report of the Department of Children and Families Legal
Workgroup, September 17, 2007
Appendix F
Report of the
Department of Children and Families
Legal Workgroup
Appendix F
TABLE OF CONTENTS
Introduction ............................................................................................................ i
Charge from the Secretary ................................................................................... ii
Executive Summary ..............................................................................................1
General Counsel Organizational Structure ............................................................2
Child Welfare Legal Services ...............................................................................7
Overview and Organizational Structure .........................................................7
Practice Standards ......................................................................................11
Relations with Community-Based Care Providers .......................................11
Support Staff .......................................................................................................14
Legal Resources .................................................................................................15
Case Tracking and Quality Assurance ................................................................15
Budget and Financial Management .....................................................................18
Training and Professional Development..............................................................19
Recruitment and Retention..................................................................................20
Funding ...............................................................................................................21
Future Tasks .......................................................................................................23
Conclusion ..........................................................................................................24
Appendices
Appendix A. Organizational Charts...................................................................25
Appendix B. Statewide CWLS General Counsel Crossover Practice .............27
Appendix C. General Counsel Position Descriptions ........................................29
Appendix D. Legal Counsel Role in Contracts ..................................................34
Appendix E. Comparative Matrix of Recommendations ...................................37
Appendix F. Child Welfare Legal Services Attorney Caseloads .......................57
Appendix G. Child Welfare Legal Services Position Descriptions ....................58
Appendix H. Child Welfare Legal Services Appeals Policy...............................67
Appendix I. Total Statewide Legal Budget .......................................................69
FY06-07 and FY07-08 Budget and Expenditures .....................................69
Master List of all attorney and legal support positions ..............................75
Preliminary legal services positions count ................................................88
Appendix J. Statewide In-service Training Plan ...............................................91
Appendix K. Child Welfare Legal Services Training Curriculum .......................92
Appendix L. General Counsel Legislative Budget Requests ............................97
Appendix M. Child Welfare Training Legislative Budget Request ...................107
Appendix F
Introduction
On May 7, 2007, Secretary Robert A. Butterworth established a Legal Review Workgroup
(Workgroup) to examine the two units within the Department providing legal services: the
Office of General Counsel (GC) and Child Welfare Legal Services (CWLS), and develop
recommendations to enhance the methods by which these units provide such services.
The Workgroup evaluated prior studies, reviewed current operations in the light of best
practices, and convened a series of meetings to take testimony that led to the
development of this Report. This Report is offered as a recommended blueprint to reorganize and re-engineer the delivery of the Departments legal services, to improve the
quality of legal representation, and to promote effective communication, coordination, and
collaboration both within the Department and between the Department and its communitybased lead agencies and service providers (Community Partners).
Organization and reporting structure of the General Counsel and District Legal
Counsel offices, reflective of the proposed Regional and circuit-based structure of
the Department;
Organization, management, and reporting structure of Child Welfare Legal
Services, including the attorney-client relationship, the relationship with
community-based providers, and the decision-making processes;
The interaction between General Counsel staff and Child Welfare Legal Services
attorneys in representing the Department, in carrying out their routine responsibilities,
and with respect to appellate practice and cases of statewide concern;
Staff support, legal resources and tools available to the Departments attorneys;
The legal budget process, with emphasis on litigation expenses, expert witnesses,
and the use of outside counsel;
The docketing and case tracking system currently used by the Departments Office
of General Counsel and Child Welfare Legal Services;
The process and substance of initial training, capacity for ongoing continuing legal
education, and professional development of Departmental attorneys; and
The processes for recruitment, selection, and retention of Departmental attorneys.
Workgroup Members
Appendix F
Judge Nikki Ann Clark, Circuit Court, 2nd Judicial Circuit, Chair of the Florida
Supreme Court Committee on Children and Families in the Court
Murray Greenberg, former County Attorney, Miami-Dade County
Appendix F
Executive Summary
Throughout Workgroup meetings, several issues regularly surfaced and guided both
discussions and recommendations. First, the Workgroup strongly believes the success
of any legal organizational structure requires a professional, business-like approach to
planning and implementation, driven by Secretary Butterworths Six Guiding Principles:
Integrity, Leadership, Transparency, Accountability, Community Partnerships and an
Orientation to Action.
Second, the effective improvement of the Departments legal services requires
deliberate and institutionalized cultural change within the Department. There must be
acceptance of the administrations commitment to accountability for direct services in
cooperation with Community Partners, and that acceptance must permeate throughout
the Department. The Departments employees, and its leadership at all levels, must
recognize the critical importance of high quality legal services in achieving the
Departments mission, and must ensure that anything less than first rate legal
representation cannot be accepted as an attitude or practice. Instead, the culture of the
Department must be one which demands and receives excellence in attorneys
performance of their legal and ethical duties.
Third, Department attorneys must be committed to providing ethical and effective legal
representation, particularly with respect to protecting the legal rights and needs of
vulnerable citizens. Legal decisions must be made after careful consideration of
complete and accurate information derived from all available sources, and all legal
actions must respect the dignity of the parties and the fairness of the legal process as
well as all statutory requirements. The Department must embrace best legal practices
and examine all relevant models and potential pilot projects designed to heighten the
level of professionalism. Fundamental to implementation of these principles is a
comprehensive training component that establishes expectations from pre-service
through professional development. The Department must continuously evaluate and
refine its legal procedures, and keep pace with the evolution of the applicable laws and
policies.
Fourth, the effectiveness of the Departments legal services is directly related to the
Departments interaction and involvement with its Community Partners. As the
Department has shifted from a provider of direct services to a purchaser of services
environment, the Departments legal services have not kept pace with the shift. In this
culture of shared roles and responsibilities among and between the Department and its
Community Partners, quality legal services can only be achieved with the full
participation of those Community Partners, and the success of the work provided by
Community Partners rests upon the cooperative exchange of information and effort with
Department attorneys.
Fifth, legal policies and procedural guidance should come from the upper levels of the
Department to be most effective and to ensure consistency, and then should be
operationalized at the lowest appropriate level, closest to those whom the Department
serves. The Departments legal decision-making processes should recognize the
inherent need for timeliness, accuracy, consistency, and ethical rigor.
Sixth, accountability is critical to accomplishing the Departments mission of achieving
safety and permanency for children. To this end, the roles, responsibilities, authority, and
Appendix F
Overview & Organization of the General Counsel & District Legal Counsel
Offices
Appendix F
The Office of General Counsel is a statewide service unit of the Department within the
Office of the Secretary. The General Counsel reports directly to the Secretary.
Organization within General Counsel and Central Office. Currently, the General Counsel
directly supervises these attorneys in the central office: two chief legal counsels, two
senior attorneys, an agency clerk and a senior contracts attorney. The General Counsel
also supervises an Operations and Management Consultant I (office manager), a vacant
position.
Although precise figures were not provided to the Workgroup, approximately 12 more
attorneys are assigned to the central office (including contracted and OPS positions).
Three are outposted to institutional settings, one is co-located in the Office of
Communications (for public records and open government work), and others are
outposted to program offices. While these attorneys work in the central office, they are
not shown on the organizational chart because they are funded from specific program
budgets. Most of these attorneys report to a Chief Legal Counsel. The Department also
continues to fund an attorney housed within the General Counsel Office of the Agency
for Persons with Disabilities (Agency). A second Chief Legal Counsel supervises one
attorney and provides assistance in the areas of CWLS and Adult Protective Services.
The General Counsel has no budget control. The Office of the Secretary manages the
General Counsels budget, and that operating budget has a deficit for the current year.
Districts / Regions. The General Counsel also supervises the 14 District Legal
Counsels.
These District Legal Counsels report to the General Counsel, with an
advisory relationship to the District / Zone administrators. One or more Assistant District
Legal Counsels and support staff positions are assigned to each District. Currently, each
District Legal Counsel supervises the CWLS Managing Attorney in that District.
The General Counsels Office and the 14 District Legal Counsels are loosely organized
to resemble a statewide law firm, with the General Counsel serving as managing
partner. The total statewide law firm operation consists of approximately 25 full-time
attorneys and 16 full-time support staff positions, along with some contracted and OPS
positions. The General Counsel and Chief Legal Counsel Offices enjoy a relatively low
turnover rate.
The General Counsel has no budgetary control over and no authority to hire and fire
personnel in the District Legal Offices. Instead, each District Legal Office is separately
funded as an arm of its respective District Administration office. Funding levels and
position assignments are not evenly or equitably distributed among the District Legal
Offices.
Legal Services of the General Counsels Office and District Legal Counsels. The
General Counsels central office provides legal advice to the Secretary, Deputy
Secretary, Assistant Secretaries, as well as the administrative offices for budget and
finance, employment and human resources, information technology, general services,
communications, contract administration/management, quality assurance and quality
management, and to all programs, including without limitation: Licensing, Background
Screening, Foster homes, Child Care, Public and private Substance Abuse facilities,
economic assistance and public benefits, and Designation of Baker Act receiving
Appendix F
facilities. The General Counsel Office is also responsible for providing legal services to
the Agency under an interagency agreement required by statute.
The District Legal Counsels serve a parallel function to that of the General Counsels
Office, providing legal representation at the District level and to all District-level program
offices.
Specific areas of law practice handled by the General Counsel and District Legal
Counsels include (without limitation), administrative law and hearings; appeals;
bankruptcy; contracts; real property transactions; liens; fair hearings; labor and
employment; false reporting; garnishment; PERC hearings; rule-making, legislative, and
federal practice; public records law; mediation; trusts; litigation and litigation
management, and risk management.
The Department annually spends approximately $1.5 billion on contracted services,
representing one-half of the entire Department budget. There are approximately 1,100
annual contracts with 700 to 800 individual contracting entities. The 22 Community
Based Care / foster care contracts have a value of $700 million and the Departments
600 substance abuse and mental health contracts total $570 million annually.
The Workgroup finds the Departments shift to a purchaser of services culture to be
particularly noteworthy, as Floridas procurement laws and the Departments contracting
practice have not fully caught up with the shift. General Counsel and District Legal
Counsels are not presently involved in procurement and negotiations of most contracts.
Attorneys review contracts usually only after they have been finalized, as part of the
standard routing process. The Departments procedures require the same depth of legal
review for all contracts, regardless of service type or dollar amount ($2,500 or $2
million). Simple amendments can result in lengthy documents because of bureaucratic
processes.
A Contract Resource Team (CRT) Pilot Program began in the fall of 2006 in the
Southeast Zone. An attorney from the General Counsel Office is outposted to serve as
the CRT attorney. The CRT, including its attorney, is involved in contract procurement
and negotiations. The pilot will be evaluated in 2007, although the evaluation measures
have not yet been determined.
The Workgroup recommends:
Organization and Reporting Structure
The General Counsel must serve as an integral member of the Secretarys
Executive Leadership Team.
The General Counsel and the District Legal Counsel offices should be
formally reorganized into a statewide law firm aligned with the new
Department-wide regional structure. Attorneys and support staff assigned
to District Legal Counsel offices should be reassigned to Regional Legal
Counsel offices.
The General Counsel and Deputy General Counsel should oversee all
general legal services in the Departments central office and in the
Regional Offices.
Appendix F
The General Counsel and one Deputy General Counsel should supervise
and direct operations of the General Counsel office and the Regional Legal
Counsel offices. They should also supervise the Assistant General
Counsels assigned to the General Counsels central office and five
Regional Legal Counsels. Assistant Regional Counsels and support staff
assigned to each Region should report to the Regional Legal Counsels.
The Department should analyze the crossover work (e.g. family safety,
public records requests) currently being performed, and make decisions
about the distribution of the workload and the requisite positions. See
Appendix B for an inventory of the current crossover workloads.
Appendix F
The General Counsel and Regional Legal Counsels should support the
Department throughout the state, providing advice, counseling and legal
representation related to legal / policy issues critical to the Departments
mission, and should oversee outside counsel for all major litigation.
The General Counsel should provide direction for overall quality assurance
and quality management of legal services, assuring that all legal services
are provided competently, efficiently, effectively, and in compliance with
state and federal laws and rules and appropriate practice standards.
Substantive Representation
The General Counsel and Regional Legal Counsels should provide legal
services that are proactive as well as problem-solving. This includes
developing Department policies to ensure compliance with applicable
Florida laws, policies and rules, managing claims against the Department,
participating in internal review processes as to potential claims, and
providing advice in matters with significant legal implications and ethical
considerations.
Contracts
The General Counsel Office should develop and advance contractual
relationships by negotiating and conceptualizing contractual content,
reviewing contracts and interagency agreements, providing advice and
drafting documents related to procurement, invitations to bid, real estate
and other related transactions, and participating in quality assurance and
oversight to ensure the success of all contractual relationships.
Appendix F
The General Counsel and State CWLS Director should work with the
Contract Oversight Unit to reduce duplication and assign qualitative
standards for assuring compliance with relevant laws. Attorneys should be
involved in the development of quality assurance, licensing, and federal
funding reviews.
Appendix F
others are housed in state office buildings with other program units or other governmental
entities.
Current Status of CWLS. Historic shortcomings in the operation of the CWLS program
are well documented in previous reviews and in reports by the Florida Bar LOMAS in
2004 and by OPPAGA in 2004 and 2005. A compilation and comparative matrix of the
recommendations from those previous reports is attached as Appendix E. The LOMAS
study cited significant concerns, including lack of a statewide infrastructure, statewide
procedures and policies, extremely high caseloads, and support staffing levels below
standards for law firms.
The American Bar Association has recommended an average caseload of 40 to 50
active cases per attorney. Average CWLS caseloads are in the range of 70-75 cases
per attorney, a slight improvement from previous years. However, averaging caseload
numbers is extremely misleading, as CWLS caseloads vary wildly from office to office,
with actual attorney caseloads ranging from a low of 54 active cases to a high of 225
active cases. See Appendix F for CWLS attorney caseload counts by district.
The Workgroup has found that training and professional development for attorneys is
meager. New attorneys are afforded little training in Department policies and local
courtroom procedures. No Department funds are specifically earmarked for attorney
training. According to the 2005 OPPAGA study, the Department now requires all new
Child Welfare Legal Services attorneys to attend child welfare pre-service training with
investigators and caseworkers. However, the Workgroup has found that in actuality,
very few, if any, attorneys attend the child welfare pre-service training.
Some attorney training is offered at the local level, subject to availability of funds and
local trainers. A statewide CWLS Training Committee, created in 2005, has developed a
legal intranet website, technical training materials, and a desk manual for self-guided
field training for new attorneys. The Workgroup has found that attorney access to these
resources is inconsistent and infrequent at best, with only scant opportunities for training
in advocacy and lawyering skills, trial techniques, and legal ethics.
Uniform practice standards have not been developed for Child Welfare Legal Services.
Due to the local level of management as well as partial outsourcing of the CWLS function
to the Attorney General's Office, or a State Attorney's Office, each locality adheres to a
different set of practice standards. In some districts, no practice standards have been
established.
There are approximately 350 active appeals currently being handled. The Department
does not track the total number or substance of appellate matters handled. Appeals are
managed at the local level, with the support of three certified appellate attorneys who,
through a contract with the Department, handle appeals when a CWLS attorney is
unavailable. In 2005, OPPAGA reported on an initiative proposed by the General
Counsels office to develop an appellate unit to manage appeals from the central office.
To date, this initiative has not been implemented.
The Department has an automated statewide case management system for in-house
CWLS attorneys to track progress of cases and to help ensure that time requirements
are being met. Although the case tracking system has recently been used to collect and
analyze legal case-management data, it has no capacity for assessing attorney
Appendix F
The statewide law firm name should be renamed Childrens Legal Services.
Appendix F
Appendix F
Circuit Managing Attorneys (20th Judicial Circuit and in the 12th Judicial
Circuit where services are not contracted to the Attorney General).
Appendix F
The Senior Managing Attorney for Case Tracking and Quality Assurance
should oversee the case tracking system, provide substantive oversight for
development of the FSFN legal component, and provide technical assistance
pertaining to juvenile dependency law.
Attorneys should be familiar with law changes as they are enacted and
should be proactive in educating judges and quasi-judicial officers.
Appendix F
Appendix F
Relationships with Community Partners will improve when Child Welfare Legal
Services consistently provides high quality legal services.
The State CWLS Director should develop and enforce Practice and
Performance Standards necessary to ensure that legal services be
delivered only by those attorneys who demonstrate the knowledge, skills
and abilities necessary to competently discharge the duties of a CWLS
attorney.
CWLS attorneys should present a positive image of the Department and its
contracted Providers in and outside the courtroom, and at community
functions and meetings. The attorney should be respectful of caseworkers
and all other participants in the courtroom and in the presence of other
professionals and parties in a case.
Attorneys should be trained to, and should, take the lead in developing a
case theory and strategy to follow at hearings and any negotiations, and
should take steps to assure that stakeholders comply with the law and all
court orders.
Appendix F
The CWLS attorneys should be the only attorneys representing the position
of the State in dependency and termination of parental rights proceedings.
Lawyers employed by the Provider should not appear in court, except to
represent the Provider or an employee of the Provider on rules to show
cause hearings or related proceedings pertaining to the Providers
performance.
Provider contracts should afford the lead agency the right to request that
the Department replace an attorney when that attorney consistently fails to
perform.
Working in close cooperation with the lead agency, counsel for parents, the
Guardian ad Litem program and private pro bono attorneys, university law
clinics in one or two identified circuits should be asked for their expertise
on a volunteer basis, and should be encouraged to help design and
implement an innovative program. Participants will look at all facets of the
judicial process to create a better, more efficient process, using national
best practices.
The pilot should be a unified family court model, using national best
practices.
Appendix F
The CWLS training plan should contain a component specifically for legal
support staff.
Every attorney must have access to essential legal research tools, such as
Westlaw for research and a copy of the Juvenile Law and Practice Handbook.
The State CWLS Director and the State Training Director should develop an
essential reference guide for attorneys and support staff. There should also
be a functioning website that is accessible by all CWLS attorneys and staff.
Designated staff should be responsible for ensuring the materials are current.
Each CWLS office should have the latest edition of the following reference
materials: Ehrhardt's Florida Evidence, Florida Rules of Court, State &
Federal,
Florida Juvenile Law and Practice,
Florida
Rules
of Juvenile Procedure,
Diagnostic and Statistical Manual of Mental
Disorders
DSM-IV-TR,
Dorland's
Illustrated
Medical
Dictionary,
Appendix F
APSAC Handbook
on
Child
Maltreatment,
Handbook on Questioning Children: A Linguistic Perspective,
Trial
Techniques, and Florida Evidence Code Trial Guide.
The costs and benefits of purchasing the system from an outside vendor,
as suggested by the General Counsel, should be evaluated and compared
with the costs, feasibility and potential benefits of having a system built
internally, or adapting a case tracking system currently in use by the legal
department of another agency and modifying it through the resources of
the Departments Rapid Application Development team to suit the unique
needs of the Departments General Counsels Office.
Appendix F
The current system is reaching its maximum capacity and will soon be obsolete. The
system needs to be shared with all contracted partners in the dependency process, and
the system is not up to the task. In 2007, in conjunction with the development of Family
Safe Families Network (FSFN), the Department made the decision to transition away
from the Lotus Notes-based system and replace it with a legal component of FSFN.
Once developed, CWLS information will be transferred to the FSFN system.
The development of the FSFN legal component began on August 20, 2007, and is
expected to take approximately 11 weeks. Mr. Traphofner and two other Department
attorneys with experience in dependency law are participating in the development
sessions, and input is also being received from the Attorney General, State Attorney,
and counsel for Community Partners. The goal is to deploy the legal module of FSFN to
replace the current case tracking and management system in June 2008.
The Workgroup recommends:
The case tracking and quality assurance program should be managed by a
statewide senior managing attorney with expertise in dependency law and
a working knowledge of information technology systems, under the
direction of the State CWLS Director.
As the Department moves from the current legal case tracking system to
the legal component of Florida Safe Families Network (FSFN), all due
diligence must be exercised so as not to lose any ground. The current
system should be used as the basis for the development of requirements
for the legal module, and the functionality of the new system must be at or
above the standard of the current case tracking system.
The Department should seek and include input from lead agencies and
providers as the new case tracking system is developed. At a minimum, the
system should have the capacity to advise Community Partners whether
filing deadlines are met.
Appendix F
The Secretary has directed the Departments Family Safety Program Office to adopt a
regional model for Quality Assurance / Quality Improvement with a focus on service
delivery, with a preliminary report due to the Secretary on September 30, 2007. The
Quality Assurance Workgroup is charged with setting forth the requirements for a clear
identification of issues requiring action, communication of the issues to appropriate
managers, analysis of underlying causes, corrective action planning, implementation and
status reporting.
Quality assurance reviews, both case specific and semi-or annually produced in the
past, have not traditionally included a deliberate assessment of legal services
consultation and representation on cases analyzed.
The Workgroup recommends:
Quality Assurance / Quality Improvement reviews should systematically
include the review and assessment of legal services activities, to include:
o Manner and extent of which legal counsel confers with investigators
and case workers in preparing for court
o Engagement of legal services consultation in removal decisions
o Ensuring proper notice of hearings
o Assisting in the development of effective witness presentation skills
o Review of reports and documents prepared and submitted to the court
for statutory and rule compliance
o Quality of ongoing communication and ready-availability of legal
services to non-law trained child welfare professionals
The State Director should develop a plan for the effective utilization of the
existing and future case management tracking system for quality
assurance and quality management purposes.
The Departments Family Safety Program Office is also working at this time
in consultation with the Youth Law Center to develop a framework for
Critical Few Standards to Drive Improved Outcomes for Implementation.
The Legal Workgroup supports this collaboration and recommends that the
measures be incorporated into the professional development of legal
services providers to advance the Quality Assurance goals to be reached.
Appendix F
CWLS legal costs and litigation expenses must be defined, tracked and
managed in future years legal budgets.
CWLS legal costs and litigation expenses are those costs incurred by
attorneys and witnesses for the Department in dependency matters that are
directly related to a particular legal case, are not part of general overhead
in maintaining the legal office, and would not be incurred were the litigation
not occurring. Litigation expenses typically include: filing fees, postal and
courier costs (DHL, Fed Ex, etc.), Sheriff or private process server fee for
service of process, certified copies of documents (e.g., injunctions,
adjudicatory orders, criminal judgments, medical records), certified copies
of depositions and hearing transcripts, cost of publication for service of
process, expert witness fees and associated travel expenses and costs for
litigation testimony (deposition or trial), costs of translation of witness
testimony, depositions, and courtroom transcripts, travel expenses for lay
witnesses,
videography / VTC costs for remote depositions and
proceedings, court reporter fees for attendance at deposition or trial, court
reporter fees for transcription of deposition or trial, and costs of creating
specialized exhibits and demonstrative evidence.
Appendix F
The proposed Child Welfare Legal Services Training Plan should be implemented in
harmony with the existing pre-service Child Welfare training from the Office of Family
Safety. (See Appendix J for the Office of Family Safety In-service Plan.)
The Workgroup recommends that the Department take a business-like approach
to developing and implementing a CWLS training plan under the direction of a
State Training Director, with the goal of achieving the highest standard of legal
practice. The Workgroup recommends three major categories for action:
Curriculum. The plan must use as a guide the established pre-service
curriculum, to train both substantive knowledge and necessary legal skills.
Highest priority should be placed on attorneys knowledge of the rules of
evidence, rules of procedure, code of ethics, and basic trial skills. See
Appendix K for suggested enhancements to the legal curriculum.
Teaching Methods. As the budget permits, and as the individual development
plans provide, staff should be able to access training at all levels, including
national. To conserve fiscal resources, curriculum topics that are adaptable to
web-based transmission should be developed on-line. Appropriate curriculum
topics should be developed in concert with the office of the Guardian ad Litem,
and any other groups providing appropriate content to other advocates within
the child welfare system.
Curriculum Implementation. Once a training plan is implemented, all new
attorneys would be expected to complete basic training within a specified
period of time. Regional management teams must assist with implementation
and delivery of the training plan, in their supervisory functions, and as a
component of their own professional development.
Professional Development
CWLS staff should be proactive in educating the Court as changes in the
law, and in policy, come into effect.
Appendix F
leadership and
Department.
professional
development, within
and
outside
the
The Providers may request that Department attorneys present basic legal
training for caseworkers.
Appendix F
The Department must also consider additional, out of the box, means of
attracting the quality of attorneys that it needs. Certain programs other
than direct monetary payments could include:
o A tuition forgiveness program with as many law schools as
possible; a method whereby, after each 3 or 5 years with the
Department, the State could make a contribution to the States
prepaid college tuition program
o Senior Management Service classification for all Department attorneys
o Short (1-3) month sabbaticals or alternate assignments after every 5
years of front line service.
Attorney Retention
A Performance Path to Excellence program should be established to
ensure appropriate compensation increases for attorneys, similar to the
increases afforded the Departments protective investigators.
Appendix F
overall business plan for the delivery of legal services by a statewide law
firm. Any requests for additional monies must be tied to systemic
improvements in direct client services and must provide for full
accountability and measurable performance objectives.
The Workgroup is concerned about the dangers of cutting funding for legal
services that could have a direct or indirect detrimental impact on at-risk
children and their families. We respectfully urge the Department and the
legislature to exercise extreme prudence in deciding what to cut, and that
the recommendations contained in this Report be considered for adoption,
even where additional funding may be necessary.
Appendix L to this Report include the Legislative Budget Request for the 20082009 fiscal year, submitted by the General Counsels office, which address the
foregoing issues as well as several other issues of concern to the General
Counsels office. Also attached as Appendix M is the Legislative Budget Request
for the 2008-2009 fiscal year, submitted by the Family Safety Program Office to
fund in-service training, which if approved, could be apportioned to include
earmarked funding for the proposed Child Welfare Legal Services Training Plan.
Appendix F
Future Tasks
During its review, the Workgroup identified several tasks which should occur during
implementation of these recommendations, including, without limitation:
Compile and maintain complete and accurate information about current legal
positions, salary, location, funding source, and position status (FTE, OPS,
contract)
Compile and maintain complete and accurate aggregated information about the
total statewide cost of legal services provided by: a) General Counsels office, b)
District/Regional Legal Counsels offices, and c) Child Welfare Legal Services
Analyze, reconcile and consider reallocation of attorneys and support staff who
perform crossover Child Welfare Legal Services and Regional Legal Counsel
work, i.e. assigned to one function and dedicate some of their time performing
work in the other function (estimates of crossover duties and percentages of time
are attached in Appendix B)
Select and hire CWLS Regional Managing Attorneys and Circuit Managing
Attorneys
Recruit, select and hire CWLS Director of Training, CWLS Director of Appeals,
and CWLS Budget and Administration manager
Review and rewrite all attorney position descriptions to reflect actual current
duties and scope of work (should be periodically reviewed and kept up to date)
Review and modify Community-based care template contract and other template
or model contracts for legal sufficiency and appropriateness
Monitor progress toward completion of FSFN legal module, and oversee smooth
transition of data from existing CWLS case management system
Appendix F
Explore options for building General Counsel Case tracking system using
Department resources; purchase or build General Counsel case tracking system
Conclusion
In conclusion, the Department of Children and Families is committed to providing quality
services to Florida's most vulnerable populations. This Workgroup believes that this
recommended organizational framework for re-engineering the delivery of legal services,
both general legal services and Child Welfare Legal Services, coupled with an on-going
process of organizational review and quality enhancements, will enable the
Departments attorneys to assist in accomplishing the Secretarys Guiding Principles:
Integrity, Leadership, Transparency, Accountability, Community Partnerships, and an
Orientation to Action.
The Legal Workgroup is grateful to the Secretary for affording it the opportunity to
provide a statewide perspective on the importance of the Departments legal services
and the urgent need for improvement to the Departments legal representation. Should
the Secretary desire, each and every member of the Workgroup stands ready to
continue to assist the Departments leadership in refining and implementing the
necessary changes.
Appendix G:
Organizational Charts
Appendix H:
Child Protective Investigator and Child Protective Investigator
Educational Qualifications, Turnover, and Working Conditions
Status Report, October 1, 2015
Appendix H
Mike Carroll
Rick Scott
Secretary
Governor
Appendix H
Contents
Purpose........................................................................................................................................................ 3
Background ................................................................................................................................................. 3
General Statutory Requirements ......................................................................................................... 3
Department of Children and Families and Sheriff Office Investigations ........................................ 3
Child Welfare Practice Model Transition ............................................................................................ 3
Child Protective Investigator Positions.................................................................................................... 4
Child Protective Investigator Minimum Qualifications, Base Pay and Position Descriptions ..... 4
Child Protective Investigative Position Classification and Vacancies ............................................ 6
Average Child Protective Investigator Caseloads and the Average Supervisor to Child Protective
Investigator Ratio ....................................................................................................................................... 7
Child Protective Investigator Caseload ............................................................................................... 7
Current Child Protective Investigator Workload ................................................................................ 9
Child Protective Investigators and Senior Child Protective Investigators being supervised by
Child Protective Investigator Supervisors - SES. ............................................................................ 10
Turnover ................................................................................................................................................ 10
Educational Levels and Background of Child Protective Investigative Staff ................................... 13
Statutory Requirements....................................................................................................................... 13
Educational Attainment of Employed Child Protective Investigative Staff ................................... 13
Department of Children and Families 2015 Annual Child Protection Investigative Survey Results
.................................................................................................................................................................... 15
Child Protection Investigation Survey Results ................................................................................. 15
Conclusions ............................................................................................................................................... 18
Appendix H
Purpose
The information provided within this report is designed to meet requirements contained within
section 402.402(3), Florida Statutes (F.S.), which requires the Florida Department of Children
and Families (Department) to provide a status report to the Governor and Legislature as to the
educational qualifications, turnover rates, and working conditions for the Departments child
protective investigators, child protective investigator supervisors and other child protective
investigative staff.
This report includes recent information related to the Departments full time equivalent (FTE)
child protective investigation positions within the areas of:
Child protective investigative minimum qualifications, base pay and position descriptions;
The distribution of child protective investigative positions across the six Department
Regions and allocation of child protective investigative positions across the four child
protective investigation class titles;
The percentage of vacant child protective investigative positions;
The monthly average number of new cases being assigned to all Child Protective
Investigator and Senior Child Protective Investigator positions;
The average number of Child Protective Investigators and Senior Child Protective
Investigators supervised by Child Protective Investigator Supervisor SES staff;
Turnover rate for all child protective investigative positions;
General educational information for all child protective investigative positions; and
Employee satisfaction, opinion and concerns survey results.
Background
General Statutory Requirements
Chapter 39, F.S. establishes requirements that Child Protective Investigators respond to and
make determinations as to the overall validity of allegations of child abuse, abandonment or
neglect. Child Protective Investigators are also required to assess the overall safety and wellbeing of children, initiate the removal of children (if needed) and assist in the linkage of families
to appropriate in-home services that are designed to help stabilize the family while helping to
improve the overall safety and well-being of the child.
Department of Children and Families and Sheriff Office Investigations
In support of these statutory requirements the Department currently conducts child protective
investigations in 61 of Floridas 67 counties. Sheriffs Offices perform child protective
investigations in the remaining six counties (Broward, Hillsborough, Manatee, Pasco, Pinellas,
and Seminole) under grant agreements with the Department. Unless otherwise specified, all
information contained within this report addresses Department child protective investigative
positions only.
Child Welfare Practice Model Transition
Over the last 2 years, the Department has transitioned its Child Welfare Practice to
emphasize the engagement and empowerment of parents and caregivers while helping to
ensure the overall safety and well-being of the child through the use of a uniform safety
decision-making methodology and standardized risk assessment tools. The Child Welfare
Appendix H
Practice Model allows for the creation of a standardized and comprehensive child protective
investigative environment by establishing a:
Common language for assessing child safety and well-being for both child protective
investigators and Community Based Care case managers;
Standardized framework by which all children are identified as being in a potentially
unsafe environment;
Common set of constructs that guide the development and maintenance of safety
intervention strategies for those children that are identified as being in an unsafe
environment; and
Common framework for the identification of potential child safety issues that can then
be integrated into the caregivers case plan so as to ensure that efforts are made to
address all of the core issues that are diminishing the caregivers ability to fully
protect the child.
The key to successful implementation of the Child Welfare Practice Model is to ensure that all of
Floridas child welfare professionals have the skills and supervisory support needed to properly
assess families and evaluate child safety issues through the consistent application of the Child
Welfare Practice Model and accompanying tools. The Child Welfare Practice Model has
required the Departments workforce to function differently as the states child welfare system
transitions away from a primarily incident driven safety assessment model to a model that
guides the Departments workforce to gather more information about children and family
dynamics, child and adult functioning and information on parenting styles and discipline
techniques.
Child Protective Investigator Positions
Child Protective Investigator Minimum Qualifications, Base Pay and Position
Descriptions
Current minimum qualifications for all child protective investigative positions require an applicant
for employment to:
The Department has divided child protective investigative positions into four class titles. These
class titles and annual base salary for each of the classes are:
Appendix H
Source: Florida Department of Children and Families, HR-Public Reports, Position Funding Statewide 2015-06-01, as of
8/24/2015.
5
Source: Florida Department of Children and Families, HR-Public Reports, Position Funding Statewide 2015-06-01, as of
8/24/2015.
6
Source Florida Department of Children and Families, HR-Public Reports, Position Funding Statewide 2015-06-01, as of 8/24/2015.
7
Source: Florida Department of Children and Families, HR-Public Reports, Position Funding Statewide 2015-06-01, as of
8/24/2015.
Appendix I:
Supporting Data