SettlementAgreementBetween TheStateofMarylandandtheUnitedStatesDepartmentofJustice

FINALMONITORSREPORT
FortheBaltimoreCityJuvenileJusticeCenter(BCJJC)
Submittedby KellyDedel,Ph.D. Onein37Research,Inc. 1608NWRiverscapeStreet Portland,OR97209 www.onein37.com(503)7990915 August16,2010

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Introduction
OnJune29,2005,theStateofMarylandenteredintoaSettlementAgreementwiththeUnitedStates DepartmentofJusticeconcerningtheconditionsofconfinementattheCheltenhamYouthFacility (CYF)andtheCharlesH.Hickey,Jr.School(Hickey),twojuveniledetentioncentersoperatedbythe MarylandDepartmentofJuvenileServices(DJS).AMonitoringTeamwasappointedtoreview,assess andreportindependentlyontheStatesimplementationofandcompliancewiththeSettlement Agreement(theAgreement).InJune,2007,theStateandtheDepartmentofJusticeamendedthe AgreementtoincludetheBaltimoreCityJuvenileJusticeCenter(BCJJC). Theinitialoneyeartimelinewasextendedtwicetoensurethefullreformoftheconditionscoveredby theAgreement.Mostrecently,theAgreementstimelinewasextendeduntilJune30,2011toensure thefullreformoffacilityconditionsrelatedtoincidentreportingandbehaviormanagement.TheJune 2010MonitorsReportdiscussedtheStatesprogresstowardsubstantialcompliancewiththe remaining4oftheoriginal29provisions.Atthattime,theStatehadsustainedsubstantialcompliance ontwooftheremaining4provisions,whichweresubsequentlydroppedfromcontinuedmonitoring. ThisreportdiscussestheStatesaccomplishmentswithregardtothefinaltwoprovisions,whichhave alsonowbeeninsubstantialcompliancefor6months. ThereaderisreferredtotheprevioussixMonitorsReportsforanindepthdiscussionoftheStateof MarylandsreformeffortatBCJJC.Thisreportdiscussesonlythefinaltwoprovisions.Usingthe numberingsystemfromtheAgreement,bothprovisionsareprovided,verbatim,followedbya complianceratingfortheperiod,adiscussionoftheMonitorsfindingsandtheevidentiarybasisfor theMonitorsconclusions.AsagreedjointlybytheParties,substantialcompliancemeans: substantialcompliancewithallcomponentsoftheratedprovision.Noncompliancewithmere technicalities,ortemporaryfailuretocomplyduringaperiodofotherwisesustainedcompliance doesnotconstitutefailuretomaintainsustainedcompliance.Atthesametime,temporary complianceduringaperiodofsustainednoncompliancedoesnotconstitutecompliance.The standardsagainstwhichcomplianceareassessedarethosethatareconstitutionallyrequired andrequiredbyFederalstatute.Adherencetobestpracticeisnotrequiredtoachieve compliancewiththeAgreement.

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III.B1.i

ProtectionfromYouthonYouthViolence.TheStateshalltakeall reasonablemeasurestoassurethatyouthareprotectedfromviolenceby otheryouth. SubstantialCompliance(asofFebruary15,2010) TheStatesreformeffortfocusedonimprovingtheconditionsof confinementattheBCJJCsuchthatyouthwerebetterprotectedfromharm bystaff,fromthemselves,andatthehandsofotheryouth.Thisprovision focusesonthelatteroutcometheextenttowhichyoutharebetter protectedfromviolencebyotheryouth(i.e.,assaults,fights,orgroup disturbances). Asshowninthefigureonthelastpageofthisdocument,aftermuch volatilitythroughoutmuchofthetermoftheAgreement,therateof youthonyouthassaulthasrecentlytakenonastabledownwardtrend.1In fact,sincethebeginningof2010,theratehasdecreasedsteadilyandis nowapproximately50%lowerthanjusteightmonthsago.Thestabilityof thistrendsuggeststhatthechangesmadetofacilityoperationsand practiceshavenowtakenholdandcanbeexpectedtoendureovertime, givenproperinternaloversight. Overall,thefacilityhasdoneanexcellentjobofreducingtheriskofharm facedbyyouthhousedattheBCJJC.Adetentionfacilityofthissize,with thistypeofphysicalplantandthatincarceratesyouthwithseriouscriminal historiesandverycomplicatedneedswillalwaysbedifficulttomanage. However,theproceduresandpracticesputinplacethroughthisreform efforthavesignificantlyimprovedthesecurityofthefacility,andthesafety oftheyouthandstaffwholiveandworkthere.

ComplianceRating Discussion

Recommendations TheStatehassustainedsubstantialcompliancewiththisprovisionforat leastsixmonths. EvidentiaryBasis DJSStateStat,November2008July2010 InterviewswithSuperintendent,AssistantSuperintendent,Shift Commanders,Superintendentsandlinestaff

TheDJSResearchandEvaluationUnitcalculatestherateofvariousseriousincidentsastherateper numberofyouthdayswhichneutralizestheimpactoffluctuationsinthesizeofthefacilityspopulation.
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III.B1.v

BehaviorManagementProgram.TheStateshalldevelopandimplementan effectivebehaviormanagementprogramatthefacilitythroughouttheday, includingduringschooltimeandshallcontinuetoimplementthebehavior managementplan.TheStateshalldevelopandimplementpolicies, proceduresandpracticesunderwhichmentalhealthstaffprovideregular consultationregardingbehaviormanagementtodirectcareandotherstaff involvedinthebehaviormanagementplansforyouthreceivingmental healthservices,andshalldevelopamechanismtoassesstheeffectiveness ofinterventionsutilized.

ComplianceRating SubstantialCompliance(asofFebruary15,2010) Discussion Thedevelopmentandimplementationofaneffectivebehavior managementprogramisoneofthekeystrategiesforreducingyouth violence.Behaviormanagementencompassesallofthefacilitystacticsfor shapingyouthsbehavioritssystemforawardingincentives; consequencesforbreakingfacilityrules;immediateresponsestoyouth violence;andstrategiesforkeepingyouthoccupiedwithprosocial activities.Throughoutallofthese,casemanagement,educationandmental healthstaffshouldbeinvolvedtoensureconsistencyandincreasing supportforyouthwhostruggletocomplywithfacilityrules. Point/LevelSystem Thebasicstructureofthecurrentpoint/levelsystemmeetsthe requirementsofthisprovisionyouthareabletoearnupto100pointsper dayandaspointsaccumulate,youtharepromotedtoahigherlevelthatis associatedwithgreaterprivileges.Pointdeductions,orfines,areissued whenyouthdonotfollowfacilityrules.Directcarestaffandteachers consistentlyimplementtheprogramasitwasdesigned.ThefacilitysYouth Advocatereportsthathereceivesfewcomplaintsfromyouthaboutthe system.Thosethatarereceivedarequicklyandfairlyrectified. Althoughsimpleinconcept,thesystemisactuallyquitecomplex,which mayaccountfordifficultythefacilityoriginallyexperiencedinimplementing thesystemandthecontinuedoversightthatisneededtoensurethatthe programfunctionsasdesigned.Awardingsomanypointsacrosssomany domainsandthendeductingpointsinresponsetoruleviolationsmeans thatstaffmustconductcomplicatedcalculationsthataredifficulttodoin oneshead.Eventheadditionofcalculatorsoneachunithasnotbeen sufficienttostemthetideofsmall,mechanicalerrorsintabulatingand carryingtheyouthspointsforwardeachday. Twosupportstaffhavebeennecessarytoensuretheaccuracyofthepoint sheets.Whiletheydoanexcellentjobtotalsarecorrectedinshortorder
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andthuserrorsdonotcompoundovertimetheneedfordailyoversight atthislevelmakestheprogramunnecessarilycumbersome.Itishighly recommendedthattheBCJJCsimplifyitspoint/levelsystem.Thatsaid,the facilityhasfullyimplementedthecurrentsystem,whichislargely responsiblefortheincreasedsafetyoftheenvironment. GuardedCarePlans Casemanagementandmentalhealthstaffareinvolvedinthebehavior managementofcertainyouthwithseriousbehavioralandmentalhealth problems,throughthedevelopmentofGuardedCarePlans(GCPs).The conceptoftheGCPreflectstherequirementsofthisprovisionrelatedto mentalhealthconsultation.Theyareusedtosupportyouthwhosebehavior isescalatingandnonresponsivetothepoint/levelsystem,andarealso usedtoaidinthetransitionofyouthexitingtheIntensiveServicesUnit (ISU).Theplansdiscusstheyouthstriggersforaggressivebehaviorandset realisticandmeasurablegoalsinvariousareas(e.g.,behavior,education, andmentalhealth).Incentivesforcomplyingwiththeplanareestablished anddeliveredaspromised. Seclusion WhilethefacilityisnotpermittedbyStatelawtousedisciplinaryisolation, youthmaybeconfinedtotheirroomswhentheyrepresentalegitimate safetythreattootheryouthorstaff(e.g.,immediatelyfollowingafight). Theperiodinseclusionisusedtodeescalatetheyouthsothathemaybe safelyreturnedtothegeneralpopulation.Inordertopreventanover relianceontheuseofseclusion,staffmustseekauthorizationfroman Administratortoplaceayouthinseclusion.Staffarealsorequiredto collaboratewithMentalHealthstaffwhendeterminingwhetherayouthis preparedtobereleasedfromseclusion.Thisisanexcellentpractice. ToassessthepracticessurroundingtheuseofseclusionatBCJJC,Ireviewed approximately12seclusionrecordsforyouthinvolvedinserious institutionalmisconductfrominJune/July2010.Consistently,these documentsrevealedthatyouthweremonitoredcloselywhiletheywerein theirrooms;theywerevisitedbymedicalstaffseveraltimesduringtheir stay;andtheirreadinessforreleasewasmonitoredcloselybytheShift Commanders.Lessseriouserrorsrelatedtodocumentationwerenoted (e.g.,releasetimeonObservationFormnotmatchingthelogbook;medical missinganoccasionalwelfarecheck)andshouldbewatchedcloselyto ensurethattheoverallintegrityoftheprocessisnotcompromised. Increasingly,staffmanagetodeescalateyoutheffectivelywithouttheuse oflockeddoorseclusion.InMarch2010,seclusionwasused110times,
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comparedtoonly57usesinJuly2010.Further,thetimeyouthspendin seclusionhasbeengreatlyreduced.IntheearlystagesoftheAgreement,it wasnotuncommonforyouthtospend24to48hoursinlockeddoor seclusion.Bycontrast,betweenMarchandJuly2010,only15%ofthe seclusionepisodeslastedmorethan12hours. CourtReports Inresponsetoahistoricallackofconsequencesinthefacilitysapproachto behaviormanagement,asystemwasdevisedtoinformtheCourtofthe youthsbehaviorwhilehousedatBCJJC.Priortoallscheduledcourt hearings,facilitycasemanagersprepareaonepagesummaryoftheyouths behaviorwhileincustodythatincludestheyouthstotalpoints,level, involvementininstitutionalmisconduct,participationineducationand programming,andcontactwithparents.Thesereportsarewelldesigned andcapturethesalientfactsneededforaJudgetoassesstheyouths behaviorwhileatBCJJC. UndertheguidanceoftheCaseManagerSupervisor,theprocesswas implementedinNovember2009.Ithasbeenimplementedconsistently throughoutthattime.Inrecentmonths,thereportshavebecomeeven moreindividualized,discussingtheyouthsperformanceinthepoint/level programandthetypesofbehaviorsthathavecausedhimtolosepoints. IntensiveServicesUnit(ISU) AsnotedinpreviousMonitorsReports,asignificantnumberofyouthon youthassaultsatBCJJCinvolvearathersmallproportionofyouth.Even whenfullyimplemented,thepoint/levelsystemisnotsufficiently persuasiveforsomeyouthtorefrainfromviolence.Toaddresstheharms causedbytheseyouth,theStatedevelopedasegregated,highlystructured unittoprovideintensiveprogrammingandtolimityouthsmovementand accesstopotentialvictims.Allservices,includingeducation,arebroughtto theunit.AnystaffmayreferayouthtotheISU;admissionisdeterminedby acommitteethatreviewstheyouthsfacilityrecordandisultimately approvedbytheSuperintendent.ISUstaffwerehandpickedandthe esteemoftheISUwasenhancedbytheadministrationsformalrecognition oftheISUstaffsexpertise. TheISUhasbeenfullyimplementedsincemidFebruary2010.Sincemylast visitinMay,2010,theadmissionprocesswasfurtherrefinedtoensure moreimmediateresponsivenesstoyouthsviolentbehavior.Whileslight modificationstotheprogramwillalwaysbenecessarytorespondtothe changingneedsofyouthandstaff,theISUappearstobeanessentialtool forreducingthelevelofyouthonyouthviolenceattheBCJJC.
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 Programming Limitingyouthsidletimeisoneofthemosteffectivebehavior managementstrategiesavailable.TheStatehasembracedthisphilosophy andnowprovidesaricharrayofprogramstoensurethattheyouthsidle timeiskepttoaminimum. Inadditiontoindoorandoutdoorrecreation,youthatBCJJCalsoreceived programmingfromthefollowinggroups: Boys&GirlsClub; BoyScouts; CommunityLawinAction(CLIA); AggressionReplacementTraining(ART),substanceabuseeducation, andpsychoeducationalgroupsrunbyHopeHealthstaff; Structuredactivitytimeinthefacilitysgameroom; CaseManagersgroupsonavarietyoftopics; LeadershipGroups; CurrentEventsGroups;and Arts&CraftsGroups. Intotal,allunitsreceivebetween18and20hoursofstructured programmingeachweek,inadditionto30hoursofeducationservices.The increasesinprogrammingaresupportedbya24hourschedulethatis followedconsistentlyacrossallunits(althoughattimes,thedocumentation ofyouthactivitiesintheUnitLogbookcouldbeimproved).Theamount andvarietyofprogrammingnowavailabletoyouthatBCJJCisremarkable andexceedscontemporarystandardsofcareinjuvenilefacilities. Recommendations TheStatehasbeeninsubstantialcompliancewiththisprovisionforatleast sixmonths. EvidentiaryBasis BCJJCStudentHandbook BehaviorManagementPointLogsfor3units,JuneandJuly2010 GuardedCarePlansfor4youth,writtenMay,JuneandJuly2010 InterviewswithAssistantSuperintendents,YouthAdvocate,Case ManagerSupervisor,andrepresentativesfromHopeHealth Seclusionrecords,n=12,randomlyselectedfromthoseoccurringinJune andJuly2010 Courtreports,JuneandJuly2010 ISUProgramDescription UnitSchedulesforunits21,30,31,32,33,40and41 UnitLogBooks,unitsISU,32and41,JulyandAugust2010
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BCJJCRatesofViolence,12MonthTrend
3

2.5 2.17 2 1.81 1.5 1.71 1.6 1.71 1.53

2.45

1.97

1.89 1.66 1.51 1.49 1.32 1.42 1.35 YYA 1.28 1.03 0.94 Group

0.99 0.68 0.41 0.36 0.49 0.42 0.13 0.41 0.15 0.11 Oct Nov Dec 0.17 0.012 0.71

0.86 0.86

0.63 0.5 0.34 0 Nov Dec 0.43

0.34 0.08 0.17 0.1 0.11 0.13 Jul

Jan Feb Mar Apr May Jun 09

Jul

Aug Sep

Jan Feb Mar Apr May Jun 10

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