San Diego County

Comprehensive Strategy

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Youth, Family And Community

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Fall 1998

**Submitted By**

**The San Diego County Comprehensive Strategy Team**

This report would not be possible without the commitment and hard work
put forth by many agencies, organizations, individuals and communities
too numerous to list yet vital in our efforts.

####### **COUNTY BOARD OF SUPERVISORS**

######## RESOLUTION

***(Will be inserted on this page)***

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#### Comprehensive Strategy Support Staff

Office of Juvenile Justice and Delinquency Prevention, Developmental
Research and Programs Inc., National Council on Crime and Delinquency,
Office of San Diego County Supervisor Ron Roberts, San Diego County
Probation Department and the Children's Initiative

# OVERVIEW\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_

In 1995, the Justice Department's Office of Juvenile Justice and
Delinquency Prevention designed a conceptual model to coordinate and
enhance youth-centered efforts in cities and counties across the
country. In 1996, under the leadership of Supervisor Ron Roberts, the
San Diego County Board of Supervisors succeeded in making the County of
San Diego one of the first national sites for implementation of this new
strategy.

Known as the Comprehensive Strategy, this model is predicated upon a
philosophy of shared responsibility and coordinated action to prevent
juvenile delinquency and promote positive development of youth. In San
Diego, this strategy has become a region-wide effort to develop healthy,
responsible youth through prevention, intervention and appropriate
sanctions.

All manner of indicators - from arrest rates, to teen pregnancies, to
dropout statistics - indicate the pressing need to attend to the
challenges and issues facing youth. These needs have spurred many
diverse efforts, strategies and systems. However, the individual and
collective effectiveness of these efforts has frequently been hindered
by a lack of communication, collaboration and coordination. It is this
challenge that the Comprehensive Strategy is seeking to address.
Development of San Diego's Comprehensive Strategy has presented a unique
opportunity to prevent duplication of efforts, identify system gaps and
create a seamless web of integrated supervision, service and support for
youth.

The Comprehensive Strategy, both as a process and as a documented
product, represents the first time that collaboration of this scale has
occurred in San Diego County. The diverse team of local leaders, public
and private groups, schools, law enforcement agencies and community
members who developed the Comprehensive Strategy have endeavored to
create a blueprint for effective collaboration with sustainable and
measurable results. However, the printed pages of this document do not
contain the final word or the complete solution. Instead, it is expected
that the philosophical approach and constructive process they reflect
will continue to engender innovative cooperation to secure a better
future for our children.

VISION*\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_*

For all of San Diego's youth to develop into caring, literate, educated
and responsible community members.

### MISSION STATEMENT\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_

The mission of the Comprehensive Strategy is to promote the positive
development of youth and to prevent juvenile delinquency

STRATEGIES*\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_*

-   **Prevention**

Programs and resources that address community, family and individual
risk factors, and enhance protective factors that will minimize the risk
of delinquent behavior.

-   **Intervention**

Programs and resources that provide immediate, swift responses within
the community for youth exhibiting delinquent behavior before they enter
the Criminal Justice System.

-   **Graduated Sanctions**

Programs and resources that encompass the entire continuum of sanctions
for youth and their families, from community service to incarceration at
the California Youth Authority. These programs and resources provide for
prevention, intervention, supervision, treatment and incarceration.

-   **Collaboration**

Strong working relationships between organizations, institutions and
individuals (public/private as well as government/community) to maximize
resources and share information in support of services and programs for
youth.

-   **Data Sharing**

Develop and strengthen protocols and information infrastructure that
allow data sharing between collaborative agencies to better serve youth
and their families while maintaining legally mandated confidentiality.

# 

# GUIDING PRINCIPLES\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_

As a blueprint for community action and collaboration, our Comprehensive
Strategy is designed to offer a broad spectrum of recommendations that
will assist in mobilizing communities to promote positive development of
youth and to prevent juvenile delinquency. Borrowing from the Office of
Juvenile Justice and Delinquency Prevention, we hold true to the same
guiding principles that must be supported for the development of caring,
literate, educated and responsible youth.

1.  **We must strengthen families.** It is important to provide families
    with resources, skills and knowledge to assist them in providing for
    and nurturing their children.

2.  **We must support core social institutions.** It is important that
    core social institutions offer community-based and family-focused
    services that enhance the development of capable, mature and
    responsible youth.

3.  **We must promote delinquency prevention**. It is important to
    aggressively develop, promote and fund effective and coordinated
    prevention strategies.

4.  **We must intervene immediately and appropriately when delinquent
    behavior occurs**. It is important to act swiftly when initial
    delinquency behavior occurs to impress upon all parties the
    seriousness and consequences of this behavior, as well as positive
    alternatives.

5.  **We must identify and sanction the most chronic and serious
    juvenile offenders**. It is important to identify and isolate this
    population as we work to break cycles of criminal behavior.

# RISK FACTORS\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_

A number of significant risk factors that affect the lives of youth and
their families have been clearly identified. Although no one risk factor
can be taken in isolation, the following statistics must be considered
when working toward prevention and intervention strategies:

-   In 1996, 19,643 youth were arrested in San Diego County;

-   More than 3,700 youth are on Probation each day in our county;

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-   From 1991 to 1995, juvenile arrests for drugs and alcohol violations
    rose 52%;

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-   Homicide rates in San Diego County, each year between 1991 and 1993,
    were the highest of all age categories for youths aged 15-19;

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-   In 1996, San Diego County had approximately 126 gangs and 9,630 gang
    members;

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-   From 1992 to 1996, there was a 43% increase in admissions in
    Juvenile Hall;

-   Remands to adult court increased from 39 in 1992 to 322 in 1996; and

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-   In 1996, firearms were used in 92.3% of all youth homicide cases and
    63.1% of all youth suicides

**SYSTEM NEEDS AND GAPS
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Throughout the planning process, a comprehensive assessment of existing
resources, infrastructure, programs and strategies was conducted. This
process covered the full continuum of care: prevention, graduated
sanctions and aftercare. Four categories of gaps identify where
resources are lacking: 1) program; 2) geographic; 3) support services;
and 4) infrastructure. Highlights of specific gaps within each category
include the following:

# Program Needs and Gaps 

-   Substance abuse treatment for youth and their families at all steps
    of the continuum;

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-   After school programs, both on and off school campuses; and

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-   Specific programs for girls.

# Geographic Needs and Gaps

-   Correctional facilities in North County;

-   Drug and alcohol services and treatment programs in North County;
    and

-   Day treatment and supervision programs located regionally (North,
    South, East and Central).

# Support Service Needs and Gaps

-   Access to affordable and high quality childcare;

-   Family preservation services and home support (including parenting
    classes);

-   Job training for youth and their families; and

-   Transportation for youth and their families to any necessary
    services.

# Infrastructure Needs and Gaps

-   Cross-system training so youth service providers understand programs
    outside their focus or scope of expertise;

-   Information and communication systems that allow accurate and
    efficient data collection, compilation and sharing to occur across
    multiple agencies (where allowed by law); and

-   Risk and needs assessment tools designed to assist service providers
    and collaborating agencies in identifying and serving at-risk youth
    at all stages of the continuum and across program boundaries.

# RECOMMENDATIONS FOR CONTINUUM OF 

# SERVICES\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_

The following recommendations are presented to fill identified gaps in
the continuum of services for youth and their families:

-   **Community Mobilization**

> Increase the number of community members (individuals, families,
> schools, businesses, organizations, service providers, etc.) engaged
> to mobilize and promote crime-free, healthy communities that are safe
> places for children to learn and grow.

## Community Risk and Resource Assessment

Adopt instruments to assess and identify local community needs,
resources and priorities for development of community-based prevention
programs that target at-risk youth and juvenile offenders.

## Substance Abuse Efforts

> Support the recommendations from San Diego's 1996 Substance Abuse
> Summit, the 1996 Methamphetamine Strike Force and the San Diego County
> Juvenile Forensics Services on integrated approaches for the
> prevention of youth alcohol and substance abuse.

## 

## Community Norms

> Support development and adoption of community laws and norms that
> guard against substance abuse, weapon possession and all aspects of
> juvenile delinquency, and encourage positive alternatives.

## 

## Risk and Treatment Needs Instruments

> Adopt shared, structured decision-making instruments for assessing
> individual at-risk youth and their families. Promote and secure
> consensus on the use of these instruments from all involved public and
> private agencies.

# 

# 

# 

# RECOMMENDATIONS FOR IMPLEMENTATION, MANAGEMENT AND EVALUATION\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_

There are necessary implementation, management and evaluation strategies
that must be in place to ensure a sustainable framework for efforts to
reduce juvenile crime and delinquency. The San Diego Comprehensive
Strategy Team developed the following recommendations to address our
critical infrastructure needs:

## Promote a Balanced Approach to Funding

Promote a balanced approach to funding prevention, early intervention
and graduated sanction programs that considers both safety needs of the
community and treatment needs of at-risk youth, juvenile offenders and
their families.

-   **Public Outreach Strategy**

Develop a comprehensive, countywide public outreach strategy that
continuously engages the public and policy makers in the prevention and
reduction of juvenile crime and in the promotion of healthy and
crime-free lifestyles.

-   **Cross-Systems Training**

Provide cross-system training between public and private agency
providers to acquire common language, methodologies and collaborative
efforts.

-   **Interagency Agreements**

> Develop formal interagency agreements (e.g., Memorandum of
> Understanding or Agreement) that explicitly state the relationship,
> roles, responsibilities and expected outcomes for all parties in
> collaborative efforts to reduce juvenile crime and delinquency, and
> promote positive development of youth.

## Case Management and Process Control

> Develop a case management system that follows each youth through the
> various stages of the continuum of care. Designate the Chief Probation
> Officer with the responsibility and resources needed to coordinate an
> interagency, centralized intake process, case management and program
> control (including assessment, monitoring and feedback) for identified
> at-risk youth and juvenile offenders.

## 

## Management Information system

> Build on existing management information system (MIS) efforts to
> facilitate relevant communication and data sharing by all criminal
> justice agencies and collaborating entities (public and private)
> consistent with appropriate protection of privacy rights.

## Evaluation

Provide for locally relevant and ongoing evaluation of programs,
agencies and strategies to ensure effectiveness and to allocate
resources based upon need and documented effectiveness.

# PROGRESS TO DATE\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_ 

Agencies, organizations and individuals have not waited for the
completion of the Comprehensive Strategy planning process to begin to
fill the needs and gaps for our youth. Specific programs and strategies
have been developed, funded and implemented as our work identifying
needs continues. These programs and strategies include:

-   **BREAKING CYCLES**

Breaking Cycles is a \$6.9 million SB1760 State grant awarded to the San
Diego County Probation Department. This three-year program (beginning
July 1997) funds delinquency prevention through a range of graduated
sanctions to prevent initiation into a lifestyle of gangs, drugs,
violence and crime. The graduated sanctions component provides for
multidisciplinary assessment of all adjudicated youth removed from, or
at risk of removal from, the home; expands day treatment to North County
region; and provides substance abuse treatment for all families by
assessed need. The prevention component establishes strength-based
family assessment with Community Assessment Teams to reduce the number
of youth entering the justice system by referring the youth and their
families to appropriate services.

-   **SAN DIEGO CRITICAL HOURS PROGRAM**

The County Board of Supervisors, through the General Budget, awarded
\$1.2 million in FY '97-98 and \$1.5 million in FY '98-99 for after
school programs for middle school age youth in San Diego County. The San
Diego County Critical Hours Program seeks to foster collaborative
efforts among public, private and non-profit organizations that have in
the past been fragmented and isolated in their efforts to serve
children, youth and families. Critical Hours seeks to address youth
violence, health and social issues that affect youth (e.g. crime, gang
involvement, teen pregnancy, substance abuse and peer group pressure)
and offer an alternative support system. With required program
components, including health, education, recreation and interpersonal
skills/self-esteem development, Critical Hours programs encourage a
partnering of community organizations (i.e. education + recreation +
social services + art organizations) to provide high quality programming
at each site. Twenty-seven programs were started in September 1997, and
have served more than 12,000 middle school age youth. The County will
expand to 34 sites in 1998-99. There are currently 18 lead agencies with
150 collaborative partners.

-   **AT-RISK YOUTH EARLY INTERVENTION PROGRAM**

Senator Alpert's SB 1050 secured a \$2 million, one-year grant (in
addition to SB1760) that builds upon the community assessment team
framework that was defined in the Breaking Cycles grant. SB 1050
provides funding for direct wraparound services and linkages with
community resources through family- focused, neighborhood-based
community assessment teams and centers. SB 1050 was awarded to the San
Diego County Probation Department, which sub-contracted

with local community based agencies to provide direct prevention and
intervention services to youth and their families.

-   **JOB TRAINING FOR FOSTER, GANG AND HIGH RISK YOUTH**

The San Diego Workforce Partnership has allotted more than \$1 million
in funding to assist high-risk youth with job training skills and job
placement.

-   **GENDER SPECIFIC SERVICES FOR GIRLS**

> The San Diego YMCA, Youth and Family Services was recently awarded a
> \$300,000 three-year grant from the Office of Criminal Justice
> Planning to provide gender-specific services for San Diego girls, with
> highest priority given to girls on probation. These services include
> but are not limited to: groups to address physical and emotional
> abuse, relationship issues, sexuality and reproductive issues,
> individual and family counseling, independent living skills,
> vocational training and parenting skills. Also the National Council on
> Crime and Delinquency was awarded a California Wellness Foundation
> grant to study gender specific programs for girls in San Diego County.

**SUMMARY\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_**

The Comprehensive Strategy as embodied in this document represents an
unprecedented collaborative effort to prevent juvenile delinquency and
promote positive development of youth. As such, this report is more than
an evaluation and summary of needs, recommendations and outcomes. More
important than any single issue or concept contained herein is the
philosophical commitment to shared responsibility and coordinated action
upon which the Comprehensive Strategy effort is predicated. Sustained
organization and agency support, community action and individual
empowerment consistent with this philosophy can help San Diego County
youth to become caring, literate, educated and responsible adults.

####  Comprehensive Strategy Support Staff

Office of Juvenile Justice and Delinquency Prevention, Developmental
Research and Programs Inc., National Council on Crime and Delinquency,
Office of San Diego County Supervisor Ron Roberts, San Diego County
Probation Department, San Diego Police Department and the Children's
Initiative