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Graduated Sanctions. Presented by Orange County Department of Social Services October 13, 2010. Orange County, New York. County Supervised Child Welfare and Juvenile Justice System. Population: 390,000

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Graduated Sanctions

Presented byOrange County Department of Social Services

October 13, 2010

orange county new york
Orange County, New York

County Supervised Child Welfare and Juvenile Justice System.

Population: 390,000

Suburban / Rural County, with three small urban areas with a population of 25,000 in each city.

Median Income: $69,913

Poverty Rate: 10.2%

19 School Districts

Orange County

juvenile delinquency
Juvenile Delinquency
  • In NYS the DSS is the agency which serve the largest majority of JD Placements.
  • NYS OCFS Placements are under 800 Statewide, with the majority of the placements coming from the City of New York.
persons in need of supervision pins reform legislation summary
Persons in Need of Supervision (PINS) Reform Legislation Summary

2002 NYS PINS Legislative Change - increased the age limit for a PINS designation from 16 to 18 years of age.

The new legislation creates major concern throughout the child welfare system regarding placement rates for children between 16 – 18.

The concern for placement rates begins to elevate the need for reform, which is taken on County by County across the State.

pins data by agency
PINS Data by Agency
  • Truancy related cases and / or high risk cases are managed through Probation.
  • Community and / or low to medium risk cases are managed through KEYS.
persons in need of supervision1
Persons in Need of Supervision

PINS Referrals by Source (2009):

Parents: 395

Educational: 271

Law Enforcement: 71

Community: 8

Probation Diversion: 207

Family Keys: 538

orange county pins 2009
Orange County PINS 2009

PINS Referral

Probation Assessment




KEYS Intervention

Probation Intervention



Includes JD




DSS Funded

Preventive Service







Court Intervention

orange county pins 20091
Orange County PINS 2009





Other, no finding, etc…





Foster Care

When placement is ordered, the DSS assumes custody of the child for “appropriate placement”. Placements include: foster care, therapeutic foster care, group home and residential care.



Family Court has the authority to order the DSS to supervise the household for a period of 12 months.



Probation Supervision is generally ordered for a period of 12 months and includes specific requirements.

continuum of care graduated sanctions1
Continuum of CareGraduated Sanctions

Preventive Services

Custody Services

jd pins service continuum of care philosophical funding requirements
JD / PINS Service Continuum of CarePhilosophical Funding Requirements

No Eject, No Reject

Community Attachment

Youth Voice

Performance Based

24 / 7 Crisis Intervention

Unconditional Care

Family Focused

Needs Driven Planning

Strength Based


Evidence Based

Cognitive Behavioral

Community Service

Individualized Planning

request for proposals
Request for Proposals
  • RFP helps to keep the focus as time tends to shift perspective.
  • Keeps competition in the market place, removes the influence of a single agency and helps to keep the continuum accountable to measuring performance.
  • Allows for the specific allocation of resources into our five key areas: Low, Medium, High Risk, Custody Options and After Care.





performance based contracting
Performance Based Contracting

Performance-Based Contracting (PBC) - is a technique for structuring all aspects of an acquisition around the purpose and outcome desired as opposed to the process by which the work is to be performed.

Performance Based Contracting is acquisition for results! Not acquisition for services!

cost savings making the argument for community investment
Cost SavingsMaking the argument for Community Investment

The cost difference between residential placement and community based service is clear, in NYS the average costs of residential care exceed $110,000 annually, while the most expensive community based program costs $24,000 per year.

Achieving a reduction in out of home placements would appear to drive costs downward, allowing for investment in community based programming.

This is not always the case!

cost savings it seems so simple
Cost SavingsIt seems so simple!

Projecting cost savings is important, but projections do not free up space in a budget, unless achieved!

We assume too often that a preventive program, well thought out and delivered will result in less expense on out of home care.

Other factors apply:

MASR (Maximum State Aide Rate) = residential per diem.

Changes in the community population and one time events.

The assumption that every child in the preventive program would end up in residential care.

That discharges from care will occur on a consistent basis.

Reimbursement is lower for community based, preventive services.

cost savings it get easier with practice
Cost SavingsIt get easier with practice

Real Cost savings are needed, which requires a two pronged approach:

Prevention of out of home placement, investment in a stronger continuum of care.

Alternatives to residential placement, focused on shorter lengths of stay, after resources and specialized intensive services for children who lack a discharge resource.

Investing in reductions in the length of stay and alternatives to residential care is the key.

Money Follows the Child: a new investment in individualizing budgeting for children as an alternative to placement begins in 2005 – 2006.


Orange County Post PINS Reform Efforts - Data

Preventive and Alternative Focus

Preventive Focus

orange county pins 20092
Orange County PINS 2009

PINS Referral

Probation Assessment




KEYS Intervention

Probation Intervention



Includes JD




DSS Funded

Preventive Service







Court Intervention

assessment drives intervention1
Assessment Drives Intervention

KEYS Intervention

Probation Intervention


Includes JD



DSS Funded

Preventive Service

Medium Risk:

Intensive Case Management

Family Support Program

Youth Empowerment Srvs.

Family Functional Therapy (FFT)

Low Risk:

Community Accountability Board

PINS Parenting

Center for Hope

Employment Project

School Based CM

Mandated Preventive

High Risk:

Residential Alternatives

Community Connections

Community Alternatives

Transitional Support Services

dss service delivery process
DSS Service Delivery Process

Universal Referral Made to the DSS

The referral has a specific program

Identification on the form, i.e. FFT,

Employment. Changes may be made based on specific factors.

DSS reviews the referral, YASI and and sends the Case to contract agency, who is required to conduct a strength based needs driven assessment.

Strength Based

Needs Driven


Non for profit provides preventive

service on a fee for service basis.

Service Delivery

Based on child performance in key

areas, or based on placement rate.


universal referral form
Universal Referral Form

The Universal Referral Form allows any community based or government agency to make a referral into the JD / PINS Service System.

Referrals are prioritized based on level of need.

Probation Officers have the ability to initiate emergency referrals based on risk of placement.

All contracts have a 24 hour provision for first contact, with 72 hour initial assessment due to the DSS.

All contracts must have a no-eject, no reject philosophy.

continuum of care programs
Continuum of Care Programs

After Care and IL Services: Post placement

Short Term RTC: reduced length of stayplacement

Transitional Support Services: alternative to placement

Community Alternatives: reduced length of stay project

Community Connections (SWK): mentoring, ICM project

Residential Alternatives: wrap around model

Functional Family Therapy (FFT): family focused

Youth Empowerment Program: paraprofessional, mentoring project

Family Support Program: ICM case management, with family focus

ICM: focused on children with mental health issues

School Based: co-located in schools throughout the County

Center for Hope: evening reporting, focused on gang diversion

Adolescent Employment Project: supported work

PINS Parenting: required for all PINS referrals

CAB: Community Accountability Board

community accountability board
Community Accountability Board

The Community Accountability Board (CAB) is a community based alternative sentencing program for non-violent first-time offenders.

As a Family Court Diversion, offenders report to a group of local community leaders and they negotiate an appropriate sentence for the offense.

Very often is required to participate in community service and make some sort of academic achievement as part of his sentence.

community accountability board1
Community Accountability Board

Meaningful dialogue with offenders, victims, and members of the community;

Lead the discussion about the activities that brought an offender to the Board and repairing damage to victims and reweaving the fabric of our community;

Develop a Reparative Accountability Agreement with Offenders;

Provide recommendations and information to all parties engaged in the process; and

Report to the Coordinator.

respite services
Respite Services

Respite services are required under the 2008 PINS Reform Law.

Respite options include:

Shelter Based – respite shelter also serves as the runaway, homeless youth shelter for the County.

Preventive Respite – provided through a team of foster homes who have been trained to provide temporary respite services.

Community Based – offers para-professionals for a period of 30 days that provide social and recreational activities outside of the home during specific hours of the day.

pins parenting workshops
PINS Parenting Workshops

Operates as a psycho-educational group offering parents of adolescents, specific skill building.

Parent support groups are facilitated by the workshop coordinator following completion of the parenting workshop.

Required for parent filed PINS petitions.

Operated in three locations throughout the County with day care services provided in the early evening.

employment projects
Employment Projects

Employment Projects provide program funds to support the employment of an at-risk child in local businesses located throughout the County.

Supported Work Agreement: all employers sign a supported work agreement, which serves as an employment contract, providing reimbursement for wages and payroll taxes.

Employment sites must agree to assign a mentor the at-risk youth who provides on the job mentoring and community mentoring.

employment projects1
Employment Projects

Orange County has a stand alone Employment Project, which allows fifty at-risk youth to be employed for a period of six months.

  • Employers and mentors are recruited through the Chamber of Commerce.
  • Annual award banquet is held to honor those children who have remained employed for a period of six months throughout the course of the year.
center for hope evening reporting
Center for Hope / Evening Reporting

Focused on providing step down / after care services for at-risk children in the City of Newburgh. Also serves as an Evening Reporting Center.

During and following completion of enrollment in any one of the PINS / JD prevention services, children are enrolled in programming offered through the Center for Hope.

Programming focuses on: cultural activities, social activities, athletics, life skills, parenting supports, after-school and early evening activities.

center for hope evening reporting1
Center for Hope / Evening Reporting

The Center for Hope focuses on Gang Intervention and Prevention. Life Coaches from the Center for Hope are engaged to provide outreach services across Newburgh as a means of encouraging at-risk off the streets, into the program.

Life Coaches are often former gang members or at-risk children from the neighborhood.

The Center for Hope develops and strengthens protective factors against gang involvement and other problem behaviors.


Even though most programs are community based (home visiting) access to transportation resources is an essential component of the continuum.

Fixed Routing Systems, provides transportation throughout the County through a fixed route bus system.

All agencies funded for preventive services are permitted to access the transportation loops. Agencies are required to register with our transportation division and book trips on a six month reoccurring basis.


Sharing resources across program areas: transportation services also include Welfare to Work, Day Care Subsidy, Medicaid, Foster Care and Preventive services.

The shared resources draw down Federal and State Dollars, which strengthen the transportation network.

Orange County has 61,000 Medicaid recipients, 2,100 TANF recipients and 800 day care cases, when shared we managed 7,800 trips per month.

fixed routing system
Fixed Routing System

Sample Transportation Schedule

transition and after care
Transition and After Care

Transitional Support Services

Community Alternatives

Community Connections

Residential Alternatives

Family Functional Therapy


Youth Empowerment Program

Adolescent Employment Project

Family Support Program

School Based


Center for Hope

school based
School Based

Located in eight school districts and two community based locations, School Based Programs are designed to serve children with truancy issues.

Case Management based model of services delivery, focused on short term intervention and clinical services offered through the district.

Co-Location is the key factor, allowing for a partnerships to be developed with district across the County.

intensive case management
Intensive Case Management

Mental Health Model of intensive case management services, highlighted by caseload ratios of 1:7.

PINS and JD behavior can be symptoms of mental health disorders among adolescents. If the assessment indicates high needs in life domain of mental health, ICM is generally assigned to provide community based clinical services.

Essential in this process is the linkages that are built to the mental health system to support the child’s long term treatment needs.

family support program
Family Support Program

Short term, solution focused model that focuses on parent / child relationship and communication.

Based on the “Homebuilders Model”. Intensive in home program, focused on a 30 to 90 day period of time.

Intervention is hands-on in design, deployed during non traditional hours, includes a strong parenting skills component through in-home modeling.

youth empowerment program
Youth Empowerment Program

Mentor model of service delivery, with professional case management support.

Mentors are para-professionals who are hired to match the unique needs of the child. Mentor hours average 5 – 10 hours per week and include a modified employment program.

Mentors are from the community / neighborhood of the child and family.

Parent Advocates are often used as well, allowing parents with experience to provide one on one parenting assistance.

functional family therapy
Functional Family Therapy

FFT is a family intervention for at-risk youth ages 10 to 18 whose problems range from acting out to conduct disorders to alcohol and/or substance abuse.

Clinical model of service delivery, focused on children with multiple needs ranging from behavioral, mental health and substance abuse.

Provided through the Orange County Department of Mental Health, required license for clinical practice.

residential alternative
Residential Alternative

High end, strength based, wrap around model of planning, followed by intensive case management, one on one mentors.

“one foot in the door” children, designed for high risk children with strong probability of placement as determined by assessment.

Intensive service delivery model, generally includes a minimum of 15 – 20 hours of para-professional mentor contact on a weekly basis, with back end clinical support through case management team.

community connections
Community Connections

Merges community based model with day treatment program.

Community model deploys case managers, skill builders into the community to work hands-on in a family’s home.

Concurrent services are offered through a day treatment program focusing on educational, psycho-social and social programming at an office based location.

Supports cultural, educational recreational activities.

community alternatives
Community Alternatives

Provides an alternative to placement through a highly clinical intervention, “one foot in the door” target population.

Intensive case management model, with ancillary services, i.e. employment, transportation, tutoring, home maker (in-home parenting skill training).

Money follows the child design, allowing for individualized budgeting based on the needs of the child and family.

Budget is developed during assessment and submitted for DSS approval.

community alternatives1
Community Alternatives

Individualized budgeting allows for highly flexible programming. Sometimes referred to as a residential without walls.

Ancillary funds / flexible funds are an important component, as the flexibility in funding allows for the development of individualized service plans.

Clinical Support provided through subcontract with 24/7 Mobil Mental Health Program located within the same agency.

transitional support services
Transitional Support Services

Money follows the child design for children in residential placement.

Allows for the development of an individualized plan and budget which would result in the discharge of the child from residential care.

Flexible program design, with para-professional staff, high end clinical support and independent living skill development.

Ancillary funds and flexible funds are essential in developing the plan for discharge.

transitional support services1
Transitional Support Services

For older children, merges TANF, SSI with independent living skills. TSS has built supportive apartment programs, by merging TANF, Food Stamps, Medicaid and Child Welfare Funding. Complex funding streams, allows for the development of multifaceted individualized plan.

Employment is a mandatory component of the program, all children must be employed or engaged in community service.

24/7 Clinical Support subcontracted through the Mobil Mental Health Team.

non secure detention
Non Secure Detention

Detention is provided on both a residential and community based level.

Residential Non Secure Detention: short term residential program pending disposition.

Community based: provided under one contract, allows for the use of community based detention, including case management supervision on a daily basis, GPS monitoring and curfew checks.

Detention is the number one predictor of future residential placement. All efforts are made to avoid detention, as treatment recommendations are generally favorable of placement.

short term residential treatment
Short Term Residential Treatment

Provides community based and residential services at the same time, by engaging the family throughout the residential stay.

Community based program provides assessment and manages the intake application process for residential treatment.

Upon placement, a community based team begins working with the family in the community in an effort to address the familial issues that may have played a role in the placement of the child.

short term residential treatment1
Short Term Residential Treatment

The community based team works with the clinical team at the residential to support return to the community.

Home visits are supported by the community based team.

Educational plans are merged with the local school district, with the community based team serving as educational advocates when needed.

Home visits are not based on behavioral points and cannot be used for reward / punishment.

Discharge date is non negotiable, and is included in the court order for placement.

after care services
After Care Services

Educational Advocacy

Independent Living Programs

Case Management based.

Housing Based: Supervised Independent Living Programs and Transitional Housing services.

After Care Services: feed back into the continuum of care. Children discharged from custody are assessed again and re-entered into the program that would best meet their needs.

After Care includes OCFS placements (secure placements) into the continuum of care.

prevention of placement1
Prevention of Placement

Performance Standard is 90% of children will remain in the community

improved academic performance1
Improved Academic Performance

Performance Standard: 75% of children will experience

improved academic achievement


Orange County Post PINS Reform Efforts - Data

A Closer Look: PINS and JD Placements


For More Information Contact:

David Jolly, Commissioner

Orange County Department of Social Services

(845) 291-4311