Summary Report Evaluation of the CYSA/TANF Program in California

1. Summary ReportEvaluation of the CYSA/TANF Program in California PADM 522 Presentation – November 20th, 2012 Doug Calderwood Edwin Kitzes‎ Cliff Howard StoychoIvanoff

2. Evaluation of Federal Assistance • Chief Probation Officers of California sponsored an evaluation of the implementation and impact of California Youth Services Act (CYSA) distribution of federal assistance administered the Temporary Assistance for Needy Families (TANF) to California county probation departments (CPDs). • 3 year Evaluation conducted by the RAND corporation. Howard

3. Four Goals of Evaluation • provide timely feedback to Chief Probation Officers of California on CYSA/TANF implementation, • document how county probation departments (CPDs) have used CYSA/TANF funds • assess impact of local interventions, and • draw lessons for improving overall program design and operation Howard

4. Evaluation Sought Answers to 5 Questions • What programs were implemented? • What CYSA/TANF services were provided? • What CYSA/TANF services and programs were being provided in the juvenile halls and camps/ranches? • What was the impact of CYSA/TANF at the individual and system level? • What was the CYSA/TANF funding environment and what were county claiming experiences? Howard

5. Probation Departments Administered at the County Level – 58 Counties Howard

6. California County Probation Department Funding State and Federal Funds Howard

7. California funding for Probation Facilities • California county probation departments (CDPs) started receiving federal funds under Title IV-A-EA of the Social Security Act in July 1993 to reimburse institutional costs for juvenile camps and ranches and many child welfare services. • Ended on December 31, 1995 with the passage of Personal Responsibility and Work Opportunity Reconciliation Act (PRWORA) (a.k.a. welfare reform act) Howard

8. California County Probation Departments State and Federal Funding Howard

9. Sequence of federal assistanceTitle IV-A-EA to TANF -Dec 1995 Title IV-A-Emergency Assistance Jul 1993 PRWORA TANF July 1997 Howard

10. TANF Replaces Title IV-A-EA Funding • PRWORA instituted Temporary Assistance to Needy Families (TANF) which became effective July 1, 1997 • TANF is a block grant to states to target needy families – it replaced previous welfare programs • TANF for California County Probation Departments was around $168M annually during the time of this study. • CPDs went for 18 months w/o Title IV-A-EA federal assistance Howard

11. Intent of CYSA • Provide a continuum of family-focused, case-specific services in a community-based setting that addresses the full spectrum of child and family needs, including services provided in county-operated residential care facilities • Programs were to focus more on prevention/intervention when possible Howard

12. Goals of CYSA • Legislation had 3 main goals • Keep probation youths from further crime • Help probation and at-risk youths to develop skills to avoid dependence on public assistance • Help achieve 4 overarching federal TANF goals • Provide assistance to families so youths may be cared for in their homes • Reduce dependence of needy parents on government benefits by promoting job preparation, work and marriage • Encourage formation/maintenance of two-parent families • Prevent/reduce incidence of out-of-wedlock pregnancies Howard

13. CYSA Program Planning Procedure • Establish local planning council to advise the county Chief Probation Officer including agencies • County departments of health, mental health, probation, child protective services and education • Local school districts • City/county law enforcement agencies • Community organizations that serve at-risk youth • One or more youth who are at-risk • Parents of family of at-risk youth • Chief Probation Officer prepares the written plan • County Board of Supervisors must approve the CYSA/TANF programs Howard

14. 5 Key Principles CYSA/TANF • be oriented toward principles of personal responsibility and self-reliance • use available community resources to the extent possible • be based on case plans that consider family concerns, priorities, and resources • be family-focused • address identified immediate needs, as well as underlying risk factors contributing to problems that are more pervasive and recurrent in nature Howard

15. CYSA/TANF Goals pursued by providing a spectrum of 23 authorized services Howard

16. Spectrum of Juvenile Cases5 categories from least to most serious • At risk youth – failing academically, poverty, disabled, disadvantaged, certain ethnic minorities • WIC * 601 – accused of status offense (an offense that’s not applicable to adult) • WIC * 602 – accused of misdemeanor or felony • Wardship – under court supervision, placed at home or at a relative’s house on probation • Custody – under court supervision, sentenced from 0-12 months in juvenile camp or ranch • * WIC - California Welfare and Institutions Code Howard

17. Change Model from Chen Outcome Intervention Determinants • 23 authorized service categories such as: • After-care services • Anger management • Availability of community services • Case management • Counseling, monitoring, and treatment • Drug/alcohol education • Educational advocacy • Emergency shelter • Family crisis intervention • Family mentoring • Gang intervention • Home detention • Function of Juvenile Case - • Includes things like: • Home/shelter conditions • Family/home conditions • Exposure to: • Drugs/alcohol • Gang violence • Physical vulnerabilities • Verbal abuse • Coping abilities • Decision making abilities • Access to harm others • Academic success level • Food availability • Function of Case – • Goals include: • Recovery from transgression • Avoid repeat offense • Live at home • Not dependent on public assistance • Develop Job skills • Stable 2-parent families • Avoid out-of-wedlock pregnancies • Protect community • Academic success Howard

18. Review of Evaluation Scope,Program Goals, Authorized Services • CYSA has 6 goals • California has 58 counties • Legislation authorizes 23 service categories • Juvenile cases span at least 5 broad categories of seriousness (at-risk youth to detention facilities) • Service centers include multiple government and community facilities and organizations • CYSA/TANF funding is combined with several other county, state, and federal sources How do you evaluate this? Howard

19. Four Components of Evaluation • statewide implementation surveys fielded to all 58 counties(Years 1 and 3) • an 11-county process study(Years 1 and 2) • an outcomes/impact analysis (Years 1 and 2) • a funding/claim submission analysis (Year 3) 5 questions to be addressed by evaluation What programs were implemented? What CYSA/TANF services were provided? What CYSA/TANF services and programs were being provided in the juvenile halls and camps/ranches? What was the impact of CYSA/TANF at the individual and system level? What was the CYSA/TANF funding environment and what were county claiming experiences? Howard

20. Data Collected in the Evaluation • Programs implemented under CYSA/TANF (Cliff) • CYSA/TANF services provided (Edwin) • CYSA/TANF services provided in the juvenile halls and camps/ranches (Edwin) • The impact of CYSA/TANF at the individual and system levels (Doug) • The CYSA/TANF funding environment and experiences (Doug) • Summary, Conclusions, and Observations (Stoycho) Howard

21. Distribution of Program Funds Along the Continuum of Options custody multiple multiple custody Programs Implemented Howard

22. Distribution of Program Funds Along Target Population 602s 601 truants 601 runaway adults Programs Implemented Howard

23. Percent of Counties with Programs That Target Youths and Families Along the Continuum of Options (N=55) Programs Implemented Howard

24. Key Programs in 6 Various Counties County F Youth and family resources centers Juvenile Hall unit Diversion program for at-risk youths Juvenile assessment center Family services program County D Multiagency comprehensive community-based program Aftercare Drug Court County E Medium-level custody program Juvenile Hall Youth Center Services Boot camp program Prevention network County G County B Personal/social responsibility Juvenile Hall program Camps services Voucher program County C Programs Implemented Howard

25. Services Areas Categorized into Four Groupings Howard

26. Types of CYSA/TANF Services Outsourced (N=24) Programs Implemented Howard

27. Number of Youths and Families Served in 44 Reporting Counties (June 2002) (N=44) Programs Implemented Howard

28. CYSA/TANF Mediating Variables • Implemented during a time when juvenile programs were being overhauled • Comprehensive integrated planning was encouraged • Multiagency planning bodies existed already • Needs assessments had already been done • Built on existing CPD relations with service providers Programs Implemented Howard

29. CYSA/TANF Program Moderators • Difficulty to implement multiservice delivery model • Turf concerns, philosophical differences, conflicts between service agencies • Procedures for claiming funds time consuming • CYSA implementation guides were vague • Difficult to evaluate qualifications of some service providers • Difficult to write performance-based contracts • Staff shortages in early years Programs Implemented Howard

30. CYSA/TANF Services Provided Edwin Kitzes‎ Services Provided Kitzes

31. From the Chen Reading • Assessment-Oriented Process Evaluation • Primary for External Stakeholders to evaluate how well a program is being implemented • Evaluate three main program purposes: 1) Meeting Accountability Needs 2) Meeting Program Improvement Needs 3) Provide Interpreting Outcome Evaluation

32. Services Areas Categorized into Four Groupings Howard

33. Services ProvidedHow was the data gathered? • Year 1 Survey – before/after – all programs • Year 3 Survey – Counties primary programs/services provided • 58-Counties • Compare pre- and post-CYNA/TANF • Compare different size counties, big vs. small • ‘Real Change’ vs. adjustments of claims Services Provided Kitzes

34. 58 Counties in California Howard

35. Formal Treatment Services Before | After 46 Counties 12 Counties Services Provided Kitzes

36. Coordination Services Services Provided Kitzes

37. Life Skills Development Services Provided Kitzes

38. Other Services Services Provided Kitzes

39. Services Provided Summary • Majority of funds used to ‘Enhance existing services’ • Larger counties were more likely to enhance service vs. smaller counties which used funds to add new services. Kitzes

40. Services ProvidedYear 3 Services Provided Kitzes

41. Services Provided Services Provided Kitzes

42. Types of CYSA/TANF Services Outsourced (N=24) Programs Implemented Howard

43. Spectrum of Juvenile Cases6 categories from least to most serious • At risk youth – failing academically, poverty, disabled, disadvantaged, certain ethnic minorities • WIC * 601 – accused of status offense (an offense that’s not applicable to adult) • WIC * 602 – accused of misdemeanor for felony • WIC* 777 – accused of probation violation • Wardship – under court supervision, placed at home or at a relative’s house on probation • Custody – under court supervision, sentenced from 0-12 months in juvenile camp or ranch • * WIC - California Welfare and Institutions Code Howard

44. Services Provided Services Provided Kitzes

45. Services Provided Year 3 Summary • 11 of the 23 services were provided in more than 75% of the counties. • There was “real change” made in the delivery of the services due to CYSA/TANF funds - virtually unanimous in all counties. • Majority of funds used to ‘Enhance existing services’ • Larger counties were more likely to enhance service vs. smaller counties which used funds to add new services. Kitzes

46. CYSA/TANF Services Provided inJuvenile Halls and Camps/Ranches Services in halls/camps Kitzes

47. Juvenile Halls and Camps/Ranches Juvenile Hall, Orange County Juvenile Hall, San Deigo County http://www.youtube.com/watch?v=gyaO634JWpU http://www.youtube.com/watch?v=QTI2u3bmKFQ

48. Services ProvidedHow was the data gathered? • Year 2 Survey – In-depth survey of 11 Counties • Purpose: gather general information: to gather information on services provided in Halls/Camps/Ranches • And results of CYSA/TANF funds ‘Real Change’ vs. adjustments of claims • Compare pre- and post-CYNA/TANF Services Provided Kitzes

49. Services provided in the juvenile halls and camps/ranches 1,500 26 Services in halls/camps Kitzes

50. Services provided in the juvenile halls and camps/ranches Services in halls/camps Kitzes