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IMPROVINGJUVENILEJUSTICEINWESTVIRGINIAAuthors:TedBoettner,RickWilson

IntroductiontoWestVirginia’sJuvenileJusticeSystem

WestVirginiacommunitiesandfamilieswillbenefitiftheonlyyoungpeoplewhoareconfinedordetainedinout-of-homefacilitiesarethosewhoconstituteathreattothepublicorthemselves.

Whiletherehasbeenprogresstowardthisgoalinrecentyears,muchremainstobedone.Adjustingpoliciescouldhaveamajorpositiveimpactonjuveniles,theirfamiliesandcommunities—andthestate’staxpayers.

WestVirginia’sjuvenilejusticesystemcanbeaconfusingmazeeventothosewhoknowitwell.Dataisoftendifficultorimpossibletoobtain.

ThisreportprovidesanoverviewofWestVirginia’sjuvenilejusticesystem,includinghistoricalbackground,recentreforms,andrecommendationsforimprovements.Italsosuggeststhatlookingatthesystemthroughamentalhealthlenscouldleadtomoreconstructivesolutionsandpositiveoutcomesforthestate’syouthoffenders.

EnteringtheSystem

EveryyearinWestVirginia,around4,000juvenileswillappearbeforeajudge.

Theymaywindupincourtbecauseofdelinquency,abehaviorconsideredacrimebyapersonofanyage.Ortheymaybetherebecauseofastatusoffense,behavioronlyforbiddentominors,includingskippingschool,runningawayfromhome,violatingcurfewsor

possessingtobaccoproductsand/oralcohol.

Itisoftenunclearwhatissuesmayunderlietheproblembehavior,suchasfamilyconflicts,substanceabuseand/orundiagnosedanduntreatedmentalhealthissues.

Pendingthejudge’sdecision,severalpossibleoutcomescanfollowforthejuvenileinquestion.Heorshemaybe:

• givenanimprovementperiodinwhichtoaddressproblembehaviorssothatthecasecanbedismissed;

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• givenprobation,aformofcommunitysupervision,whichmayincludereportingtoajuvenileprobationofficer,participatingincommunity-basedprograms,drugtestingand/orpayingrestitution;

• referredtoaspecialcourt,suchasateenorjuveniledrugcourt;or• committedtosomeformofout-of-homeplacement,rangingfromtreatmentfacilities,secure

andnon-securefacilitiesunderthesupervisionoftheWestVirginiaDepartmentofHealthandHumanResourcestothecustodyoftheDivisionofJuvenileServices.

Theoutcomeofthiscontactwiththejuvenilejusticesystem-anoftenconfusingmixofpublicagencies,privateorganizations,anddiverseindividuals-canhavealastingimpactonthelivesoftheyoungpeopleaffected,theirfamilies,andcommunities.

ImpactsoftheSystem

Asimplewaytounderstandtheimpactofthejuvenilejusticesystem,andespeciallyout-of-homeplacement,istoconsiderhowitcanaffecttheordinarylifecourseofindividuals.

Intoday’sworld,becominganadultoftenmeansmovingfromschooltowork,thenoftentomarriageoralong-termrelationship,makingahome,andpossibilitybecomingaparentorguardian.

AssociologistBruceWesternnotes,“Today,arrivingatadultstatusinvolvesmovingfromschooltowork,thentomarriage,toestablishingahomeandbecomingapparent.Completingthissequencewithoutdelaypromotesstableemployment,marriage,andotherpositivelifeoutcomes.Theprocessofbecominganadultthusinfluencessuccessinfulfillingadultrolesandresponsibilities.”(1)

Incarcerationorotherformsofdetainmentearlyinlifeareamajordisruptionintheordinarylifecoursewhichcanhaverippleeffectsfarintothefuture.Studiesofadultoffenders,manyofwhoseproblemsbeganasjuveniles,foundthatformerprisonersearnlessthantheirpeerswhohavenotbeenconfined.Theyaremorelikelytobeunemployedorsporadicallyemployedinjobsthatlackapathforadvancement.Thestigmaassociatedwithincarcerationmayblockaccesstocareersorpublicbenefits.

Incarcerationhasastrongimpactonfamilylife.Westernconcludes,“Imprisonmenthasalsoinhibitedtheformationofstabletwo-parentfamiliesinthelow-incomeurbanneighborhoodsfromwhichmostofthepenalpopulationisdrawn.Stablefamiliesprovidedthepoorwithavaluablemeansofimprovingwelfare.Familiespoolresources,socializeandsupervisechildren,andprovidenetworksofmutualaid.”(2)

Onceayoungpersonisdetained,heorsheisatriskofbeingdrawnmoredeeplyintothejuvenileandcriminaljusticesystem.

TheCostsandPathsoftheSystem

TheJusticePolicyInstituteisaWashington-basedthinktankthat,“changestheconversationaroundjusticereformandadvancespoliciesthatpromotewell-beingandjusticeforallpeopleandcommunities.”(3)InareporttitledTheDangersofDetention:TheImpactofIncarceratingYouthinDetentionandSecureFacilities,theInstitutelaysoutkeyfindings.Theseinclude:

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• Morelikelihoodofrecidivism.Incarcerationmayhavetheunintendedconsequenceofincreasingfuturecriminalbehavior.Onestudyfoundthat“priorincarcerationwasagreaterpredictorofrecidivismthancarryingaweapon,gangmembership,orpoorparentalrelationship.”(4)

Confinementbynatureforcesacloselivingrelationshipwithotherswhohavehaddelinquencyissues.Forthisreason,prisonshaveoftenbeenreferredtoas“finishingschoolsforcrime.”

• Otheralternativesaremoreeffective.Severalstudieshavesuggestedthatcommunity-basedprogramsaremoresuccessfulatreducingrecidivism.InSanFrancisco,forexample,participantsinaDetentionDiversionAdvocacyProgramhadabouthalftherecidivismrateofthosewhoweredetained.(5)

Bycontrast,theJuvenileJusticeInformationExchangereportsthatincarceratedyouthfaceahigherriskofphysical,emotional,andsexualvictimization,suicide,disruptionstotheirmentalandphysicaldevelopment,disruptionstotheireducation,andnegativeimpactsonemploymentandfutureeconomicsuccess.(6)

• Manyyoungpeople“ageout”ofdelinquencyontheirown,aprocessknownasdesistance.AccordingtotheU.S.OfficeofJuvenileJusticeandDelinquencyPrevention,“mostyouthwhocommitfeloniesgreatlyreducetheiroffendingovertime,regardlessoftheintervention.”Further,theirresearchfoundthatconfinementdidnotreducerecidivismwhilecommunity-basedprogramsweremoreeffective.(7)Confinementcandisruptthisagingoutprocessandreinforcenegativebehaviors.

• Themissingpiece:mentalhealth.AccordingtotheJusticePolicyInstitute,“ofallthevarioushealthneedsthatdetentionadministratorsidentifyamongtheyouththeysee,unmetmentalandbehavioralhealthneedsrisetothetop.”(8)AccordingtoThomasGrisso,authorofDoubleJeopardy:AdolescentOffendersWithMentalDisorders,“anestimatedtwo-thirdsofyouthsinjuvenilejusticecustodymeetthecriteriaforoneormorementaldisorders—twotothreetimestheratefoundinthecommunityatlarge.”(9)

Mentalhealthissues—suchasdepression,bullying,substanceabuse,familyproblems,etc.—canleadtobehaviorsthatputayoungpersonintothesystem,whichinturncanactuallyworsenmentalhealth.

• Downstreameffects.ResearchersAnnaAizerandJosephJ.Doyle,Jr.foundthat,“thoseincarceratedasajuvenileare39percentagepointslesslikelytograduatefromhighschoolandare41percentagepointsmorelikelytohaveenteredadultprisonbyage25comparedwithotherpublicschoolstudentsfromthesameneighborhood.”(10)

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Detentionalsoaffectsfutureeconomicsuccess.Giventhelinkbetweeneducationalattainmentandearningsthisshouldbenosurprise.Astudypublishedin1991foundthatincarcerationinyouthreducedhoursworkedby25-30percentyearsafterreleasefromthesystem.(11)

Allthesenegativetrendsdisproportionatelyimpactlow-incomecommunitiesandpeopleofcolor,whocontinuetobeoverrepresentedinthecriminalandjuvenilejusticesystem.

GiventhesefactsitispromisingthatWestVirginiaembarkedonthepathtojuvenilejusticereformin2014.

TrendsoftheSystem

WestVirginiatendstobucknationaltrendsandwindsupatthetoporbottomoflistsofstates,oftennotinagoodway.Untilrecently,thatwasthestatetrendinjuvenilejustice.

In2013,WestVirginiaconfinedjuvenilesatarateof510per100,000.Bycontrast,Massachusetts,withnearlyfourtimesthepopulationofWestVirginia,hadjust393youthinconfinement.Whilethestatemadesomeimprovementsinreducingracialdisparities,AfricanAmericanyouthwerestillnearlythreetimesaslikelytobeconfinedastheirwhitecounterparts.Thestate’syouthconfinementrateforAfricanAmericanswas1.5timeshigherthanthenationalaverage.(12)

WestVirginiawassecondonlytoWyomingintherateper100,000ofconfiningyoungfemales,witharateof175,comparedwithanationalrateof47.(13)

In2013,theAnnieE.CaseyFoundationreportedthatnationally

therateofjuvenileconfinementdroppedby41percent.(14)ThePewCharitableTrustsreportedthat“thenumberofjuvenilescommittedtoresidentialplacementfacilitiesdeclined35percentfrom2006to2011,mirroringanationwidedecreaseinyoutharrestrates.”(15)

WestVirginia,however,wasoneofonlyfivestateswheretherateofdetentionincreased,despiteadropinbothcrimeandpopulation.

Between2002and2012,“thenumberofcourtreferralsfordelinquentoffensesactuallydeclinedby55percent;duringthesameperiodoftime,referralsforstatusoffensesincreasedby124percent,”accordingtotheWestVirginiaIntergovernmentalTaskForceonJuvenileJustice.Recallstatusoffenseswouldnotbeconsideredoffensesweretheycommittedbyanadult.

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Thereportalsofoundthatthenumberofstatusoffendersplacedout-of-homebyDHHRincreased255percentinthesameperiod.Nearlyhalfhadnopreviouscontactwithacourt,whichmeans,“theseyouthhadneverbeenarrestedforacrimeorreferredtocourt,informallyorformally,foranytypeofbehaviororoffense,statusordelinquent.Inaddition,morethanhalfofthosecommittedtotheDivisionofJuvenileServices(DJS)fordelinquencyhadonlycommittedmisdemeanors.Ifthatwasn’tbadenough,thelengthofstayforyouthinDHHRfacilitiesincreasedby11percentto15months.”(16)

Seventy-fourpercentofjuvenilesplacedout-of-homebyDHHRwereconfinedfortruancy,whilenonviolentoffenses(67percent)andmisdemeanors(76percent)madeupthemajorityofDJSplacements.(17)

Inotherwords,despiteafallingcrimerateandadecliningpopulation,WestVirginiawaslockingupmorechildrenforlongerperiodsoftimeforminoroffensesatgreatcoststofamilies,communitiesandtaxpayers.Accordingtothetaskforce,“TheaveragecostofplacingayouthinaDHHRout-of-homefacility—basedonaveragefacilityperdiemsforemergencysheltersandallinstateandout-of-stategroupresidentialprograms—is$289.32perday,or$105,600peryear.TheaveragecostofplacingayouthinaDJSfacilityis$277.91perday,or$101,439peryear.”(18)Thosecostshaveonlyincreased.

In2013,onlyaboutoneoutofeveryeightcommittedyouthinWestVirginiawaslockedupbasedonaViolentCrimeIndexoffense,suchashomicide,aggravatedassault,robbery,orsexualassault.(19)

Thestatecouldpaymorethanamilliondollarsperyeartolockup10childrenformissingafewdaysofschool.Therehadtobebetterpolicysolutionsforkids,families,communities,andtaxpayers.Fortunately,stateleadershavetakendecisiveactiontoreversethesetrends.

BeginningsofJuvenileJusticeReforminWestVirginia

In2014,GovernorEarlRayTomblinconvenedtheWestVirginiaIntergovernmentalTaskForceonJuvenileJustice,whichbroughttogetherlegislativeandjudicialleadersaswellotherswithexpertiseinthesystem.ThegroupwasalsoaidedbythePewCharitableTrusts,whichhasworkedforjuvenilejusticereforminotherstates.TheWestVirginiaSupremeCourtestablisheditsownJuvenileJusticeCommissionin2011.

Themissionofthetaskforcewastoconductacomprehensiveanalysisofthestate’sjuvenilejusticesystemandtoproduceasetofpolicyrecommendationsaimedatprotectingpublicsafetybyimprovingoutcomesforyouth,families,andcommunities;enhancingaccountabilityforjuvenileoffendersandthesystem;andcontainingtaxpayercostsbyfocusingresourcesonthemostseriousoffenders.(20)

Thetaskforceeventuallyrecommended“prioritizingcostly,state-fundedfacilitiesforthemostseriousoffenders;expandingeffectivecommunityservicesandstrengtheningsupervision;andenhancingoversightandaccountability.”(21)TheserecommendationsweretheinspirationbehindSenateBill393,whichunanimouslypassedthestateHouseandSenatein2015.Thebillisintendedtoreducethenumberofyouthinresidentialfacilitiesbyatleast16percentby2016andtoinvestthesavingsincommunityservices.

Acompanionpieceoflegislation,HouseBill2550,wasalsopassedin2015andmayhaveanevengreaterimpactonreducingout-of-homeplacement.Thebillreformedwell-intentionedstatetruancypoliciespassedin2010whichhadunfortunateunintendedconsequences.

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The2010legislationloweredthenumberofunexcusedabsencesrequiredforastudenttoberegardedastruantfromtentofive.Manymorestudentswithabsenteeismissueswerethenadjudicated—andthenconfinedoutsidetheirhomesandcommunitiesatgreatpublicexpense.Thiswasoneoftheharshesttruancypoliciesinthenation.

AccordingtotheAmericanCivilLibertiesUnionofWestVirginia,H.B.2550callsforschoolstosendaletterhometoparentsafterthreeunexcusedabsences;meetwiththefamilyafterfiveandpossiblyadjustdownthenumberofunexcuseddays;andengagethecourtafterten.Inaddition,thelawprovidesmuchneededclarificationonwhattypesofabsencesarecountedasunexcused.(22)EffortstoweakentheprovisionsofH.B.2550inthe2016legislativesessionwerefortunatelyunsuccessful.

Thesestepsdemonstratethatdespitepartisanandotherdivideslawmakers,judges,andcommunitymemberscancrosslinestopromoterationalpoliciesinthepublicinterest.However,thereismoretobedonetobuildonthissuccess.Andcomparedtopastefforts,thenextstepscouldbeeasytotake.

PolicyRecommendationstoImprovetheSystem

In2015,theCivilRightsDivisionoftheUSDepartmentofJusticeissuedadetailedlettertoGov.Tomblinwarningthatthestate’scurrentjuvenilejusticesystemwasindangerofviolatingthe1990AmericanswithDisabilitiesAct(ADA).Amongotherprovisions,theADArequiresthat“individualswithdisabilities,includingchildrenwithmentalillness,receivesupportandservicesinthemostintegratedsettingappropriatetotheirneeds.”(23)

Thefindingsinthisletterareworthconsidering.Amongthemare:

• ChildrenplacedinDHHRfacilitiesareoftenplaceoutofhome,but“Unnecessaryplacementinsegregatedresidentialtreatmentfacilities,andremovalfromtheirfamiliesandcommunities,canharmchildren.Childrenfrequentlylosetheabilitytomakeeverydaydecisionsabouttheirlivesbecausefacilitiesregimentalldailyactivities.”Theymayalsobesubjecttoseclusion,chemicaltreatment,andmanualrestraintbystaff.Allofthiscancontributetodisruptionbehaviorsandleadto“furthersegregationandisolationfromtheircommunities.”(24)

• Childrenwholiveinthecommunityandneed,butdonotreceivein-homeandcommunity-basedservices,areatriskofunnecessaryplacementinsegregatedtreatmentfacilities.”

• Thestate“hasnotdevelopedcomprehensive,community-basedservicesforchildrenwithmentalillness,includingwraparoundsupportsthatarethestandardofcareforchildrenwithsignificantmentalhealthissues.WestVirginiahasnotdevelopedstatewidecommunity-basedcrisisservices,norhasiteffectivelydivertedchildrenfromunnecessaryplacementinsegregatedresidentialtreatmentfacilities.”

• Thestatehas“takeninsufficientstepstoreallocateexistingresourcesformentalhealthserviceto,andhasnottakenfulladvantageofMedicaidsupportfor,in-homeandcommunity-basedservices.”

• Agenciesthatservechildreninthestatehave“failedtocollaboratetoaddresstheneedsofchildrenwithmentalhealthconditionsinvolvedinmultiplesystems.”

• Thestate“failstoengagefamilieseffectivelytodevelopstrategiestosupportchildrenintheirhomesandcommunities.”

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• Thestate“continuestofundexpensiveplacementinsegregatedresidentialtreatmentfacilitiesbothwithinthestateandoutofstate,butneglectstodevelopsufficientcommunity-basedservices.”(25)

Insum,theDepartmentofJusticearguesthatthesepoliciesviolatethecivilrightsofchildrenandwastestateresources.

BringingSystemPolicyRecommendationstoFruition

WestVirginia’sjuvenilejusticesystemhasmaderealprogress,however,itcontinuestofacesignificantproblems,particularlyintheareaofjuvenilementalhealth.Somenextstepsarefairlyeasytoimplement,whileothersmayrequireanextendedeffort.

Oneimmediatestepwouldbetocreateataskforcetoaddressjuvenilementalhealthissues.WestVirginiahasalreadycreatedstrategicplanstoaddresschronicdiseasessuchasasthmaanddiabetes.AccordingtoMentalHealthMatters,WestVirginia,“Theseplanshelpstakeholderstackleissuescollectivelybyassessingneededservices,settinggoalsanddelegatingresponsibilities.”(26)Abilltocreatesuchataskforcediedinthe2016legislativesession.Thisissueshouldberevisitedinthecominglegislativesession.

Anotherpromisingapproachistobuildtheinfrastructuretohelppublicschoolsaddressmentalhealthissuesbeforeastudentissuspendedorsenttocourt.Often,actingoutisasymptomofdeeperproblems,whichoftengoundiagnosedanduntreatedinthecurrentsystem.Apilotprograminoneortwocountiescouldbeagoodstartingpoint.

Aworthylong-termgoalforourstatewouldbetocreatetheinfrastructurewhichwouldensurethatstudentsindangerofenteringthejuvenilejusticesystemareassessedandreferredtoappropriatecommunity-basedprogramswheneverpossibleandappropriate.

ItisregrettablebuttruethattheremaybesomejuvenilesinWestVirginia,aselsewhere,whoconstituteamajorthreattothepublicand/orthemselves.Itonlymakessensethatout-of-homeplacementandextensivetreatmentshouldbereservedforsuchyoungpeople.Therest,thelow-riskandlow-threatpopulationthatsofarmakesupthemajorityofjuvenilesinconfinement,shouldbetreated,wheneverpossible,intheirhomesandcommunities.

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EndNotes

1.Western,Bruce,PunishmentandInequalityinAmerica,RussellSageFoundation,2006,p.20.

2.Ibid,p.163

3.JusticePolicyInstitute,http://www.justicepolicy.org/About1.html.

4.JusticePolicyCenter,“TheDangersofDetention:TheImpactofIncarceratingYouthinDetentionandOtherSecureFacilities,”p.4,http://www.justicepolicy.org/images/upload/06-11_rep_dangersofdetention_jj.pdf.

5.ibid,p.6.

6.JuvenileJusticeInformationExchange,“KeyIssues,”http://jjie.org/hub/community-based-alternatives/key-issues/.

7.U.S.DepartmentofJustice,OfficeofJusticePrograms,OfficeofJuvenileJusticeandDelinquencyPrevention,“HighlightsFromPathwaystoDesistance:ALongitudinalStudyofSeriousAdolescentOffenders,”p.1,https://www.ncjrs.gov/pdffiles1/ojjdp/230971.pdf.

8.JusticePolicyInstitute,p.8.

9.Grisso,John,JohnD.andCatherineT.MacArthurFoundation,ResearchNetworkonAdolescentDevelopmentandJuvenileJustice,“DoubleJeopardy:AdolescentOffenderswithMentalDisorders,”p.1.

10.Aizer,AnnaandJosephJ.Doyle,Jr.“JuvenileIncarceration,HumanCapitalandFutureCrime:EvidencefromRandomly-AssignedJudges,”p.3,http://www.mit.edu/~jjdoyle/aizer_doyle_judges_06242013.pdf.

11.Freeman,RichardB.,NBERWORKINGPAPERSSERIES,“CrimeandtheEmploymentofDisadvantagedYouth,”p.11,https://core.ac.uk/download/pdf/6586657.pdf.

12.WestVirginiaCenteronBudgetandPolicy“ReformingYouthIncarcerationinWestVirginia:SaferCommunities,ReducedCosts,andaBetterFutureforTroubledYouth,”http://www.wvpolicy.org/reforming-youth-incarceration-in-west-virginia/

13.NationalCenterforJuvenileJustice,“SexofResidentsbyState,2015,”https://www.ojjdp.gov/ojstatbb/ezacjrp/asp/State_Sex.asp?state=&topic=State_Sex&year=2015&percent=rate

14.TheAnnieE.CaseyFoundation,“YouthIncarcerationintheUnitedStates,”p.1,http://www.aecf.org/m/resourcedoc/aecf-YouthIncarcerationInfographic-2013.pdf.

15.ThePewCharitableTrusts,“WestVirginia’s2015JuvenileJusticeReform,”p.1,http://www.pewtrusts.org/en/research-and-analysis/issue-briefs/2016/05/west-virginias-2015-juvenile-justice-reform

16.WestVirginiaIntergovernmentalTaskForceonJuvenileJustice,“ReportoftheWestVirginiaIntergovernmentalTaskForceonJuvenileJustice,”p.6,

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http://www.governor.wv.gov/Documents/Final%20Report%20of%20the%20WV%20Intergovernmental%20Task%20Force%20on%20Juvenile%20Justice.pdf

17.Pew,p.3.

18.WestVirginiaIntergovernmentalTaskForce,p.13.

19.WestVirginiaCenteronBudgetandPolicy,op.cit.

20.WestVirginiaIntergovernmentalTaskForce.,p.5.

21.ibid.p.5.

22.AmericanCivilLibertiesUnionofWestVirginia,“TruancyReformIsJustTheBeginning,”http://acluwv.org/truancy-reform-isnt-the-end/.

23.U.S.DepartmentofJustice,CivilRightsDivision,lettertoGovernorTomblin,“Re:UnitedState’sInvestigationoftheWestVirginiaChildren’sMentalHealthSystemPursuanttotheAmericanswithDisabilitiesAct,”p.1,https://www.ada.gov/olmstead/documents/west_va_findings_ltr.pdf.

24.ibid.,p.2

25.ibid.,p.2,3.

26.MentalHealthMatters,WestVirginiaFacebookpage,https://www.facebook.com/pg/wvmh4kids/about/.

GraphicSources

WestVirginiaDivisionofJuvenileServicesdatafromWestVirginiaExecutiveBudgetFiscalYear2015.Volume2(BudgetOperatingDetail).P.446http://www.budget.wv.gov/executivebudget/archives/Doucments/VIIOD2015.pdf

“BetterReturnsforaSaferFlorida:AligningTaxpayerInvestmentsintheJuvenileJusticeSystemwithStrategiesProventoIncreasePublicSafety,”TheJamesMadisonInstitute,March2014.https://www.jamesmadison.org/library/doclib/BetterReturns2014.pdf

Sickmund,M.,Sladky,T.J.Kang,W.,andPuzzanchera,C.(2015)“EasyAccesstotheCensusofJuvenilesonResidentialPlacement.”http://www.ojjdp.gov.ojstatbb/ezacjrp

WashingtonStateInstituteforPublicPolicy,Benefit-CostResults,JuvenileJustice(UpdatedJune2016)http://www.wsipp.wa.gov/BenefitCost/Pdf/I/WSIPP_BenefitCost_JuvenileJustice

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