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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