santa cruz county probation department · 2019-05-28 · the santa cruz county probation...

Adult Probation Division Annual Report

2018 Our VISION is a safe and thriving community with justice for all. Our MISSION is to promote public safety, reduce recidivism, and support victims and all those impacted by crime. In partnership with our community, we provide balanced supervision, accountability, and opportunities for positive change through results driven practices.

Prepared by Division Director

Sarah Fletcher

Santa Cruz County Probation Department

Table of Contents Introduction: .......................................................................................................................................................... 2

Division Goals: ...................................................................................................................................................... 2

Executive Summary ........................................................................................................................................... 4

Division Highlights from 2018 ...................................................................................................................... 5

Pretrial Outcomes ............................................................................................................................................... 6

Investigations and Court Coverage ........................................................................................................... 9

AB109: Public Safety Realignment .......................................................................................................... 11

Grants and Technical Assistance/Research Projects ................................................................... 13

Future Goals ....................................................................................................................................................... 16


2 Adult Division Annual Report – Completed 2019

Introduction: The Adult Division provides a full spectrum of services operating around three major focus areas – Pretrial Services, Court Coverage and Investigations, and Community Based Supervision. The Division’s Pretrial Unit completes assessments and makes recommendations regarding the release or detention of clients pending criminal charges and provides monitoring to those deemed eligible by the courts to remain in the community. The Investigations Unit conducts pre-sentence and pre-plea investigations as well as making sentencing recommendations based on the statutory mandates outlined in the Penal Code and Rules of Court. The remaining units and majority of Division Staff provide various levels of community-based supervision for individuals placed on formal probation, those released from state prison on post release community supervision (PRCS), and those serving the community portion of their local prison sentence (pursuant to Penal Code Section 1170(h)). All Probation Officers serve the criminal courts as Department representatives in the felony and specialty courtrooms. In addition, the Division facilitates case planning and re-entry services for those serving the custody portion of their local prison sentence at the county jail; and provides contract oversight for service providers who support programming for clients both in custody and in the community. Division Goals: Pretrial The Santa Cruz County Probation Department’s Pretrial Services’ goal is to adhere to research-based principles by applying actuarial risk tools to predict the likelihood of risk of flight and danger to the community; providing the least restrictive supervision necessary to effectively monitor compliance of release conditions; reminding defendants of their court appearances; reporting violations of release conditions which indicate an increased risk of pretrial failure to the court with a recommendation for modifications to mitigate risk; using evidence-based techniques to gain compliance and increase defendant engagement and motivation through strength based and motivational interviewing techniques; and using fidelity measures, data, and evaluation to ensure quality and effectiveness of services and guide decision-making Investigations and Supervision The Adult Division is committed to research-based supervision strategies to ensure public safety through the reduction of recidivism and victimization, and maximizing successful completion of court ordered terms in order to assist clients in building their capacity to remain in the community. This is accomplished through adhering to the principles of Risk, Need, and Responsivity (risk-based monitoring or supervision, identifying and addressing drivers of criminal behavior, matching the client needs to appropriate and available resources). We strive to utilize the least restrictive interventions necessary to both hold accountability and facilitate behavior change, in consideration of custody alternatives while maintaining public safety. It is important that Probation is viewed as a strong alternative to incarceration and has the confidence of our criminal justice partners and the community as being a viable public safety option that reduces recidivism more than punitive sanctions and incarceration alone.



The Adult Probation Division has adopted the following key evidence-based supervision strategies to meet our goals, maximize available resources, and be good financial stewards of public funds:

Key Supervision Strategies Methods How we are implementing strategies … 1. Use empirically-based assessments to guide decisions 2. Focus on criminogenic needs (drivers) 3. Develop rapport/enhance motivation 4. Teach skills, role plays, and homework 5. Spend 20 minutes per session [with higher risk offenders] 6. Match programming (responsivity) 7. Seek to achieve proper dosage [100-300 hours of programming for moderate to high risk cases] 8. Redirect antisocial sentiments [address and redirect criminal thinking as it occurs]

• Cap caseloads [at

evidence-based practices standards]

• Ensure mastery of effective supervision practices techniques

• Focus coaching and

training efforts on supervisors

• Acquire tools and skills • Develop a CQI

(continuous quality improvement) and coaching structure

• Alter policy and

procedures

Right-sizing of supervision caseloads (focusing on high and moderate risk / specialty populations when limited resources). Supervisors not carrying caseloads and focusing on coaching and quality assurance. Utilization of risk/needs assessment and reassessment: CAIS (Correctional Assessment and Intervention System) 1 Utilization of Effective Practices in Community Supervision (EPICS) 2 Adoption of New Policies and Procedures Diversity of trainings to enhance skills

Engagement in variety of technical assistance (reference pages 7 and 8). Cognitive Behavioral Therapy (Thinking for a Change): CBT Workbooks; and Re-entry Services Utilization of Rewards / Incentives grid; violation response grid

1 The Correctional Assessment and Intervention System (CAIS) identifies underlying reasons for criminal behavior; classifies offenders into risk level and supervision strategy groups; provides recommendations for specific supervision and communication techniques for each type of offender. The ODARA was the first empirically developed and validated domestic violence risk assessment tool to assess risk of future domestic assault, frequency, and severity of future assaults (against female victims). The Static-99R is based on unchanging risk factors which predict the potential for sexual re-offending. It is required by law to be used to assess every eligible sex offender prior to release on parole; to assess every eligible sex offender pre-sentencing and on a probation case load; and prior to release of an eligible sex offender from a Department of State Hospitals institution. 2 The EPICS model targets higher risk offenders and their criminogenic needs using cognitive-behavioral interventions and core correctional practices, and provides the structure for officers to identify high-risk thinking and anti-social attitudes that lead to criminal behavior.



Executive Summary Trends continue to show an increase in pre-adjudication involvement for Probation, with pretrial populations booming and presentence investigation reports on the rise, along with new legislative mandates (Proposition 63). At the same time, while the total active caseloads for those on formal probation continue incremental declines, the AB109 population (PRCS and 1170(h)) has shown a steady increase since 2011. These population shifts have left a higher concentration of clients at a moderate and high risk to recidivate, along with higher needs. The Division has continued to achieve most of its goals to cap caseloads identified for more intensive supervision for those clients with the greatest demonstrated public safety concerns, as well as specialty populations. The largest gap from desired staff ratios continues to be for those clients under general supervision, as well as the large misdemeanor domestic violence population. Beyond client to probation staff ratios, the lack of dedicated funding streams for supportive resources and the cost of statutory requirements for these populations has been a significant barrier. The anticipated Probation Service Center opening in 2019, funded by AB109 treatment dollars and carryover, and pending process changes allowed by Assembly Bill 372 (a pilot project related to Penal Code 1203.097 requirements) are anticipated to address some of the needs of the underserved general supervision and domestic violence cases. The increased mandates of Proposition 63 (2016), implemented in January 2018, created oversight responsibilities for existing laws prohibiting felons and certain misdemeanants from owning or possessing firearms and ammunition. It quickly became apparent that our local volume (more than 800 referrals) would necessitate at least one additional probation officer or probation aide, plus support staff, in order to stay current. Thus, we quickly fell behind by several months. The continued use of the Public Safety Assessment – Court (PSA) pretrial assessment tool for objective and informed release decisions has allowed more than five times the number of defendant’s to be evaluated for release from 2013 (the year prior to implementation). The number of individuals released pending disposition of their cases has steadily risen, with more than 600 cases opened in 2018, and significant increase in our average daily population supervised. Probation and Court representatives began meeting and planning for pretrial expansion based on SB10 statutory requirements, in addition Probation acquired a new pretrial management system module (to go live early 2019). By the end of 2018, it became clear that SB 10 would be on hold pending voter consideration in a referendum on the ballot in the November 2020 general election, however, locally we continue to plan for change as the trends indicate some form of reform inevitable.

Administrative16%

Investigations/Intake 6%

Specialized (AB109, Sex Off, MH, High Violent)

27%

General Supervision

25%

Domestic Violence 22% ICOT/1203.9 Transfers

Pending In/Out4%

1,653ACTIVE

CLIENTS

Age 18+AS OF

12/31/2018



Division Highlights from 2018

of controlled substances and many property crimes under $950). In addition, new laws creating more diversion opportunities and focusing on pretrial release is on the rise. For instance, Mental Health Diversion (AB1810) for clients whose criminal activity can be tied to a serious mental illness took effect, although counties across the state are still in the early stages of planning. While the Formal Probation caseload has decreased, the AB109 population3 has shown a steady increase of nearly 18% since 2014 (and nearly 31% from 2017 to 2018). The locally sentenced prison population (1170(h)) 4 saw its first significant surge in 2018, and the Post Release Community Supervision (PRCS) 5 population increased as well.

3 In 2011 the Public Safety Realignment Act (AB109) redistributed the responsibility for certain offenders from the State to counties. 4 1170(h): Non-serious, non-violent, non-sex offense felons without current or prior serious felonies now serve prison commitments in local jail.4 The “straight” sentences are custody only, and “split” sentences have a community supervision component following jail time called Mandatory Supervision (which is similar to formal probation supervision). 5 PRCS: Realignment transferred to counties the responsibility for supervising felons (formerly called parolees, now Post Release Community Supervision) upon their release from state prison for non-serious, non-violent, non-sex offenses. Re-entry planning begins while the offender is incarcerated in prison and aids in the process of transitioning home.

The landscape of probation supervision has continued to evolve, with the total number of individuals supervised by pretrial up more than 300% over the last decade, and the post-conviction population steadily declining. Our total active client population is down nearly 5% from 2017 and down more than 30% from 2014. These trends are due in large part to the decriminalization of substance use disorder by legis-lation such as Proposition 47 (2014), which impacted crimes being handled more informally by the court (simple possession



Pretrial Outcomes In 2018, Pretrial Unit staff completed 2,726 assessments utilizing the Public Safety Assessment—Court (PSA-Court) tool and decision-making framework to inform judicial decision for release or detention pending case disposition. Utilizing the least restrictive means necessary to ensure public safety and appearance in court, staff continue to monitor an unprecedented number of pretrial defendants in the community while continuing to keep a high safety rate (approximately 78% of the more than 600 individuals monitored were for misdemeanor offenses).

Short of adding new staff, the Divisions worked in alignment to address coverage needs. With growing demands of more complex data analysis and higher volume, the Department acquired a new Pretrial Module which integrates with the current case management system for improved information sharing both internally and across agencies. Implementation of the new module is expected to be complete by early 2019. In the future, the hope is to integrate with the corrections and court systems as well. System integration would not only serve the individual client but reduce human error, and potentially lead to significant savings of financial resources as a result of manual data entry.

40 38

62

100

126

2014 2015 2016 2017 2018

Average Daily Population Supervised on Pretrial

190

200

210

220

230

240

2014 2015 2016 2017 2018

Average Monthly PSA-Court Assessments

47% Successful Completion

- made all appearances, no violations, no new offenses)

22% Failed to Appear for Court

23% Technical Violation

- Failure to report as directed, failed to comply with equipment, drug / alcohol use, etc.

8% New Criminal Activity

- 6% Non-violent - 2% Violent (per the PSA)

2018 Pretrial Case Closures



Outcome and Performance Measures The following Outcome Measures and Performance Measures were adopted in 2012 and are reviewed regularly in order to track our program’s effectiveness in meeting agency and justice system goals6: While the main purpose of pretrial is to assure due process as outlined in the 14th amendment, a robust pretrial program can have the added benefit of assisting with jail overcrowding. In general, defendants who score low on their risk of failure to appear and risk of new criminal activity should be recommended for release without supervision (appropriate overrides for particularly egregious crimes or unique circumstances). Defendants assessed with Moderate risk factors should be recommended for supervised release and high-risk defendants should either have a more structured supervised release, which may include electronic monitoring and home detention, or be detained (where significant public safety concerns exist). During the past couple of years our justice partners have been working together to creatively release some misdemeanor clients who might be higher risk due to their substance use disorder yet have no recent crimes of violence / weapons charges. This decision to expand release opportunities has led to less “success” by definition in the program and has not resulted in a significant risk to public safety. Given the money bail options, law enforcement’s ability to site and release for low level offenses, as well as the “Sheriff’s O.R.” book and release with court date procedures, the remaining population assessed and eventually monitored by Pretrial staff tend to be more serious crimes, or individuals with more complex criminal histories.

6 In 2011, the National Institute of Corrections published, “Measuring What Matters Outcome and Performance Measures for the Pretrial Services Field.” The publication recommended measures and data for pretrial service programs that would enable agencies to gauge more accurately their program’s effectiveness in meeting agency and justice system goals. The recommended outcomes measures and data elements are consistent with the mission and goals of our Department.

Safety Rate The percentage of supervised defendants who were not charged with a new offense

during their period of pretrial supervision.

Supervised Pretrial 1st Half 2014 (VPRAI)

2nd Half 2014 (PSA-Court) 2015 2016 2017 2018

Safety Rate 93.4% 91% 95.9% 93% 92% 92% Goal 95% 95% 95% 95% 95% 95%

DV46%

Assault31%

Robbery23%

NVCA

Property22%

Veh Theft11%

Weapons11%

DUI3%

Drug/Alcohol

36%

RO Viol17%

NCA



In 2018, approximately 8% of clients under pretrial supervision were closed based on a new criminal offense. Of the 49 clients who were rearrested for new criminal activity (NCA), 13 were considered new violent criminal activity (NVCA) per the PSA definition. Of the 13 NVCA cases, nearly half were related to domestic violence assaults (with one kidnapping), nearly a third were non-domestic violence assault or battery, and less than a quarter for robbery. Of the 36 NCA clients, more than a third were attributed to drug or alcohol crimes, approximately one third property crimes (including burglary, identity theft, vehicle theft), with remaining crimes including restraining order violations, weapons possessions, and one DUI.

Appearance Rate The percentage of supervised defendants who make all scheduled court appearances.

Supervised Pretrial 1st Half

2014 (VPRAI)

2nd Half 2014

(PSA-Court) 2015 2016 2017 2018

Appearance Rate 94.2% 91.8% 88.8% 88.2% 79% 78% Goal 85% 85% 85% 85% 85% 85%

In 2018, 78% of the 610 individuals whose pretrial monitoring came to a close appeared for their court required appearances. While this is less than previous years, the number of individuals released to pretrial monitoring continues to grow (up from 522 in 2017, and 355 in 2016).

Approximately 47% of clients released to pretrial monitoring completed their case free from technical violation, remained arrest free, and appeared for all scheduled court dates. Those pending a felony offense had a slightly higher success rate than those pending a misdemeanor offense. The likelihood of committing a new offense was about the same; those pending a misdemeanor charge had a slightly higher rate of technical violations and failure to appear. In 2018, overall concurrence rates for recommendations remained virtually unchanged from 2017 (just under our target at

73%). The slight decrease in regard to release recommendations followed a significant increase the previous year. Most notably the concurrence rates during the third quarter of 2018 appears to

Success Rate The % of released defendants who were not revoked for technical violations due to condition violations, and who

appeared for all scheduled court appearances, and remained arrest free during pretrial supervision.

Supervised Pretrial 1st Half

2014 (VPRAI)

2nd Half 2014

(PSA-Court) 2015 2016 2017 2018

Success Rate 51% 58% 56% 50% 49% 47% Goal 70% 70% 70% 70% 70% 70%

Successful Pretrial TechnicalViolation Failure to Appear Failed New

OffenseMisdo 225 113 107 39Fel 64 29 26 11

2018 CASE CLOSURESFel Misdo



be the greatest contributor to the decline (where concurrence with release recommendations fell below 50%). Where we continue to have the most room for growth is in the area of failures to appear and technical violations. We had planned to implement a violation response matrix in 2018, however, the new module set-up took priority. Anecdotally our pretrial staff have observed the courts willing to informally be more flexible with responses to technical violations (particularly substance use related violations, however, we look forward to increase consistency of a formalized process.

Investigations and Court Coverage Pre-sentence investigations and reports allow the courts to make more informed sentencing decisions such as probation eligibility, any sentencing limitations, special circumstances, and victim restitution. For the 3rd year in a row the report volume increased. Probation worked collaboratively with the courts to establish guidelines and workflow to address the Proposition 63 requirements which took effect January 2018, however, the volume (more than 800 referrals) of this unfunded mandate quickly proved to be more than our Division capacity could handle with current staffing. The new oversight responsibilities include reviewing criminal histories, state firearms registries, client completed affidavits, and other relevant information to make compliance recommendations to the court. Our investigations unit continued to prioritize the increasing volume of full presentence investigations with Proposition 63 reports falling several months behind (for PSI’s completed, the Prop 63 information was included when relevant). Despite the significant increase to workload, the frequency with which Probation staff have identified registered firearms by screening the state Automated Firearm System for newly convicted defendants is quite low. Many clients who commit crimes involving firearms are utilizing weapons not registered via the proper channels. Even without the reports completed, upon conviction and notification by the courts to the California Department of Justice, local law enforcement agencies receive a monthly notification of individuals with registered firearms in their jurisdiction who have become ineligible.

Concurrence (Effectiveness) Rate The ratio of court released and detained defendants compared to pretrial’s submitted recommendations

for release and detention.

2018 Released Detained Recommendation

Followed Change From

Prior Year Recommended for Release 370 290 56% - 3% Recommended for Detention 299 836 85% +1%

Recommendation Followed (Total) 73% - 1% GOAL 75%

244174 188

276

339

2014 2015 2016 2017 2018

PSI Reports Completed



Court coverage - Deputy Probation Officers (DPOs) provide the Superior Court coverage for three felony court arraignment calendars four days per week. In addition, our specialty caseload officers participate in numerous post-adjudication review courts: weekly Behavioral Health Court and Domestic Violence reviews, bi-weekly Re-entry Court, and monthly Veteran’s Court. With he positive response to Parole Re-entry Court (later changed to Re-entry Court), Probation and the Courts collaborated to include a small number of PRCS clients. Up to five slots were held for PRCS clients, however, the motivation to

participate was found to be different from state supervised parolees. While the numbers were very small, based on observation from staff and feedback from clients, the PRCS had access to more resources through AB109 treatment dollars versus the parolees who had limited support outside this therapeutic approach in Re-entry Court. Assessment and Supervision – All clients under the jurisdiction of the Probation Department are screened by the Division’s Intake Unit with the Correctional Assessment and Intervention System (CAIS) tool, which identifies underlying reasons for criminal behavior; classifies offenders into risk level and supervision strategy groups; provides recommendations for specific supervision and communication techniques for each type of offender. Cases involving domestic violence are additionally screened with the Ontario Domestic Assault Risk Assessment (ODARA), the first empirically developed and validated domestic violence risk assessment tool to assess risk of future domestic assault, frequency, and severity of future assaults (male offenders against female victims/survivors). Those clients with sex offenses are additionally screened with the Static-99R, a tool based on unchanging risk factors which predict the potential for sexual re-offending. The Static-99R is required by law to be used to assess every eligible sex offender prior to release on parole; to assess every eligible sex offender pre-sentencing and on a probation case load; and prior to release of an eligible sex offender from a Department of State Hospitals institution. Following assessment, the Intake Unit provides each client with the court and supervision requirements and beginning case planning steps and early referrals (to be follow up by their assigned probation officer). The Adult Division’s highest risk and specialized caseloads account for more than a quarter of the total Adult Division caseload. With the growing AB109 population, an additional Intensive Supervision caseload was created with a lower cap size than general supervision to accommodate some additional clients with violent offenses, gang motivated crimes, and most egregious domestic violence assaults. Approximately one quarter of the adult clients are assigned to general supervision caseloads, which contain a variety of the highest risk and some moderate risk clients (per the CAIS). Most clients who are identified as having low risk factors (with a few exceptions for public safety concerns), are assigned to an

Management6% Administrative/Clerical

Support10%

Supervising Probation Officers

13%Pretrial,

Investigations, Intake, Direct

Supervision Line Staff71%

Adult DivisionStaffing

Collaborative Courts –

• Behavioral Health Court (BHC) collaboration

• Veteran’s Court

• Domestic Violence Review Court

• Re-entry Court



administrative caseload following their intake, with minimal oversight.Clients assessed with Low risk factors who need additional monitoring and most clients assessed with moderate risk factors are assigned to a large general supervision caseload, however, limited resources avail themselves to mostly reactive versus proactive monitoring and supervision. Due to more resources being pulled to over to cover pretrial and investigations essential duties, the general supervision caseloads have grown larger than desired. Two to three additional officers could more effectively supervise the moderate risk populations and more actively engage in case planning with clients. AB109: Public Safety Realignment The Adult Division is responsible for the implementation of the 2011 Public Safety Realignment Act (AB109), which redistributed the responsibility for certain offenders from the State to counties. Since 2011, 559 individuals have received local prison commitments per Penal Code 1170(h); 635 individuals have been released to Santa Cruz from the California Department of Corrections and Rehabilitation to Post Release Community Supervision (PRCS). From 2017 to 2018 there was a significant increase in straight sentences (50% straight, up from 35% in 2017). At the close of 2018, there were 109 active 1170(h) cases (with 51 on Mandatory Supervision, the remainder serving their Straight custody sentence or the custody portion of their Split Sentence), and 118 active PRCS clients. Based on new cases reported to the Probation Department since 2011, less and 1/3 of AB109 clients (approximately 331 unique individuals have been convicted of a new felony or misdemeanor offense in this county (129 = 1170(h), 181 = PRCS, and 21 = clients who were simultaneous under both types of supervision). The majority of new crimes continue to be drug and property related, however, there is a small percentage of persons or weapons offenses. AB109 Service Provider Network: The Adult Division continues to facilitate work groups and meetings with staff from Sheriff’s Corrections and community-based agencies to better coordinate in-custody assessment, services, and linkage to services in the community for more successful reentry following release from jail and prison. This cross-jurisdictional approach is intended to reduce service gaps and duplication, and improve system responsiveness and public safety outcomes, both for AB109 and for individuals throughout the local criminal justice system. The Community Corrections Partnership (CCP) approved a competitive contract for external evaluation services in FY15-16. During 2017 the chosen consultant, Research Development Associates, Inc. completed an evaluation plan, a data capacity assessment, and a comprehensive implementation evaluation. The CCP work groups reviewed the evaluator recommendations to develop new strategies for improved service and outcomes throughout 2018.



Service Center Based on recommendations stemming from evaluation activities previously noted, , and informed by a variety of other grant projects, the Division made plans to open a Probation Service Center (PSC). Of particular interest is reducing the time between referral and engagement of services for improved retention and engagement, often referred to as a “warm handoff”. Steps taken during 2018 included the negotiation process to acquire most of the first floor of the Santa Cruz Probation Office. While we keep in mind this location may pose a challenge to south county residents, there is ongoing dialogue regarding enhancing South County resources while establishing a main hub central to the Superior Court and Main County Jail. The Probation Service Center will co-locate access to multiple resources and supports for individuals under supervision. Efforts are aimed at expanding access to services in a welcoming and supportive environment that is trauma-informed, culturally and gender responsive. Key partners for the PSC include a variety of County Departments and community-based providers. In December 2018 the Department published a notice of intent to release a competitive Request for Proposal (RFP) for Adult Treatment and Intervention Services to fund both in custody services and the Probation Service Center. The County intends to fund evidence-based services in the following areas: 1. Programs Addressing Criminal Thinking, Behavior and Identity; 2. Substance Use Disorder Treatment and Recovery Maintenance; 3. Workforce and Job Placement Services; 4. Educational Programming; 5. Mental Health Care and Forensic Case Management; 6. Parenting and Family Involvement; 7. Housing Support; 8. Reintegration Service Coordination; 9. Community Education and Engagement; and new category for innovative and promising services which may not meet the criteria for evidence-based programming. Those service agreements would take effect July 2019. Portal In July of 2017 the new web-based Program and Provider Portal was launched for the AB109 population to enhance service referrals and reporting. This portal streamlines the process by bringing all referral and service information into a single, shared system, and provides a tool for more clear monitoring of the utilization of funding. During the first six months of operation, probation staff made a total of 1,225 referrals, resulting in over 10,700 hours of services delivered to the AB109 population. The most common services were substance use disorder (SUD) treatment, housing, reentry planning and support, and cognitive behavioral curricula. In 2018, probation staff made a total of 1,770 referrals, resulting in over 15,000 hours of dosage delivered to the AB109 population. During the same time period, the Drug Medi-Cal Organized Delivery System (ODS) created a paradigm shift in the community and had a significant impact on the Criminal Justice System. The ODS allowed access for assessments and referrals to treatment through many more doors, shifting the focus away from the Portal use for SUD referrals involving the AB109 population as well as other criminal justice involved individuals. The majority of services for AB109 funded programming remain funneled through the Portal, including and expansion to the Domestic Violence Batterer’s Intervention Program (BIP) referrals of all clients under the department’s jurisdiction. The most common services in 2018 was comprised of cognitive behavioral curricula (including BIP); assessments for SUD treatment and treatment not included in the ODS; housing (including sober living environments); reentry planning and support; and education.



Grants and Technical Assistance/Research Projects The Division has secured technical assistance, collaborated for program and research grants to assist in implementing criminal justice reform and to assist in maximizing resources and benefits from justice and public dollars. Justice Reinvestment Initiative (JRI): Since April 2011, the County has received funding and technical assistance from the U.S. Bureau of Justice Assistance to implement the JRI model, including in-depth, system-wide data analysis, development of priorities for system improvement, and funding to initiate and assess cost-effective, sustainable practices to produce better public safety outcomes. In 2015, the Probation Department was selected to receive $349,058 in continuation funding, which ended September 30, 2018, following a competitive process entitled “Maximizing Local Reforms.” The funding supported 0.75 FTE of a full time Pretrial Probation Officer; 0.10 FTE of a full time Administrative Aide; and officer safety equipment. In addition, JRI funding partially supported an automated telephone court notification system; an expansion of the Volunteer Center’s WRAP program to focus on offenders at high risk for failure to appear in court; and an external evaluator to update the local system-wide data analysis, as well as to assess effectiveness and cost-benefit of JRI strategies. Objectives for the project included seven areas, with most notable impacts in the following:

1. Expanding and maintaining the number of defendants assessed and recommended for pretrial release. Outcomes discussed beginning on page six indicated a consistent increase in clients assessed and an increase in the population monitored in the community by Pretrial Staff.

2. Implementing an Automated Reminder System to reach individuals at high risk for failure to appear at court hearings. The automated pilot housed within jail booking did not achieve desired results and over time with jail staff turnover utilization continued to decrease. During this project period, the Court secured a grant to implement a system wide text-reminder system, which is more appropriately placed given that many defendants entering the criminal justice system are not booked into the jail (through cite and release processes by law enforcement and letters to appear by the District Attorney’s Office). Due to capacity, that system implementation has yet to commence. Informed by lessons learned throughout this process, the ability to automate reminders and text clients from within a system were key features sought out when acquiring the new pretrial module. While a system-wide court-based implementation would be ideal, the new pretrial features is expected to have a positive impact on this population.

3. Develop data collection and analysis methods to provide ongoing performance measure information as well as outcomes for reinvestment and sustainability. O’Connell Research, Inc. served as evaluator for the JRI outcome assessment. Evaluation activities included a review of existing data and data collection protocols “Value Stream Map”; development of a comprehensive cost-benefit model for pretrial services; data input and analysis; consultation regarding development of evaluation methods and metrics for additional strategies; and drafting a report with findings and recommendations for reinvestment. The process mapping identified areas in which workflow could be improved and a number of immediate changes were made. When adjusting for the cost of new crimes, O’Connell’s report attempted to monetize the daily pretrial cost for clients and indicated a cost avoidance of $61.67 for those on Supervised OR, and $32.31 for clients on Intensive Supervised OR (in large part due to equipment costs and monitoring).



MDRC Pretrial Assessment – MDRC is committed to finding solutions to some of the most difficult problems facing the nation — from reducing poverty and bolstering economic self-sufficiency to improving public education and college graduation rates. They design promising new interventions, evaluate existing programs using the highest research standards, and provide technical assistance to build better programs and deliver effective interventions at scale. They work as an intermediary, bringing together public and private funders to test new policy-relevant ideas, and communicate what they learn to policymakers and practitioners — all with the goal of improving the lives of low-income individuals, families, and children. During the latter portion of 2018. Santa Cruz County and MDRC began discussions for evaluating the implementation and outcomes of the PSA-Court in Santa Cruz County. The quantitative and qualitative analysis together will provide evidence about the effectiveness of the PSA and other reforms that can inform decision makers involved in the pretrial system. Pew-MacArthur Results First Initiative: Santa Cruz County continues to utilize the Results First analyses in the selection of new AB109 services and providers, establishing a priority on implementing research-based programs to fidelity and interventions with a proven benefit/cost ratio. The Sheriff’s Department has also used Results First to guide in-custody service planning, as well as updated average costs per day for inmates. In addition, the Juvenile Division Annual Report will outline implementation activities of the Results First model into their focus areas of the Department. Fund For Non-Violence (FNV): The Probation Department collaborated with Californians for Safety and Justice (CSJ) and the Santa Cruz County United Way to develop a proposal to implement the Blueprint for Shared Safety. The focus of this initiative is creating a comprehensive, community-based plan for the criminal justice system that adopts a public health approach, and which places crime survivors at the center of planning and prioritizing strategies for shared safety. These strategies have continued to play a key role in informing Department activities as well as the new county-wide strategic planning process. As one of the few Departments with a strategic plan in the county, the Probation Chief was appointed to chair one of the county’s strategic planning operations subcommittees which focuses on health and safety. MIOCR: In partnership with the Sheriff’s office and Health Services Agency (HSA), Santa Cruz County received $950,000 from the Board of State and Community Corrections (BSCC) Mentally Ill Offender Crime Reduction Act (MIOCR). The funds were dispersed over three years (2015-2018) to expand the Santa Cruz County’s Mentally Ill Offender Continuum of Care model already established and required matching funds and services by multiple community stakeholders. Probation received $100,000 to fund one Deputy Probation Officer to expand Mental Health Supervision, and a small pool of funds ($8,500) to expand electronic monitoring of mentally ill defendants at the pretrial stage. Budget modifications allowed some unused equipment funds to be utilized for sending numerous staff members from multiple agencies to the Annual Forensic Mental Health conference to build capacity and towards sustainability. Per the final evaluation report completed by Applied Survey Research, the BSCC grant enabled the County to boost capacity by augmenting existing prevention, diversion and intensive services for mentally ill offenders in the county, and to strengthen the level of collaboration among partners within the continuum of care. Overall the results indicate the project and its network of partners have helped to provide much needed treatment services and case management support, which helped the initiative achieve its goal of reducing recidivism among a cohort of mentally ill offenders in Santa Cruz County. In addition to producing positive outcomes for these individuals, the project has helped reduce jail-related public expenses and developed greater collaboration and mental



health skills among agencies that regularly interact with people who are mentally ill or have substance use disorders. The most visible barrier faced by project partners and mentally ill offenders is the lack of affordable housing in Santa Cruz County. While in the short term the services provided within the project can effectively address the needs of participants, staff remain concerned that the limited housing options may lead some participants back to environments that will put them at greater risk of re-offending. Proud Parenting Program (PPP): In partnership with Encompass Community Services’ (Encompass) PAPÁS Supporting Fatherhood Involvement and Co-Parenting program (PAPÁS), Probation completed the final year of a three-year grant from the BSCC ($119,285 per year) to address recidivism and the intergenerational cycle of criminal justice involvement by working with young Latino fathers in the criminal justice and/or child-welfare systems. A majority of the PPP funds were utilized for contracted services through Encompass to support the delivery of direct services to the target population and expand existing resources; a small portion for an outside evaluation of the project, and 0.05 FTE of the Probation Adult Division Director to oversee grant activities. Lessons learned along the way from implementation challenges informed new processes which will be sustained beyond the life of the grant. Applied Survey Research completed a final evaluation report. While participant numbers were not as high as planned, fathers who participated in the program were positively impacted in terms of their personal relationships, self-esteem, and communication skills, as well as having reduced recidivism. More than half of the participants (56%) did not re-offend during the course of the program. Due to challenges of engagement and retention with young father’s assessed with high risk factors, the sample size for this program was smaller than anticipated. Inconsistent participation impacted the group-peer driven model. Many clients needed more individualized attention – thus adjustments were made to address responsivity factors. We also expanded participation to clients assessed with lower risk factors. The Probation Department developed several key improvements to their system during the course of this grant, including cross divisional alignment, the Program / Provider Portal Implementation (page 12), and the Probation Service Center (page 12). The unique nature of the Proud Parenting Project encompassing all three divisions (Adult Services, Juvenile Services, Juvenile Hall), fostered improved cross divisional alignment with regard to information sharing and streamlining referrals, and casework follow-up. The internal component of this collaboration was particularly useful as the Department embarked on its first department-wide strategic planning process (2016 – 2021). Whole Person Care: Spearheaded by the Health Services Agency (HSA), Santa Cruz County received a five-year grant for a Whole Person Care (WPC) project. The WPC project is an Integrated Health-Housing-and Data Connect project utilizing intensive support services in a multidisciplinary approach to allow the participants to live in the least restrictive setting. The proposed program will provide affordable, safe and supportive housing and an alternative option to more restrictive placements such as locked care and/or board and care. As part of the project, probation was funded for one Deputy Probation Officer, with the expectations of referring and supervising eligible individuals under WPC, participating in coordinated care for those on probation with health care providers, data sharing, and participation in various workgroups. There are 25 WPC sites throughout the State of California. As reported in the “Mid-Point Check-In” report, Santa Cruz wanted to improve WPC case management in an integrated behavioral



health setting. With the funding, our County as a whole was able to hire new case management staff and a supervisor for medical clinics serving as the hubs for WPC services, which has improved overall care coordination for WPC enrollees. Funding will be ending in December 2020, therefore WPC sites and thus WPC sites will be focused on sustainability in early 2019. Aggregately, WPC sites have reported making improvements in addressing needs of Medi-Cal beneficiaries who have fallen through the cracks. Accomplishments include building partnerships, improving communication and process, addressing duplication of services, Future Goals – In 2018 Department expanded our partnership with Justice Benefits, Inc. (JBI) beyond the Juvenile Division to establish a new funding stream for Targeted Case Management (TCM) activities in the Adult Division. The addition of TCM was intended to provide an opportunity to increase revenue in addition to existing Medical Administrative Activities (MAA) that we have utilized for several years. Due to a variety of barriers, we did not see the benefits of TCM, and this broad focus actually led to a decrease in MAA collection as well. For the upcoming year, our Adult Division will return its focus to MAA exclusively, with the technical assistance and support of other County Departments in addition to representatives from other jurisdictions who have been more successful in revenue collection. In anticipation of continued pretrial growth, and bail reform legislation expected by 2020, we plan to fully implement and transition to the new Pretrial Module in 2019. The Department will participate with MDRC on a system evaluation of the PSA-Court instrument with a goal of local validation. The Adult Division looks forward to opening the first Probation Service Center in Santa Cruz County in the Spring / Summer of 2019 in order to centralize resources in order to better facilitate behavior change and expand community-based alternatives to incarceration for our supervised populations. We see this endeavor as further strengthening our local collaborations to advance our public safety mission. Santa Cruz County is one of six pilot counties planning to implement alternatives to the traditional Batterers Intervention Program for those clients convicted of domestic violence offenses due to the passing of Assembly Bill 372. In 2019, the Adult Division will work collaboratively with the other pilot jurisdictions and local partners to establish a new framework for interventions with the hopes of improving client and victim/survivor outcomes, as well as informing the state legislature for future improvements to the Penal Code sections 1203.097 and 1203.098 (which currently dictate statutory requirements).

santa cruz county probation department · 2019-05-28 · the santa cruz county probation...

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