BILL ANALYSIS
AB 2798
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Date of Hearing: April 18, 2006
Counsel: Kimberly Horiuchi
ASSEMBLY COMMITTEE ON PUBLIC SAFETY
Mark Leno, Chair
AB 2798 (Goldberg) - As Amended: April 17, 2006
SUMMARY : Enacts the Probation Youth Education and Vocational
Support Act for the Counties of Los Angeles, Alameda and
Sacramento. Specifically, this bill :
1)Establishes a three-year pilot project in Los Angeles, Alameda
and Sacramento Counties and provides comprehensive integrated
services to selected wards ages 15 to 18 in juvenile ranches,
camps, and forestry camps.
2)State the pilot project shall include all of the following:
a) A standards-based vocational or career technical
education program, integrated with or in addition to the
existing academic program in the facility.
b) Tutor or paraeducator services to support work-related
and academic literacy and successful implementation of the
vocational program.
c) An educational or vocational counseling program that
addresses learning disabilities and provides, while a ward
is in detention, intensive support and prerelease planning
services.
d) Transition, education advocacy, and case management
services to provide systems navigation, appropriate school
or vocational training program placement, and referrals for
housing, mental health services, and jobs for each ward for
a minimum of one full year after release.
e) Mental health services by licensed providers for the
duration of the project and appropriate training for
project staff to address the mental health needs of
participants.
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3)Requires the county office of education, with the assistance
of an independent consultant with expertise in juvenile
justice programs, to complete a report that evaluates the
effectiveness, including cost effectiveness, of the pilot
program.
4)States the pilot program shall be submitted to the Legislature
by June 30, 2011.
5)Provides the outcomes to be measured should include, but not
be limited to, all of the following:
a) Completion of the vocational or career technical
education program in the camp or residential facility.
b) Provision of pre-release planning and post-release
services.
c) Enrollment and retention in post-release education or
training programs or appropriate employment, or both, for a
period of at least six months.
d) Rate of utilization of mental health services pre- and
post-release and their impact on stability of residence,
education, and employment.
e) Provision of case management and related post-release
services and their impact on stability of residence,
education, and employment.
f) Rate of recidivism and related cost savings or economic
benefits, if any.
6)States this pilot project shall remain in effect only until
January 1, 2010 and as if that date is repealed unless a later
enacted statute (meaning a statute enacted before January 1,
2010) deletes and extends that date.
EXISTING LAW :
1)States when a child is adjudged a dependent child of the court
on the ground that the child is a person described by Welfare
and Institutions Code (WIC) Section 300, the court may make
any and all reasonable orders for the care, supervision,
custody, conduct, maintenance, and support of the child,
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including medical treatment, subject to further order of the
court. To facilitate coordination and cooperation among
government agencies or private service providers, or both, the
court may, after giving notice and an opportunity to be heard,
join in the juvenile court proceedings any agency or private
service provider that the court determines has failed to meet
a legal obligation to provide services to the child. In any
proceeding in which an agency or private service provider is
joined, the court shall not impose duties upon the agency or
private service provider beyond those mandated by law. [WIC
Section 362(a).]
2)Provides the juvenile court may direct any and all reasonable
orders to the parents or guardians of the child who is the
subject of any proceedings under this chapter as the court
deems necessary and proper to carry out the provisions of this
section, including orders to appear before a county financial
evaluation officer. That order may include a direction to
participate in a counseling or education program, including,
but not limited to, a parent education and parenting program
operated by a community college, school district, or other
appropriate agency designated by the court. A foster parent
or relative with whom the child is placed may be directed to
participate in such a program in cases in which the court
deems participation is appropriate and in the child's best
interest. [WIC Section 362(c).]
3)Provides district attorneys, or county sheriffs, if the
sheriff is currently the lead agency in the county's existing
Drug Endangered Children Program, receiving funds under this
chapter shall coordinate multi-agency, drug-endangered child
response teams in cooperation with local, state and federal
law enforcement agencies, and the county departments of health
and children's services. Under the direction of a district
attorney, or county sheriff, if the sheriff is currently the
lead agency in the county's existing Drug Endangered Children
Program, a multi-agency team's services shall include, but not
be limited to:
a) Prompt, multi-agency response to cases involving drug
endangered children. Teams shall have the ability to
respond quickly at any time, day or night, and to reduce
the amount of time children must wait for medical
screening, treatment, and other necessary services.
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b) Develop, adopt, and regularly review local protocols for
the multi-agency response to cases involving
drug-endangered children.
c) Convene a countywide drug-endangered child protection
task force that shall include, but not be limited to,
representatives from law enforcement, children's services,
a county juvenile court, hospitals and health services,
fire and paramedics, education, probation, prosecution, and
the Victim-Witness Assistance Program. Each countywide
task force shall meet no less than twice yearly to review
local protocols and recommend local policies and procedures
for the protection, treatment, and continuing care of
drug-endangered children.
d) Maintain complete records of each case for documentation
and evaluation. [Penal Code Section 13877(a) to (f).]
FISCAL EFFECT : Unknown
COMMENTS :
1)Author's Statement : According to the author, "The purpose of
this bill is to support educational and vocational programs as
well as reduce recidivism among youth in selected
county-operated probation camps and similar facilities.
Initially, this proposed program will be piloted in Alameda
County, Los Angeles County, and Sacramento County. These
programs will provide multiple pathways to success by ensuring
access to appropriate academic programs and comprehensive,
integrated services that would prepare youth for meaningful
reentry into their communities. This bill seeks to ensure
that every youth, regardless of ability, has intensive
guidance counseling and academic support while at the same
time preparing for their release and acquiring the assistance
that they need to achieve the maximum level of achievement,
mental health, and self-sufficiency."
2)Background : According to information provided by the author,
"Statewide, about 90,000 children and youth are in out-of-home
placements. About 10,000 of these are supervised by county
probation departments, and an additional 4,000 juveniles are
in Division of Juvenile Justice (formerly the California Youth
Authority) facilities. On average, detained juveniles are in
county probation facilities for 20 weeks. Schooling during
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this period is usually provided through the county office of
education. It is typical for students in this setting to read
at or below the fifth grade level. At any given time, between
23% to 37% are 'special education' students, compared with 10%
in the general student population. Up to 40% of those in the
system never earn a high school diploma or GED; the number is
expected to rise with administration of the California High
School Exit Exam (CAHSEE)."
"Existing resources (such as ROP) for vocational training do not
serve or are insufficient to serve youth in these settings.
Such training - in conjunction with academics - offers an
alternate life trajectory, including the ability to support
dependents. However, for these juveniles to succeed,
increased vocational and academic literacy support is needed.
The statewide shortage of high school counselors is most
keenly felt in camp settings. This bill increases counseling
services to provide intensive support and pre-release
planning, including matriculation into schools and/or advanced
vocational programs. Existing law provides for probation
field services and some after school program support for
juvenile offenders. Research indicates that intensive
post-release follow-up services reduce crime, prevent
homelessness and improve school/training/employment outcomes.
This bill supports the work of law enforcement, including
probation, by providing one year of post-release service by
school/community liaisons or similar specialists. Chances for
success are improved by increased access to pre- and
post-release mental health services currently inadequate to
meet the needs of juveniles with mental health problems."
3)Current State of Education in Juvenile Youth Camps and
Detention Facilities : According to the Los Angeles County
Education Foundation, "Youth under 18 who have not completed
high school attend class. Although they can earn credits in
core subjects required to graduate, teachers must focus the
largest portion of their time on basic reading, writing, and
math skills. Like all students, they must eventually pass the
CAHSEE to get their high school diplomas. Teachers working in
the system, and those who will work with these students after
release, must focus on this objective. Some students have the
basic skills and academic credits necessary to pass the CAHSEE
and earn a diploma, either in a traditional high school (after
release) or in a county or alternative educational program.
They are able to prepare for college with a four-year degree
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as a goal. However, many of the students functioning at or
below the fifth grade level in the tenth or eleventh grade
will be unable to attain these academic goals because they
will be unable to pass the CAHSEE or meet graduation
requirements that continue to be raised."
4)Arguments in Support :
a) The Los Angeles County Education Foundation states,
"This bill responds to feedback we have received from
employers, educators, community workers, and probation
staff regarding the need for employment preparation,
tutoring, counseling, mental health services, and
post-release support. In proposing this pilot program, we
hope to show positive and measurable outcomes that will
help to shape future legislation that will save public
funds in the long term and reduce the human costs of crime
and recidivism. Please not that, contrary to the current
version of the bill, our intent is for the three-year pilot
to operate in at least three counties, Los Angeles and two
others, with county offices of education receiving and
administering the funding. If the expected result in these
locations reflects current research, we hope that the
Legislature will consider expanding this program in the
future."
b) The California Attorneys for Criminal Justice state,
"This bill aims to reduce recidivism among youth in
selected county-operated probation camps and similar
facilities. This proposed program will be piloted in
Alameda County, Los Angeles County and Sacramento County to
provide sufficient data to guide future legislation. If
the results follow the research findings, lawmakers should
consider a broad expansion of the program. This bill does
the following:
i) "Prepares youth for meaningful employment through a
training or vocational educational program: Many
juveniles must find work upon release to support
themselves and their dependents. This bill also enables
youth to overcome hiring barriers and compete for
part-time or full-time employment.
ii) "Provides literacy support: A fourth or fifth grade
reading level is typical among teens in detention, and a
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higher than average percentage of them require special
education. Additionally support is necessary to help
those with cognitive and reading problems to understand
content and make progress in both the vocational and
academic programs.
iii) "Provides counseling: There is a shortage of high
school counselors in traditional education settings and,
counter-intuitively, a greater shortage in special
settings like probation camps. This bill funds a
counselor at each pilot site to provide intensive support
and pre-release planning.
iv) "Supports post-release success: This bill provides
one full year of support for participating youth to
secure school enrollment and provide the stability needed
for them to weather the many challenges and temptations
they will face. The post-release counselor will work
closely with the probation officer, school officials,
parents/guardians, potential employers, and - for youth
returning to the foster system-county social workers.
v) "Promotes mental health: This bill provides
critical additional support to address mental and
behavioral issues during and after detention."
REGISTERED SUPPORT / OPPOSITION :
Support
Alameda County Office of Education
Association of Community Human Services Agencies
California Attorneys for Criminal Justice
La Causa-YOUTHBuild
Los Angeles County Education Foundation
Los Angeles County Office of Education
Maria's Italian Kitchen
Riverside Sheriff's Association
Toberman Settlement House, Inc.
Opposition
None on file
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Analysis Prepared by : Kimberly Horiuchi / PUB. S. / (916)
319-3744