SPENDING ON SERVICES FOR CHILDREN, YOUTH, AND FAMILIES: A DATA RESOURCE GUIDE FISCAL DEPARTMENT OF LEGISLATIVE SERVICES 2015

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1 SPENDING ON SERVICES FOR CHILDREN, YOUTH, AND FAMILIES: A DATA RESOURCE GUIDE FISCAL DEPARTMENT OF LEGISLATIVE SERVICES 2015

2 Spending on Services for Children, Youth, and Families A Data Resource Guide Department of Legislative Services Office of Policy Analysis Annapolis, Maryland January 2015

3 Contributing Staff Writers Richard H. Harris Kaitlyn S. Shulman Manuscript Preparation Mindy L. McConville Kamar Merritt Reviewer Jennifer B. Chasse For further information concerning this document contact: Library and Information Services Office of Policy Analysis Department of Legislative Services 90 State Circle Annapolis, Maryland Baltimore Area: Washington Area: Other Areas: , Extension 5400 TTY: TTY users may also use the Maryland Relay Service to contact the General Assembly. Home Page: The Department of Legislative Services does not discriminate on the basis of age, ancestry, color, creed, marital status, national origin, race, religion, gender, gender identity, sexual orientation, or disability in the admission or access to its programs, services, or activities. The Department s Information Officer has been designated to coordinate compliance with the nondiscrimination requirements contained in Section of the Department of Justice Regulations. Requests for assistance should be directed to the Information Officer at the telephone numbers shown above. ii

4 DEPARTMENT OF LEGISLATIVE SERVICES OFFICE OF POLICY ANALYSIS MARYLAND GENERAL ASSEMBLY Karl S. Aro Executive Director Warren G. Deschenaux Director January 23, 2015 The Honorable Thomas V. Mike Miller, Jr., President of the Senate The Honorable Michael E. Busch, Speaker of the House of Delegates Honorable Members of the Maryland General Assembly Ladies and Gentlemen: Pursuant to Chapter 629 of 2014 (HB 904), the Department of Legislative Services has prepared this data resource guide to provide legislators and the public with a better understanding of spending on programs for children, youth, and families by State agencies (including general, federal, and special funds), as well as each of the 24 local management boards (LMB). The guide presents total State expenditures by State agency, result area, and jurisdiction. LMB expenditures are provided by result area and program. Information is also provided on LMB funding sources and whether output and/or outcome measures are collected for specific LMB programs. This report was prepared by Richard H. Harris and Kaitlyn S. Shulman and reviewed by Jennifer B. Chasse. The manuscript was prepared by Mindy L. McConville and Kamar Merritt. The Department of Legislative Services wishes to thank each of the State agencies and LMBs for their assistance in completing this guide. We trust that this report will be useful to individuals interested in funding of service for children, youth, and families. Sincerely, WGD/JBC/km Warren G. Deschenaux Director iii

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6 Contents Letter of Transmittal... iii Chapter 1. Overview... 1 Chapter 2. State Expenditures on Programs for Children, Youth, and Families... 5 Total State Expenditures on Services for Children, Youth, and Families by Agency and Result Areas... 6 Department of Juvenile Services... 6 Department of Labor, Licensing, and Regulation... 6 Department of Health and Mental Hygiene... 7 Department of Human Resources... 7 Governor s Office for Children... 8 Maryland School for the Deaf... 8 Maryland State Department of Education... 9 Interagency Committee for School Construction... 9 Total State Expenditures on Services for Children, Youth, and Families by Result Areas and Agencies Healthy Babies and Children Successful in School Children Completing School Children Safe in Their Families and Communities Stable and Economically Independent Families Chapter 3. Expenditures on Programs for Children, Youth, and Families by Local Jurisdiction Allegany County Allegany County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Allegany County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Allegany County by Result Area v

7 Anne Arundel County Anne Arundel County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Anne Arundel County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Anne Arundel County by Result Area.. 29 Baltimore City Baltimore City Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Baltimore City State Agency Spending (All Fund Sources) on Children, Youth, and Families in Baltimore City by Result Area.. 36 Baltimore County Baltimore County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Baltimore County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Baltimore County by Result Area Calvert County Calvert County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Calvert County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Calvert County by Result Area Caroline County Caroline County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Caroline County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Caroline County by Result Area Carroll County Carroll County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Carroll County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Carroll County by Result Area Cecil County Cecil County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Cecil County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Cecil County by Result Area vi

8 Charles County Charles County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Charles County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Charles County by Result Area Dorchester County Dorchester County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Dorchester County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Dorchester County by Result Area Frederick County Frederick County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Frederick County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Frederick County by Result Area Garrett County Garrett County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Garrett County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Garrett County by Result Area Harford County Harford County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Harford County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Harford County by Result Area Howard County Howard County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Howard County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Howard County by Result Area Kent County Kent County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Kent County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Kent County by Result Area vii

9 Montgomery County Montgomery County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Montgomery County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Montgomery County by Result Area Prince George s County Prince George s County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Prince George s County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Prince George s County by Result Area. 121 Queen Anne s County Queen Anne s County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Queen Anne s County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Queen Anne s County by Result Area 127 St. Mary s County St. Mary s County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in St. Mary s County State Agency Spending (All Fund Sources) on Children, Youth, and Families in St. Mary s County by Result Area Somerset County Somerset County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Somerset County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Somerset County by Result Area 138 Talbot County Talbot County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Talbot County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Talbot County by Result Area Washington County Washington County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Washington County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Washington County by Result Area viii

10 Wicomico County Wicomico County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Wicomico County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Wicomico County by Result Area Worcester County Worcester County Local Management Board Expenditures by Result Area State Agency Spending (All Fund Sources) on Children, Youth, and Families in Worcester County State Agency Spending (All Fund Sources) on Children, Youth, and Families in Worcester County by Result Area Other/Unattributable to a Single County Other/Unattributable State Agency Spending (All Fund Sources) on Children, Youth, and Families Other/Unattributable State Agency Spending (All Fund Sources) on Children, Youth, and Families by Result Area Chapter 4. Methodology and Sources ix

11 Chapter 1. Overview Chapter 621 of 2014 (HB 904) requires State agencies to provide available information on State spending for services and programs for children, youth, and families to the Department of Legislative Services (DLS). Each local management board (LMB) is also required to provide information on the LMB s organizational structure, staffing resources, and annual budget, as well as the programs administered or funded by LMB and any output or outcome data. DLS is tasked with reporting the collected information as a data resource guide. This chapter provides a brief overview of the data resource guide and the limitations of the data shown. Purpose The purpose of the guide is to show funding committed to services for children, youth, and families across all 24 jurisdictions. Actual service delivery for programs for children, youth, and families is a combination of State and local agencies and nonprofit organizations. For example, the Maryland State Department of Education (MSDE) oversees the State s main kindergarten to twelfth grade education budget, but an LMB may offer an after school program using local funds. Tracking education spending from all sources yields a better understanding of how much total funding is committed for education (and other program areas). Maryland s Child-serving State Agencies In fiscal 2014, nearly $9.3 billion in total funds were expended on services for children, youth, and families through eight State agencies the Governor s Office for Children (GOC); the Interagency Commission for School Construction (ICSC); the Department of Health and Mental Hygiene; the Department of Human Resources; the Department of Juvenile Services (DJS); the Department of Labor, Licensing, and Regulation; MSDE; and the Maryland School for the Deaf. These funds include general, federal, and special funds that flow through the State budget, including grants to LMBs, local jurisdictions, and nonprofit organizations. Chapter 2 of this guide displays total State expenditures on services for children, youth, and families for fiscal 2011 through 2015 by agency and by each of five result areas (Healthy Babies and Children; Children Entering School Ready to Learn and Successful in School; Children Completing School; Children Safe in Their Families and Communities; and Stable and Economically Independent Families). Local Management Boards Each county must establish and maintain an LMB to ensure the implementation of a local interagency service delivery system for children, youth, and families. LMBs are the neutral conveners in each jurisdiction to stimulate local action by State and local government, public and private providers, business and 1

12 industry, and community residents to build an effective system of services, supports, and opportunities that improve outcomes for children, youth, and families. LMBs plan, coordinate, implement, and manage local interagency service delivery systems for children, youth, and families. A county may designate as an LMB a quasi-public nonprofit corporation that is not an instrumentality of the county government (nonprofit entity) or a public agency that is an instrumentality of the county government. Only four of Maryland s LMBs are nonprofit entities: Baltimore City and Allegany, Caroline, and Montgomery counties. In fiscal 2014, Maryland s 24 LMBs spent more than $48 million on services for children, youth, and families. Across all jurisdictions, funding generally comes from State agencies (40%); the Children s Cabinet Interagency Fund ((CCIF) 30%); local funds (20%); and a combination of other sources including federal funds, private grants, and earned reinvestment State general fund dollars that LMBs earn from administrative funds and interest income in accordance with guidelines from GOC and the Children s Cabinet. Chapter 3 of this guide presents basic demographic information and LMB contact information for each jurisdiction and total expenditures for each LMB for fiscal 2011 through Expenditures are shown for each LMB program under the self-reported general categories of Health, Education, Safety and Stability, or Multiple result areas. Information is provided on the sources of funding for each program and whether outputs and/or outcomes are collected. Following the LMB data is information on State spending by agency and result area for each jurisdiction. Limitations of This Data Resource Guide Chapter 4 of this guide briefly summarizes the methodology and sources used for information contained in the guide. As with any compilation of data, there are notable limitations to the data reported as discussed below. State Budget Data State budget data is based on the fiscal 2015 allowance and actual spending from fiscal 2011 through The budget subprograms that target children, youth, and families and which of the five result areas each program is designated as were self-designated by State agencies as reported in Appendix K of the Maryland Budget Highlights. As State budget data includes expenditures from all fund sources, some expenditures are included in both sets of charts (i.e., State agency dollars and CCIF funds are shown on both the State budget charts and on the LMB charts). State budget data does not include every program that may serve children, youth, and families. For example, expenditures by the Department of Housing and Community Development are not included in this guide although housing stability is an important factor to child and family wellbeing. Similarly, GOC coordinates wrap-around services for children, which could include education, health, and economic stability. GOC and other agencies with cross-cutting programs are unable to determine how much of the program is dedicated to each result area, and some of their spending is counted in two or more spending categories, resulting in double- or triple-counts. Between GOC and DJS, 20 programs are included in every spending category, totaling $202.4 million. Overall, $28.8 million 2

13 in State spending on children, youth, and families is counted in more than one result area. Interagency Commission for School Construction Data ICSC advised that its funding as shown in Appendix K of the Maryland Budget Highlights reflects interest payments related to an early 2000s statewide school technology upgrade and that it is not possible to trace back current spending to a specific county s spending in fiscal 2000 through As such, ICSC is included in the State-level charts but not at the jurisdiction level outside of the Other/Unattributable category. Maryland State Department of Education Data MSDE represents the largest share of spending on services for children, youth, and families in the State and spending on education-related result areas exceeds that of the other result areas for each county. It should be noted that MSDE reported spending different from other State agencies. Rather than following Appendix K of the Maryland Budget Highlights, MSDE focused on grant funding only, some of which is not counted in Appendix K of the Maryland Budget Highlights, but is all money that was allocated to local jurisdictions as opposed to State administrative offices. In addition, some of MSDE s grant funding goes to regional entities and, therefore, could not be split among the related counties. This funding is instead captured in the Other/Unattributable category. Finally, MSDE was able to show actual spending for all of its reported programs in fiscal 2011 through 2014, but for fiscal 2015, provided only allocations of its largest spending areas. MSDE reported that most of its grant programs are not budgeted to show county allocations. As a result, many counties show declines in education spending in fiscal 2015, but there is a corresponding increase in the Other/Unattributable chart in that year. Local Management Board Data Each LMB self-reported expenditures, result area designations, funding sources, and whether or not output or outcome measures are collected for each program. As LMBs are intended to coordinate the delivery of services tailored to meet the needs of each jurisdiction, programming, expenditures, and funding sources vary greatly across counties. Due to the inherent differences in programming and reporting of data, it is not advisable to make significant comparisons between or among jurisdictions. Reported expenditures generally do not include administrative spending, but such funding may be included in some counties or for some State-funded programs. In-kind contributions (such as donations of space for programming) are generally not factored in, though some LMBs may have attempted to quantify and include them in their program totals. Therefore, the coordination and leveraging of resources by LMBs may be somewhat underrepresented. Each LMB program funded with CCIF dollars has performance measure tables approved by GOC. Each program is targeted toward one or more of eight results for child well-being. These eight results fall under three broader result areas: Health, Education, and Safety and Stability. For purposes of this report, LMBs were asked to categorize their other programs (those not funded through CCIF) into these same three result areas. Different LMBs may categorize similar programs into different result areas. 3

14 LMBs sometimes change a program to meet the needs of the community though the program name remains the same. Changes to the scope of programs are not obvious from expenditure data alone. For example, Baltimore City s Out of School Time programming in elementary and middle schools was shown to have a positive impact on school attendance, but the data did not show an impact in high schools. This led to a strategic decision in fiscal 2013 to temporarily eliminate funding for the program in high schools and shift the funding to elementary and middle schools. Likewise, an afterschool program may have been partially funded at 15 sites in one year and fully funded at 10 sites in the following year. These variations make it difficult to compare year-to-year spending within a specified LMB program. Outputs and Outcomes All State agencies include data with the Governor s allowance in the Managing for Results (MFR) section of the budget, and agencies often linked specific MFR measures with a certain budget subprogram. However, MFRs only capture small parts of agency activities, and regardless of reason, it appears large parts of State spending on children, youth, and families is not evaluated for effectiveness. The outputs and outcomes data shown in the LMB charts reflect only whether an LMB collects data or in some way measures outputs and/or outcomes for each program. Evaluation of how well outcomes are measured or whether individual LMB programs are achieving specific outcomes was beyond the scope of this guide. It should be noted that the amount of outcome data varied greatly between programs. Some programs tracked results through satisfaction surveys, while others gathered information through grades, re-arrest rates, and school attendance data. Some results were tracked while participants were in programs, while others looked at long-term impacts on participants. While LMBs collect output and outcome data on most if not all of their programs as required under funding and grant contracts, the complexity of the outcomes measured varies greatly. Collection of outcome data requires evaluation expertise and funding. LMBs must decide whether to use their limited resources on collecting more complex outcomes or funding programs. In some circumstances (i.e., school nutrition programs), outcomes are difficult to collect and LMBs rely on the programs evidence-based foundations. Ideally, output and outcome measures should be used to determine where improvements can be made or when programs should be discontinued or expanded. Moving forward, the State may wish to consider providing greater resources to LMBs to collect, standardize, and analyze outcome measures. 4

15 Chapter 2. State Expenditures on Programs for Children, Youth, and Families 5

16 6

17 Total State Expenditures on Services for Children, Youth, and Families by Agency and Result Areas Stable and Economically Independent Families, $797,065,975, 24% Children Safe in Their Families and Communities, $922,134,539, 28% Department of Juvenile Services Healthy Babies and Children, $739,791,819, 22% Successful in School, $295,749,929, 9% Children Completing School, $559,060,986, 17% Department of Labor, Licensing, and Regulation Children Completing School, $2,420,692, 27% Successful in School, $6,682,854, 73% 7

18 Total State Expenditures on Services for Children, Youth, and Families by Agency and Result Areas Children Completing School, $109,131,336, 8% Department of Health and Mental Hygiene Children Safe in Their Families and Communities, $1,851,742, 0% Successful in School, $178,552,826, 13% Healthy Babies and Children, $1,121,391,767, 79% Stable and Economically Independent Families, $8,300,336,822, 88% Department of Human Resources Healthy Babies and Children, $47,714,856, 1% Children Safe in Their Families and Communities, $1,077,206,283, 11% Successful in School, $3,238,061, 0% 8

19 Total State Expenditures on Services for Children, Youth, and Families by Agency and Result Areas Children Safe in Their Families and Communities, $128,568,488, 24% Stable and Economically Independent Families, $29,553,344, 5% Children Completing School, $128,568,488, 24% Governor s Office for Children Healthy Babies and Children, $128,568,488, 23% Successful in School, $128,568,488, 24% Stable and Economically Independent Families, $48,787,320, 14% Maryland School for the Deaf Successful in School, $109,674,607, 31% Children Safe in Their Families and Communities, $48,787,320, 14% Children Completing School, $141,854,506, 41% 9

20 Total State Expenditures on Services for Children, Youth, and Families by Agency and Result Areas Maryland State Department of Education Children Completing School, $16,276,899,388, 30% Healthy Babies and Children, $1,454,011,500, 3% Children Safe in Their Families and Communities, $3,017,816,729, 5% Successful in School, $33,333,877,191, 61% Stable and Economically Independent Families, $882,359,117, 1% Interagency Committee for School Construction Successful in School, $6,364,892, 100% 10

21 Total State Expenditures on Services for Children, Youth, and Families by Result Areas and Agencies Healthy Babies and Children MSDE, $1,454,011,500, 42% DJS, $739,791,819, 21% Governor s Office for Children, $128,568,488, 4% DHR: Department of Human Resources DHMH: Department of Health and Mental Hygiene DJS: Department of Juvenile Services MSDE: Maryland State Department of Education DHR, $47,714,856, 1% DHMH, $1,121,391,767, 32% 11

22 Total State Expenditures on Services for Children, Youth, and Families by Result Areas and Agencies Successful in School DJS, $295,749,929, 1% MSDE, $33,333,877,191, 98% DLLR, $6,682,854, 0% DHMH, $178,552,826, 1% DHR, $3,238,061, 0% Interagency Commission for School Construction, $6,364,892, 0% Governor s Office for Children, $128,568,488, 0% Maryland School for the Deaf, $109,674,607, 0% DHR: Department of Human Resources DHMH: Department of Health and Mental Hygiene DJS: Department of Juvenile Services DLLR: Department of Labor, Licensing, and Regulation MSDE: Maryland State Department of Education 12

23 Total State Expenditures on Services for Children, Youth, and Families by Result Areas and Agencies MSDE, $16,276,899,388, 94% Children Completing School DJS, $559,060,986, 3% DLLR, $2,420,692, 0% DHMH, $109,131,336, 1% Governor s Office for Children, $128,568,488, 1% DHMH: Department of Health and Mental Hygiene DJS: Department of Juvenile Services Maryland School for the Deaf, $141,854,506, 1% DLLR: Department of Labor, Licensing, and Regulation MSDE: Maryland State Department of Education 13

24 Total State Expenditures on Services for Children, Youth, and Families by Result Areas and Agencies MSDE, $3,017,816,729, 58% Children Safe in Their Families and Communities DHMH, $1,851,742, 0% Governor s Office for Children, $128,568,488, 2% DHR, $1,077,206,283, 21% DHR: Department of Human Resources DHMH: Department of Health and Mental Hygiene DJS: Department of Juvenile Services MSDE: Maryland State Department of Education DJS, $922,134,539, 18% Maryland School for the Deaf, $48,787,320, 1% 14

25 Total State Expenditures on Services for Children, Youth, and Families by Result Areas and Agencies Stable and Economically Independent Families DHR, $8,300,336,822, 83% MSDE, $882,359,117, 9% Governor s Office for Children, $29,553,344, 0% DHR: Department of Human Resources DJS: Department of Juvenile Services MSDE: Maryland State Department of Education DJS, $797,065,975, 8% Maryland School for the Deaf, $48,787,320, 0% 15

26 16

27 Chapter 3. Expenditures on Programs for Children, Youth, and Families by Local Jurisdiction 17

28 17

29 Allegany County Allegany County Local Management Board of Allegany County, Inc. Organizational Structure: Nonprofit FTE Personnel: None* Fiscal 2013 Budget: $378,177 1 Frederick Street, Cumberland, MD (phone)/ (fax) Website: *All administrative functions are handled through a contract. Maryland Population (as of July 2012) 74,012 5,884,563 Racial Composition 87.8% White 8.1% African American 1.6% Hispanic/Latino 0.8% Asian 1.7% Other 53.9% White 29.1% African American 8.7% Hispanic/Latino 5.9% Asian 2.4% Other Median Household Income $38,670 $71,169 Poverty Rate Among Children 25.6% 14.1% Crime Rate Per 100,000 Residents 3, ,225.7 High School Graduation Rate 90.1% 85.0% FTE: full-time equivalent 17

30 Allegany County Local Management Board Expenditures by Result Area Health Source Outputs Outcomes In-home Visitation Program $55,567 $55,567 $55,567 $55,567 $55,567 MSDE None None Education Mountain Ridge After School Program $72,746 $63,561 $34,360 $0 $0 CCIF Out of School Time Coalition 0 45,723 42, CCIF Wave Runner ,892 0 CCIF New Program in 2014 Safety and Stability Community Mobilizing for Change on Alcohol $28,514 $28,016 $28,478 $29,939 $39,055 CCIF Substance Abuse Intervention 69,100 53,805 53,950 52,415 28,642 CCIF Regional Family Navigation , ,754 CCIF New Program in

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