An Overview Of The Texas Youth Commission s Specialized Treatment Programs Criminal Justice Policy Council Prepared for the 76 th Texas Legislature Tony Fabelo, Ph.D. Executive Director
An Overview Of The Texas Youth Commission s Specialized Treatment Programs Criminal Justice Policy Council P.O. Box 13332 Austin, Texas 78711-3332 (512) 463-1810
Researched and Written By: Trilby Wheeler-Cox Contributors: Nancy Arrigona Lisa Reichers
Note From The Director The Texas Youth Commission (TYC) is the state juvenile correctional agency. In fiscal year 1998, TYC managed a population of 5,267 juveniles in their institutions, contract care, and community facilities. This report presents an overview of the agency s rehabilitation programs and sets up the foundation for the Criminal Justice Policy Council (CJPC) to monitor the effectiveness of the agency s specialized treatment programs. These specialized programs will be designated as tier of rehabilitation programs whose main purpose is to reduce the recidivism of juvenile offenders. TYC provides general and specialized services to its population. All youth committed to TYC participate in the agency s Resocialization Program. This is a competency-based program involving correctional therapy, disciplinary training, education, and work and five phases beginning with orientation and ending with parole. Youth move gradually from high restriction and confinement to parole based on minimum lengths of stay and demonstrated mastery of rehabilitation objectives in each phase. All youth participate in the Resocialization Program. In addition, TYC operates specialized treatment programs. Only juveniles classified as high risk or in high need of specialized treatment participate in these programs. These programs build on the resocialization components with specialized focus and increased clinical services. TYC specialized treatment programs are: the Chemical Dependency Treatment Program, Sex Offender Treatment Program, Capital Offender Treatment Program, and Emotionally Disturbed Offender Treatment Program. Each program is described in this report. TYC is funded to meet approximately 40% of the specialized treatment needs of their population. The proportion receiving treatment may increase if youth drop out of treatment, thus creating space for more youth to enter. Of youth released from TYC facilities in 1998 (3,412 youth), 59% needed specialized treatment (2,015). Of those in need, 53% received treatment (1,065) during their institutional stay. Youth who receive specialized treatment are eligible for specialized aftercare programs. In 1998, however, 53% of the youth who received residential treatment did not receive aftercare services upon release. This was, in part, due to a lack of service providers in rural regions. The average state cost in fiscal year 1998 for specialized treatment programs ranged from $13.73 per day for the Sex Offender Treatment Program to $22.72 per day for the Capital Offender Treatment Program. These costs do not include incarceration costs. The CJPC, working with TYC, will develop an evaluation plan to monitor the cost-effectiveness of these programs in reducing recidivism or in achieving other beneficial outcomes, such as reducing the severity of subsequent offenses if juveniles reoffend. If the programs are proven cost-effective in reducing recidivism, a key issue that policy-makers should consider is the future expansion of the programs to meet the demand for specialized treatment. Tony Fabelo, Ph.D. Executive Director i
Acknowledgements CJPC would like to thank the following TYC staff for their time and input into this report: Corrine Alvarez-Sanders Chuck Jeffords and the TYC Research Staff Elizabeth Lee Don McCullough Linda Reyes
The Texas Youth Commission Operates 15 Institutional Correctional Facilities Around The State TYC Onhand Population in Fiscal Year 1998 5,267 Juveniles Average Age = 16 Years Gender = 91% Male Race/Ethnicity = 35% African-American, 39% Hispanic, 26% Anglo Needs of General Population 94% are below grade level 54% have history of abuse/neglect 41% have history of gang involvement Special Needs 80% in need of substance abuse education/treatment Over 30% in need of mental/ emotional services Texas Youth Commission (TYC) institutional facilities include the Marlin Orientation and Assessment Unit, Beaumont, Bryan, Brownwood, Crockett, Gainesville, Giddings, Hamilton, Pyote, San Saba, Evins, Sheffield Boot Camp, Victory Field Boot Camp, Jefferson County, and Corsicana Residential Treatment Center. In addition to institutional facilities, TYC operates 9 halfway houses, numerous aftercare and independent living programs, and parole services. The TYC onhand population at the end of fiscal year 1998 was 5,267. During this year, 3,188 youth were committed for the first time to TYC, 1,104 youth were returned to TYC because of recommitment or revocation, and 3,412 youth were released to parole or discharged. 1
The First Stop For Youth Committed To TYC Is The Marlin Orientation And Assessment Unit Youth is admitted to TYC at the Marlin O&A Unit Youth begins the agency-wide TYC Resocialization Program Youth is assigned to a TYC facility Youth is Committed to the Texas Youth Commission Marlin staff introduce youth to TYC procedures and rules Youth is interviewed and tested to determine individual needs All youth committed to TYC participate in the TYC Resocialization Program. Youth undergo orientation to the program at the Marlin Orientation and Assessment Unit. The program consists of five phases in which the youth learn responsibility, empathy, and prevention techniques. Completion of each phase results in the extension of privileges and advancement to the next phase. A youth may be dropped one phase level if staff agree that his or her behavior or lack of treatment progress warrants a demotion. The testing and assessment process for all committed youth includes a medical exam, a psychological evaluation, a chemical dependency assessment, educational testing, an assessment of family history, and a caseworker interview. The results of this process determine eligibility for specialized treatment. The average length of stay at Marlin is 45 to 60 days. Youth are transferred from Marlin to an appropriate facility after completing the assessment and orientation process. 2
All Youth Are Required to Participate In The Resocialization Program Juvenile is Committed To The Texas Youth Commission All Juveniles Participate In Agency- Wide Resocialization Program Juvenile Exhibits Need For Specialized Treatment Correctional Therapy Disciplinary Training Juvenile Is Placed On Eligibility List For Specialized Treatment Education Work TYC offers basic general services to all juveniles including classroom-based education, vocational training, group therapy, and assistance programs to help youth receive their GED or high school diploma. Whereas all youth must participate in the Resocialization Program, only youth who exhibit a high need will participate in the specialized treatment programs. The four elements of correctional therapy, disciplinary training, education, and work are incorporated into all five phases of resocialization. The phase levels begin at orientation and end with parole or release. Juveniles must have completed phase 1 to be eligible for specialized treatment. 3
TYC Operates Four Residential Specialized Treatment Programs Texas Youth Commission (TYC) Chemical Dependency Treatment Program (CDTP) Capacity = 313 Sex Offender Treatment Program (SOTP) Capacity = 89 Capital Offender Treatment Program (COTP) Capacity = 38 Emotionally Disturbed Treatment Program (EDTP) Capacity = 341 Youth who exhibit special needs may receive services in one or more of TYC s specialized treatment programs. Youth may be eligible and receive treatment in more than one treatment program. Specialized treatment programs include Chemical Dependency, Sex Offender, Capital Offender, and Emotionally Disturbed Treatment Programs. The specialized treatment programs are located within secure TYC and contract care facilities. In fiscal year 1998 a total of 781 residential specialized treatment beds were available for youth committed to TYC. TYC is currently expanding their Chemical Dependency and Capital Offender Treatment Programs at Giddings by 16 beds each. The expansion will serve female offenders. 4
A Juvenile s Need For Specialized Treatment Is Determined At Intake Marlin Assessment Low Treatment Need Medium Treatment Need High Treatment Need Does Not Receive Treatment Low Risk / Low Amenability Medium/High Risk Medium/High Amenability A juvenile s need for specialized treatment is determined during the testing and assessment process at Marlin. This process includes an evaluation of offense type and prior history, a caseworker interview, an evaluation of the youth s family situation, and an evaluation by a psychologist. Youth diagnosed with mental illness may also be seen by a psychiatrist. Youth are also tested to determine their level of substance use and abuse. A TYC treatment decision matrix is also completed for each youth upon commitment. The matrix determines the juvenile s risk level and amenability to treatment. The Risk Index indicates a juvenile s number of prior felony referrals and adjudications. A high-risk offender has a more extensive history in the juvenile justice system compared to other youth. The Amenability Index determines a juvenile s readiness for treatment by taking into account factors such as number of prior placements, frequency and duration of needrelated behavior, motivation to change, and cognitive and general functioning. Youth with high amenability demonstrate readiness for specialized treatment through their attitudes and behavior. Youth with higher risk and amenability scores receive higher priority for specialized treatment. Juveniles with low risk scores are rarely considered for treatment. Capital offenders are prioritized regardless of risk. 5
Eligible Juveniles Are Placed In Treatment As Space Becomes Available Low Risk/ Low Amenability Medium/High Risk Medium/High Amenability Does Not Receive Treatment Juvnenile Meets All Treatment Criteria Placed on Prioritized Waiting List Top of List Receives Treatment Treatment Program has Opening In order to receive treatment, youth must have a sufficient length of stay remaining to complete the program. In addition, youth must have completed Phase 1 of Resocialization and have had no major TYC rule violations in the past 30 days. Youth s eligibility status may change at any time during their stay. Because of this, youth may move up or down on the eligibility list. This helps to ensure that the programs admit youth who appear to be ready to participate constructively in specialized treatment programs. A youth with medium or high need and a low amenability score will only be considered for treatment if staff members find that the youth is doing well in the Resocialization Program and is exhibiting good behavior. For the time period of this report, computerized amenability information was not available. Amenability to treatment is, therefore, excluded from analysis. 6
The Chemical Dependency Treatment Program (CDTP) TYC Chemical Dependency Treatment Program in Fiscal Year 1998 Location Capacity Gender 18 Male Evins 72 Male Gainesville 77 Male Giddings 96 Male Jefferson 44 Male McFadden 6 Male / Female Contract The total number of CDTP beds available in fiscal year 1998 was 313. Special criteria for entering the CDTP include a demonstrated need for substance abuse treatment as determined by a psychological interview, medical history, and a high score on the SASSI (Substance Abuse Subtle Screening Inventory). The Chemical Dependency Treatment Program takes 6 to 8 months to complete. A caseworker develops an Individualized Treatment Plan to address the specific needs of the youth in the program. While in treatment, the youth receives chemical dependency education, group therapy, and individual therapy. Giddings is currently expanding the number of CDTP beds by 16 in order to meet the needs of females with substance abuse problems. 7
The Sex Offender Treatment Program (SOTP) TYC Sex Offender Treatment Program in Fiscal Year 1998 Location Capacity Gender 32 Male Giddings 48 Male Brownwood 9 Male Contract The total number of SOTP beds available in fiscal year 1998 was 89. Special criteria for entering the SOTP include a history of any current or prior adjudicated sex offense as well as any alleged sex offense. The Sex Offender Treatment Program takes 12 months to complete and individuals progress at their own pace within the program. Youth participate in several forms of group therapy that address deviant behavior and offense patterns. The program emphasizes socially acceptable behavior, responsibility, empathy, relapse prevention, and restitution. 8
The Capital Offender Treatment Program (COTP) TYC Capital Offender Treatment Program in Fiscal Year 1998 Location Capacity Gender 38 Male Giddings The total number of COTP beds available in fiscal year 1998 was 38. Juveniles are considered for Capital Offender treatment based on their adjudicated offense. Qualifying offenses include capital murder, murder, attempted capital murder, attempted murder, voluntary manslaughter, and any aggravated offense which involved the use of a deadly weapon. Juveniles may also be considered for treatment based on circumstances related to a lesser offense if the presence of a weapon and/or significant injury was involved. The Capital Offender Treatment Program takes 5 months to complete. Juveniles enter in one group and are expected to complete treatment together, at which point a new group begins treatment. Youth participate in group therapy and, when possible, family therapy. Because of the juvenile s history and the seriousness of the crimes committed, Capital Offender Group sessions last 3.5 to 4 hours (compared to 1 to 2 hours in other types of TYC therapy groups) to allow role-playing and in-depth processing of offense patterns and attitudes towards others. Issues addressed in the program include the offense cycle, precursors leading to criminal behavior and responses to these, responsibility, restitution, and victim impact. Giddings has begun the process of adding 16 female beds to the COTP. 9
The Emotionally Disturbed Offender Treatment Program (EDTP) TYC Emotionally Disturbed Treatment Program in Fiscal Year 1998 Location Capacity Gender Corsicana 150 122 Male 28 Female 72 Male Crockett 119 Male / Female Contract The total number of EDTP beds available in fiscal year 1998 was 341. Special criteria for entering the EDTP include a demonstrated level of emotional disturbance that interferes with a youth s ability to progress in the regular TYC program and a qualifying diagnosis based on psychological and psychiatric evaluation. Youth undergo a 30-day evaluation period to confirm their need for emotional/mental treatment, after which they begin the treatment program. The Emotionally Disturbed Treatment Program takes 9 months to complete. The program focuses on behavior management as well as symptoms of emotional disturbance. The goal is to teach youth how to better interact with the systems in their lives. In addition to the EDTP, Corsicana includes a specialized stabilization unit (CSU). Youth committed to CSU have major psychiatric disorders and are too dangerous to self or others to be maintained on a regular campus. These juveniles may enter the regular EDTP after release from the CSU. 10
TYC Released 3,412 Juveniles During Fiscal Year 1998 TYC Fiscal Year 1998 Total Releases = 3,412 # % of total Race African- American 1,196 35.0% Anglo 702 20.6% Hispanic 1,514 44.4% Age 10-12 27 0.8% 13-14 545 16.0% 15-16 2,243 65.7% 17 and over 597 17.5% Offender Type Sentenced 85 2.5% Violent A 50 1.4% Violent B/ Serious 852 25.0% General 2,425 71.1% Gender Male 3,158 92.6% Female 254 7.4% CJPC analyzed all youth released from TYC residential facilities in fiscal year 1998 to determine the number of juveniles who needed and received treatment. A release is defined as any youth discharged or paroled from TYC. Juveniles are classified based on their offenses. This classification determines their minimum length of stay. Sentenced offenders have received a determinate sentence to TYC and must serve a minimum term before consideration for parole. Violent A offenders have been committed for murder, capital murder, or sexual/ aggravated sexual assault and must serve a minimum of 24 months. Violent B offenders are committed for a variety of lesser violent offenses. Serious offenders include firearms offenders, controlled substance dealers, and chronic serious offenders. These and Violent B offenders are grouped together because they have the same minimum length of stay of 12 months. General offenders are youth who do not qualify for any other classification. These juveniles must serve a minimum of 9 months before release to parole. 11
Fifty-three Percent Of Juveniles With Special Needs Received Treatment Prior To Release in Fiscal Year 1998 Releasees Exhibiting A Need For Treatment 2,015 (59%) Releasees Who Received Treatment 1,065 (53%) Juveniles Released From TYC In FY 1998 3,412 Exhibit Need For Chemical Dependency Treatment 1,469 (43%) Exhibit Need For Sex Offender Treatment 130 (4%) Exhibit Need For Capital Offender Treatment 109 (3%) Releasees Who Received Treatment 564 (38%) Releasees Who Received Treatment 65 (50%) Releasees Who Received Treatment 43 (39%) Exhibit Need For Emotional Treatment 959 (28%) Releasees Who Received Treatment 402 (42%) 3,412 youth were released from TYC in fiscal year 1998. Of these, 2,015 (59%) exhibited a need for specialized treatment. Of youth with a need for treatment, 1,065 (53%) actually received treatment. 31% of all juveniles released in fiscal year 1998 received treatment. The Any Treatment category reflects the total number of juveniles in need of specialized treatment without counting youth twice. Youth may appear more than once in the individual treatment need categories because juveniles often demonstrate need for more than one type of specialized treatment. Due to resource limitations, TYC is unable to treat all youth who are in need of specialized programs. A youth s need for specialized treatment was determined by a rigorous set of standards outlined by TYC. The standards used in this report are the same used at TYC to create the treatment eligibility list. If youth demonstrated need in more than one area, each of these needs was counted when calculating treatment need for each individual treatment program. However, the youth was counted only once when determining overall need for any treatment program. 12
Juveniles Receiving Treatment Tended To Be Older Males Whose Ethnic Distribution Varied Among Treatment Programs Releases from TYC in Fiscal Year 1998 = 3,412 RACE Chemical Dependency Sex Offender Capital Offender Emotionally Disturbed African-American 193 23 23 116 % 34.2% 35.4% 53.5% 28.9% Anglo 109 21 7 127 % 19.3% 32.3% 16.3% 31.6% Hispanic 262 21 13 159 % 46.5% 32.3% 30.2% 39.5% AGE 10-12 1 1 0 12 % 0.2% 1.5% 0.0% 3.0% 13-14 68 23 14 83 % 12.0% 35.4% 32.6% 20.7% 15-16 362 31 13 249 % 64.2% 47.7% 30.2% 61.9% 17 and over 133 10 16 58 % 23.6% 15.4% 37.2% 14.4% GENDER Those with Need Who Received Treatment Male 558 65 43 346 % 98.9% 100.0% 100.0% 86.1% Female 6 0 0 56 % 1.1% 0.0% 0.0% 13.9% TOTAL 564 65 43 402 Youth with high need ratings were somewhat more likely to receive treatment than those with medium need. Otherwise, there were no differences in the characteristics of those youth who received treatment and those who did not. Juveniles placed for one day or more in a treatment program were considered as receiving treatment. All assignments to specialized treatment were counted with the exception of assignments to the Emotionally Disturbed Offender Treatment Program which lasted less than 30 days. The first 30 days at the EDTP are used as an evaluation period. If the assignment lasted less than 30 days, it is assumed that the youth did not meet the qualifications of serious emotional disturbance and was assigned elsewhere. 13
The Majority Of Juveniles Who Received Capital And Sex Offender Treatment Were Classified As Sentenced Or Violent Offenders Releases from TYC in Fiscal Year 1998 = 3,412 Those With Need Who Received Treatment Offender Category Chemical Dependency Sex Offender Capital Offender Emotionally Disturbed Sentenced 32 17 21 1 % 5.7% 26.2% 48.85% 0.2% Violent A 17 1 21 2 % 3.0% 1.5% 48.85% 0.5% Violent B/ Serious 151 30 1 90 % 26.8% 46.1% 2.3% 22.4% General 364 17 0 309 % 64.5% 26.2% 0.0% 76.9% Total 564 65 43 402 % 100% 100% 100% 100% A juvenile may be eligible for sex offender treatment based on an adjudicated or otherwise documented sex offense. General offenders receiving sex offender treatment committed offenses including indecency with a child, escape, and deadly conduct. A juvenile may be eligible for capital offender treatment based on a qualifying adjudicated offense or circumstances related to a lesser offense. The Capital Offender Treatment Program intervenes with juveniles who have committed not only capital murder, but also murder, attempted capital murder, attempted murder, voluntary manslaughter, or an aggravated offense with use of a deadly weapon. Juveniles can also be considered based on circumstances related to a lesser offense. In fiscal year 1998, participants in the COTP committed the following offenses: Capital Murder or Attempted Capital Murder (32.6%), Murder (60.5%), Voluntary Manslaughter (2.3%), Aggravated Kidnapping (2.3%), and Aggravated Assault (2.3%). 14
The Average Time Spent In Specialized Treatment Varied According To Program Length Treatment Program Average Time in Treatment Time Required for Completion (Start to End) (% Completing Minimum Time) Chemical Dependency 6.5 6-8 months Treatment Program months 57% Sex Offender 13.9 12 months Treatment Program months 59% Capital Offender 3.9 4-5 months Treatment Program months 67% Emotionally Disturbed 7.5 9 months Offender Treatment Program months 40% The completion rate shown is the percent of juveniles finishing treatment based on the minimum length of stay required for completion. Actual completion of any treatment program is based on a juvenile s success in the program as determined by the treatment provider. Treatment programs may change slightly over time as they are refined. The minimums presented here reflect the time required to complete the programs when youth released in fiscal year 1998 went through specialized treatment. The Capital Offender Treatment Program recently extended the time required for completion from 4 to 5 months. Because youth participated in the COTP before this time standard existed, a 4-month time minimum was used to better reflect the completion rate. Youth may not complete specialized treatment programs because of an unwillingness to participate or inability to obtain benefits from treatment. Some emotionally disturbed youth are sent to state hospitals from TYC in order to receive intensive medical and mental health care before they have completed their stays. Youth may improve enough to be returned to the EDTP to continue treatment. 15
Juveniles Spend Varying Amounts Of Time In TYC Before And After Receiving Specialized Treatment Treatment Program Average Time in Resocialization Before Average Time Between Treatment Receiving Specialized Treatment End and Release Chemical Dependency 5.2 3.8 Treatment Program months months Sex Offender 9.1 11.7 Treatment Program months months Capital Offender 22.4 6.7 Treatment Program months months Emotionally Disturbed 8.7 8.1 Offender Treatment Program months months Before moving to a specialized treatment program, a juvenile must be in Phase 2 of the TYC Resocialization Program. Each phase involves several steps and may take months to complete. This requirement is supposed to increase a juvenile s readiness for specialized treatment and maximize the benefits gained. TYC prefers to begin capital offender treatment toward the end of a youth s commitment so the time elapsed between the end of treatment and release is minimal. This is assumed to maximize the treatment effect because the youth will have recent memory of the lessons learned in treatment and will find it easier to apply them in the free world. TYC is also beginning to implement this procedure in the sex offender treatment program. Youth in the capital and sex offender treatment programs usually have longer overall lengths of stay than those in the chemical dependency and emotionally disturbed treatment programs because of their offense severity. Specialized treatment can extend a youth s length of stay if he or she begins treatment near the end of a commitment. This is especially true of the chemical dependency treatment program, which treats a high percentage of general offenders. The time elapsed was determined by subtracting a youth s commitment date from his or her treatment start date, and by subtracting a youth s treatment end date from his or her release date. 16
Youth May Be Released From Residential Specialized Treatment To Specialized Parole (Aftercare) Parole Assignments After Receiving TYC Residential Specialized Treatment Program Specialized Parole Regular Parole Total % % % CDTP 303 213 516 59% 41% 100% SOTP 21 23 44 48% 52% 100% COTP 10 12 22 46% 54% 100% EDTP 118 262 380 31% 69% 100% Total 452 510 962 47% 53% 100% Youth who are released from TYC are either discharged or assigned to parole. Regular parole includes independent living arrangements and standard regional parole. Specialized parole (aftercare) includes services designed to provide follow-up treatment to youth who receive residential specialized treatment. Only youth who receive specialized treatment are eligible for aftercare programs. Youth who received residential specialized treatment in fiscal year 1998 spent an average of 5 months in specialized parole (aftercare). This number represents only those juveniles who had completed their aftercare programs at the time of this analysis (45%). Not all youth who receive residential treatment are assigned to aftercare because of a lack of providers available in some regions. A youth who is released from the jurisdiction of TYC is discharged. Of the 1,065 youth who received residential specialized treatment in Fiscal Year 1998, 962 youth were placed on parole and 112 youth were discharged from TYC. 17
The Cost Of Residential Treatment Varies By Program Program Cost Per Day in FY 1998 CDTP $17.75 SOTP $13.73 COTP $22.72 EDTP $22.48 The costs above represent the average program-only cost to the state of all residential treatment facilities for each program. Different amounts of specialized treatment funding were available to different facilities based on the number of staff positions and beds available at each facility as well as grants received for individual facility programs. In addition to residential treatment, youth may receive specialized treatment while on parole. The cost per day in fiscal year 1998 for specialized parole (aftercare) was $15.30 per juvenile. This includes the cost of regular parole supervision ($8.84) and all special services ($6.46). Specialized parole services have been available since 1997. The cost shown may include some expenses related to phasing in the programs. 18
Are TYC Specialized Treatment Programs Cost-Effective? The CJPC, working with TYC, will develop a plan to monitor the cost-effectiveness of TYC specialized treatment programs. Data will be analyzed to determine: Recidivism of those receiving treatment compared to those not receiving treatment Outcomes and other benefits of treatment Cost-effectiveness of providing specialized treatment to juveniles in TYC Preliminary results will be presented to the 77 th legislature in 2001. 19