Conditions of Confinement in Juvenile Detention and Correctional Facilities. John J. Wilson, Acting Administrator FACT SHEET #1 April 1993 CONDITIONS OF CONFINEMENT IN JUVENILE DETENTION AND CORRECTIONAL FACILITIES By Barbara Allen-Hagen CROWDING PERVASIVE IN JUVENILE FACILITIES In a recent study of conditions of confinement in U.S. juvenile detention and correctional facilities, conducted by Abt Associates for the Office of Juvenile Justice and Delinquency Prevention (OJJDP), institutional crowding was found to be pervasive. Thousands of juvenile offenders, more than 75 percent of the confined population, were housed in facilities that violated one or more standards related to living space (facility design capacity, sleeping areas, and living unit size). Between 1987 and 1991, the percentage of confined juveniles living in facilities in which the daily population exceeded design capacity increased from 36 percent to 47 percent. Crowding was found to be associated with higher rates of institutional violence, suicidal behavior, and greater reliance on the use of short term isolation. FOCUS OF CONGRESSIONALLY MANDATED STUDY ON NATIONAL STANDARDS The study, required by Congress in its 1988 Amendments to the Juvenile Justice and Delinquency Prevention Act, is the first such nationwide investigation of conditions in secure juvenile detention and correctional facilities. Using nationally recognized correctional standards as a gauge, researchers assessed how juvenile offenders' basic needs were met, how institutional security and resident safety were maintained, what treatment programming was provided, and how juveniles' rights were protected. The study included surveys mailed in 1991 to all 984 public and private juvenile detention centers, reception and diagnostic facilities, training schools, and ranches. In addition, experienced juvenile correctional practitioners conducted two-day site visits to a representative sample of nearly 100 facilities in the fall of 1991. These facilities held about 65,000 juveniles on the date of the 1991 Children in Custody census, or about 69 percent of the juveniles confined on that date in the United States. During 1990, these facilities received nearly 690,000 admissions, including readmissions and transfers of juveniles from other facilities. The authors offer 19 recommendations to improve conditions in juvenile detention and correctional facilities for the OJJDP Administrator's consideration. UNDERSTANDING STANDARDS CONFORMANCE AND CONDITIONS OF CONFINEMENT Based on standards conformance and related outcome measures, researchers concluded that serious and widespread problems existed in the areas of living space, health care, institutional security and safety, and control of suicidal behavior. In important areas of treatment, rehabilitation, and education, the evaluation demonstrated the need for more rigorous assessment of how facilities are meeting juveniles' needs in these areas. The study found three areas in which conditions of confinement appeared to be generally adequate: basic needs such as food, clothing and hygiene; recreation; and, living accommodations. An important overall finding was that generally conformance to existing standards does not guarantee adequate conditions for juveniles in custody. For example, while more than 90 percent of juvenile detention facilities conformed to the fire inspection requirement, more than half of the 30 detention centers visited had at least one unmarked fire exit in a sleeping area. Two-thirds did not have fire escape routes posted, and in some, fire exits were blocked. In many cases the standards only require the existence of policies, procedures, or programs, without stipulating performance measures or desired outcomes. Thus, interpretation of standards conformance is problematic. FIRST NATIONAL ESTIMATES OF INSTITUTIONAL VIOLENCE, ESCAPES, SUICIDAL BEHAVIOR Several outcome measures were developed to assess conditions of confinement. These included: the incidence of institutional violence, suicidal behavior, and escapes. Institutional security practices, such as searches and use of isolation, were also studied. Facilities showed substantial variation, some with very high incident rates and others with very low rates. Over the 12 months prior to the mail survey, researchers estimated that: * Juveniles injured 6,900 staff and 24,200 other juveniles. * 11,000 juveniles committed 17,600 acts of suicidal behavior, with 10 suicides in 1990. * More than 18,600 incidents required emergency medical care. * More than 435,800 juveniles were held in short term isolation (one to 24 hours) and almost 84,000 were isolated for more than 24 hours. * 9,700 juveniles escaped from custody. EXPERTS' REACTIONS TO FINDINGS In March 1993, OJJDP officials, Abt researchers, juvenile correctional experts, and youth advocates from across the country assembled in Washington, D.C., to react to the findings. While there was general concurrence about the findings, some experts speculated that facility conditions have deteriorated since 1991, citing substantial State and local budget cuts, resulting in staff reductions, staff turnover, and strain on facility program and maintenance budgets. Compounding these pressures are demographic shifts that already show a steady growth in the juvenile population at risk. Concerned was voiced that problems of crowding and related conditions will not only persist, but will increase to the serious detriment of juveniles for whom rehabilitation is still a hope. They were especially concerned about the impact on minority youth. Between 1987 and 1991, the minority populations in detention and correctional facilities grew from 53 percent to 63 percent of the confined population. FORGING A NATIONAL COLLABORATION TO IMPROVE CONDITIONS Juvenile corrections experts and youth advocates agreed to work together, and with OJJDP, in developing a national strategy to respond to the findings and recommendations cited in the study and to recent trends affecting conditions in juvenile facilities. A broad-based national consortium, consisting of many national professional organizations and governmental associations, national youth advocacy organizations, private foundations and other Federal agencies, is being formed to plan and promote long-term improvements in the conditions of confinement and services for juveniles in custody. Through this partnership, financial and technical assistance, and training and communication resources will be targeted at reducing crowding, reducing disproportionate incarceration of minorities, and developing and testing performance-based standards. Such an effort may begin immediately by reviewing operational standards regarding the delivery of health care, treatment services, education programs, protection of juvenile's rights and improved security operations. As John J. Wilson, Acting OJJDP Administrator, affirmed, "OJJDP will provide Federal leadership to change conditions of confinement for juveniles. But the changes themselves must result primarily from State and local action. These efforts will require reforms both inside and outside of facilities, involving a broad-based commitment among the various sectors to build a consensus to reach solutions together." In announcing the study's release, Attorney General Janet Reno declared, "This study puts an exclamation point on the obvious conclusion that America must not only take better care of its children before they get into trouble, but also not abandon them once they are in trouble. I fully support OJJDP's effort to forge a national consortium to bring about long term improvements in the conditions of confinement and to expand alternatives for juvenile offenders." FOR MORE INFORMATION Copies of the Executive Summary of the report, "Conditions of Confinement: A Study to Evaluate Conditions in Juvenile Detention and Correctional Facilities", can be obtained by calling the Juvenile Justice Clearinghouse, toll free at (800) 638-8736. The complete report will be published in the Fall of 1993. For further information regarding the study, please call Barbara Allen-Hagen, of OJJDP, at (202) 307-5929. This fact sheet was written by Barbara Allen-Hagen, Social Science Analyst in OJJDP's Research & Program Development Division. It is based on the report written by Dale Parent, Project Director; Valerie Leiter, Deputy Project Director; Stephen Kennedy, Research Director; and, Research Assistants Lisa Levins, Dan Wentworth and Sarah Wilcox of Abt Associates, Inc. This study was supported by OJJDP Grant #90-JN-CX-K004. The points of view stated in this document are those of the author's and do not necessarily represent the position or policy of the U.S. Department of Justice.