Youth Environmental Service Technical Assistance. Package MENU TITLE: YES Technical Assistance Package Series: OJJDP Published: June 1996 50 pages 93,916 bytes YES YOUTH ENVIRONMENTAL SERVICE Technical Assistance Package Shay Bilchik, Administrator Office of Juvenile Justice and Delinquency Prevention June 1996 Points of view or opinions expressed in this document are those of the authors and do not necessarily represent the official position or policies of the Office of Juvenile Justice and Delinquency Prevention or the U.S. Department of Justice. The Office of Juvenile Justice and Delinquency Prevention is a component of the Office of Justice Programs, which also includes the Bureau of Justice Assistance, the Bureau of Justice Statistics, the National Institute of Justice, and the Office for Victims of Crime. ------------------------------ Foreword The juvenile justice system is being taxed. With institutions increasingly burdened by the growing number of serious, violent, and chronic offenders, we must provide alternatives for youth involved in delinquent activity -- alternatives that incorporate appropriate sanctions while providing youth with necessary services, skills, and opportunities. The Youth Environmental Service (YES) initiative is one such alternative. Created through a partnership between the Department of Justice (DOJ) and the Department of the Interior (DOI), YES enhances youth's skills through work and educational programs on Federal land. A YES program can be designed to intervene at various stages of youth involvement with the system and to prevent at-risk youth from engaging in delinquent acts. Thus, YES offers a considerable degree of flexibility in creating a program suited to the needs of the local community and its youth. Local Federal land managers also benefit from YES enrollees' participation in projects and land maintenance that might not otherwise be completed due to limited staff and resources. This Technical Assistance Package has been designed to assist you in deciding whether YES is an alternative that would be mutually beneficial to your local Federal land managers, your community, and -- most importantly -- your youth. If YES is right for you, this package can also assist you in developing a program. Through partnerships, we often find the most rewarding and mutually beneficial solutions. This has been our experience in the YES partnership between DOJ and DOI. We hope YES offers you the same rewards. Shay Bilchik Administrator Office of Juvenile Justice and Delinquency Prevention U.S. Department of Justice Woodrow W. Hopper, Jr. Acting Deputy Assistant Secretary for Human Resources U.S. Department of the Interior ------------------------------ Acknowledgments We appreciate the outstanding support provided by Kristen Kracke and Douglas Dodge from the Office of Juvenile Justice and Delinquency Prevention (OJJDP), U.S. Department of Justice, as well as Bob Buechner from the Office of National Service and Educational Partnerships, U.S. Department of the Interior (DOI). We are indebted to the following members of the Technical Assistance Team for their counsel and guidance throughout: David Altschuler, Wally Hibbard, Ransom Hughes, Steve Ray, and O.B. Stander. We would like to thank Judge William Gladstone, Senior Circuit Court Judge for the Eleventh Judicial Circuit Court of Florida, for his insight and vision in bringing this concept to the attention of OJJDP and DOI. Finally, we wish to express our appreciation to Roberta Cronin and the staff of the Juvenile Justice Resource Center who prepared the manuscript and assisted with editing. ------------------------------ Table of Contents Foreword Acknowledgments An Overview of the YES Initiative The purpose of YES History and background Program characteristics Benefits of YES Funding The purpose of this document What YES Programs Can Offer Key Elements of the YES Program Developing YES Partnerships: Roles and Responsibilities The core partners The Federal Government A youth service provider State or local government Forming a working partnership Other YES partners Steps to Becoming a YES Site Implementation Issues Target population Assessment Site selection Choosing appropriate work projects Supervision of YES participants Safety Compensation of youth participants Legal concerns Program costs and funding Startup time Other implementation issues Ways to enhance YES programs Operational Guidance and Resources Technical assistance from OJJDP and DOI Additional resource materials Communication and information sharing among sites Federal Contacts for the YES Program Other Assistance References Organizations Appendices Appendix 1. Official Memorandum of Understanding Between the U.S. Department of Justice and the U.S. Department of the Interior for the Youth Environmental Service Program Appendix 2. Profiles of YES Programs in Action Big Cypress Wilderness Institute, Ochopee, Florida Loxahatchee Environmental Project, Palm Beach County, Florida Genesis Youth Center, Salt Lake City, Utah Southwest Youth Center Work Release Program, Cedar City, Utah Greater Washington Boys & Girls Clubs Student Volunteer Program, Washington, D.C. City Lights Park Program, Washington, D.C. Appendix 3. Definitions Appendix 4. Sample Memorandums of Understanding or Agreement Student Volunteer Program Agreement Between Greater Washington Boys & Girls Clubs and the National Park Service, National Capital Region Human Resource Agreement Between Southwest Utah Youth Center and Cedar City District Bureau of Land Management, U.S. Department of the Interior, 1994 Appendix 5. Sample Letter of Agreement Appendix 6. Information on State Resources and How To Contact Them Appendix 7. List of Contacts at Current YES Sites Appendix 8. YES Technical Assistance Request Form ------------------------------ An Overview of the YES Initiative The purpose of YES The Youth Environmental Service (YES) initiative is a joint program between the U.S. Department of the Interior (DOI) and the Office of Juvenile Justice and Delinquency Prevention (OJJDP) of the U.S. Department of Justice (DOJ). The purpose of the YES initiative is to increase the capacity of States and communities to correct, treat, and rehabilitate adjudicated delinquents and to prevent at-risk youth from entering the juvenile justice system by implementing environmental work and education programs on federally owned land. History and background In response to a growing need for innovative and effective programs for at-risk and delinquent youth across the Nation, Senator Bob Graham of Florida introduced legislation calling for the development of a nationwide network of local programs to provide young people with environmental work and education opportunities on Federal land. The Senator's bill, while not enacted, influenced the creation of a landmark partnership agreement between DOJ and DOI. In February 1994, the Attorney General and the Secretary of the Interior signed a Memorandum of Understanding establishing the Youth Environmental Service Program and committing DOJ and DOI to work with States and localities across the country to put the YES Program in place (appendix 1). Program characteristics Partnerships are formed among Federal, State, local, and private agencies to develop environmental work programs. States and localities have broad flexibility to design programs suitable to the specific needs of their communities. YES sites may provide residential onsite programs, residential offsite programs, or day programs. Programs may be rural or urban, and they may serve target populations ranging from serious juvenile offenders placed in staff-secured residential facilities to at-risk youth living in underserved communities. Profiles of current YES programs illustrate the diversity and flexibility of the YES initiative (appendix 2). OJJDP has also prepared a Program Summary, YES in Action, containing more detailed descriptions of the pilot sites and explaining some of the challenges they faced. Benefits of YES YES is a beneficial program for all concerned: participating Federal, State, and local agencies, communities, and most importantly, our citizens and our youth. Federal land and resources are made available at no cost to programs; at-risk and delinquent youth are provided vocational skills and structured work opportunities; States gain alternatives to more traditional secure confinement for some juvenile offenders; and at the same time, Federal land management agencies get needed help in preserving our natural and cultural resources. Funding Funding for YES programs is provided by States and localities. The Federal Government supports program development by helping interested jurisdictions locate suitable Federal land for YES programs, identifying environmental work projects, and providing other training and technical assistance, including assistance identifying potential land management or youth service partners. The purpose of this document This document is designed to help youth service agencies and Federal land managers learn more about the YES initiative in order to plan YES programs suited to their own circumstances. The package describes the steps for becoming a YES site and explains how to obtain Federal technical assistance during startup and implementation. ------------------------------ What YES Programs Can Offer The YES Program is flexible, providing States and localities the freedom to tailor the program to their own needs and circumstances. Depending on the program design and the type of youth to be served, YES programs can achieve a variety of benefits. For Federal land management agencies, YES can provide . . . o An alternative work force for protecting and enhancing our natural and cultural resources in the face of declining Federal dollars. o An opportunity to instill in young people a sense of stewardship of our natural and cultural resources. o An opportunity to contribute to the physical, social, educational, and moral development of young people. For State and local youth service agencies, YES can provide . . . o An expanded range of situations and settings for promoting positive youth development. o A structure for helping youth involved in the juvenile justice system meet their community service or restitution requirements. o An alternative to more traditional secure placement for some delinquent offenders. o Relief from some of the problems of zoning and community resistance that plague residences for troubled youth. For the participating youth, YES can provide . . . o An opportunity to develop their abilities, including a work ethic, an appreciation for teamwork, and marketable job skills. o An opportunity to learn about environmental issues and the importance of maintaining our natural resources. o Exposure to positive adult role models. o A sense of accomplishment and pride in their contributions to the community and a chance to be recognized as a community asset rather than as a liability. o A way to complete court-ordered community service or restitution obligations. For communities, YES can offer . . . o Improvements in natural and cultural resources, as well as other forms of public service. o A cost-effective way of providing residential facilities for youth who need them. o Adequate safety and security through careful site selection and supervision. o Visible proof that young offenders are being held accountable for their actions. o Tangible paybacks in the form of restitution to victims and community service. ------------------------------ Key Elements of the YES Program Certain key elements must be incorporated in the design of every YES program. Involvement of at-risk or delinquent youth in the program. A YES program may include youth who have been adjudicated delinquent by the juvenile court or referred to court because of delinquent acts. It may also involve children and teenagers who are neglected, abused, emotionally disturbed, homeless, runaways, or living in circumstances that otherwise limit their chances for a healthy and productive life. (See appendix 3 for expanded definitions of terms.) A mutually beneficial partnership between a youth-serving agency (or agencies) and a Federal land management agency. The needs of the youth-serving agency will determine which Federal agencies are suitable partners, but for the partnership to succeed, Federal land managers also must benefit from it. Availability of Federal land with appropriate, accessible work projects. Many Federal land areas provide numerous opportunities for meaningful work. However, not all Federal land will offer projects that complement the goals of the provider agency and meet the needs of the youth it serves. Partners need to ensure that the Federal land is accessible to the program and offers a sufficient quantity and appropriate quality of projects. A provider with experience in offering similar or related services to at-risk or delinquent youth. The provider may be a State or local government agency, a private provider under contract to serve delinquent or at-risk youth, or another type of private provider. The important thing is for the provider to have a track record of working effectively with youth who will participate in YES. Clear allocation of responsibilities among the partners. Carrying out a YES program involves several discrete tasks, including identifying, recruiting, and orienting youth participants; training and supervising youth at work; selecting work projects; supplying tools and materials; and providing housing, education, and other services needed to supplement the work projects. Partners must spell out their respective responsibilities for these tasks in advance, preferably through a Memorandum of Understanding or other written document. (See appendix 4 for examples.) This agreement may be changed later, as experience dictates, but it ensures that partners start with a common set of expectations. Meaningful opportunities for youth to develop a sense of accomplishment and make positive contributions to the environment. YES programs are intended to teach participants new skills and instill in them a sense of accomplishment. While many minimal-skill activities (such as trash collection) may be of great benefit to Federal land managers, work assignments should include projects that enhance young workers' capabilities and, especially in the case of older youth, provide marketable skills. Work projects intended to punish or humiliate youth participants are incompatible with the YES philosophy, as are "make work" assignments designed simply to keep people busy. ------------------------------ Developing YES Partnerships: Roles and Responsibilities The core partners Every project is different. However, the typical YES partnership includes the Federal Government, a youth service provider, and, usually, a State or local government agency as core partners. The Federal Government Federal partners are found at two levels -- in Washington, D.C., and at the local level. The Washington partners In Washington, D.C., the Federal partners include OJJDP, within DOJ, and DOI. Their role is to accomplish the following goals: o Provide assistance in identifying Federal land and facilities that can support the program. o Help develop partnership agreements between youth-oriented programs and Federal land managers. o Advise partners about the viability of proposed project designs. o Work to meet other technical assistance needs by tapping existing Justice resources and brokering resources from other Federal departments. o Facilitate communications, information sharing, and coordination across YES programs. Although OJJDP and DOI are the lead Federal partners in Washington, they have working relationships with other Federal departments, such as the U.S. Department of Agriculture (USDA), that are responsible for Federal land. Therefore, OJJDP and DOI will assist prospective YES sites interested in working on Federal land managed by departments other than DOI. Additional information about obtaining assistance from the Washington partners is provided below under "Operational Guidance and Resources". Local land managers At the local level, each program has one or more partners representing a local branch of a Federal land management agency. Federal land management agencies include the Bureau of Land Management, the U.S. Fish and Wildlife Service, the National Park Service, and the Bureau of Reclamation, all within DOI; the USDA Forest Service; and the U.S. Army Corps of Engineers and the National Guard, in the U.S. Department of Defense (DOD). The local land management partner takes responsibility for identifying suitable sites and environmental work projects, training work crews or their supervisors to carry out the projects, and checking that the work is done properly. Federal land managers also assist in introducing the YES Program to the community and maintaining good community relations. A youth service provider A youth service provider, public or private, that is experienced in working with the target population takes responsibility for working out the schedule of jobs with the land management agency; learning how the job needs to be done; transporting youth to and from the worksite; seeing that the youth have the necessary clothing, food, and water; and supervising them while they work. This youth service provider is also responsible for the broader program in which the youth are enrolled, which can include education, recreation, counseling, aftercare, meals, housing, and other elements. Finally, the youth service provider works with the land management partner to establish and maintain good relations between YES and the community. State or local government Usually State or local governments become YES partners because they provide the resources to operate YES -- by subcontracting with a private youth service provider or occasionally by operating YES with their own staff. State or local governments also may assist with capital costs of building or renovating facilities for YES. Besides providing funding, the State or local government partners can often help design the program and should ensure that it meets agency standards for placement, safety, security, staffing, program content, aftercare, and the like. The agency also plays a key role in deciding whether YES should continue or expand at a particular site. Forming a working partnership To provide a firm foundation for the partnership, it is important that land managers and youth service agencies develop a thorough understanding of each other's mission and goals. In the planning stages, it can help to have the land management partner visit the youth service provider's home base and see its programs in action. Likewise, it helps to have youth service officials spend time on the Federal land. Land management staff are often receptive to YES because they are already familiar with the concept of putting youth to work on Federal land through programs such as the Youth Conservation Corps (YCC) or the Young Adult Conservation Corps (YACC), which were widely implemented in the 1970's. Unlike YCC and YACC, however, YES involves no special funding, so staff may be concerned about the demands YES will place on their time. Land management staff may also be worried about safety and security issues. These concerns are minimized when youth service providers shoulder the primary burden of supervising and transporting workers and when the partners agree on the criteria for selection of participants. To succeed over time, a YES program needs champions among senior agency officials. Once these officials are behind the program, they can play an important role in securing the cooperation of others, both inside and outside their agencies. Other YES partners While a YES team may have just two or three core members, there are usually other partners. Although they may not be involved in day-to-day program operations or participate in formal working agreements, these partners can also become champions for the YES initiative. Above all, it is important for the core partners to develop a coordinated strategy for making the community part of the partnership. Community reactions are a potential problem, especially for residential programs or those serving troubled youth, but the problem can be minimized by designing the program to provide adequate safety and security and laying the proper groundwork. YES partners can head off opposition by involving appropriate community leaders in the early stages. YES programs also may profit from well-planned strategies for news coverage that features youth making positive contributions to their community. As YES develops, community members may become advocates for the program and provide in-kind support, donating tools and supplies or participating as mentors for YES youth. Many YES programs will also want to involve juvenile justice agencies, such as the judiciary, probation officials, and aftercare providers, in the partnership. This is particularly appropriate if these agencies provide referrals to YES or work with youth during or after they complete their YES placement. Other State and local government agencies may become partners because they provide worksites and projects for program participants, beyond those on Federal land. Programs with a strong vocational orientation may welcome partners such as the local Private Industry Council, which administers Job Training Partnership Act funds and other vocational training programs. ------------------------------ Steps to Becoming a YES Site The process required to become a YES site is straightforward; however, the first steps vary according to whether the agency expressing initial interest in YES is a youth service provider or a land management agency. Step 1 A youth service provider interested in YES should first determine whether there is any Federal land in or near their agency's youth service area. (A map of Federal land areas can be obtained by calling the DOI contact listed in this document.) If so, the provider should consider whether the YES program would involve youth from an existing facility or program, or if a new program would be designed specifically for this purpose. Step 2 Next, interested parties should request Federal assistance in locating potential partners for a YES effort. Youth service providers should write a letter to the OJJDP and DOI contact persons describing their idea for a YES program, the target population they would like to serve, the program location they have in mind (including the Federal land they would like to use), and the probable funding source for the program. OJJDP and DOI will use this information to help identify contacts for potential partnerships with the Federal land managers at the Federal site proposed. Federal land managers should write to the OJJDP and DOI contact persons describing the sites they have in mind for work projects, the volume and type of work that would be available, and whether there are buildings or land there that might be suitable for a residential facility. OJJDP will use this information to identify appropriate contacts for the land manager in the State's juvenile service system. Step 3 Parties should then contact the prospective partners identified by OJJDP/DOI, meet to determine whether there is mutual interest in forming a YES partnership, and flesh out their ideas for the program. Step 4 The youth service agency should prepare and send OJJDP a short concept paper that describes the following items: o The background and rationale for the YES program. o Goals and objectives. o Target population. o Proposed site. o The kinds of work projects involved, the work schedule, and the staff who will supervise the youth. o Other services to be received by participants, such as counseling, education, recreation, and aftercare. o The management plan and timeline. o How the partners will assess whether the program is meeting its goals and objectives. A letter of agreement should accompany the concept paper indicating that (1) the core partners have reviewed the concept paper and agree on the plan described; and (2) they are prepared to proceed if they are designated as a YES site. (Sites may use the sample letter of agreement in appendix 5 as a model or submit a cover letter that addresses these key points and that is signed by the core partners.) OJJDP and DOI will review the concept paper and contact the partnership if they need further clarification. Step 5 Assuming the proposed program incorporates the key ingredients of a YES site, DOI and OJJDP will formally designate the program as a YES site and will authorize the use of Federal land. The partnership will then become eligible for further technical assistance through OJJDP. In addition, OJJDP and DOI will ask YES sites to collect and share information -- including regular progress updates by the youth service partner -- with other YES sites. Step 6 As a final step, OJJDP and DOI strongly encourage the partners to develop a Memorandum of Understanding (MOU) or a Memorandum of Agreement (MOA) to solidify the YES partnership and spell out the roles and responsibilities of the parties in more detail. Examples are provided in appendix 4 to stimulate thinking about the items that might be included in an MOU. These examples should not be copied exactly, but modified and adapted in consultation with legal advisers to meet the needs of each partnership. ------------------------------ Implementation Issues A number of issues arise in designing and implementing YES programs. This section covers some of the more crucial concerns, drawing on the experience of the pilot programs and other resources that suggest best practices for youth-oriented programs. Target population YES programs can be designed to work with a variety of target groups. The youth currently involved range in age from 8 to 18. Pilot programs serve urban youth from public housing areas, juvenile probationers, juvenile parolees, and delinquents who have been sentenced to short-term detention or longer term residential placement. The delinquents involved span the range from low-risk offenders to those with serious and lengthy records. However, programs that handle higher risk offenders must provide a higher level of safety and security through close staff supervision. In addition, locating the facility in a remote area can enhance safety and security. Assessment All YES programs should include an individualized assessment process to determine that each prospective participant fits the criteria for the YES program. Typical criteria involve such factors as age and offense history. The assessment should include a determination that the program can provide a level of supervision consistent with community safety and security. Programs that accept violent or serious offenders, for example, should review each youth's record carefully in light of these considerations. It is equally important that the assessment process consider the developmental needs and capabilities of prospective participants. YES activities should help meet a youth's social, educational, and vocational goals as well as contribute to healthy, supportive family relationships. YES should also ensure that each youth is physically capable of participating in the work projects planned and is able to follow safety instructions. Site selection YES programs can operate in rural or urban areas, as well as in a variety of climates and terrains. If a facility is available or can be built, programs can house participants on Federal land. Otherwise, programs can transport participants from nearby facilities or their own neighborhoods. In deciding on the best place to operate a YES program, partners must balance several considerations: o The volume and type of work available. There must be enough meaningful work available at this location, and it must be appropriate for the target population. The work must not only be appropriate to the participants' ages and abilities, but should be compatible with broader program goals for youth development and skill building. It should also meet the needs of the land manager. o Climate. Will the site be suitable for year-round work? If not, the program will need to plan for occupying the youth during the off season or periods of especially inclement weather. o Travel time. Traveling to and from the YES home base to the worksite should not be so time consuming that it crowds out educational and other important aspects of youth programming. o Existing facilities. Some Federal land may contain buildings that could be converted to program use, eliminating the need to build new facilities or transport youth daily from other locations. o Environmental issues. If the program is located on Federal land, environmental issues must be considered. There may be Federal, State, and local regulations that apply to building or working in this location. o Proximity to families and other resources. If the youth will live on or near the site, they will need to have access to educational and other kinds of programs. Providers should also consider whether the site will permit participants to remain in contact with their families. o Community concerns. YES programs must consider whether the location and the work projects chosen will be acceptable to the community, given the target population involved. Site options are likely to be more limited for a program that involves high-risk offenders than for one that enrolls student volunteers. Some sites may have too many strikes against them to be suitable for a potential partner's purposes. Most YES programs face some site constraints; however, YES is flexible enough to permit a variety of solutions. For example, some YES programs have involved more than one Federal partner or public agency, in order to be sure of having enough suitable work. If there are environmental or financial obstacles to building on Federal land, YES may be able to use an existing residential facility as a home for the program. Choosing appropriate work projects YES programs have involved youth in a variety of activities, including habitat restoration, removing unwanted vegetation, clearing a site for a visitor center, trailbuilding, working in general trades such as carpentry or masonry, and general facility and grounds maintenance. Most programs try to involve youth in a variety of projects. The primary considerations in choosing work projects are listed below. o The skill level required. YES projects generally do not require skilled labor. The skills needed are taught as part of the job. However, YES participants who are enrolled in vocational training may need or desire more skilled placements. o The age of the youth involved. In general, the younger the youth, the more restrictive are Federal and State labor laws governing working hours for minors and the types of work they may do. For example, there may be limitations on the use of power tools. Partners should familiarize themselves with these laws and seek legal advice. o Providing meaningful work or work of lasting value. While YES programs sometimes assign youth to jobs like yard maintenance or trash pickup, such repetitive, endless chores should never be the sole focus of the program. YES should include projects that build on the skills of the participants and enable them to make positive, lasting contributions to the environment. Supervision of YES participants YES programs must tailor the level of supervision of participants to the target population and the work projects involved. Above all, the staff ratio must be sufficient to ensure the safety of the community and the participants. Generally, the youth service provider is responsible for providing crew leaders or counselors to supervise YES participants. These staff members are the primary supervisors at the job site. Land management agencies typically do not have the staff to provide continual supervision, nor are they trained to deal with the special problems that young people may present on the job. Moreover, in the case of delinquent youth, it is the youth service provider who is legally responsible for their supervision. In situations in which land management staff do provide the hands-on supervision (because they are involved in teaching special skills, for example), there should be a youth service supervisor available to provide additional monitoring and to counsel youth about behavioral problems that may arise on the job. The ideal work crew supervisor brings a distinctive combination of skills. Besides having rapport with youth, the supervisor must be able to manage a crew, teach proper work habits, and serve as a role model by working alongside the team. Safety In addition to providing adequate supervision, YES programs should ensure that supervisors and youth participants have adequate training in worksite safety and the proper handling of tools. Many youth, especially those from urban areas, may be unaccustomed to outdoor work, equipment, and rustic environments. Youth need to learn how to be safe and to look out for one another's safety. Programs also should have a plan for obtaining prompt medical attention for youth or staff in case of an emergency. Land management agencies can advise youth service providers about these issues since they face the same concerns for their own staff. As a further precaution, programs should consider building first aid and cardiopulmonary resuscitation (CPR) training into the educational curriculum for YES staff and youth. Compensation of youth participants Payment to youth participants is not a requirement of the YES Program. Each program needs to decide whether paying participants is consistent with its goals and objectives. Paying wages does provide an incentive to participate, as well as an opportunity for youth to learn money management and meet obligations such as restitution and child support. However, YES participation can be rewarding for youth in other ways -- providing opportunities to get away from their neighborhood or residence and acquire work experience or references; putting them in contact with respected adults; and giving positive recognition for their efforts. Programs that pay participants will need to develop "personnel policies" governing absenteeism, illness, and the like. These programs will also need to decide whether to restrict the use of wages. A program for delinquents may require that some wages be reserved for restitution payments, for example. Some programs have paid delinquent youth in restitution or community service credits, rather than cash. Cash payments and restitution credits both require funding, however. Some funds for wages may be available through Title II-C of the Job Training Partnership Act. This assistance, administered through local Private Industry Councils, is designed for not-for-profit agencies that are providing work experience to youth ages 16 and older. Other programs have tapped funds earned from court fines. YES programs may be tempted to use the prospect of future employment with the land management partner as an incentive for youth to participate. It is true that, occasionally, YES participants with outstanding performance have been hired by a land management partner. However, YES should not be sold to youth on these grounds. Because most land management agencies are operating with very tight staffing and budgets, the average YES participant is unlikely to secure a Federal job as a result of his or her participation. Legal concerns There are three areas in which YES involves distinctive legal issues: liability for actions of youth working on Federal land, child labor, and compulsory education. In designing their program, partners should inform themselves about the Federal and State laws and regulations that govern each of these areas. Partners may also wish to consult the OJJDP-sponsored Guide to Juvenile Restitution (Schneider, 1985), which discusses liability issues for programs that place youth in paid or unpaid positions. Partners should also incorporate legal language into their agreements to make it clear that the youth service agency will provide insurance coverage for injuries to youth and staff and that this insurance coverage is not the responsibility of the Federal land manager. Appendix 4 recommends suitable legal language for this purpose. Program costs and funding Because YES programs can vary widely, a YES team's own programming experience will probably be the best guide to estimating the costs of its particular design. Whatever the design, however, putting youth to work on Federal land will require staff, work clothing, supplies, tools, and transportation. Compensation for the youth who participate in YES is optional. There is no direct Federal funding available for YES. Programs are expected to rely primarily on State and local resources, as the pilot sites have done. However, partners may want to explore the applicability of other Federal programs to their particular goals and objectives. Youth service providers may also wish to contact the State juvenile justice specialist for information about funds available to the State through the Juvenile Justice and Delinquency Prevention Act. (See appendix 6.) Startup time Many factors affect the speed of startup, including the size and complexity of the program, the availability of resources to support it, and whether it is necessary to build or renovate a residence for the participants. It took the pilot sites 3 to 9 months to proceed from exploratory meetings with the partners to placing youth participants on Federal land. Not surprisingly, none of the pilot programs constructed a new facility in this time, but two programs renovated buildings. Other implementation issues Given the diversity of YES programs, some program elements may not fit into every design. However, certain features are highly desirable. Proactive supervision. All programs are expected to have sufficient supervision to provide for the safety of the community, land management staff, and YES participants. Proactive supervision, however, is constant and close -- "within reach" as opposed to "within sight." Such supervision depends on low staff-to-youth ratios and staff who are willing to work side-by-side with youth. The primary benefit of proactive supervision is that it allows staff to anticipate and head off problems rather than react after they have become full-blown crises. It also enhances the opportunity for staff to serve as good role models. Educational curriculum. Lessons designed to integrate environmental work experience and classroom education are essential to enhancing the learning opportunities for youth. Every program should orient youth to the purpose and background of the specific projects on which they work. It is important that youth and their supervisors understand why each project is important to public lands, what their roles are, the expected outcome, and the fact that they are needed. The land management partner is often ready and willing to help with this orientation. However, YES programs involving youth for several weeks or months can do more. They can, for instance, build relevant lessons into the science curriculum. There may also be relevant applications to mathematics, history, and other subjects. Family involvement. It is widely recognized that families are a critical component of effective programming for youth. Thus, in addition to seeking any necessary parental permission, YES programs should strive to involve families in the program in a significant way. Inviting family members to a formal recognition ceremony for volunteers is one way to bring families into the picture. Longer term programs, especially those that work with delinquent youth or children in residential facilities, should make more intensive efforts to engage parents in their children's lives through family visiting, meetings with program staff, and planning for the post-program period. Programs may also bring parents to the worksite to see what their children have accomplished and schedule recreational gatherings such as picnics for youth and their families on Federal land. A strong aftercare component. Effective youth service programs include an individualized assessment to determine the type and intensity of services needed by each youth, to monitor progress, and to plan the transition to other services or settings. Many youth, especially delinquents who have been placed in a residential facility, require a period of aftercare when they complete their placement. Experience suggests that a carefully designed program of aftercare supervision, services, and support will help these youth make a more successful transition to the community. Aftercare may be the primary responsibility of the YES provider. If it is not, YES should work closely with the agency responsible for planning the transition. In either situation, overarching case management is the cornerstone of effective aftercare. Case management initially requires careful assessment and classification of the offender's risk level. For higher risk youth, case management should involve individual case planning incorporating a family and community perspective; a mix of surveillance and services; a balance of incentives and graduated consequences coupled with the imposition of realistic, enforceable conditions; service brokerage with community resources; and linkage with social networks. OJJDP will provide technical assistance to YES service providers who need help in initiating or improving their aftercare programs. (For more information about aftercare for high-risk youth, see "Other Assistance,".) Ways to enhance YES programs The possibilities for enhancing YES are virtually unlimited. Current sites are considering a number of ways to improve their programs, including the following: o Starting a work crew for youth who have participated in a residential YES program and have been released to aftercare in the community. o Expanding projects to additional Federal, State, and local agencies. o Identifying other community partners who can offer tools, materials, supplies, and funding. o Involving mentors for YES participants. o Expanding environmental education. o Training youth in conflict resolution. o Providing youth and their families with recreational experiences on Federal land. o Promoting high-quality work and youth pride by techniques such as displaying project photos at youth facilities and using work assignments as rewards. o Developing more challenging projects that require longer involvement or higher skill levels. o Increasing the number of work crews by partnering with youth service and conservation corps. Current YES sites and contacts are listed in appendix 7. ------------------------------ Operational Guidance and Resources Resources are available to assist partners in the development of a YES program. These include technical assistance from OJJDP and DOI, written materials, and participation in the YES information-sharing network. Technical assistance from OJJDP and DOI OJJDP can help partnerships secure technical assistance at two stages: during initial planning and after the YES program is underway. o Startup assistance. OJJDP and DOI have formed a technical assistance team of youth service and land management agency staff who are operating YES programs and have expertise in various YES capacities. This team will be available to assist in developing YES partnerships and refining their initial ideas. o Implementation assistance. Once a program is operating, the partnership may need a variety of more specific forms of assistance. OJJDP will broker requests for assistance, attempting to identify sources of help within OJJDP or its network of technical assistance providers, other Federal agencies, and private organizations. This technical assistance will be provided at no cost to the YES site. To request technical assistance at either point, complete the Technical Assistance Request Form in appendix 8 and return it to the OJJDP contact person. Additional resource materials OJJDP's Program Summary, YES in Action, presents more detailed descriptions of the pilot sites and explains some of the challenges they faced. This technical assistance package also includes examples of a Letter of Agreement (appendix 5) and two Memorandums of Understanding (appendix 4). These are illustrative only, but may provide a starting point. As YES expands and more information becomes available about individual programs, OJJDP will try to point prospective or current sites toward other programs with relevant materials. In addition, OJJDP has sponsored numerous programs over the years that have produced documents that may be appropriate to a program's specific needs. See the list of references provided below under "Other Assistance". For more information about these program resources, call the Juvenile Justice Clearinghouse at 800-638-8736. Communication and information sharing among sites Once a program is designated a YES site, the partners will be asked to participate in information collection and dissemination across all YES sites. This will involve the following items: o Using a standard format, the youth service agency partner will be asked to share information regularly on topics such as the number and characteristics of youth served, the hours of work completed, the amount of restitution earned, the type of work undertaken, and any recent developments, issues, or accomplishments. o Partners will have an opportunity to attend occasional meetings where they can get to know representatives from other YES sites and share best practices, innovations, and success stories. o The program will need to appoint a contact person(s), whose name will be shared with others in the YES network. (A list of contacts for the current sites can be found in appendix 7.) ------------------------------ Federal Contacts for the YES Program For more information about the YES Program, please contact either of the following Federal agency representatives: Kristen Kracke Program Manager Office of Juvenile Justice and Delinquency Prevention U.S. Department of Justice 633 Indiana Avenue NW. Washington, DC 20531 202-307-5914 Fax: 202-514-6382 E-mail: krackek@ojp.usdoj.gov Bob Buechner Senior Program Specialist Office of National Service and Educational Partnerships U.S. Department of the Interior 1849 C Street NW., Room 5221 Washington, DC 20240 202-208-4753 Fax: 202-208-3620 E-mail: robert_buechner@ios.doi.gov ------------------------------ Other Assistance References Most of the following references are available from the Juvenile Justice Clearinghouse at 800- 638-8736. Clearinghouse reference numbers appear in parentheses. Aftercare Altschuler, D.M., and T.L. Armstrong. 1995. "Managing Aftercare Services for Delinquents." In B. Glick and A. Goldstein, eds. Managing Delinquency Programs That Work. Laurel, MD: American Correctional Association. (NCJ 154391) Altschuler, D.M., and T.L. Armstrong. 1994 (September). Intensive Aftercare for High-Risk Juveniles: A Community Care Model. Washington, DC: Office of Juvenile Justice and Delinquency Prevention, U.S. Department of Justice. 20 pp. (NCJ 147575) Altschuler, D.M., and T.L. Armstrong. 1994 (September). Intensive Aftercare for High-Risk Juveniles: Policies and Procedures. Washington, DC: Office of Juvenile Justice and Delinquency Prevention, U.S. Department of Justice. 28 pp. (NCJ 147712) Comprehensive approaches to delinquency prevention and intervention Guide for Implementing the Comprehensive Strategy for Serious, Violent, and Chronic Juvenile Offenders. Bulletin. 1995 (June). Washington, DC: Office of Juvenile Justice and Delinquency Prevention, U.S. Department of Justice. 6 pp. (NCJ 153571) Howell, J.C., ed. 1995 (May). Guide for Implementing the Comprehensive Strategy for Serious, Violent, and Chronic Juvenile Offenders. Washington, DC: Office of Juvenile Justice and Delinquency Prevention, U.S. Department of Justice. (NCJ 153681) Wilson, J.J., and J.C. Howell. 1994 (June). Comprehensive Strategy for Serious, Violent, and Chronic Juvenile Offenders. Program Summary. Washington, DC: Office of Juvenile Justice and Delinquency Prevention, U.S. Department of Justice. 46 pp. (NCJ 143453) Family strengthening Cantelon, S.L. 1994 (March). Family Strengthening for High-Risk Youth. Fact Sheet #8. Washington, DC: Office of Juvenile Justice and Delinquency Prevention, U.S. Department of Justice. (NCJ FS009408) Kumpfer, K. 1993 (September). Strengthening America's Families: Promising Parenting Strategies for Delinquency Prevention. User's Guide. Washington, DC: Office of Juvenile Justice and Delinquency Prevention, U.S. Department of Justice. 105 pp. (NCJ 140781; $13 U.S., $17.50 Canada and foreign) Kumpfer, K. 1994 (September). Family Strengthening in Preventing Delinquency: A Literature Review. Washington, DC: Office of Juvenile Justice and Delinquency Prevention, U.S. Department of Justice. 76 pp. (NCJ 150222; $13 U.S., $17.50 Canada and foreign) Wright, K.M., and K.E. Wright. 1994 (May). Family Life, Delinquency, and Crime: A Policymaker's Guide. Washington, DC: Office of Juvenile Justice and Delinquency Prevention, U.S. Department of Justice. 65 pp. (NCJ 140517) Restitution and balanced and restorative justice Bazemore, G. 1994 (September). Balanced and Restorative Justice. Washington, DC: Office of Juvenile Justice and Delinquency Prevention, U.S. Department of Justice. 16 pp. (NCJ 149727) Schneider, A.L., ed. 1985. Guide to Juvenile Restitution. Washington, DC: Office of Juvenile Justice and Delinquency Prevention, U.S. Department of Justice. 162 pp. (NCJ 098466) Organizations National Association of Service and Conservation Corps (NASCC) 666 11th Street NW., Suite 500 Washington, DC 20001 202-737-6272 Fax: 202-737-6277 NASCC is a national membership organization for youth corps with programs that enroll, train, educate, and provide full-time community service opportunities and a living allowance for youth ages 16 to 25. It also offers affiliate membership to individuals and organizations that do not operate youth corps, but are interested or involved in environmental and community service projects. NASCC provides technical assistance and training, resource materials, and conferences for members and other interested parties. It can also provide information about youth corps programs that are operating in each State. Student Conservation Association (SCA) Headquarters P.O. Box 550 Charlestown, NH 03630 603-543-1700 SCA is a private, nonprofit, educational organization providing high school and college students and persons who are out of school with the opportunity to volunteer their services for the better management and conservation of our Nation's parks, forests, wildlife refuges, and other public and private lands. SCA program participants are involved in work and service opportunities ranging from a few hours or days to year-round career development programs. The organization also provides technical training in wilderness leadership management and outdoor work skills for conservation professionals, corporate groups, and individuals interested in leadership, team building, and trail maintenance. In addition to its headquarters office, SCA also maintains offices in California, Colorado, New Jersey, Virginia, and Washington State. ------------------------------ Appendix 1 Official Memorandum of Understanding Between the U.S. Department of Justice and the U.S. Department of the Interior for the Youth Environmental Service Program This is available in the PDF version or in hard copy. ------------------------------ Appendix 2 Profiles of YES Programs in Action Six pilot sites were established in Florida, Utah, and Washington, D.C., during 1994. Profiles of these sites reflect the diversity and flexibility of the YES initiative. Big Cypress Wilderness Institute, Ochopee, Florida Big Cypress Wilderness Institute is currently a satellite of Last Chance Ranch operated by Florida Environmental Institute (FEI), a local affiliate of the Associated Marine Institutes (AMI). Last Chance Ranch is a residential program for serious male juvenile offenders, ages 15 to 17. Twelve youth from the Ranch participate in YES. They stay in a remodeled house on the preserve, along with crew supervisors, a teacher, and support staff. At Big Cypress the youth help the national preserve staff maintain the preserve headquarters and two roadside visitor centers. They also assist with ecosystem restoration. FEI and the Park Service staff are enthusiastic about the YES experience, believing that it has paid off for both partners. YES will expand dramatically in summer 1996, when it relocates to the first facility in the Nation constructed especially for YES. Located on Federal land at Big Cypress, this program will provide a wilderness experience where residents participate in schooling and work projects on alternate days. The program, to be operated by AMI, will also include counseling and individualized aftercare. State funds will support construction and operation of the facility, designed to provide an alternative to secure institutional placement for up to 30 youth. Loxahatchee Environmental Project, Palm Beach County, Florida YES is one of several vocational programs operated by Banyan Halfway House, a 4- to 6-month nonsecure residential program for nonviolent repetitive juvenile offenders, ages 16 to 18. Banyan House is designed to put the principles of balanced and restorative justice into action. Residents are assigned a "vocation" at which they work for pay, with 50 to 75 percent of a resident's earnings going to restitution, child support, or other financial obligations. Youth work 4 days a week and attend school on the fifth day. The YES initiative, known as the Loxahatchee Environmental Project, provides landscape labor experience for five Banyan House residents. The program takes place at Arthur R. Marshall Loxahatchee National Wildlife Refuge and Hobe Sound, lands managed by the U.S. Fish and Wildlife Service. Because the swampy conditions make it impossible to build at Loxahatchee, this YES site operates as an offsite program, with Banyan House transporting residents in for work. Once on location at Loxahatchee, youth work primarily on exotic plant control. Because the maximum stay at Banyan House is 6 months, new crews begin work every 4 to 5 months. The experience kicks off with a 3-day orientation at Loxahatchee conducted by refuge staff. As of February 1996, 10 crews of 5 youth have completed the program, and another crew is at work. In spring 1995, Banyan House took over responsibility for providing aftercare from State Department of Juvenile Justice workers. The new aftercare program consists of customized transition planning beginning the day a youth enters Banyan House, followed by intensive supervision, vocational placement, and counseling for up to 9 months after release. The youth participants value the program and consider Loxahatchee a "status" assignment. Program staff and refuge staff also are pleased with the YES initiative. Plans for the YES initiative include potential expansion in the number of work crews and/or the development of a "reentry" crew of youth who no longer reside at the facility but continue to report for work at Loxahatchee. Genesis Youth Center, Salt Lake City, Utah Genesis Youth Center is a 72-bed, community-based work program designed to hold youth accountable for their actions and enable them to make restitution to their victims. The program works with males ages 14 to 18 who are serving 30- to 120-day sentences. Services are available to three types of youth: juvenile probationers; youth who receive regular commitments to the State Division of Youth Corrections (DYC); and youth in transition from DYC secure care to community residence. In the first 6 months, 178 youth participated in the Genesis program, earning a total of $103,789 in victim restitution. Youth work 6 days a week on a variety of projects with public agencies. The program's YES partner is the U.S. Bureau of Land Management (BLM), which has put youth to work preparing the site for a new Wild Horse and Burro Center and improving recreational areas. Activities have included clearing trash, removing fences, putting down fertilizer, and trailbuilding. Genesis youth have also participated in other BLM projects. At one location, youth helped place a memorial plaque, cleared the surrounding area, and built buck-and-post fencing. Youth crews also helped construct mountain bicycle trails on an island in the Great Salt Lake. To add an element of fun, BLM incorporates cookouts and barbecues into the work projects. BLM staff work with the youth while they are on assignment to BLM, exposing them to positive adult role models. Upon release from Genesis, youth who are referred to the program directly by the court are returned to the supervision of a probation officer. For a youth who enters the program through DYC, responsibility for aftercare rests with his DYC case manager, who also is responsible for his initial referral to Genesis. In general, BLM projects are viewed as providing meaningful work and lasting benefits to the community, in contrast to assignments like yard work performed for some other agencies. BLM's Salt Lake City District reports that the young offenders have been some of the best workers they have had on natural resource projects -- a much more positive outcome than originally anticipated. DYC and Genesis staff hope to expand the range of Federal and other public work placements in the future. Southwest Youth Center Work Release Program, Cedar City, Utah The Southwest Youth Center maintains a detention facility for up to 10 youth from a 3-county area in the southwestern corner of Utah. The work release program is conceived as an alternative to secure detention, providing youth with an opportunity to avoid the negative effects of confinement, learn valuable skills and teamwork, work off court-ordered debts, and give something back to the community. The program is open to males and females ages 12 to 17 who are serving sentences of up to 30 days in detention. Most of the youth involved are adjudicated for felony-level offenses or are probation violators. The program currently involves five client agencies -- the BLM, the U.S. Forest Service (USFS), Southern Utah University, Cedar City Corporation, and Iron County. These organizations have agreed to rotate responsibility for providing work projects at 2-month intervals. Projects with BLM and USFS have involved trail construction and maintenance, sign placement, bridge work, mixing seeds used to reseed burned areas, and some campground maintenance. The youth attend school daily for 2 1/2 hours. The Center's work crew supervisor transports youth to the worksite each day, returning them by late afternoon. Youth who live nearby may be allowed to live at home and report to the Center each day for school and work. Youth released from detention and the YES program remain under the jurisdiction of the juvenile court to complete their terms of probation or other court-ordered obligations. In the first 3 months, 34 youth, including 8 females, participated in the work release program, averaging 48 hours of work each. Youth appear to like the work and prefer it to sitting in the detention center. YES partners are quite satisfied with their experiences so far. BLM and USFS feel that the help they get more than justifies the time they invest in the program. The Center is also pleased and eager to have the program filled to capacity, a fact that is contingent on the number of court sentences to detention. Greater Washington Boys & Girls Clubs Student Volunteer Program, Washington, D.C. The Boys & Girls Clubs look to the YES initiative to provide inner-city children a valuable set of opportunities -- a chance to contribute something to their communities, develop a work ethic, and learn about nature and the environment. Many urban club members have little experience with woodlands and wildlife and are unaware of the work required to protect and maintain them. Staff also hope that, through learning about nature, youth will develop a greater appreciation of all life, counteracting the negative examples they encounter daily in the media and their own neighborhoods. YES participants are selected from two clubs serving public housing projects. They range in age from 8 to 14. Each club handles its own recruitment and selection, using YES both as a reward for good behavior and an incentive for improved performance in other areas. Work projects are developed by the National Park Service. Volunteer crews of five youth attend Saturday activities at Rock Creek Park in 2-week cycles (2 weeks on, 2 weeks off) for 8 weeks. During these visits, youth have participated in educational sessions conducted by the park rangers and have assisted in trail cleanup and yard work, exotic vegetation control, building animal cages, and painting parts of the Nature Center. At the start of each task, rangers explain the rationale for the work and the necessary techniques. During the first 6 months of the program, 18 girls and 24 boys participated, contributing a total of 260 hours of volunteer labor. The Boys & Girls Clubs would like to expand the initiative to more clubs, and park rangers would like to develop more projects. For example, the children expressed interest in doing similar cleanup and environmental projects in their own neighborhoods. In the summer of 1995, program participants conducted a cleanup effort in a local public housing development. In addition, the club staff hope to arrange an overnight camping trip for club members to the Chincoteague Wildlife Refuge in eastern Virginia in the summer of 1996. Club staff also hope to enlist members in developing additional beautification projects for their areas, using the rangers as resource persons to review and offer feedback on their plans. City Lights Park Program, Washington, D.C. The City Lights Park Program is a nonresidential program providing part-time work experience to court-involved youth ages 16 and older. Participants come to City Lights, an alternative school for troubled youth, through a referral by their Youth Services Administration (YSA) aftercare worker. All have spent time in correctional institutions. YSA youth participate in the City Lights vocational program, which combines general equivalency diploma (GED) preparation with vocational counseling and hands-on training in carpentry or business education. Students can volunteer for the Park Program after completing a 2-week assessment period at City Lights. The Park Program works with the National Park Service at the nearby Brentwood maintenance facility. This facility has carpentry, metal craft, and paint shops as well as administrative offices, and is responsible for maintenance of Federal parks in downtown Washington. Project youth spend 2 days a week working at the Brentwood facility under the direction of Park Service shop supervisors. They participate in the regular City Lights routine on other school days. A City Lights counselor transports youth to the worksite and remains there to monitor their performance, troubleshoot, and provide supervision and counseling during the lunch break. Students earn minimum wage for their work after completing a 30-day probationary period. In the first 6 months, 11 youth participated in the Park Program. Most students appear to like the program and receive good evaluations from their supervisors, although they struggle to meet strict attendance requirements. Park Service personnel view the arrangement as beneficial to the students and their agency. City Lights staff believe the program offers real-world learning experiences that the students need and that participation will also eventually give some students job references. The program has earned YSA's approval to continue beyond the pilot phase. ------------------------------ Appendix 3 Definitions This section is intended to help clarify and define terms that appear frequently in the main text of this technical assistance package. The definitions given here are standard definitions recognized in the juvenile justice field and have not been specifically modified for the YES Program. Therefore, definitions should not be viewed as eligibility standards for YES. Adjudicated delinquent: Term used in the juvenile court system to characterize offenders who have been found guilty of the charges against them or have formally admitted the charges. Analogous to a conviction in adult criminal court. Aftercare: The control mechanisms and array of services directed toward juvenile offenders currently or recently in residential placement. Aftercare is designed to prepare youth for progressively increasing responsibility and freedom in the nonresidential setting; to ensure continuity between the youth's developmental goals and objectives in the residential and nonresidential settings; and to activate the community resources and supports (e.g., families, peers, schools, employers) needed for the youth's successful community adjustment. At-risk youth: Juveniles most likely to become involved in delinquent activity. Includes, but is not limited to, juveniles who exhibit one or more risk factors for delinquency or who have had contact with the social services, mental health, education, and/or juvenile justice systems as nonoffenders (neglected, abused, and dependent), status offenders (runaways, truants, alcohol offenders, and incorrigibles), or delinquent offenders. Delinquent offender: A juvenile who has committed an act that would be considered a crime if committed by an adult and who has been adjudicated (found) delinquent for that offense by a juvenile court. Detention facility: Residential facility designed to house accused offenders who are awaiting court proceedings or offenders who are awaiting transfer to other locations. Sometimes also used as a placement for offenders who are serving short-term sentences. Federal land manager or land management agency: An agency (or agency official) responsible for administration of Federal land. Federal land management agencies include the Bureau of Land Management, the U.S. Fish and Wildlife Service, the National Park Service, and the Bureau of Reclamation, all within the U.S. Department of the Interior; the Forest Service in the U.S. Department of Agriculture; and the U.S. Army Corps of Engineers in the U.S. Department of Defense. Nonviolent offender: An offender who has committed or been convicted of a property crime, such as burglary, theft, or vandalism; an offense against public order, such as public drunkenness or disorderly conduct; or a drug offense that does not involve violence or the threat of violence. State statutes often contain more specific definitions. Serious offender: An offender who has committed or been convicted of one or more felony offenses or has a long history of offending. A specific definition of a serious offender may also be established in State statutes or sentencing guidelines and will vary from State to State. Violent offender: An offender who has committed or been convicted of a crime against a person, such as robbery, assault, rape, or murder. State statutes often contain more specific definitions of violent offenses or offenders and establish special procedures and sentencing requirements for them. Youth service agency: A private or governmental organization that develops and operates, directly or by subcontract, programs for children and youth. ------------------------------ Appendix 4 Sample Memorandums of Understanding or Agreement This appendix includes two of the Memorandums of Understanding or Agreement used by the pilot YES programs. These memorandums are presented as examples only, to provide a starting point for organizations that may be developing a YES partnership. Each example has its own relative strengths and weaknesses. Therefore, they should not be copied exactly, but should be modified as necessary and used to stimulate partners' thinking about their own needs. Partners should seek legal assistance in developing their memorandum and ensuring that they incorporate the essential elements. One such example of essential elements involves the inclusion of language stating that insurance is provided by the youth-serving agency and that the Federal land managers are not liable for injuries. When a party to the agreement is a private nonprofit agency, the following legal language is recommended: "The [name of organization responsible] shall maintain liability insurance to cover sickness, accidents, or death of individuals engaged in any activity conducted under this agreement." This provision should follow paragraphs that define the liability and responsibility of the various parties to the agreement. Student Volunteer Program Agreement Between Greater Washington Boys & Girls Clubs and the National Park Service, National Capital Region This agreement constitutes a mutual understanding between the U.S. Department of the Interior, National Park Service, National Capital Region (NCR) and the Greater Washington Boys & Girls Clubs, hereinafter called "the club," in matters relating to aiding at-risk youth who are enrolled for the volunteer service, under the Volunteer-in-Parks Act, P.L. 91-357, enacted in 1970. I. Definitions A. Volunteer service. Under P.L. 91-357, the Volunteer-in-Parks Act, individuals and groups may donate their time and talents to the National Park Service and volunteers can be covered for tort liability and workmen's compensation in case of injury or on-the-job accidents. B. A student is an individual who is enrolled not less than half-time in a public school. C. A half-time student is one enrolled in and carrying any combination of courses, research projects, or special studies that meet one-half, or 50 percent, of the minimum full-time academic workload standards and practices of the institution in which the student is enrolled. II. Objectives The acceptance of student volunteer service enables the National Capital Region to contribute significantly to the enrichment of the Boys & Girls Clubs programs. In addition to enriching the educational process, program objectives are: A. To bring about a stronger relationship between the efforts of educators and the occupational needs of Federal employers and students. B. To provide opportunities for students to become involved in early career exploration as a basis for making realistic decisions regarding their futures. C. To provide exposures to the work environment as a means of encouraging students to develop work ethics and to acquaint them with the mission of the National Park Service. D. To allow student learners to make substantial contributions by volunteering their time and efforts in exchange for an opportunity to work with parks in the completion of work projects relating to historical structures. E. To encourage student interest in new or developing skills in newly explored areas offered by urban parks. III. Responsibility A. The Boys & Girls Clubs will: 1. Designate a representative to work with the designated park liaison officer. 2. Publicize the student volunteer program among prospective candidates. 3. Refer qualified students to the volunteer program without regard to sex, religion, national origin, race, or color. 4. Coordinate the academic experience of students to ensure that they are receiving maximum benefits from participation in the volunteer program. 5. Furnish the designated park liaison officer with any necessary data and information about the students, which the club is authorized to release or which is subject to signed release by the parents. 6. Notify the designated park liaison officer when a student no longer qualifies to participate in the volunteer work program or drops out of school. 7. Periodically monitor and evaluate the students' progress at the parks through onsite visits. 8. Provide an onsite counselor to work with the students during their projects with the National Park Service at a ratio of one counselor to eight students. 9. Ensure that all transportation needs are provided for at all times. B. The park will: 1. Designate a staff member who will serve as liaison to the Boys & Girls Clubs. 2. Keep the Boys & Girls Clubs informed of student volunteer/learning program opportunities. 3. Consider students recommended by the Boys & Girls Clubs for participation in the program without regard to sex, religion, national origin, race, or color. 4. Establish schedules that accommodate the calendar of the Boys & Girls Clubs to enable the students to meet the objectives of this agreement. 5. Handle personnel processing related to acceptance of volunteer students. 6. Provide the necessary related orientation to all students and maintain attendance and performance records. 7. Provide the students with meaningful work projects related to the Boys & Girls Clubs' program objectives and aid the club supervisor in guiding the students in carrying out the assignments. 8. Conduct periodic evaluations of the group's performance and furnish an appraisal. 9. Notify the Boys & Girls Clubs as far in advance as possible of any anticipated recommendation to terminate the program. C. The student will: 1. Maintain grades predictive of graduation from school. 2. Demonstrate a continuing interest in and commitment to all phases of the program. 3. Provide the park and the Boys & Girls Clubs with necessary evaluation reports if required. IV. Student Eligibility and Status A. Minimum age. All selection of students to participate will be in conformance with Federal, State, and local laws and standards regarding the employment of minors. B. Status. Students participating under agency programs are not considered to be Federal employees for any purposes other than for purposes: 1. Of the Federal Tort Claims provisions published in 28 U.S.C., 2671-2680. Claims arising as a result of student participation are to be administratively processed by the agency in accordance with regulations of the Department of Justice (28 U.S.C. 2672). 2. Of Title 5 U.S.C. Chapter 81, relative to compensation for injuries sustained during the performance of work assignments. Claims related to injuries will be referred to the Office of Workers' Compensation Programs, U.S. Department of Labor, for adjudication. C. Parental consent. The Boys & Girls Clubs assume responsibility for ensuring the preparation and signing of a participation form by participating students, their custodial parents, and the Boys & Girls Clubs volunteer coordinator. V. Work Schedules The park and the Boys & Girls Clubs will work together to develop schedules to meet the following requirements: A. Work periods will be scheduled during school year and summer terms. B. All students must volunteer on a schedule planned in advance rather than on an intermittent or "when needed" basis. VI. The Agreement The conditions of this agreement are in general conformity with Federal regulations. It is understood, however, that the conditions at no time supersede, alter, or take the place of such regulations. Changes or modifications that are not required by new laws or regulation will be made only by the written and mutual consent of the park and club. Term of the Agreement For: National Park Service Agency's Representative For: The Club Club Representative Human Resource Agreement Between Southwest Utah Youth Center and Cedar City District Bureau of Land Management, U.S. Department of the Interior, 1994 THIS AGREEMENT, made and entered into by and between Southwest Utah Youth Center, hereinafter referred to as SWUYC, and the Cedar City District Bureau of Land Management, U.S. Department of the Interior, hereinafter referred to as BLM. WITNESSETH: WHEREAS, SWUYC has established, maintains, and operates a Juvenile Detention Center; and, WHEREAS, SWUYC is desirous of participating in a conservation work program as a means of providing healthful, wholesome, and educational outdoor activity, valuable job training, and a development program for youth housed at the SWUYC or otherwise committed to Youth Corrections for 1 to 30 days; and, WHEREAS, SWUYC has accepted responsibility for supervision of the aforementioned conservation work program; and, WHEREAS, SWUYC is vitally interested in the conservation of the natural resources of the United States, and is desirous of lending its aid and support for the protection, development, and improvement of public land administered by BLM; and, WHEREAS, it is to the mutual benefit of SWUYC and BLM to assist and cooperate in a program of intensifying and, where possible, developing the public lands resources and doing necessary improvement work in such ways as will contribute to the public welfare: A. SWUYC shall: 1. See to it that youth between the ages of 12 and 18 from SWUYC are adequately clothed to do natural resource work. Youth shall be selected from those who are screened or are court ordered to do such natural resource work. Labor details will be available for 8 hours a day, including travel time, Tuesday, Wednesday, Thursday, Friday, and Saturday for 40 hours a week, or as otherwise provided in the annual work and financial plan. 2. Provide all necessary medical attention, including first aid, on the work projects and shall provide BLM written instructions outlining the procedure that SWUYC desires to have followed in case of serious injury to or illness of youth while on work projects. 3. Be responsible for supervision and transportation to and from worksites for the youth. 4. Keep a daily log of the number of individuals working, the quality of each individual's work performance, and their hours and mileage to and from the worksite, verified by a BLM representative knowledgeable of work performance. 5. At all times, have full jurisdiction over and be responsible for discipline and control of youth assigned for BLM use under this agreement; and shall provide the necessary security personnel to accompany crews while on project work. 6. Instruct the SWUYC work supervisor that he shall receive from BLM the designation of work to be done and the name of the BLM foreman under whose technical direction the work is to be done. 7. In connection with the performance of work under the agreement, not discriminate against any youth because of age, sex, race, religion, color, or national origin. 8. Acquaint BLM personnel providing technical assistance to youth with policies of SWUYC. Copies of these policies shall be furnished to BLM prior to commencement of any work. 9. Meet the compliance requirements of Executive Order 11755. B. BLM shall: 1. Provide work projects on a rotating schedule with the expectation that they be completed by work crews furnished by SWUYC. 2. Assign a fully qualified and experienced BLM officer to provide the technical direction for the SWUYC work supervisor on all programs undertaken within the terms of this agreement. This BLM officer shall give specific direction as to what and how project work is to be done, provide technical advice, make necessary corrections or changes in program design, give final approval of project work before crews proceed to the next job, and instruct crews in safe working procedures and proper use of tools. The BLM officer will conduct safety briefings and necessary training with the crews. In the event that the work crews do not produce the required amount of work, do not meet BLM standards, or do not work in a safe manner, the BLM officer shall advise the SWUYC Liaison Officer. 3. Provide all essential tools, equipment, and material to conduct the project work to be performed by the youth. 4. Prepare annually, as of September 1, a report of youth accomplishments on BLM projects during the previous fiscal year and furnish a copy of the report to SWUYC. (Work performed by SWUYC will be free of charge.) C. It is mutually agreed that: 1. Work to be performed shall be based on the needs of BLM and shall be agreed upon by both parties in the annual work plan prepared prior to September 1 annually, for the coming year. 2. BLM shall provide and maintain all tools and keep them in a safe and workable condition. 3. Any BLM facilities or land resources developed or improved under this agreement shall be and remain the property of the U.S. Government. 4. BLM personnel shall submit a progress report on the youth under their technical administration upon request of SWUYC. 5. Youth placed under this program are not Federal employees for the purpose of laws administered by the Office of Personnel Management and do not have title to any Federal benefits such as insurance, retirement, and leave. BLM shall have no responsibility for payment of expenses of youth, for which SWUYC has full and exclusive responsibility. BLM shall not be liable for the misconduct or unauthorized absence of youth. 6. BLM shall not be liable for sickness, accidents, or death of individuals engaged in any activity conducted under this agreement, unless caused by the negligence of the United States. 7. Work performed under this agreement shall not displace regular employees, impair contracts for services in existence during the course of the agreement, exploit youth labor, or compete with free labor in production of goods or services. 8. Nothing in this agreement shall be construed as obligating BLM to expend, or as involving the United States in any obligations for the future payment of, money in excess of appropriations authorized by law and administratively made available for this work. 9. Either party may terminate this agreement by providing 30 days' written notice; unless terminated by written notice, this agreement shall remain in force indefinitely. 10. Environmental education, including instructions to the participant of the importance and significance of BLM or public land, shall be provided once a month. D. Designated Representatives The following will serve as "Designated Representatives": SWUYC: [name, address, telephone number] Work Supervisor: [name, address, telephone number] BLM: [name, address, telephone number] IN WITNESS THEREOF, the parties have executed this agreement as of the last date written below. Associate Regional Director Date District Manager, Cedar City District BLM Date ------------------------------ Appendix 5 Sample Letter of Agreement The following sample letter may be used when submitting YES concept papers and should be signed by all partners. The letter of agreement and the concept paper should be mailed to the Federal contacts listed in this document. Dear: The signatories to this letter have developed the attached concept paper for the establishment of a Youth Environmental Service (YES) program and request that the Office of Juvenile Justice and Delinquency Prevention and the Department of the Interior designate the proposed program as a YES site. We believe this mutually agreed upon concept paper addresses key elements and criteria for YES programs as set forth by the Department of Justice and the Department of the Interior. Upon approval to proceed, the parties agree to pursue implementation of a YES program. The parties understand that as part of implementation, they are encouraged to enter into a Memorandum of Understanding or Agreement with an accompanying management action plan that prescribes specific roles and responsibilities and full operational plans and requirements. The parties hereto have signed their names and executed this letter of agreement on the dates indicated below. FEDERAL LAND MANAGEMENT AGENCY Name Date STATE OF [name of State] Name Date YOUTH SERVICE PROVIDER Name Date Attachment ------------------------------ Appendix 6 Information on State Resources and How To Contact Them As defined in the Juvenile Justice and Delinquency Prevention (JJDP) Act of 1974, as amended, funding is provided to States for the prevention, intervention, and treatment of juvenile delinquency. The Chief Executive Officer is responsible for designating the State agency with the responsibility for carrying out the requirements of the JJDP Act. In addition, a Juvenile Justice Specialist is appointed and has responsibilities for developing a Three-Year Plan and administering the Formula Grants Program, which provides grants to local units of government and private nonprofit organizations to prevent and control delinquency. The JJDP Act provides for a State Advisory Group (SAG), which is appointed by the Chief Executive Officer, consisting of not less than 15 and not more than 33 members who have training, experience, or special knowledge concerning the prevention and treatment of juvenile delinquency or the administration of juvenile justice. The SAG Chair is designated by the Chief Executive Officer and is responsible for ensuring the SAG's participation in the development and implementation of the State's JJDP Three-Year Plan. These agencies and individuals may be a resource to support efforts to develop YES programs. The Juvenile Justice Clearinghouse maintains a current list of the names, addresses, and telephone and fax numbers of the directors of the State agencies charged with carrying out the requirements of the JJDP Act, the State Juvenile Justice Specialists, and the chairs of the State Advisory Groups. To obtain this information, call the Juvenile Justice Clearinghouse at 800-638-8736. ------------------------------ Appendix 7 List of Contacts at Current YES Sites Big Cypress Wilderness Institute, Ochopee, Florida Mr. Steve Ray Department of Juvenile Justice 2732 Centerview Drive Tallahassee, FL 32399-3100 Phone: (904) 487-9818 Fax: (904) 922-6189 Mr. Wally Hibbard Big Cypress National Park U.S. Department of the Interior National Park Service HCR 61 S.R. -- Box 110 Ochopee, FL 33943 Phone: (813) 695-2000, ext. 22 Fax: (813) 695-3007 Mr. O.B. Stander, Executive Vice President of Operations Associated Marine Institute 5915 Benjamin Center Drive Tampa, FL 33634 Phone: (813) 887-3300 Fax: (813) 889-8092 Loxahatchee Environmental Project, Palm Beach County, Florida Mr. Gregory Johnson, Juvenile Justice Manager, District 9 State of Florida Department of Juvenile Justice 111 Georgia Avenue West Palm Beach, FL 33401 Phone: (407) 837-5730 Fax: (407) 837-5141 Ms. Linda Morgan, Director of Operations Juvenile Services Program, Inc. 1199 West Lantana Road, Building 3 Lantana, FL 33462 Phone: (407) 540-1206 Fax: (407) 540-1204 E-mail: JPJM15A@Prodigy.com Mr. Burkett Neely, Jr., Refuge Manager Loxahatchee National Wildlife Refuge 10216 Lee Road Boynton Beach, FL 33437-4796 Phone: (407) 732-3684 Fax: (407) 369-7190 Genesis Youth Center, Salt Lake City, Utah Mr. Glenn Foreman, Public Information Officer Bureau of Land Management U.S. Department of the Interior 2370 South 2300 West Salt Lake City, UT 84119 Phone: (801) 977-4300 Fax: (801) 977-4397 Mr. Dan Maldonado, Assistant Director Utah Division of Youth Corrections Department of Human Services 120 North 200 West, Room 419 Salt Lake City, UT 84103 Phone: (801) 538-4330 Fax: (801) 538-4334 Mr. Gary Webster, Director Genesis Youth Center 14178 South Pony Express Road Draper, UT 84020 Phone: (801) 576-6700 Fax: (801) 576-4064 Southwest Youth Center Work Release Program, Cedar City, Utah Mr. Arthur L. Tait, Area Manager Bureau of Land Management U.S. Department of the Interior 176 East D.L. Sergeant Drive Cedar City, UT 84720 Phone: (801) 586-2401 Fax: (801) 586-3093 Mr. W. Kent Traveller, Recreation/Lands Specialist U.S. Forest Service Dixie National P.O. Box 627 Cedar City, UT 84720 Phone: (801) 865-3200 Fax: (801) 865-3791 Mr. EdWynn S. Weaver, Treatment Supervisor Southwest Utah Youth Center 270 East 1600 North Cedar City, UT 84720 Phone: (801) 586-4880 Fax: (801) 586-3250 Greater Washington Boys & Girls Clubs Student Volunteer Program, Washington, D.C. Mr. Kenneth Darden, Executive Director Greater Washington Boys & Girls Clubs 1320 Fenwick Lane, Suite 800 Silver Spring, MD 20910 Phone: (301) 587-4315, ext. 1306 Fax: (301) 587-8120 Ms. Veronica Dolsey, Youth Programs Coordinator National Park Service National Capital Region U.S. Department of the Interior 1100 Ohio Drive SW., Room 134 Washington, DC 20242 Phone: (202) 619-7055 Fax: (202) 358-3600 City Lights Park Program, Washington, D.C. Mr. Reginald Burke, Program Director City Lights School 62 T Street NE. Washington, DC 20002 Phone: (202) 832-4366 Fax: (202) 832-3654 Ms. Veronica Dolsey, Youth Programs Coordinator National Park Service National Capital Region U.S. Department of the Interior 1100 Ohio Drive SW., Room 134 Washington, DC 20242 Phone: (202) 619-7055 Fax: (202) 358-3600 ------------------------------ Appendix 8 YES Technical Assistance Request Form Sites interested in accessing technical assistance to develop or operate the elements of a YES program should complete this form and submit it to Kristen Kracke, Program Manager, Office of Juvenile Justice and Delinquency Prevention, U.S. Department of Justice, 633 Indiana Avenue NW., Washington, DC 20531 (fax: 202-514-6382). Contact person: Agency: Address: Telephone: YES site location: Type of technical assistance requested: (Please describe the need or interest in as much detail as possible, including the nature of the technical assistance requested and the persons to be involved. Attach additional sheets as needed.)