Working with Performance-based Standards Oregon Youth Authority

How did Performance-base Standards start The 1994 Congressionally-mandated Conditions of Confinement study of about 1,000 facilities across the country found the programs to be dangerous for youths and staff and lacking adequate services. In 1995 the Office of Juvenile Justice and Delinquency Prevention (OJJDP) launched a major initiative to improve the conditions of confinement in juvenile facilities, now known as the Performance-based Standards (PbS) project. The Council of Juvenile Correctional Administrators (CJCA) was awarded the grant to develop, test, and implement a set of national goals and standards for youth correction and detention facility operations.

PbS Overview PbS is a national performance outcomes program for state and county facilities to ensure they keep youths and staff safe, hold youths accountable and provide effective rehabilitation services that prevent future crime. The program establishes national standards setting the highest expectations for all aspects of facility operations: safety (ie injuries, suicidal behavior), order (behavior management, use of restraints and isolation), security (escapes), programming (education, vocational training), provision of health and mental health services, preparation of youths to return to the community and overall fairness of the environment.

PbS and OYA Overview During 1999, the Oregon Youth Authority (OYA) implemented PbS at all of its Youth Correctional Facilities and one detention facility. PbS provided an important addition to the agency’s quality assurance efforts and became a prominent part of legislative/budget presentation. Presently all OYA Youth Correctional Facilities and Camps participate in the program.

Continuous Improvement PbS Philosophy of Change Continuous Improvement PbS builds performance improvement and accountability into agency and facility operations using a three part continuous improvement cycle: Data Collection Twice a year participating facilities collect information about the youths, the staff, unusual incidents and conduct climate surveys. The information is entered into the PbS website. Performance Reports and Outcome Measure Analysis At the end of each data collection period the information is calculated and reported back in the form of about 100 outcome measures that indicate how well the facilities are meeting the standards. Facilities are given analysis tools to identify what works and what needs to be improved. For Example, facilities see outcome data comparing to their previous data collections and to the PbS field. Facility Improvement Plans Using the analysis of the data, facilities work with an assigned PbS coach to develop a Facility Improvement Plan (FIP), which is entered into the website and monitored for effectiveness by facility staff, agency leaders and the PbS coach.

PbS Data Collection Domains The PbS model presumes that all areas of facility operation have some impact on the others. These relationships among the seven areas are reciprocal and changes in any area have impact across the facility.

PbS Data Collection Domains The Performance Base Standards model holds that, given these six areas, the primary goal of juvenile confinement facilities is to provide a safe environment for residents and for staff. Hence, Safety is the primary functional area. The model presumes that Programming is the method by which Safety is best achieved. Other factors being equal, a facility in which residents are engaged in vigorous and relevant programming will be safer than a facility in which residents are idle.

PbS Structure Goal is established: An identified objective for the purpose of improving the conditions of confinement for youth and the work environment for staff. Standard: Criterion accepted as a basis for comparison. Outcome Measure: numerical expression of the status or prevalence of a phenomenon; may by expressed as a rate or frequency of occurrences that indicate the extent to which a standard is being met. Data Collection Instruments: Formatted document identifying source and data needed.

Structure of a Standard Order 1 Goal: Minimize the use of force and coercion to maintain order. Outcome Measure: Incidents of youth misconduct per 100 person -days of youth confinement. Expected Practices: Staff and youth know facility rules. The behavior management plan is used as a basis for on-going training for staff them. Processes: Facility has a behavior management system that relies on rewards and incentives. Staff and youth receive a copy of the behavior management plan. Staff and youths have the behavior management plan explained to them.

Data Collection Sources Administrative Report: collects administrative data concerning juvenile population and staff size, scheduled programming, and facility policies. Youth Records: collects information about juvenile treatment and wellbeing taken from health, mental health, substance abuse, education and programming records. Youth Survey: asks youth to comment on their understanding of facility rules, legal rights and treatment plans, contact with parents, guardians and attorneys, programming received, staff professionalism, and safety. Staff Records: records information about staff demographics and training. Staff Survey: asks staff to comment on their training in facility policies, understanding of their legal rights, and personal safety and the treatment and safety of juveniles.

Performance-base Standards Goals To increase accountability through the use of data in the system, which enhances ability to track improvement and identify issues. Historically there is a lack of data to support current practices and policies; To improve understanding of best practices and methods that, when fully employed, can significantly improve conditions of confinement in the juvenile justice system; To provide a reasonably-priced solution across the country that allows for uniform data collection, analysis and use in all jurisdictions; To support the notion that the juvenile justice system is well able to help youths in confinement