FINAL REPORT

November 2014

JUVENILE JUSTICE
REINVESTMENT INITIATIVE
WORK GROUP

SouthDakotaJuvenileJusticeReinvestmentInitiativeWorkGroup
FinalReport
November2014

SUMMARY1
AfterasuccessfulreviewofthecriminaljusticesystemandtheearlysuccessofthePublicSafety
ImprovementActof2013,GovernorDennisDaugaardandChiefJusticeDavidGilbertsoninitiatedan
assessmentofthestatesperformanceinjuvenilejustice.Inlightofresearchdemonstratingthehigh
costandlowreturnofresidentialplacementsformanyyouthandtheimportanceofeffective
communityoptions,thestatesoughttounderstandwhySouthDakotacommitsahighrateofjuvenile
offenderstocostlyresidentialplacements,and45percentofyouthreleasedfromthosefacilitiesreturn
tocustodywithinthreeyearsoftheirrelease.2

InJune2014,GovernorDaugaard,ChiefJusticeGilbertson,PresidentProTemporeCoreyBrownand
SpeakerBrianGoschlaunchedtheJuvenileJusticeReinvestmentInitiative(JJRI)tostudythejuvenile
justicesystemanddeveloppolicyrecommendationsthatadvancethreegoals:
increasepublicsafetybyimprovingoutcomesforyouthandfamiliesandreducingjuvenile
recidivism;
effectivelyholdjuvenileoffendersmoreaccountable;and
reducejuvenilejusticecostsbyinvestinginprovencommunitybasedpracticesandpreserving
residentialfacilities3forseriousoffenders.

Overthepastsixmonths,theworkgroupconductedextensiveanalysisofdataandengagedmorethan
200juvenilejusticestakeholdersacrossthestate.Theworkgroupfoundthatcourtsattimesremove
youthfromtheirhomesandplacetheminresidentialprogramsnotbecausetheythinksuchsanctions
areappropriateforpurposesofpunishment,incapacitationorrehabilitationbutbecauseadequate
communitybasedoptionsarenotavailableatthelevelneeded.

Majorfindingsoftheworkgroupinclude:
About75percentofcommitmentstotheDepartmentofCorrections(DOC)arefor
misdemeanors,ChildreninNeedofSupervision(CHINS)violations,andprobationviolations.
Admissionstoprobationareincreasinglylowerrisk.Lowriskadmissionsincreasedfrom49
percentin2004to62percentin2013.
FeweryoutharebeingadmittedtoprobationandDOC,butthelengthoftimeyouthspendout
ofhome,committed,oronprobationhasincreasedoverthepast10years.

Unlessotherwisecited,theanalysesinthisreportwereconductedfortheJuvenileJusticeReinvestmentInitiative
WorkingGroupbyThePewCharitableTrustsusingdataprovidedbytheSouthDakotaDepartmentofCorrections
ortheUnifiedJudicialSystem.
2
SouthDakotaDOCJuvenileRecidivismSummaryReport2012.RecidivismisdefinedasanyreturntoDOCoutof
homeplacementwithin3yearsofreleasefromanoutofhomeplacementatDOC.Doesnotincludeadjudications
orconvictionsthatdonotresultinreturntotheDepartmentsoutofhomecustody.
3
Inthecontextofthisreportresidentialfacilitiesandoutofhomeplacementsrefertosettingsinwhichyouth
committedtothecustodyoftheDepartmentofCorrectionsmayresidepriortobeingplacedonaftercare.These
settingsincludeSTARAcademy,privategroupcare,residentialtreatmentcenters,intensiveresidentialtreatment
centers,nonDOCpaidprograms,andDepartmentofHumanServicesfacilities.

Evidencebasedinterventionsforjuvenileoffendersarenotsufficientlyavailableinthe
community.
Precourtdiversionisusedinconsistentlyacrossthestate.

Theworkgroupdeveloped12recommendationsthatwillfocusexpensiveresidentialplacementson
youthwhoareapublicsafetyrisk;preventdeeperinvolvementinthejuvenilejusticesystemforyouth
committinglowerleveloffenses;improveoutcomesbyexpandingaccesstoprovencommunitybased
interventions;andensurequalityandsustainabilityofreforms.Thereformsareexpectedtochangethe
trajectoryoftheDOCoutofhomepopulationbyreducingtheprojectednumberofyouthinDOCpublic
andprivateoutofhomeplacements64percentby2020.Theworkgroupexpectsthisreductionto
createcostsavingstobeinvestedintoeffectivecommunitybasedinterventions.

THE SOUTH DAKOTA JUVENILE JUSTICE REINVESTMENT INITIATIVE WORK

GROUP

In20122013,stateleaderslaunchedacomprehensivereviewofSouthDakotasadultsentencingand
correctionssystemwiththegoalofincreasingthepublicsafetyreturnoneachtaxpayerdollar.This
analysisresultedinthepassageofasetofreformsknownasthePublicSafetyImprovementAct(The
Act).TheActwasprojectedtoreduceprisongrowthbymorethan700bedsover10years,averting
$207millioninconstructionandoperatingcosts,whileimprovingpublicsafetythroughpolicies,
practices,andprogramsdesignedtoincreaseoffenderaccountabilityandreducerecidivism.Sincethe
Actseffectivedates,prisonpopulationgrowthhasbeensuccessfullycontainedandtherevolvingdoor
ofprobationandparolerevocationstoprisonhasbeenslowedassuccessfulcompletionsofparole
supervisionareincreasingandthepercentageofprobationersrevokedtoprisonisdropping.4

Turningtothejuvenilesystem,stateleadersquicklyrecognizedthatSouthDakotawasanoutlier
nationally,withthemostrecentavailablefiguresshowingthestatehadthesecondhighestcommitment
rate5inthecountry(385per100,000youth)in2011.WhileSouthDakotahasreducedthenumberof
juvenilescommittedtotheDOC,thisreductiondidnotkeeppacewiththenationaldeclinefrom1997to
2011(2percentinSouthDakotacomparedtothenationalaverageof48percent).6Thestateshigh
commitmentrateisnotexplainedbyahigherrateofviolentjuvenilearrests:SouthDakotasjuvenile
violentcrimearrestrateof71per100,000wasroughlyonethirdthenationalaveragein2011.7The
statehadbudgeted$34millioninfiscalyear2014,spendinganywherefrom$41,000to$144,000per
bedannuallyforthecommittedjuvenilepopulation.Recidivismrateswereimproving,butthemost
recent3yearmeasureshowedmorethanfourin10youthreturningtotheDOCwithinthreeyearsof
release.Specifically,oftheyouthreleasedin2005,53percentreturnedtoDOCcustodyinthreeyears,
whereas45percentoftheyouthreleasedin2010returnedwithinthreeyears.

2014AnnualReport.SouthDakotaPublicSafetyImprovementActOversightCouncil.
Thecommitmentrateistherateofjuvenilesplacedinresidentialfacilitiesthroughcommitmenttothestateper
100,000juvenilesages10through17.
6
MelissaSickmundetal.,EasyAccesstotheCensusofJuvenilesinResidentialPlacement:19972011,
(Washington,D.C.:OfficeofJuvenileJusticeandDelinquencyPrevention,2013),accessed8/7/14,
http://www.ojjdp.gov/ojstatbb/ezacjrp/;
7
CharlesPuzzancheraandWeiKang,EasyAccesstoFBIArrestStatistics:19942011,(Washington,D.C.:Officeof
JuvenileJusticeandDelinquencyPrevention,2014),accessed8/7/14,http://www.ojjdp.gov/ojstatbb/ezaucr/.
5


Awareofresearchindicatingthat,formanyyouth,lengthyoutofhomeplacementsfailtoproduce
betteroutcomesthanalternatives,costmuchmore,andincertaincircumstancescanincrease
recidivism,8stateleadershipdecidedtoapplythesamepolicyandperformancereviewprocesstothe
statesjuvenilejusticesystemthathadsuccessfullybeenappliedtotheadultcriminaljusticesystem.In
June2014,GovernorDaugaardandChiefJusticeGilbertsonaskedabipartisan,interbranchgroupof17
individualsrepresentingcountiesandstateandlocalgovernmenttoparticipateontheJuvenileJustice
ReinvestmentInitiative(JJRI)WorkGroup.Thegroupwaschargedwithexaminingthestatesjuvenile
justicesystemanddevelopingpolicyoptionsthatwould:
increasepublicsafetybyimprovingoutcomesforyouthandfamiliesandreducingjuvenile
recidivism;
effectivelyholdjuvenileoffendersmoreaccountable;and,
reducejuvenilejusticecostsbyinvestinginprovencommunitybasedpracticesandpreserving
residentialfacilitiesforseriousoffenders.

Overthecourseofsevenmeetings,theJJRIWorkGroupanalyzedjuvenilearrest,disposition,probation,
outofhomeplacement,andaftercaredata,andreviewedresearchoneffectivepracticesinjuvenile
justiceandonwhatworkstoreducedelinquency,includingempirical,peerreviewedstudiesabout
effectivecommunitybasedpracticesandtheuseofresidentialtreatment.Guidedbydataandresearch,
workgroupmembersformedsubgroupstoidentifyviablepolicyoptionsforSouthDakotainthree
areas:(1)expandedprecourtandalternativedispositionopportunities,(2)increasedaccesstohigh
qualitycommunitybasedinterventions,and(3)focusingcommitmentsandoutofhomeplacementson
seriousoffenders.

Duringthesummerandearlyfall,stakeholdermeetingswereheldacrossthestatewithmorethan200
individuals,includingsysteminvolvedyouth,parentsofcommittedyouth,victimadvocates,Native
Americanstakeholders,statesattorneys,judges,lawenforcement,educators,countycommissioners,
youthcareproviders,defenseattorneys,courtservicesofficers,juvenilecorrectionsagents,andteen
courtrepresentatives.Inputfromthesestakeholdersguidedworkgroupmembersandinformedtheir
inquiryintothejuvenilejusticesystem.

EdwardP.Mulvey,etal.,Trajectoriesofdesistanceandcontinuityinantisocialbehaviorfollowingcourt
adjudicationamongseriousadolescentoffenders,Development&Psychopathology22(2010):453475;DanielS.
Nagin,FrancisT.Cullen,andCherylLeroJonson,Imprisonmentandreoffending,inCrimeandjustice:Areviewof
research,ed.MichaelTonry.(Chicago:UniversityofChicagoPress,2009),115200;PatriceVillettaz,MartinKillias,
andIsabelZoder,Theeffectsofcustodialvs.noncustodialsentencesonreoffending:Asystematicreviewofthe
stateofknowledge,(Oslo,Norway:TheCampbellCollaboration,2006);ChristopherT.LowenkampandEdwardJ.
Latessa,EvaluationofOhio'sRECLAIMfundedprograms,communitycorrectionsfacilities,andDYSfacilities,
(Cincinnati,OH:UniversityofCincinnati,2005);PaulaSmith,ClaireGoggin,andPaulGendreau,Theeffectsof
prisonsentencesandintermediatesanctionsonrecidivism:Generaleffectsandindividualdifferences,(Ottawa,
Ontario,Canada:SolicitorGeneralofCanada,2002).ThomasA.Loughran,etal.,Estimatingadoseresponse
relationshipbetweenlengthofstayandfuturerecidivisminseriousjuvenileoffenders,Criminology47,no.3
(2009):699740

MAJOR FINDINGS
TheworkgroupsanalysisofjuvenilepopulationsinthecustodyoftheDOCandunderthesupervisionof
theUnifiedJudicialSystem(UJS)ledtoasetofkeyfindingsthatweresubsequentlyusedtodevelop
policyrecommendations.Theworkgroupfoundthat:
(1) precourtdiversionisusedinconsistentlyacrossthestate,
(2) mostDOCcommitmentsareformisdemeanoroffenses,CHINSviolations,andprobation
violations,
(3) feweryoutharebeingcommittedtoDOC,buttheyarestayinglonger,
(4) admissionstoprobationaredecliningbutincreasinglylowerrisk,
(5) lengthofprobationsupervisionisincreasing,and
(6) evidencebasedinterventionsforjuvenileoffendersarenotsufficientlyavailableinthe
community.

(1)

Precourt diversion is used inconsistently across the state.

Verylittledataisavailableondiversionstatewide,butthroughastatutoryreview,stakeholderinput,
andtheirownknowledgeofthesystem,workgroupmembersfoundinconsistentuseofdiversionatthe
frontendofthesystem.Somecountieshavewellestablisheddiversionprogramsthatareheavily
utilizedbystatesattorneys,someusetheUJSdiversionprogram,andothersdonotuseitatall.The
workgroupalsofoundnostandardizedcriteriaacrossthestatethatdefinewhichyouthareappropriate
forreferraltodiversionprograms.

Workgroupmembersreviewedresearchindicatingthatdiversionresultsinbetteroutcomesthan
formalcourtprocessingforcertainyouth.9Moreconsistentuseofdiversioncoulddivertgreater
numbersofyouthfromformalsysteminvolvement.

9
MichaelBaglivio,BriefingReport:TheRiskPrinciple.BureauofResearchandPlanning,(FloridaDepartmentof
JuvenileJustice,2013).AnthonyPetrosino,CarolynTurpinPetrosino,andSarahGuckenburg,Formalsystem
processingofjuveniles:Effectsondelinquency,(Oslo,Norway:TheCampbellCollaboration,2010).

(2)

Most DOC commitments are for misdemeanor offenses, CHINS and

probation violations.

TheworkgroupfoundthatalargemajorityofthosesenttoDOCwerecommittedforlowerlevel
offenses.In2013,sevenofevery10youthplacedinDOCcustodyhadbeencommittedformisdemeanor
offenses,ChildreninNeedofSupervision(CHINS)violations(alsoknownasstatusoffenses),andlower
levelprobationviolations.10

Allbutoneofthetop10commitmentoffensesin2013weremisdemeanorsandprobationandCHINS
violations.Morethanaquarterofcommitmentsresultedfromprobationviolations.

Top10Offensesof2013Commitments

Offense/Violation
Number
Percent
Cumulative%
(nonfelonies)
ProbationViolation
74
27%
27%
MisdemeanorPossessionofMarijuana,lessthan2oz
24
9%
35%
st
nd
MisdemeanorSimpleAssault(1 or2 Offense)
23
8%
44%
MisdemeanorIngestinganIllegalSubstance
15
5%
49%
CHINS
12
4%
53%
MisdemeanorPettyTheft
11
4%
57%
rd 11
Burglary3
10
4%

MisdemeanorIngestingSubstance,NotAlcohol
7
3%
60%
MisdemeanorCriminalEntryofMotorVehicle
6
2%
62%
MisdemeanorDamagetoProperty2nd
6
2%
64%

10
62 out of 74 (84 percent) of the probation violators committed to DOC in 2013 were originally placed on probation
for a CHINS violation or non-sex misdemeanor adjudication. Those 62 probation violators account for 22 percent of
the 2013 new commitments.
11
22-32-8. Third degree burglary--Felony. Any person who enters or remains in an unoccupied structure, other than
a motor vehicle, with intent to commit any crime, unless the premises are, at the time, open to the public or the
person is licensed or privileged to enter or remain, is guilty of third degree burglary. Third degree burglary is a Class
5 felony.

(3)

Fewer youth are committed to DOC, but they are staying longer.

Twofactorsdeterminethesizeofthecommittedyouthpopulation:thenumberofyouthcommittedto
thestateandthelengthoftimetheystayinDOCscustody.Theworkgroupfoundthatevenasnew
commitmentstoDOCdeclined20percentfrom2004to2013,theyouthwhowerecommittedwere
keptlonger:
Onaverage,youthdischargedfromDOCin2013hadspent29monthsinsomecombinationof
outofhomeplacementandaftercare,16percentlongerthanyouthdischargedin2007.
Thegrowthinthetotallengthofcommitmentwasdrivenbytheincreaseintheaveragelength
oftimeoutofhome.TimespentoutofhomeduringaDOCcommitmentincreasedby27.5
percentinthelastdecadeto15.3monthsin2013.

AverageTimeSpentOutofHomeDuringCommitment
18
16

15.3

14
Months

12

12.0

27.5%Increase

10
8
6
4
2
0
2007

2008

2009

2010

2011

2012

2013

(4)

Admissions to probation are declining but are increasingly lower risk.

TotaladmissionstojuvenileprobationinSouthDakotafell24percentfrom2004to2013,andthe
numberofyouthsenttoprobationdroppedfromapeakof3,119in2008to2,198in2013.Alongwith
thereductionsinadmissionsoverthelastdecade,therehasbeenashiftinthemakeupofthe
populationtowardlowerriskyouthandyouthcommittinglowerleveloffenses.From2004to2013,the
proportionofadmissionstoprobationformisdemeanoroffensesincreasedninepercentagepointsand
theproportionofyouthsupervisedatalowsupervisionintensityincreased13percentagepoints.In
SouthDakota,youthareassignedsupervisionlevelsbasedontheirassessedrisktoreoffend,andlow
supervisionintensityyoutharelowrisk.

(5)

Length of probation supervision is increasing.

Despitethisshifttowardlowersupervisionintensityandmoremisdemeanoryouthplacedonprobation,
boththeinitialtermsofprobationgiventoyouthatthetimeofdispositionandtheactualtimespent
underprobationsupervisionhavegrown.Theaveragetermofprobationreachedahighof22.2months
in2013,withgreatvariationacrosscircuits.Initialtermsrangedfrom10monthsonaverageinthe
SecondCircuit(MinnehahaandLincolnCounties)toover60monthsintheFourthCircuit(northwest
cornerofthestate).Theactualtimespentonprobationincreasedbytwomonthsstatewidefrom6.3
monthsonaveragein2005to8.4monthsin2013.Whileallcircuitshadincreases,overallaverage
lengthsoftimeonprobationalsovariedacrosscircuitsfromalowof5.4monthsintheSeventhCircuit
toahighof11.2intheFourthCircuit.

(6)

There are few evidencebased interventions for juvenile offenders

available in the community.

TheassessmentofSouthDakotasjuvenilesystemrevealedalackofprogramsacrossthestatethathave
beenshowntoreducedelinquencyamongjuvenileoffenderpopulations.Theshortageisparticularly
acuteinruralareas.Inadditiontoinsufficientprogramquantityinmanyareasofthestate,thework
groupfoundalackofinfrastructureforensuring(1)thatyoutharematchedwithinterventionsthat
addresstheircriminalriskfactors,and(2)thatstaffprovidinginterventionsareproperlytrainedandare
deliveringtheprogramswithfidelity.

Toassesstheavailabilityofprogramsforjuvenileoffenders,membersoftheworkgroupfromthe
DepartmentofSocialServices(DSS),UJSandDOClookedintotheprogramstowhichtheyhaveaccess

orthattheyoffer.Theyspecificallyexaminedtheavailabilityofcognitivebehavioralprograms,an
approachproventoreducedelinquency12.DSS,DivisionofBehavioralHealth,accreditsCommunity
MentalHealthCentersandsubstanceabuseprovidersacrossthestate.Agenciesthatreceivestate
fundingprovideservicesforeligiblepopulationstoincludeindividualswithaseverementalillness,
seriousemotionaldisturbanceandsubstanceusedisorders.However,individualsinthejuvenilejustice
systemhavenotbeenthetargetpopulationsoprogramsandservicesarenotspecifictothejustice
involvedclient.AninformalsurveyofChiefCourtServicesOfficersconductedbyUJSshowedgreat
variationintheavailabilityofcognitivebehavioralprogrammingacrossthecircuits.Afewprograms
accessedbyCourtServiceshavebeenstudiedinotherjurisdictionsandrecognizedaseffectiveat
reducingthelikelihoodofdelinquencyamongjuvenileoffenderpopulations,butCourtServicesdoesnot
knowhowmanyyouthareservedbythoseprogramsoriftheprogramsarebeingdeliveredwithfidelity.
DOCalsohasaccesstosomeresearchbasedprograms,butthoseareonlyavailableinverylimitedareas
ofthestate.

Someofthebuildingblocksareinplacetoensurethatyouthcanbematchedwiththeprogramming
theyneed,suchastheuseofvalidatedriskandneedsassessmentsbyUJSandDOCtoidentifyhigher
riskyouthandtheircriminalriskfactors.However,theworkgroupconcludedthatthereisan
insufficientarrayofprogramstoensurethoseneedsaremet.Further,thereisnoinfrastructure,suchas
trainingrequirements,datacollection,orqualityassuranceprotocols,toensurethattheservicesto
whichprobationersandyouthonaftercarearereferredaredeliveredbyproviderstrainedinthe
interventionswhoaredeliveringthemwithfidelity.

POLICY RECOMMENDATIONS

Toadvanceitsgoals,theJJRIWorkGroupmakesthefollowingrecommendationsinorderto:
Focusexpensiveresidentialplacementsonyouthwhoareapublicsafetyrisk;
Preventdeeperinvolvementinthejuvenilejusticesystemforyouthcommittinglowerlevel
offenses;
Improveoutcomesbyexpandingaccesstoevidencebasedcommunityinterventions;and
Ensurethequalityandsustainabilityofreforms.

12

MarkW.Lipsey,Theprimaryfactorsthatcharacterizeeffectiveinterventionswithjuvenileoffenders:Ameta
analyticoverview,Victims&Offenders4,no.2(2009):124147.

Theproposedreformsareestimatedtoresultin64percentfeweryouthoutofhomeinthecareofthe
DepartmentofCorrectionsby2020.Inaddition,theprobationpopulationisexpectedtodecline29
percent.

Whilethesereductionswillproducecostsavings,forthesedeclinesinpopulationtoberealized,the
JuvenileJusticeReinvestmentInitiativeWorkGrouprecommendsthestateinvestinanarrayof
evidencebasedinterventionsinthecommunity,aswellasintheinfrastructuretosupportongoing
trainingandqualityassuranceoftheseinterventions.Inaddition,theworkgrouprecommendsan
incentiveforcountiestodivertyouthfromcourtinvolvement.

BaselineandProjectedOutofHomePopulations
forYouthCommittedtoDOC
500
460
450
400
336
350
317

300
250

OutofHomePlacements
ProjectedOutofHome
PlacementswithNoChange

200

NewOutofHomePlacement
ProjectionwithReductions

150
113

100
50
0

Focus expensive residential placements on youth who are a public safety risk
Recommendation1:EstablishpresumptiveprobationforyouthadjudicateddelinquentorCHINS.
Requirewrittenfindingsoffactinthedispositionaldecreeandoralfindingsoffacton
therecordincourtifajudgedepartsanddisposesayouthtoDOC.Thefindingsoffact
mustindicatethattheyouthiscurrentlyadjudicateddelinquentforacrimeofviolence
(2212(9)),asexualoffense(2224B1),afelonysexualregistryoffense(2224B),
burglaryintheseconddegree13(22323),oranytransferrableoffense(26113.1);or,
thecourtfindsfromevidencepresentedatthedispositionalhearingthattheyouth
presentsasignificantandlikelyriskofphysicalharmtoanotherperson.Thefindingsof
factmustalsoestablishthattherearenoviablealternativesinthecommunity,andthat
DOCistheleastrestrictiveviablealternative.

13

BurglaryinthefirstdegreeisdefinedasacrimeofviolenceinSDC2212(9).

AllowaprobationviolatorcommitmenttoDOConlyiftheyouthhasengagedin
behaviorthatwouldconstituteanewviolationoflaw,andthejudgemakesthefindings
offactasoutlinedabove.

Recommendation2:EstablishCommunityAlternativesResponseTeams(CARTs).
UseexistingresourcestodevelopatleastonemultidisciplinaryCARTineachcircuit,
comprisedofrepresentativesofUJS,DOCandDSS,andallowaschoolsuperintendentor
adesigneeorothersubjectmatterexpertssuchastreatmentproviderstobeinvitedto
participate.

RequirejudgestomakeareferraltoaCARTbeforemakingafinaldecree,ifDOCisbeing
consideredasadispositionoption.RequiretheCART,whichservesasanadvisory
resourceforjudges,toproposealternativestocommitmentwithinsevendaysof
referraltotheteamorconcurwiththerecommendationforcommitment.Thejudge
willconsidertherecommendationoftheCARTandexercisejudicialdiscretioninthe
dispositiondecision.IftheCARTfailstomakearecommendationwithinsevendays,the
courtmayproceedwithdispositionincludingaDOCcommitmentthatmeetsthecriteria
ofrecommendation1.

Recommendation3:LimitlengthsofstayinDOCoutofhomeplacement.
LimitthelengthofstayinprivategroupcareandSTARAcademytofourmonths,
allowingtheDOCSecretarytoapproveanextensionofuptotwomonths.Timespentin
detentionorsheltercaredoesnotcounttowardsthetimeingroupcareandSTAR
Academy.TheDOCSecretarymayalsoapproveanextensionbeyondsixmonthsfor
youthwithdevelopmentaldisabilities,orsexoffenders,orspecializedtransitionservices
whichmayincludeprogramssuchasindependentliving,fostercareandresidential
treatmentstepdown.
o Iftheyouthissteppeduptoamoreintensiveplacementinaresidential
treatmentcenter,thegroupcareandSTARlimitationissuspended.
o Ifayouthviolatesaftercareandtheviolationisforanewoffenseidentifiedasa
crimeofviolence(2212(9)),sexoffense(2224B1),orburglaryinthe2nd
degree(22323),the4monthstayinthislevelofcarecanberestarted.

Reducelengthofstayinresidentialtreatmentcenters.StrengthentheDSSandDOC
reviewprocess.Thereviewwilloccurwithinthreemonthsofadmissiontodetermineif
theplacementgoalshavebeenmetandtheyouthcanbetransitionedtoalowerlevel
ofresidentialcareorplacedonaftercare.Allowextensionsofuptothreemonths,fora
maximumstayof12monthsoverthecourseofacommitment,withapprovalofthe
DOCSecretary.Reviewswilloccuratleastonceeverythreemonths.Therearetwo
exceptionstothispolicy.TheDOCSecretarymayapprove:
o astayinresidentialtreatmentcentersupto18monthsifthereisanassessed
needforpsychiatrictreatmenttoaddresssexualbehavior,and
o anextensionbeyond12monthsforanyyouthinresidentialtreatmentcenters
basedonaDOCauthorizedindependentmedicalexamination,ifthe
independentrevieweragreeswiththerecommendationofthecontinuedstay
reviewtoextendthestay.Thisprocesswouldalsoapplytoyouthwhostay18
monthsasaresultofanassessedneedforpsychiatrictreatmenttoaddress

10

sexualbehavior.Totheextentpossible,thisindependentreviewwillcoincide
withandcoverotherrequirementsthatresidentialtreatmentcentersare
requiredtocomplete.Thispolicyisnotintendedtointerferewiththescopeof
authorizingmedicallynecessaryservice.

Prevent deeper involvement in the juvenile justice system for youth committing
lower level offenses
Recommendation4:Increasetheuseofdiversion.
Adesignatedgroupofapparentyouthoffendersmustbeoffereddiversionprepetition.
TheseyouthincludethosewhohavenoprioradjudicationsandarereferredforaCHINS
violationorarereferredforamisdemeanorwheretheallegedoffensedoesnotinclude
anelementofforce.Statesattorneysmayalsoreferanyotheryouthtodiversion.

Allowrestitutiontobeimposedwhileayouthisinvolvedwithadiversion.

Appropriatefundstoincentivizejuvenilediversionthatcanbeaccessedbycounties
and/ordiversionprovidersoptingtoparticipatebyrequestingincentivefundsatthe
closeofthestatefiscalyearbasedonthenumberofyouthcompletingadiversion.

Requirecountiesthatopttoparticipateintheincentivefundingtocollectdataonthe
numberofyouthreferredfordiversion,theprogramortypeofdiversion,thenameof
thediversionprovider,andwhetherornottheyouthcompletedthediversion.

Recommendation5:Designatecertainoffensesasticketableoffenses.
Designatethefollowingoffensestobeprocessedsimilartomunicipalcurfewand
tobaccoviolationsusingatickettocommenceproceedingsratherthanapetition,and
mandatecourtappearancesfortheyouthandhis/herparentorguardian.
DesignatedDelinquency1:PettyTheftintheSecondDegree(under$400)22
30A17.3
DesignatedDelinquency2:IntentionalDamagetoPropertyintheThirdDegree
(under$400)22341
DesignatedCHINS1:Purchase,Possession,orConsumptionofBeverageby
PersonUnderTwentyoneYearsProhibited3592
DesignatedCHINS2:Truancy(CHINS)268B2(1)

Requirelawenforcementtotickettheseoffenses.Fordesignateddelinquencyoffenses,
statesattorneysmayproceedontheticket,offerdiversion,orfileapetitionatthe
initialcourtappearance.FordesignatedCHINSviolations,statesattorneysmayproceed
ontheticketordivertthefirsttwocases.Afterthefirsttwocases,statesattorneysmay
decidewhethertoticket,divert,orfileaformaldelinquencyorCHINSpetition.If
proceedingontheticket,disposeofthecasewithafineoralternativesuchas
communityservice,andpermitrestitutiontobeorderedaspartofthisproceeding.

Requiretheseticketedproceedingstobeprotectedandnotappearontheyouths
formalrecord.

11

Recommendation6:Capthedurationofprobationatfourmonths.
RequireUJStosettermsofprobationnottoexceedfourmonths,andestablisha
processwherebycourtservicesofficerscanrequestuptotwoextensionsofuptofour
monthseachifadditionaltimeisneededforayouthtocompleteevidencebased
interventionsortreatment.Requirecourtapprovalforanyextensions.

Ayouth'sprobationarysentencemaynotbeextendedbeyondoneyear.Ifayouth
commitsanewviolationoflawandisadjudicateddelinquentorCHINSduringthe
courseofaprobationaryperiod,anew4monthperiodofprobation,withtwo
possible4monthextensions,maybeimposedupondispositionofthenew
charge(s).

Ifajudgedeterminesayouthrequiresthejuvenileintensiveprobationprogram,allowa
judgetoimposeaninitialprobationaryperiodofeightmonths,withthepossibilityof
one4monthextensiontocompleteevidencebasedinterventionsortreatment.

Createagraduatedresponsegridforprobationersandutilizeittorespondtonon
compliantbehaviorandprobationviolationsinthecommunity.

Improve outcomes by expanding access to evidencebased community

interventions
Recommendation7:Developanarrayofeffectiveinterventionsforyouthwithjusticesystem
involvement.
DSS,UJSandDOC,workingwithproviders,shoulddeterminewhichindividual,group
andfamilybasedinterventions,suchasFunctionalFamilyTherapyorsimilarprograms,
willbemadeavailable.Establishcriteriafortheselectionofinterventionsincludinga
requirementthattheytargetmoderatetohighriskyouthandhavebeenshown
throughresearchtoreducerecidivism.

Requiretraining,coordinatedandoverseenbyastateentity,foranyindividualwhowill
beresponsiblefordeliveringtheselectedinterventions,andestablishanongoingquality
assuranceprogram.

Assistprovidersincollectingandreportingonperformancemeasuresrelatedtodelivery
andoutcomesofinterventions.

CreateaprocessforUJSandDOCthatutilizesstructureddecisionmakingtools,
includingriskandneedsassessmentsaswellasmentalhealthandsubstanceabuse
screeningtoolsandassessments,toguidereferralsofcourtinvolvedyouthto
interventionsthatmatchtheirneeds.

Planeffectivedatessothereistimetodevelopanarrayofeffectiveinterventions
beforeotherpoliciesgointoeffect.

12

Recommendation8:Ensureaccesstoeffectiveinterventionsforyouthinruralareas.
Employmultiplestrategies,suchasthedevelopmentofadifferentratestructurefor
identifiedruraland/orfrontierareasandthepilotingofatelehealthmodel,toimprove
accesstointerventionsforyouthinruralareasofthestate.Trackoutcomesfromthe
telehealthpilottoassessitsfeasibilityandeffectiveness.

Recommendation9:DevelopapilotprogramtoimproveoutcomesamongNativeAmerican
youth.
LedbytheDepartmentofTribalRelations,withtheinvolvementofUJS,DOCandDSS,
conductstakeholderoutreachandconveneagrouptodevelopapilottoimprove
outcomesforNativeAmericanyouth.Thegroupshouldconsiderthefollowingin
additiontootherareas:
Informationsharingaboutyouthundersupervision;
Sharingtreatmentresourcesacrossjurisdictions;
Jointsupervision;and
Transferofsupervision.

Ensure quality and sustainability of reforms

Recommendation10:AppointanoversightcounciltomonitorandevaluatetheJJRIreforms.
Designateagroupofstakeholderstomonitorandevaluatethepoliciesthatresultfrom
theJuvenileJusticeReinvestmentInitiative.

Recommendation11:RequireDOC,UJSandDSStodevelopperformancemeasures.
RequireDOC,UJSandDSStodevelopimplementationandoutcomemeasuresrelatedto
theJJRIpolicies,toreporttotheoversightcouncilonthemeasures,andtoregularlyand
jointlyreviewthemeasuresforqualityassurancepurposes.

Recommendation12:Collectdataandcreateacostsharingmechanismfordetentionstaysby
probationviolators.
Collectdataontheuseofdetentionbeds.

Requirethestatetoshareintheincreasedcosts,ifany.

Aspartofthegraduatedresponsegrid,limitdetentionsanctionsforprobation
violationsto48hours.

13

CONCLUSION
SouthDakotahasstreamlinedandimproveditsjuvenilejusticesystemoverthepastdecade.New
commitmentstotheDOChavefallen20percentandprobationadmissionsaredown24percentsince
2004.Therecidivismratehascomedownfrom53percentto45percentinrecentyears14.

However,theworkgroupfoundthatthestatecantakeanumberofstepstogetbetterresultsfromthe
systematlesscosttotaxpayers.TheDOCpopulationislargelycomprisedofyouthcommittinglower
leveloffenses,andyoutharestayinglongerunderthecustodyandsupervisionofDOCwhenresearch
indicatesthatbetterresultsarepossiblethroughtheuseofevidencedbasedpracticesandprogramsin
thecommunity.Theseincludepreventingdeeperinvolvementinthesystembyfirsttimeandminor
offendersandfocusingexpensiveresidentialplacementsonyouthwhoareapublicsafetyriskand
steeringyouthcommittinglowerleveloffensesintolesscostlybutoftenmoreeffectiveprogramsinthe
community.

TheJuvenileJusticeReinvestmentInitiativeWorkGrouprecommendsthepackageofpoliciesincluded
inthisreporttoGovernorDaugaard,ChiefJusticeGilbertson,PresidentProTemporeBrown,Speaker
Gosch,MajorityLeaderRave,HouseMajorityLeaderLust,SenateMinorityLeaderFrerichs,andHouse
MinorityLeaderHunhoff.Theworkgroupbelievesthesepoliciesmeetthegoalsestablishedforit,and
encouragestheseleaderstointroducelegislationandcourtrulesbasedontheserecommendations.

14

Therecidivismrateofjuvenilesreleasedin2005was53%.Therateforjuvenilesreleasedin2010was45%.

14

MEMBERSOFTHEJUVENILEJUSTICEREINVESTMENTINITIATIVEWORKGROUP
JimD.Seward,GeneralCounselforGovernorDaugaard,Chair
NancyAllard,DirectorofTrialCourtServices,UnifiedJudicialSystem
RepresentativeJulieBartling(DDistrict21)
KristiBunkers,DirectoroftheJuvenileCommunityCorrections,DepartmentofCorrections
SpeakerBrianGosch(RDistrict32)
DougHerrmann,DirectorofJuvenileServices,DepartmentofCorrections
JudgeStevenJensen,PresidingJudge,FirstJudicialCircuit
SheriffMikeLeidholt,HughesCounty
JudgeLarryLong,PresidingJudge,SecondJudicialCircuit
JudgeScottMyren,PresidingJudge,FifthJudicialCircuit
TerryNebelsick,HuronSuperintendent
AngelRunnels,MinnehahaCountyPublicDefender
SenatorAlanSolano(RDistrict32)
SenatorBillieSutton(DDistrict21)
MarkVargo,PenningtonCountyStatesAttorney
BobWilcox,ExecutiveDirector,SouthDakotaAssociationofCountyCommissioners
TiffanyWolfgang,DirectorofDivisionofBehavioralHealth,DepartmentofSocialServices

ACKNOWLEDGEMENTS
Theworkgroupwouldliketothankthefollowingindividualsandtheiraffiliatedorganizationsfortheir
assistanceinthisinitiative:
DennyKaemingk,Secretary,DepartmentofCorrections
KevinMcLain,DirectorofGrantsandResearch,DepartmentofCorrections
KelseyLuckhurst,Intern,OfficeoftheGovernor
KimMalsamRysdon,SeniorPolicyAdvisor,OfficeoftheGovernor
AmyIversenPollreisz,DeputySecretary,DepartmentofSocialServices
BillPopenga,ITProjectManager,UnifiedJudicialSystem
GregSattizahn,StateCourtAdministrator,UnifiedJudicialSystem
JacquelineSly,Representative,District33
SadieStevens,Intern,OfficeoftheGovernor
CraigTieszen,Senator,District34
PatrickWeber,PolicyAnalyst,OfficeoftheGovernor
LynneValenti,Secretary,DepartmentofSocialServices

15