A Rallying Cry for Change:
Charting a New Direction
in the State of Florida’s Response
to Girls in the Juvenile Justice System

July, 2006

Vanessa Patino, MPA
Lawanda Ravoira, DPA
Angela Wolf, PhD

NATIONAL COUNCIL ON CRIME AND DELINQUENCY
Headquarters Office 1970 Broadway Suite 500, Oakland, CA 94612
(510) 208-0500 FAX 510/208-0511
Midwest Office 426 S. Yellowstone, Suite 250, Madison, WI 53719
(608) 831-8882 FAX (608) 831-6446

Acknowledgments from the Desk of the NCCD President

The groundbreaking research, “A Rallying Cry for Change: Charting a New
Direction in the State of Florida’s Response to Girls in Juvenile Justice” was conducted
and produced by the National Council on Crime and Delinquency. Funding for this
research was provided through a generous grant from the Jessie E. Ball duPont Fund.
The duPont Fund is a national leader in the support of research on girls and has
maintained their commitment to increase the visibility of girls’ issues and advocate for
reform. We are also thankful for the financial support and commitment to this cause of
NCCD board member, Katie Nichols, to pilot the JAIS assessment on the girls
transitioning from the Florida Institute for Girls.
This research not only describes the risks and needs of girls in the juvenile justice
system but also identifies the essential set of services and policy initiatives critical to
responding to their needs. In addition to the quantitative results, this report personalizes
the plight of these girls through their stories and also details the ideas of many staff who
work with girls in juvenile justice programs across the state.
NCCD would like to express appreciation to the 319 girls who participated in the
research. Without them, this research would not have been possible. The girls showed
considerable courage to open up and share their life stories in often very intense
interviews. The spirit and strength they exhibited during the interviews gives us hope for
their futures. We would also like to thank the staff members that participated in the focus
groups for sharing their experiences in working with girls and offering their expertise
about what girls need to be successful. Additionally, if it were not for the support of the
providers and program directors at each of the sites selected for the research, we would
have been unable to have access to the girls. Their assistance with staff coordination and
logistics to create a private space where interviewers could talk with the girls was vital to
the success of the project. NCCD would also like to thank the Florida Department of
Juvenile Justice (DJJ) for their support of this research and openness to ideas about
appropriately meeting the needs of girls from a research-based perspective. Their
receptiveness to implementing a comprehensive strategic plan based on practitioners’
recommendations and the work of the Girls Advisory Committee should be commended.
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Special thanks and acknowledgments are also extended to Dr. Lawanda Ravoira
for her vision and unending energy to offer her assistance with every aspect of this
project, including conducting some of the one on one interviews with the girls. She
reminds us that the experiences of girls should affect us and inspire us. Conducting these
interviews was an intense experience for the interviewers as well as the girls, and we
wholeheartedly appreciate the personal commitment of the interviewers to listen to and
honor the girls: Lawanda, Vanessa, Binky, Juliette, and Carol. Special thanks to Juliette
Graziano for her assistance with project logistics and to Chris Hartney for his editing.
The photograph on the cover was taken by Beth Daniel with permission from PACE
girls. We would also like to thank the PACE team for piloting JAIS and conducting
interviews for girls in non-residential programs. Finally, we would like to acknowledge
the assistance of NCCD’s Children Research Center to develop the web-based data
system, provide training, and work with us to extract the individual datasets for data
analysis.

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Preface
The National Council on Crime and Delinquency (NCCD), founded in 1907, is a
nonprofit organization that promotes effective, humane, fair, and economically sound
solutions to family, community, and justice problems. NCCD conducts research,
promotes reform initiatives, and seeks to work with individuals, public and private
organizations, and the media to prevent and reduce crime and delinquency.
Founded in 1985, PACE Center For Girls, Inc. opened in Jacksonville, Florida as
an alternative to incarceration and institutionalization of girls in or at risk of entering the
juvenile justice system. Based on the success of the Jacksonville program, PACE has
been replicated in 19 communities throughout Florida. Since opening, PACE has served
over 12,000 girls with over a 90% success rate of girls not re-entering the justice system.
PACE believe all girls deserves the opportunity to find her voice and live a life defined
by responsibility, dignity, serenity and grace. The PACE Institute, a division of PACE,
seeks to expand the mission of PACE nationally by providing training, technical
assistance and advocacy.
The following NCCD report has several chapters. First, the background history
introduces the context and focus on girls programming in Florida. Chapter 2 summarizes
existing knowledge about girls in the juvenile justice system, including risk factors and
offense histories, and details the need for programming specific to girls. Chapter 3
describes the methodology for conducting our research and is followed by the Chapter 4
findings and implications for programming section. The report concludes with Chapter 5
recommendations based on the research.

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Table of Contents
Acknowledgments from the Desk of the NCCD President ............................................................. 2
Preface ............................................................................................................................................. 4
Table of Contents ............................................................................................................................ 5
Table of Tables................................................................................................................................ 7
Table of Figures............................................................................................................................... 7
Executive Summary ........................................................................................................................ 8
Chapter 1: Introduction/Background and History ........................................................................ 16
Educate or Incarcerate............................................................................................................... 16
Community Outreach ................................................................................................................ 17
New Legislative Efforts ............................................................................................................ 18
Closure of Florida Institute for Girls......................................................................................... 19
Individual Assessment Allows Proper Placement..................................................................... 20
An Unprecedented Opportunity ................................................................................................ 21
Chapter 2: Girls in Juvenile Justice .............................................................................................. 22
Developmental Theories ........................................................................................................... 22
Risk Factors............................................................................................................................... 22
Offense Histories....................................................................................................................... 24
Waiting Time in Detention........................................................................................................ 26
Available Gender-Specific Programming/Services in Florida.................................................. 26
OPPAGA Standards.................................................................................................................. 27
Chapter Two Summary ............................................................................................................. 29
Chapter 3: Methodology................................................................................................................ 30
The Juvenile Assessment and Intervention System (JAIS)....................................................... 31
Sample Selection....................................................................................................................... 32
Data Collection – Youth Assessments ...................................................................................... 34
Staff Focus Groups.................................................................................................................... 34
Chapter 4. Florida Girls Research: Major Findings ..................................................................... 35
NCCD Sample........................................................................................................................... 35
Systemic Factors Affecting Girls Entering the System............................................................. 36
Risk Factors and “Pathways” into the System .......................................................................... 39
Emotional Factors/Motivation .............................................................................................. 40
Trauma and Victimization .................................................................................................... 41
Family Conflict..................................................................................................................... 41
Family Relationships and Home Life ................................................................................... 42
Intergenerational Incarceration ............................................................................................. 43
Substance Abuse................................................................................................................... 44
Social Inadequacy & Criminal Orientation .......................................................................... 44
School Inadequacy................................................................................................................ 45
Other Critical Health Issues.................................................................................................. 46
Specific Findings for DJJ high risk programs...................................................................... 46
Specific Findings for Non-Residential Girls......................................................................... 47
Supervision Strategies: Responding to Individual Differences................................................. 48

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Implications............................................................................................................................... 49
Implications for Overall Programming: An Essential Set of Services ................................. 49
Specialized Mental Health and Substance Abuse Treatment Needs............................... 49
Comprehensive Family-Focused Services...................................................................... 50
Medical Care and Specialized Programming for Pregnant and Parenting Girls............. 51
Traditional and Non-Traditional Educational and Vocational Programming................. 52
Implications for Policy/System Changes: Appropriate Placements and Resources.............. 52
Safe and Healthy Environments ..................................................................................... 54
Transitional Programming .............................................................................................. 54
Summary of Major Findings ..................................................................................................... 55
Focus Groups Findings ............................................................................................................. 57
Effective Services ................................................................................................................. 58
Barriers and Gaps ................................................................................................................. 59
Chapter 5. Recommendations....................................................................................................... 60
Tier 1: Addressing Immediate Critical Needs.......................................................................... 62
Tier 2: Short Term Recommendations for FY 2006-07........................................................... 63
Tier 3: Strategic Recommendations for Longer Term Solutions ............................................. 65
References ..................................................................................................................................... 67
Appendix 1:
Appendix 2:
Appendix 3:
Appendix 4:
Appendix 5:

Residential Programs by Level and Type................................................................ 69
Percent of Girls with Each Factor (Need) by DJJ Program Risk Level................... 70
JAIS Supervision Categories ................................................................................... 72
Supervision Categories and Implications for Programming: A guide for staff ...... 76
Girls Summit –Residential Programming Recommendations ................................. 78

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Table of Tables
Table 1.
Table 2.
Table 3.
Table 4.
Table 5.
Table 6.
Table 7.

Summary of Girls’ Programming Needs ....................................................................... 15
Risk Behavior Profiles ................................................................................................... 24
Percentage of DJJ Committed Youth with Selected Offenses by Gender, FY04-05..... 25
Number of Girls Served FY 2004-05 ............................................................................ 27
Average Daily Population: Girls in Residential Programs, 2005 .................................. 27
Sampling by Facility...................................................................................................... 33
Number of Needs by DJJ Program Level ...................................................................... 38

Table of Figures
Figure 1.
Figure 2.
Figure 3.
Figure 4.
Figure 5.
Figure 6.
Figure 7.
Figure 8.

Key Factors Contributing to JJ Involvement of Girls by DJJ Program Level ........... 10
Age at Earliest Arrest ................................................................................................. 36
Percentage of Girls with One to Three Arrests by DJJ Program Level...................... 37
Percentage of Girls with No Prior Commitments by DJJ Program Level .................. 37
Youth Risk of Re-offending by DJJ Program Level .................................................. 39
Factors Contributing to Juvenile Delinquency for Girls in Res. Programs ................ 40
Family Involvement in the Criminal Justice System.................................................. 43
Distribution of JAIS Supervision Categories for Girls in Res. Programs .................. 48

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Executive Summary
Overview of Research
The National Council on Crime and Delinquency (NCCD) was funded by the
Jessie Ball duPont Fund to conduct an independent research study of girls in the Florida
juvenile justice system in order to inform a comprehensive approach to gender-specific
juvenile justice programming. This report presents new research findings on the
pathways of girls into the Florida juvenile justice system and identifies their treatment
needs. Additionally, it furthers the discussion about an essential set of services and a
system of care that meets the multiple needs of girls in the juvenile justice system. The
research supports change in the response to girls, both in treatment services and in
policy/system changes that are needed to increase success with the girls. This research
should be of interest to every child advocate, Department of Juvenile Justice (DJJ) staff
from prevention to residential, lawmakers, law enforcement, judges, and concerned
Florida citizens.
The NCCD research sample includes a total of 319 girls in the Florida system—
244 girls from 13 different residential DJJ programs (low, moderate, high, and maximum
risk) and 75 girls from six non-residential programs (PACE Centers). NCCD used its
Juvenile Assessment and Intervention System (JAIS) interview instrument to learn more
about girls in the system at the aggregate level, including their intervention needs and risk
level of offending, and also to suggest supervision strategies for working with them.
NCCD also conducted focus groups with staff to better understand the gaps in services
and barriers to implementation. The following is a summary of the major findings and
recommendations of the final report.
Major Findings
Finding 1: The profile data of girls in the Florida juvenile justice system suggests
there are systemic factors contributing to the number of girls entering and cycling
through the system. The information has implications for early intervention,

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increased program options, and appropriate placement based on the individual
needs and public safety risks of girls.
•

Girls are getting arrested at young ages: 40% of all girls reported committing their
first offense before the age of 13.

•

Girls with three or fewer self-reported criminal offenses were committed to
residential programs across all restrictiveness levels, including high risk.

•

73% of girls in moderate programs and 33% of girls in high risk programs
reported they were currently in their first DJJ commitment placement.

•

Level of risk to re-offend is related to level/intensity of intervention services
needed in order for girls to be successful. The assessment found that there were
girls who were low, medium, and high risk to re-offend across every DJJ
restrictiveness level (e.g. low risk to re-offend in high risk DJJ program, high risk
to re-offend in a low risk program).

Finding 2: There were common major factors or “pathways” into the system related
to the delinquent behavior of these girls (see Figure 1). This information supports
the literature regarding pathways on how women and girls enter the system. The
state is urged to invest in gender-responsive programming to address these factors:
•

Emotional Factors: Depression, trauma, anger, self-destructive behavior, or other
mental health/clinical diagnoses were a factor for 79% of girls in residential and
84% of girls in non-residential programs.

•

Family Issues and Conflict: Offenses against family, family history problems,
ineffective parental supervision or abuse by family were factors for more than
70% of girls in residential and 64% of girls in non-residential programs.

•

Substance Abuse: Alcohol and/or drug use was a problem related to the
delinquency of almost half (46%) of the girls in residential and 20% of girls in
non-residential programs.

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Figure 1. Key Factors Contributing to Juvenile Justice System
Involvement of Girls by DJJ Program Level
100%

Non-Resid
Low

90%

Medium

Percentage of Girls

80%

High

70%

Max

60%
50%
40%
30%
20%
10%
0%

Emotional Factors
(n=254)

Family History
Problems
(n=233)

Family Conflict
(n=224)

Drugs/Alcohol
(n=124)

Finding 3: The level of needs of girls does not differ by DJJ program level. This
finding, coupled with the common factors that are affecting girls’ involvement in the
system, indicates that an essential set of services needs to be available to girls at all
program levels—low, moderate, and high. On average, girls have three to four
significant treatment needs. The programming needs chart (see Table 1 at end of
Executive Summary) shows improved outcomes for girls that can be attained if critical
intervention services are provided to address the needs of the girls. The most pressing
intervention needs include:
•

Specialized mental health services,

•

Substance abuse treatment,

•

Family focused services,

•

Specialized medical care,

•

Alternative, educational, and vocational services, and

•

Transitional placements and services for girls.

These major findings coupled with other systemic issues facing girls in Florida’s juvenile
justice system (e.g., inadequate/unavailable treatment in the community or in low
restrictive DJJ programs, symptomatic behavior that results in placement transfers,
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10

inappropriate placement of girls, and gaps in gender-responsive services and training)
help to explain the escalating numbers of girls into the system. The implications of these
critical findings point to recommendations for immediate, short-term, and long-term
change in the State of Florida’s response to girls.
Implications
Based on the information collected from focus groups with staff regarding gaps in
services, there appears to be a mismatch between the level of available treatment services
and the identified treatment needs of girls in residential programs (e.g. specialized mental
health services, aftercare). If these needs are not met, both in treatment and by systematic
policy changes, we can assume that the girls will continue to penetrate deeper into the
juvenile justice system by picking up new charges while in placement, re-offending after
release, or violating probation.
Recommendations
The following multi-tiered set of recommendations charts the direction for a
comprehensive approach designed to address girls’ pathways into the system. It
highlights the essential set of services and policy initiatives that are critical to meet the
different needs of girls and reverse the escalating numbers of girls entering the system in
Florida.
Tier 1: Addressing Immediate Critical Needs
•

Severe mental health needs: Identify strategies for the re-allocation of resources
(funds) to secure short-term, acute psychiatric placement options for girls in need
of intense mental health services.

•

Treatment needs: Develop evaluation criteria to determine programs’ ability to
effectively meet the needs of girls as identified by the research as well as criteria
that ensure the safety and well being of youth in programs (e.g. emotional and
physical safety of environment, level of institutionalized/symptomatic behavior,
staff turnover, staff qualifications and experience, youth outcomes).

•

Inappropriate placements: Assess girls currently committed to DJJ that do not
pose a public safety threat utilizing a standardized assessment instrument coupled

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with staff recommendations. Further, develop a uniform process for transferring
girls to a lower level program to ensure proper placement. Reserve space in
residential programs for girls who pose a public safety risk.
•

Provider per-diem rates: Review the feasibility of increasing per diem rates
through cost savings of placing girls in lower levels of care who are low and
medium risk to re-offend and who do not pose a public safety threat.

Tier 2: Short Term Recommendations for FY 2006-07
•

Funding for all program levels: Assess and allocate appropriate per diem rates
for critical services to address the multiplicity of girls’ needs in the juvenile
justice system.

•

Support OPPAGA: Support the Office of Program Policy Analysis and
Government Accountability (OPPAGA) recommendations outlined in Report No.
06-13 which includes strategies for cost savings by reducing beds in residential
delinquency programs by creating community treatment programs for at-risk girls.

•

Appropriate assessment tools: Implement a uniform, gender- responsive
screening and assessment process utilizing an instrument that identifies risk level,
intervention needs, and supervision strategies.

•

Practical supervision tools: Provide staff with tools for understanding
differences between girls such as the NCCD recommended supervision strategy
groups which can assist with supervision planning and individual treatment case
planning.

•

Gender-responsive training: Provide appropriate resources for the development
and implementation of uniform gender-responsive training for all staff working
with girls along the entire DJJ continuum (prevention, probation, detention, nonresidential, residential) as part of the required training.

•

Collaboration: Assign a legislative work project to determine strategies that
promote cross-agency collaboration between the Department of Education,
Department of Children and Families, mental health, courts, police, public
defenders, and the Department of Juvenile Justice.

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•

Policy change in community mental health: Mandate that local mental health
providers accept referrals for appointments from residential programs to ensure a
smooth transition and the availability of mental health service follow-up when
girls transition back to the local community.

Tier 3: Strategic Recommendations for Longer Term Solutions
•

System examination: Conduct further research using the “pathways” framework
to better understand and identify points in the process where girls could be
diverted or appropriately referred to the least restrictive services (or placement)
based on level of need and public safety risks.

•

Policy and practice: Identify and re-examine policies and practices that drive
girls into the system. For example, charging girls with assault against family
members; imposing additional charges obtained during residential placement; and
considering running away a probation violation are policies that have a direct
impact on the numbers of girls that will enter and stay in the system.

•

Statewide training: Develop and provide specialized training for judges, state
attorneys, police departments, and public defenders on topics such as female
development, mental health, special education, cross system collaboration, and
gender-responsive approaches.

•

Resources: Increase resources and expand gender responsive services in both
residential and non-residential programs to expand:
¾ Specialized service options for pregnant and parenting girls.
¾ Health services such as gynecological care, prenatal and post-partum care
for pregnant girls, dental and vision, and health education that address
HIV and other sexually transmitted infections and diseases.
¾ Specialized services to address family conflict and associated risk.
¾ Aftercare and transitional services to ensure success for girls.
¾ Traditional/non-traditional education and vocational programs that are
gender specific.

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•

Intergenerational incarceration: Implement programs and services for young
children of incarcerated parents as an effort to reduce intergenerational
incarceration.

•

Gender-specific probation: Explore the implementation of a female offender
probation unit which would entail the reorganization of caseloads so all girls on
probation would be supervised under one unit and probation officers would have
all girl caseloads.

•

Research-focused pilot programs: Fund pilot programs to address the girls who
continue to cycle through the system, both in non-residential and residential
programs. The pilots would be designed to specifically address the significant
factors that contribute to girls’ delinquency (e.g. emotional factors, parental
family problems, substance abuse).

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Table 1. Summary of Girls’ Programming Needs
INTERVENTION TREATMENT

ASSOCIATED RISK FACTORS-NCCD FINDINGS

OUTCOMES FOR GIRLS

Specialized Mental Health and Substance Abuse Services
Addiction and substance abuse treatment.
Therapeutic treatment includes mental
health issues such as depression, trauma.
Address physical, emotional and/or sexual
abuse, neglect and family and domestic
violence.

Alcohol or drug abuse was a significant factor for involvement in system for
46% of the girls.
Emotional factors (depression, anger, self-defeating behavior) contributed to
delinquent behavior for 79% of girls. 72% cited emotional motivations for
committing last offense.
61% committed offenses against family; 25% of them reported their offense
histories were “usually” against family.
Reported abuse: 37% by a parent, 55% by a non-parent, 25% by both.

Measurable reduction in substance
abuse.
Increased individual and family
counseling.
Measurable increase in positive
coping strategies and reduction of
high risk behaviors.

15% reported major illness.
35% were pregnant or had been in the past. 10% had children.
High risk behaviors include self-mutilation (49%), suicide attempt (34%),
suicide threat (7%), physical aggression (54%).

Treatment and reduction of serious
health problems.
Measurably fewer cases of HIV and
STDs.
Specialized services for pregnant
girls.
Measurable reduction of self-harm
and aggressive behavior.

Specialized Physical Health Services
Comprehensive health assessments and
care, including gynecological services and
prenatal and post-partum care for
pregnant girls.
Sexual health education.
Programs for pregnant and parenting girls.
Establish safety from self and others.

Specialized Educational Services and Development Programs
Comprehensive girls’ educational
programs.
Educational enhancement.
Provide vocational programming.
Relationship building, life skills
development, pro-social orientation and
assertiveness

Educational risk factors: lack of interest in school/drop out (54%), extensive
truancy (67%), major disruption (67%)
Educational goals: 68% wanted post-high school training/ education.
Lack of social skills was a significant factor for involvement in system for 25%
of the girls.

Measurable increase in academic
and behavioral success in school.
Increased relevant programming,
including vocational and career
training
Increased gender-specific life skills
education and healthy development

Lack of aftercare services repeated as biggest challenge and barrier to
effective programming by staff.
46% had been in at least one out of home placement, including foster care.

Wraparound services provided to
improve opportunities for success.
Measurably safer environments for
youth.

Transitional Programs
Aftercare and step-down programs to
wrap around services for girls and family
Supportive independent living options
Data provided by JAIS, 2006.

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Chapter 1: Introduction/Background and History
In recent years, a host of juvenile justice issues have been at the forefront of
public discourse and policy discussion in the State of Florida. Beginning in 1999, there
was a shift in the direction of Florida’s juvenile justice system from a system aimed at
rehabilitating youth to a more punitive, corrections-style model. This shift in philosophy
especially threatened community-based service options designed to provide prevention,
intervention, diversion, and treatment services to at-risk youth and their families. In this
changing environment, the vulnerability of girls and the potential for their further
victimization and exploitation was of major concern to professionals in the field,
including public safety proponents and youth advocates alike.
Concerns raised by youth advocates regarding how the proposed policy shifts
would impact girls in the system prompted legislators to request documentation that
supported the need for and effectiveness of community-based gender specific
programming. To answer the legislators’ questions, the Jessie Ball duPont Fund
supported a funding request by the National Council on Crime and Delinquency (NCCD)
to conduct a major research study of girls in the Florida system. Researchers reviewed
previous studies of delinquent girls, looked at nearly 1,000 case files and conducted 100
intensive interviews with girls in every level of Florida’s juvenile justice system, from
prevention to deep-end residential facilities.
Educate or Incarcerate
NCCD’s report, Educate or Incarcerate: Girls in the Florida and Duval County
Juvenile Justice System, was released in December, 2000. Key findings included:
1. The identification of girls at-risk can begin in middle school, as early as 6th
grade. Key risk factors for a girl becoming a juvenile offender were found to
be educational failure (especially during grades 6 through 8), intergenerational
patterns of incarceration, a history of victimization, and early sexual activity.
2. The number of girl offenders in Florida was increasing and the use of
detention, an expensive option that offered little chance of addressing girls’
needs, had become the primary response to even minor offending among girls.

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3. Despite this rise in the girl offender population, the availability of educational
and family-focused services targeting girls had diminished.
Educate or Incarcerate urged the 2001 Legislature to reevaluate Florida’s strategy
for addressing girls in, or at-risk for entering, the juvenile justice system. Of particular
concern was the state’s maximum security youth prison exclusively for girls, the Florida
Institute for Girls. The Florida Institute was being built at a time when the legislature
was also considering cuts of nearly $36 million from prevention, intervention, and
treatment programs. Educate or Incarcerate cited 25 years of existing research that
concluded with near universal agreement that the maximum security environment at best
was developmentally inappropriate and at worst would further victimize the girls
detained in it. It was recommended that funding for the Florida Institute be halted and
that the facility be closed or, at the very least, planned expansion halted. Unfortunately,
these warnings were not heeded.
Additionally, NCCD’s report concluded that a key strategy for reducing the
numbers of young women entering the juvenile justice system was to prevent early
school failure, before girls reach high school. As a result of the NCCD research, PACE
Center for Girls, Inc. created a pre-teen center to focus services on younger girls.
Community Outreach
To raise public awareness and to mobilize support for ensuring services were
available for girls in their local communities, PACE and the Florida Children’s Campaign
held a series of community briefings throughout the state. The Justice for Girls briefings
sent a powerful message as the public saw first hand how the NCCD research findings
mirrored the lives of girls in their local community. For instance, Sherri A., age 16, who
had an extensive juvenile record shared her personal story with the audience at the Tampa
briefing recounting what life was like growing up with a father in and out of prison, a
distant mother, and falling in with the wrong crowd. She started skipping school at age
12 and by age 14 she tried to kill herself and was committed to a mental hospital. Her
words struck a cord with the audience as she ended her presentation by simply saying,
“We need help” (Bettendorf, E., The Tampa Tribune, December 15, 2000).

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The Florida Children’s Campaign also shared the results of their statewide
polling data showing that public opinion strongly favored helping children in Florida by
providing prevention and early intervention programs. The polling found that 84% of
frequent voters polled believed that investing in children today would reduce the need for
prisons tomorrow. Eighty percent of frequent voters said they wanted tax dollars spent on
recreation, education, crisis intervention, and counseling instead of juvenile prison beds.
Most notably, 89% wanted more prevention and treatment services while only 9%
favored more punishment (Florida Children’s Campaign website, www.iamforkids.org).
Despite these data and outreach efforts, advocates would face many challenges in
their battle to keep girls from being sent to inappropriate institutional programs. Other
obstacles included the impact of September 11th, 2001 on revenue shortfalls, the Florida
Department of Juvenile Justice (DJJ) recommendations to expand institutions and create
new residential beds, the governor’s severe budget cut to the DJJ, and the proposed
elimination of community-based day treatment and prevention services.
The Florida Children’s Campaign in partnership with the Child Welfare League
of America and local community-based service providers expanded their efforts to
educate Florida’s citizens regarding the need for a balanced continuum of services for
Florida’s girls and their families. As part of this outreach, nearly 500 girls who were
under the supervision of the juvenile justice system along with youth advocates from
around the state participated in the Rally On Tally protest at the State Capitol in March,
2003. The girls left the Capitol knowing that their voices had been heard as key members
of the House and Senate publicly vowed to keep their community-based programs
opened.
New Legislative Efforts
By the end of the 2003 legislative session, the direction of juvenile justice policy
was beginning to take a positive turn and the future for Florida’s girls looked brighter.
The legislature rejected proposed budget cuts and fully funded PACE Center for Girls,
Inc., the Florida Network of Youth and Family Services, and day treatment programs like
the Associated Marine Institutes. This meant 40,000 youth and their families served by
these programs would continue to receive services in their local communities.

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After several years of fighting to save effective programs and services, advocates
recognized that to truly change the juvenile justice system and permanently ensure the
availability of gender-responsive programs, legislation needed to be enacted that
acknowledged the special needs and strengths of girls. At the urging of the leadership of
PACE Center For Girls, Inc., Representative Ellyn Bogdanoff, R-Broward County, and
Senator Rod Smith, D-Alachua County, introduced legislation during the 2004 session
that mandated gender-specific services for girls in Florida’s juvenile justice system.1
The needs of girls took center stage with the passage of HB1989 in both chambers
of the House of Representatives and the Senate. On June 30, 2004 Governor Jeb Bush
signed the bill into law at a public signing ceremony in his office at the State Capitol. The
State of Florida became only the second state in the country to pass such groundbreaking
legislation. The 2004 Legislative session marked not only a significant victory for girls
but an unprecedented commitment to ensure a balanced continuum of services that
included prevention, day treatment and other front-end community-based programs and
services.
Closure of Florida Institute for Girls
The passage of HB1989 also marked a momentum shift. In the 2005 legislative
session, Representative Gustavo Barriero, R-Miami-Dade, and Senator Victor Crist, RTampa, took another bold step forward in advancing the agenda for girls by closing the
Florida Institute for Girls. This action was taken nearly five years after the release of
NCCD’s study warning of the potential for victimization and abuse of girls in this type of
correctional environment, warnings that unfortunately came true.
Since its opening in 2000 under contract with Premier Behavioral Solutions, the
Florida Institute was plagued by hundreds of allegations of physical abuse, neglect,
sexual misbehavior, and management problems. These allegations prompted a grand
jury investigation in June, 2003. The grand jury report documented over 150 allegations
of criminal mismanagement, including the use of excessive force, sexual misconduct and

1

The legislation was based on the 1992 amendment to the Reauthorization of the Juvenile Justice and
Delinquency Prevention Act of 1974 (JJDP Act) which had required states to prepare an analysis of genderspecific services for the prevention and treatment of juvenile delinquency.

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

19

inadequate supervision (Gruskin, 2005; Gruskin, 2004). The grand jury investigation also
found a lack of training, persistent staff shortages, and a general sense of unrest at the
facility (Stuart News, 2003). This failed prison cost taxpayers over $29 million dollars.
Sadly, it cost girls further abuse, victimization, and untold trauma. One of many media
headlines highlighted the gruesome conditions for girls: Prison Sex (with
Guards/Workers) Considered ‘Normal’ By Teenage Inmates at FIG (Gruskin, 2003). By
October 2005, all 67 girls were transferred from the Florida Institute for Girls and the
maximum security prison officially closed.
The Children’s Campaign called for the DJJ to appoint a high level advisory
committee to oversee the assessment of the girls who were being moved from the Florida
Institute. The committee would ensure that the girls were properly placed in appropriate
settings with individual treatment recommendations. DJJ Secretary Anthony Schembri
sent personal invitations to a diverse group of individuals both external and internal to the
Department requesting that they serve as members of the Girls Advisory Council. The
DJJ leadership team met with Dr. Barry Krisberg, President of the National Council on
Crime and Delinquency, and Dr. Lawanda Ravoira, (prior) President and CEO of PACE
Center for Girls, Inc., to develop a strategy for transitioning the girls from the institution.
Individual Assessment Allows Proper Placement
Under the leadership of Secretary Schembri, the Department partnered with
NCCD to utilize the research based Juvenile Assessment Intervention System (JAIS).
Developed by NCCD’s Children’s Research Center, JAIS was used to individually assess
each of the 67 girls at the Florida Institute and help develop individualized case plans.
The Department leadership also expressed support of a larger research study to
provide information to assist in developing a comprehensive approach to gender-specific
programming for girls in the Florida system. The Jessie Ball duPont Fund continued their
commitment to juvenile justice reform for girls in Florida’s system by providing funding
for NCCD to conduct this research of girls in the system. The goal of this research is to
help Florida build a system of care for girls that begins with a close examination of each
girl’s personal profile (background, risks, treatment needs, motivations, etc.) and
recommend a data-driven plan for services based on their true needs.

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

20

A further demonstration of DJJ’s commitment to appropriate treatment of girls in
the juvenile justice system was evidenced in October, 2005 as Secretary Schembri
ordered and stood watch over the removal of the razor wire that had surrounded Sawmill
Academy for Girls, a moderate risk residential program for girls.
An Unprecedented Opportunity
Now, at the start of 2006, there exists an unprecedented opportunity to design
appropriate alternatives and interventions that can reduce recidivism and provide a safe
environment for girls to thrive. Meaningful systemic change for girls and young women
can follow the critical events summarized here, including
•

the preservation of prevention and day treatment services,

•

the passage of HB 1989 mandating gender specific services,

•

the closing of the girls’ prison,

•

the removal of the razor wire from Sawmill Academy,

•

the convening of the Girls Advisory Council, and

•

research by OPPAGA and NCCD.

At this time the state is presented with an extraordinary opportunity to inject new
thinking and innovative ideas for continued meaningful reform. Florida is poised to lead
the nation in services for girls and young women in the juvenile justice system.

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

21

Chapter 2: Girls in Juvenile Justice
Developmental Theories
Both nationally and in Florida, there has been a trend of increasing rates of
detention and commitment for girls. Specifically in Florida, admissions for girls
increased 10% over the last five years, while admissions for boys have decreased 12%
(DJJ, 2005). However, the system is still designed for boys and lacks appropriate and
effective gender-specific programming that focuses on the unique characteristics of girls.
Research shows that girls have different pathways to crime than boys. By providing
programs that are embedded in girls’ experiences, their opportunities for success are
increased. Implementing gender-appropriate programming for girls has broad benefits
including: appropriateness of services and effectiveness of management, decreasing staff
turnover and sexual misconduct, and increasing overall safety of environments (Bloom,
Owen, and Covington, 2005).
Bloom, et al, (2005) describe three theoretical perspectives related to women and
girls involved in the justice system: the pathways perspective, relational theory and
female development, and trauma and addiction theories. Together these theories help us
understand how these girls end up in the juvenile justice system, how they respond once
involved, and what they need to turn their lives around. The pathways research identifies
histories of abuse, mental illness tied to early life experiences, substance abuse and
addiction, homelessness, and dysfunctional relationships as the most common pathways
to crime for women. Developmental needs of adolescent girls differ from those of boys.
Puberty and the developmental stage of adolescence bring physical and emotional
changes that are challenging, confusing, and complicated for many girls. Relationships
play a primary role in the lives of teen girls, and according to relational theory,
connection with others is the guiding principle of growth for developing a sense of self
and self-worth (Bloom, Owen, and Covington, 2005).
Risk Factors
Normal developmental issues become all the more difficult for girls that have
been victimized by physical and/or sexual abuse and have mental health problems,

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

22

characteristics common to the majority of girls in the juvenile justice system. In many
cases, girls will use substances to “self-medicate” or to escape from the psychological
pain they experience in destructive relationships. This general profile is dissimilar in
many ways to that of boys in the juvenile justice system. For example, boys’ anti-social
peers are generally same-sex associates. There is a lesser prevalence of sexual
victimization among boys and their behavior is not as often a reaction to the risk factors
that develop over time (Howell, 2003). In addition, pregnancy and early sexual activity
surface as factors that lead to dropping out of school, repeat offending and committing
more serious offenses by girls (Acoca, 2000). A different approach to meet girls’ unique
needs in appropriate ways, instead of applying the same principles that have been used
with boys in the past is required.
The high prevalence of girls in the juvenile justice system who have been abused
and experienced problems in the home demonstrate not only the deep impact these
experiences have in their lives but how they affect life choices and decisions during
adolescence. A recent review by the Office of Program Policy Analysis and Government
Accountability (OPPAGA) of 90 case files of girls in juvenile justice residential
programs in Florida showed that 68% have experienced physical or sexual abuse or
neglect and 90% of the girls live with limited or inadequate parental control (Report # 0513). The amount of girls with mental health problems in residential programs is
overwhelming – as many as 94% of girls have diagnosed mental health problems.
Without the proper support at home or interventions from the community, these
experiences can lead girls down pathways into the juvenile justice system.
Understanding the risk behavior profiles of girls in residential and non-residential
programs in Florida is critical in the development of effective treatment programs. Table
2 below shows OPPAGA’s findings regarding the percentage of girls who experience
certain risk behaviors along the continuum. It is evident that girls in residential programs
experience alarming rates of high-risk behaviors. Girls in non-residential/prevention
programs also exhibit alarmingly high percentages of risky behavior.

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

23

Table 2. Risk Behavior Profiles
NonResidential*
61-68%

Residential
84%

Substance Use

21-24%

61%

Running Away

22%

58%

30-42%

49%

18%

27%

At-Risk Behaviors
Negative Peers

Chronic Truancy
Self mutilation

Source: Analysis of OPPAGA reports (05-13 and 05-56)
*Includes PACE Center for Girls and Florida Network of Youth and Families

Offense Histories
The types of offenses girls commit generally do not pose the same threat to public
safety as those committed by boys.

The OPPAGA study showed that in 2004-2005,

16% of girls were committed to residential programs for non-law violations compared
with only 9% of boys; and that 36% of girls were committed for misdemeanors as
compared with 25% of boys (OPPAGA, 2006, report 06-13). The nature of offenses for
which girls are incarcerated may reflect law enforcement practices in which behaviors
that were traditionally labeled as juvenile status offenses are now treated as criminal
offenses—a practice known as “bootstrapping” (Chesney-Lind, 1997). It is not
uncommon for girls who are placed on probation as status offenders to be subsequently
detained for the offense of “violating a valid court order.” Thus a young woman that
initially enters the juvenile justice system for running away may have her legal problems
exacerbated if she violates a judge’s order to, for instance, attend school. Youth
advocates claim that “bootstrapping” is a way in which status offenders are incarcerated
despite legislative barriers set up to stop exactly that.
Similarly, some of the increase in girls incarcerated for violent offenses (e.g.
aggravated assault and battery) may be due to the unintended effects of new policies on
mandatory charging in domestic violence cases (Mullis, et al 2004; Snyder, 2004). In
some cases, family disputes are re-labeled as criminal events. In Florida, 10.5% of total
referrals for females were for domestic violence (DJJ, 2006). More specifically, Florida
statutes {FS 985.213(2)(6)(3)} allows juvenile justice personnel to detain youth involved

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

24

in domestic violence disputes who otherwise would not meet detention placement
criteria.
The types of offenses that are getting girls into the system and keeping them in
the system are different than for boys. Table 3 compares some types of commitment
offenses by gender. More than 30% of girls are committed for aggravated assault or
misdemeanor assault as compared with less than 20% for boys (DJJ, 2005) Almost half
involve domestic violence and some are offenses against staff, particularly in residential
programs (DJJ, 2006).
Table 3. Percentage of DJJ Committed Youth with Selected Offenses by Gender, FY 2004-05
Commitment
Offense Data

Aggravated
Assault
and/or
Battery

Male

10.4%

Assault
and/or
Battery
(nonaggravated)
8.8%

Female

15.9%

16.4%

Auto
Theft

Petit
Theft

Violation of
Community
Control

Charges
During
Placement*

5.4%

4.5%

8.7%

9.4%

6.6%

7.9%

15.5%

12.1%

Source: DJJ, 2005
*FY 2004-05 commitment due to offense(s) committed during a placement in the previous year.

In the juvenile justice system, girls are less violent than boys, but have higher
rates of disciplinary infractions, though often for less serious violations. Bloom, Owen,
and Covington also found this in the adult criminal justice system (2005). Table 3 shows
that in Florida, 12% of girls received additional charges during placement as compared to
9% of boys. Similarly, girls were changed to a different placement while in custody at a
higher rate than boys (6% vs. 4%). Aside from having to be transferred due to the
closing of the Florida Institute for Girls (FIG), the two major reasons cited for transfer of
girls were aggressiveness and not being able to meet their mental health needs (DJJ,
2006). Although small, the percentage of girls who are transferred up one level is double
that of boys (2.2% vs. 1.1%). This is troubling, given that most girls who are detained
represent a very low risk to public safety in terms of violence or further re-offending. In
Florida, the recidivism rate for girls is significantly lower than for boys. For youth

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

25

released FY 2003-04, 41% of girls compared to 63% of boys were re-arrested. Similarly,
26% of girls were re-adjudicated compared to 43% of boys. (DJJ, 2006)
The goals of the Florida Department of Juvenile Justice’s Strategy are “reduce the
inappropriate placement of low risk girls (committed for probation violations on minor
offenses, minor domestic violence cases, etc.) in higher restrictiveness settings and to
reduce the number of girls who are placed in more restrictive settings due to the lack of
effective mechanisms to deal with symptomatic behavior that occurs during residential
treatment” (Chapman, 2005; pg.1). OPPAGA found judges may commit youth in order
to obtain treatment services that are not available or are inadequate in lower security
programs (OPPAGA, 2003, report 03-76). The available research indicates that many
young women in the justice system possess very high profiles for treatment needs. While
the juvenile court should attempt to provide the necessary treatment interventions, there
must be a higher priority placed on home-based or community-located services (Krisberg,
2004, Ch. 6).
Waiting Time in Detention
In Florida, the average number of days girls wait in detention for placement into a
residential program ranges from 19 to 50 days; it varies by age, restrictiveness level (e.g.
low, moderate, high) and type of program (e.g., halfway house, substance abuse or
mental health programs, wilderness program). While not the norm, there are a number of
girls that spend more than 6 months in detention. This is critical given that detention is
not a commitment program, and therefore its purpose is not to provide treatment services
or long term care. Time spent in detention does not count as time served in Florida (FL
Commission on the Status of Women, 2001). In comparison to males, female juvenile
offenders may spend over three times longer in the system (Winokur, 1999).
Available Gender-Specific Programming/Services in Florida
There are approximately 28 residential facilities for girls throughout the state that
provide a range of security levels and services (see Appendix 1). Also funded by the
state are prevention programs (e.g., PACE Center for Girls, Florida Network for Youth
and Families), probation programs and day treatment programs. Tables 4 and 5 show the

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

26

number of girls served by type and level of DJJ programming.
Table 4. Number of Girls Served FY 2004-05*
Prevention

Probation

Day
Treatment

Detention**

Residential

7,005

429

1,011

903

PACE: 2,298
Girls
Served

Florida
Network: 8,291

Source: DJJ, 2005.
*Some girls may have been served in more than one program.
**Waiting for disposition or placement.

Table 5. Average Daily Population: Girls in Residential Programs, 2005†
DJJ Program Level

n

%

Low Risk

75

8%

Moderate Risk

661

73%

High Risk

158

17%

9

1%

903

100%

Maximum Risk
Total
Source: DJJ, 2005.
†
March 2005 thru August 2005

OPPAGA Standards
The Office of Program Policy Analysis and Government Accountability
(OPPAGA, 2005, Report 05-13) found that the residential programs with the strongest
gender-specific services were more likely to be successful in reducing recidivism for the
girls. In its second report, OPPAGA found that the continuum of programs for girls vary
in the degree to which they are gender-specific (OPPAGA, 2005, Report 05-56).
OPPAGA identified the key characteristics essential to effective and appropriate
gender-specific programs for girls. The seven key areas include mental health;
relationships and emotional safety; physical safety; health and hygiene; social and
educational programming; program and design; and staff hiring and training (OPPAGA,
2005, Report 05-13). They reviewed fifteen girls’ residential facilities based on the seven
key factors to determine their effectiveness in implementing the new state legislation.

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

27

The evaluation consisted of focus groups, interviews, observations, and document
reviews.
The review in the areas of mental health and relationships and emotional safety
found mixed results. These areas in particular are of critical importance since such a high
number of girls are diagnosed with mental health issues and because relationships are a
developmental priority for these girls. Most of the sites included gender-specific mental
health practices and had therapists with experience working with girls. Many, however,
did not meet the challenge of involving the girls’ families in therapy. While all of the
programs taught relationship skills, which the girls reportedly found helpful, they were
not able to establish an emotionally safe setting overall. Staff were said to breach
confidentiality and to use inappropriate, hurtful, and offensive language such as namecalling.
In the areas of physical safety and health and hygiene, most residential programs
met the gender-specific practices. Providing for the physical safety of girls is crucial
especially because of their histories of violence and victimization. Nevertheless, a few
programs did a poor job of preventing altercations between female residents. At several
sites “girls reported that staff did nothing and allowed them to fight or actively
encouraged them to fight” (OPPAGA, 2005, Report 05-13, p. 8). Girls are at a higher
risk for health concerns partly due to higher rates of victimization and higher drug use.
All of the sites reported that they performed the required health exams and provided girls
with health and sexual education.
Residential facilities are faced with the challenge of meeting the social and
educational needs of girls who typically have had difficulty in these areas. Many have
been suspended or expelled from school and are below their academic grade level. In
past reports, OPPAGA found residential programs to be extremely successful with regard
to the educational achievements of girls. The main weakness seen in most of the sites
was the lack of focus on vocational and parenting skills. This is significant because girls
need exposure, preparation, training, and skill development in order to meet the
challenges that independence and parenthood bring.
Many sites did not include girls in the design and evaluation of their programs.
This diminishes opportunities for girls to develop leadership skills, increase their

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

28

investment in the programs and interact in positive ways with staff. Staff hiring and
training practices at the sites could be improved as well. All of the sites had difficulty
establishing an atmosphere conducive for positive relationships to develop.
OPPAGA has recommended that the department incorporate new gender-specific
requirements into their quality assurance standards and program monitoring instruments.
Chapter Two Summary
This chapter presented several systemic issues facing girls in juvenile justice in
Florida. Girls risk deeper penetration into the system for a variety of reasons including
the following.
•

Treatment services (e.g. mental health) are not available or are inadequate in less
restrictive settings.

•

Symptomatic behavior (e.g. aggressiveness) that results in placement transfers.

•

Inappropriate placement of girls committed for violations of probation or
misdemeanor offenses including minor domestic violence.

•

Length of time spent in the system is longer as compared to boys for less violent
offenses.

•

Gaps in available gender-responsive services and training for staff as reported by
OPPAGA.
The current study described in the next chapters furthers the discussion about

what types of gender-specific programming are critical to respond to the needs of girls in
the juvenile justice system. The research provides information to the State of Florida
about the opportunities that exist to create and support programming designed to address
the pathways of girls into the system and the treatment needed to deal with behaviors
specific to girls. Beyond risk and need profiles, the study identifies the essential set of
services and policy initiatives that are critical to meet the different needs of girls and
reverse the escalating numbers of girls entering the system.

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

29

Chapter 3: Methodology
Chapters 3 and 4 describe the current NCCD study of the girls in the Florida
juvenile justice system, including their offense histories, public safety risks, intervention
needs, and supervision needs. The data comes from semi-structured interviews
performed using the Juvenile Assessment Intervention System (JAIS), and is
supplemented by a summary of focus groups conducted with staff working with the girls.
Below are NCCD’s research questions guiding the study.
•

What is the profile of girls in residential programs (demographics, mental health
needs, substance abuse, delinquency history, placement history, family history)?

•

What are the risk and protective factors associated with girls in Florida?

•

What are the supervision needs and public safety risks of the girls in residential
programs?

•

What are the types of programming/intervention strategies intended to increase
protective factors and reduce risk factors in order to maximize opportunities for
these girls?

•

Is this programming currently available in residential programs? Where are the
gaps in services? What are the barriers?

•

What are national standards of best practices?

•

What are potential roadblocks that need to be addressed before girls get released
from facilities?
Bloom and Covington (2000) argue that better outcomes can be derived for

women and girls when those who work with females respond to the similarities and the
differences in their pathways to criminality, their motivations for their behavior, and their
expected response to custody, supervision, and treatment. By gaining a better
understanding of the girls in residential care, caseworkers, agencies, and the state as a
whole can make better decisions regarding services they need and should be receiving,
about training and supporting staff, and about where to allocate system resources. This
research and the JAIS assessment are first steps in developing a new framework for

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

30

effectively working with the girls in the Florida juvenile justice system.
The Juvenile Assessment and Intervention System (JAIS)
The bulk of the data was collected using the Juvenile Assessment Intervention
System (JAIS) instrument. The JAIS interview is a combination of a risk assessment,
needs assessment, and supervision strategies assessment. It is a casework tool that can be
used by any juvenile justice department across the country to assist with individual case
planning. For the current study, JAIS was used both as a casework tool, to assist
caseworkers in making decisions regarding the girls in the study, and a research
instrument.
JAIS measures each girl’s level of need in several categories, including mental
health, family relationships, social skills, peer relationships, vocational skills, value
orientation, substance use/abuse, school/educational issues, and health. It also provides a
score for a girl’s public safety risk. JAIS addresses the qualitative aspects of juvenile
supervision by identifying specific strategies that will likely result in positive change on
the part of the individual juvenile offender. An individualized JAIS Supervision Plan
based on girls’ responses to questions is created. It includes:
•

Attitudes and behaviors to expect,

•

Potential compliance issues,

•

Proactive steps to take for success within program,

•

Indicators of emerging problems,

•

Best responses to compliance problems/violations,

•

Contact level based on risk, and

•

Recommended programs based on needs.

The JAIS interview is a semi-structured, face-to-face interview with the
interviewer recording notes and responses to questions on a score sheet. The responses
are then processed through the JAIS automated and web-based system. Scores and
classifications for each component are compiled by a computer scoring program.
The girls in residential programs (n=244) were interviewed by NCCD
interviewers who completed an intensive training conducted by the developers of JAIS,
NCCD’s Children’s Research Center in Madison, Wisconsin. Interviewers were trained

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

31

regarding the instrument (history, purpose, validity), interviewing skills regarding semistructured nature of assessment, and scoring rules. The interview format requires that
interviewers observe, listen, ask follow-up questions, respond to the youth, show
understanding, and essentially maintain the communication flow. The JAIS data reported
here includes the aggregate data collected from the initial assessment of girls at the
Florida Institute for Girls (FIG). The decision by DJJ to use JAIS to assist in placing the
girls moved from FIG as the facility closed precipitated this more extensive research
using JAIS. This data also includes interviews from girls at six non-residential Practical
Academic and Cultural Education Center for Girls (PACE) sites. The PACE girls (n=75)
were interviewed by PACE staff who completed the week-long NCCD training.
NCCD provided the DJJ treatment staff at the selected sites with an individualized
assessment output for each girl that gave her consent to participate. In addition to the
assessment administration training, NCCD also provided a supervision guide that assists
caseworkers in understanding the individual reports and incorporating them into case
planning and management.
For purposes of the research, girls were given ID codes. The data collected from
the JAIS assessments was entered into the automated system. The individual reports
were outputted from the automated system and provided to the relevant staff for
casework purposes. For research purposes, it was then exported, using the ID codes only,
into SPSS and analyzed in anonymous, aggregate form to protect confidentiality.
JAIS (also known as SJS) has been used in juvenile justice agencies around the
country since 1988. Validation of the interview was conducted between 1983 and 1987,
and included both probation and institution cases. Agencies from California, Colorado,
Louisiana, Pennsylvania, and Wisconsin participated in the research project. In the
validation study, the scoring system was able to correctly classify 98.8% of the 250 cases
into the supervision groups.
Sample Selection
Sample selection first consisted of selecting programs from across the state and
then selecting girls within those programs. NCCD selected 13 residential programs for

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

32

girls 2 at 11 facilities (see Table 6 and Appendix 1). These sites represent a cross-section
of services including region/location, average daily population, and range of services
(low-risk, moderate risk regular, moderate risk mental health, moderate risk substance
abuse, high risk regular, high risk mental health, and maximum risk). In order to
maximize the benefit to the DJJ system—that is, in order to provide individualized
reports for more of the neediest cases—NCCD over-sampled high-risk level facilities as
well as those providing specialized mental health services. Based on the average daily
population of all girls in residential programs from March- August 2005 (n=903), NCCD
interviewed a sample of 244 girls and an additional 75 girls from six non-residential
PACE Centers. Girls were randomly selected from the current list of admissions at each
of the selected sites. The data collection was conducted between October and December,
2005.
Table 6. Sampling by Facility
Facility
Vision Quest Low Risk-Warrington Program
Milton Girls Juvenile Residential Facility
Desoto Dual Diagnosis Female
Jo Ann Bridges Academy
YMCA Character House
AMI-Wings for Life
Camp E Nini-Hassee
Vernon Place
Monticello New Life
Orange Halfway House
Umatilla Girls Academy
Desoto Dual Diagnosis Correctional Facility Female
Desoto Dual Diagnosis Maximum Risk Female
Florida Institute For Girls (FIG)-High Risk
Florida Institute for Girls (FIG)-Maximum Risk
Total Residential Girls
PACE Center for Girls (6 sites)

Risk Level/Type of
Facility
Low
Moderate: Mental Health
Moderate: Mental Health
Moderate
Moderate: Pregnancy
Moderate
Moderate
High
High
High
High
High: Mental Health
Maximum
High: Mental Health
Maximum
Non-Residential

Total Sample

n
25
15
15
10
10
25
22
10
18
15
34
6
1
30
8
244
75
319

2

Due to the impact of Hurricane Wilma, the number of sites was narrowed down from 15 to 11
and the number of interviews at the selected sites was increased. In addition, we utilized a random sample
size of JAIS assessments from PACE (n=75). This will provide information on both residential and nonresidential girls.

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

33

Data Collection – Youth Assessments
Girls were randomly selected from the list of current admissions at each site and
assigned to an interviewer. Interviewers explained the purpose and risks of the research
and invited the girls to participate. Youth had the right to refuse to participate in the
interview or to stop participation at any time. Each interview lasted approximately one
hour in a one-on-one, confidential setting. Girls received an ID code on-site and later
received a new assessment code once entered into the system which further protected
their individual identities.
Staff Focus Groups
In addition to interviews with the girls, NCCD conducted focus groups with staff
at each of the selected facilities. A total of 75 staff participated, including administrators
(often the director), and mental health, educational, and direct care staff. Notes were
taken and, in some cases, NCCD requested and received permission from participants to
record and transcribe the information. Common themes and patterns related to needs of
girls, gaps in services, and other important programming issues are presented at the end
of Chapter 4. Additional anecdotal data collected at the Girls Summit can be found in
Appendix 5.

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

34

Chapter 4. Florida Girls Research: Major Findings
As described in the methodology (Chapter 3), the girls in this research were
individually assessed using the Juvenile Assessment and Intervention System (JAIS).
The data presented in this chapter is an analysis of the interview data. The interview
results were used to learn more about the girls at the aggregate level and identify
individual intervention needs. The benefit of JAIS is that it uncovers detailed
information about how a girl got involved in the system and enables her to describe and
characterize her family history, interpersonal relationships (with family and peers),
outside educational experiences, and attitudes towards her personal experiences. In short,
the interview captures each girl’s story. From these responses, the JAIS assessment
begins to identify needs and pathways into system as well as to suggest appropriate
supervision strategies.
This chapter is divided in several parts. First are demographics and profiles.
Then the common “pathways” by which these girls become involved in the juvenile
justice system and their treatment needs are described. Finally, implications for
programming, first with regard to the treatment needs these girls have, then with regard to
their risks of deeper involvement in the system are discussed.

NCCD Sample
The NCCD research sample included a total of 319 girls selected from the
spectrum of placement options: 244 girls from 13 different DJJ residential programs of
low (10%), moderate (39%), high (46%), and maximum risk (4%) levels. The sample
also included 75 girls from six non-residential (PACE Centers) programs. These girls
ranged in age from 12 to 19 with the average age of 16 years. The majority of girls
assessed were ethnic minorities. Forty-one percent of the girls were Caucasian, 43%
were African American, 10% were Hispanic, and 6% self-identified as mixed, biracial, or
other.

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

35

Systemic Factors Affecting Girls Entering the System
The profile of girls in the Florida juvenile justice system provides us with
information about some of the shared characteristics as well as some of the differences
among the girls by DJJ program risk level. In general, the findings show girls are getting
arrested at young ages, are committed with three or fewer criminal offenses, are sent to
moderate and high risk DJJ programs as their first placement, and many have high needs
that are related to their risk of re-offending.
Girls are getting arrested at young ages. Almost 40% of all girls reported
committing their first offense before the age of 13, and another 38% had committed their
first offense when they were 13 or 14 years old (see Figure 2). Girls were more likely to
be older as DJJ program level increased, with the youngest girls in non-residential
programs.

Figure 2. Age at Earliest Arrest (n=316)

12 years or
younger
(39%)

17 years or
older
(3%)

13-14 years
(38%)

15-16 years
(20%)

The majority of girls did not have severe criminal offense histories. As expected,
girls in high/maximum risk programs had a greater percentage of eight or more offenses
while girls in non-residential programs were most likely to have one or no criminal
offenses (see Figure 3). Interestingly, this study revealed that girls with three or fewer
self-reported criminal offenses were placed across all program levels.

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

36

Figure 3. Percentage of Girls with One to Three Arrests
by DJJ Program Level
100%

Percentage of Girls

90%
80%

2 or 3 Arrests

70%

One Arrest

60%
50%
40%
30%
20%
10%
0%

NonResidential
(n=31)

Low
(n=21)

Moderate
(n=68)

High
(n=44)

Max
(n=3)

DJJ Program Level

Many girls are sent to moderate and high risk DJJ programs as their first
placement. As expected, girls with a history of DJJ commitments are more likely to be in
higher risk programs. Interestingly, this study revealed that some girls are sent to
moderate (73%) or high risk programs (33%) as their first commitment placement (see
Figure 4). This is important because it further documents the limited availability of
gender specific placement options which directly affects the disposition of girls in the
juvenile justice system. Number of placements did not differ by age nor by
race/ethnicity.

Percentage of Girls

Figure 4. Percentage of Girls with No Prior
Commitments by DJJ Residential Program Level
100%
90%
80%
70%
60%
50%
40%
30%
20%
10%
0%

Low
(n=23)

Moderate
(n=71)

High
(n=37)

Max
(n=3)

DJJ Program Level

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

37

Girls have unique differences and require individualized responses based on their
intervention needs. While no clear patterns among race/ethnicity can be concluded, the
findings show some differentiation among several risk factors. Ethnic differences in
general indicate the need for not just gender-specific but culturally competent,
individualized treatment plans.
There was no difference in number of needs and only minimal differences in type
of needs by DJJ program level. In other words, girls in low level programs may have
similar types and numbers of needs as girls in higher level programs. On average, low
risk and moderate risk programs may have 20% of their girls with five or more needs3
(see Table 7). Twenty-nine percent of girls in non-residential programs and 31% of girls
in high risk secure programs had five or more needs.
Table 7. Number of Needs by DJJ Program Levels

47%

More than
5 Needs
(n=89)
29%

100% (75)

16%

64%

20%

100% (25)

Moderate

21%

57%

23%

100% (97)

High

25%

44%

31%

100% (113)

Max

22%

22%

56%

100% (9)

Program Level

0-2 Needs
(n=72)

3-4 Needs
(n=158)

Non Residential

24%

Low

Total
% (n)

There are girls who are low, medium, and high risk to re-offend placed across
every DJJ program level. The risk of re-offending score derived from JAIS is related to
the type of risk factors and needs present as well as the intensity of interventions and
supervision strategies suggested to reduce recidivism. High risk girls have a higher
probability of re-offending if appropriate level and intensity of services to address their

3

Needs “factors” by order of frequency include: emotional factors, family history problems, ineffective
parental supervision/family conflict, youth substance abuse, social inadequacy, criminal orientation,
alcohol abuse, isolated situation/temporary circumstance, school inadequacy, interpersonal manipulation,
and vocational skills.

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

38

pathways into the system are not provided (see Figure 5). Thus, appropriate levels of
resources are needed across ALL commitment levels.
Figure 5. Youth Risk of Re-offending by DJJ Program Level

Percentage of Youth

100%
90%

Low Risk

80%

Medium Risk

70%

High Risk

60%
50%
40%
30%
20%
10%
0%

Non-Residential
(n=75)

Low
(n=25)

Moderate
(n=97)

High
(n=113)

Max
(n=9)

DJJ Program Level

Risk Factors and “Pathways” into the System
There were commonly occurring factors (i.e., pathways into the system) that were
significant across the girls (see Figure 6 and Appendix 2). The most common elements
of the “pathways” that played a role in the delinquent behavior for girls in residential
programs were emotional factors, family issues, and youth drug abuse. While girls may
have a multitude of needs, these commonalities across the girls are dominant issues
regardless of DJJ program level and JAIS risk level to re-offend. Thus, commonalities
are the major focus of this research because they are affecting most girls. More
specifically, 79% of the girls had significant emotional factors, 61% had committed an
offense against family, and 46% had a significant drug or alcohol abuse problem that
contributed to their delinquency. Other factors such as social inadequacy, criminal
orientation, and school inadequacy were prevalent for less than 25% of the girls. These
broad factors and their related contextual issues begin to explain how these girls end up
in trouble with the law, identify their intervention needs, and prioritize an essential set of
services that are critically needed.
Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

39

Figure 6. Factors Contributing to Juvenile Delinquency for Girls
in Residential Programs (n=244)
100%

Percentage of Girls

90%
80%

Significant

70%

Highly Significant

60%
50%
40%
30%
20%
10%
0%
Emotional
Factors
(n=191)

Family History
Problems
(n=182)

Family Conflict
(n=177)

Alcohol/Drug
Abuse
(n=115)

Social
Inadequacy
(n=60)

Criminal
Orientation
(n=51)

School
Inadequacy
(n=28)

The following section provides more detailed information about these factors,
including some of the personal stories girls shared with the interviewers – these stories
are representative of the experiences shared by many girls. Based on our data findings,
the essential set of intervention services that would address the identified risk factors
include: specialized mental health and substance abuse treatment, specialized medical
care, comprehensive family focused services, and transitional programming. Additional
gender-responsive services such as specialized programming for pregnant and parenting
girls and non-traditional educational and vocational services will also help to increase
success with girls. In addition to identifying treatment services needed for girls who are
committed, these findings have implications for systemic and policy changes (i.e.
targeted prevention and diversion opportunities) if resources can directly address the
identified critical issues affecting most girls. Appropriately addressing these factors in
overall programming and individual intervention would help reduce risk of re-offending
and prevent deeper penetration into the system.
Emotional Factors/Motivation
The majority of girls (72%) cited emotional motivations in committing their last
offense. For these girls, the prevalence of emotional factors contributed to their
delinquency. This finding was true across all DJJ program levels. Emotional factors
include depression, trauma, anger, self-destructive behavior, or other mental
health/clinical diagnoses. For half of the girls (50%), the decision to commit offenses was
typically impulsive rather than planned. Less than 10% of girls indicated monetary gain
Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

40

was the impetus for their last offense. Examples of emotional motivations cited in the
interviews included stealing a car in order to run away and getting into a fight at school
because they were angry. Emotional motivations also include possession or use of drugs
and assault (not for robbery). Forty-three percent of girls reported committing their
offenses while using drugs and/or alcohol. This finding varied across race, with Whites
and Hispanics more likely than African Americans to use alcohol or drugs during the
commitment of an offense. Eighty-three percent of the girls that said they get physically
aggressive when they are angry reported they hurt or threatened someone during an
offense.
Ashley is an African-American 15 year old who lives with her
grandmother because she does not know her biological father and her
mother has substance abuse issues. Her older sister and her sister’s baby
and her younger brother also live with her grandmother as well. Because
Ashley’s best friend was having problems with her parents, Ashley decided
to take her grandmother’s car and drive to pick her up. Upon noticing
that her car was missing, Ashley’ grandmother called the police and
Ashley was arrested for grand theft auto. She is not involved in substance
abuse and describes her relationship with her grandmother as close.
Trauma and Victimization
Many girls shared various accounts of sexual exploitation, rape, and molestation
at different points throughout their young lives. More than half (64%) reported being
abused in their life, including 37% by a parent. Additionally, more than half (55%) of
girls cited abuse at the hands of someone other than their parent, with older girls more
likely to report non-parental abuse than younger girls and fewer African Americans
reporting such abuse. One in four (27%) of the girls reported being abused by their
parents and by a non-parent. Of girls experiencing abuse, approximately 70% reported
receiving psychiatric treatment, although we do not have data to know if this was specific
to the abuse.
Family Conflict
The current study found that offenses against family were high across all DJJ
programs: 61% of the girls committed an offense against their family members, though
this varied according to race. One quarter (23%) of all girls reported most of their

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

41

offenses were against their own family. African Americans were least likely to report
this (13%) in comparison to whites (33%), Hispanics (24%), and mixed or “other”
(54%). Not surprisingly, there was a relationship between youth who reported that their
offenses were “sometimes” or “usually” against family and their likelihood of having two
or more violent offense referrals to the juvenile court.
Clara is a White sixteen year old who lives at home with her mother and
her mother’s boyfriend with whom she does not get along. Her mother left
her biological father because he was extremely abusive and she has not
been in contact with him for over two years. She last heard he was in jail.
She began running away at age ten and began using alcohol shortly
thereafter. One evening a fight ensued where her mother’s boyfriend
became physically aggressive with her. She kicked and punched back and
Clara’s mother called the police. When the police came, Clara was
arrested for domestic battery because she had left visible marks on her
mother’s boyfriend. After she completes her program, she plans to go to
college. Clara sees herself as lovable.
Family Relationships and Home Life
These girls come from families marked by, at best, chaos, and, at worst, violence
and abuse. Fifty nine percent of girls had experienced five or more changes in household
residency, with 30% of these girls moving homes 10 or more times in their short
lifetimes. More than half (53%) reported that their parents had histories of drinking or
drug problems. More than half (59%) reported their parents had been incarcerated or on
probation. As reported earlier, one in three (37%) of these girls indicated being abused
by their parents. Half (50%) reported their parents had been reported to DCF for abusing
or neglecting them. Of those girls whose parents had been reported to DCF, 58% had
been in at least one non-DJJ out of home placement, including foster care. As Figure 6
above shows, family issues such as ineffective parental supervision, frequent parent/child
conflict, and family history problems were overwhelmingly linked with these girls’
delinquency.

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42

Andrea is a seventeen year old mixed race girl that lives with a foster
family. Both of Andrea’s parents are deceased. At age four, she lost her
father and at age twelve, she lost her mother to AIDS. She has run away
from three different foster group homes because they make fun of her.
Andrea was arrested for assault because she started a fight with a girl at
school that was speaking negatively about her biological parents. Andrea
describes herself as nice and caring.
Intergenerational Incarceration
Figure 7 displays the proportion of girls in residential programs whose family had
a history of involvement in the adult and/or juvenile systems. Over half of these girls
reported having a parent or sibling who had an arrest history (55% and 58%
respectively). Again, over half of these girls (58%) reported that their parent and/or their
sibling had been on probation or in a correctional institution in the last three years.
Figure 7. Family Involvement in the Criminal Justice System
100%
90%
Percentage of Girls

80%
70%
60%
50%
40%
30%
20%
10%
0%
Parent(s) ever arrested
(n=133)

Sibling(s) ever arrested
(n=138)

Parent or sibling
incarcerated and/or on
probation in past 3 years
(n=133)

Girls from families with criminal histories are an especially vulnerable subset of
the juvenile justice population. This study found that girls with family members (a parent
or sibling) that had a history of incarceration were more likely to have experienced
multiple placements in correctional institutions. These girls were also more likely to have
poor academic performance, difficulty with homework, poor attitudes, discipline
problems in school, and a greater number of needs. Early intervention may be especially

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

43

important for this group of girls. Assessments indicated that these girls were most likely
to be identified with the needs of family history problems and drinking/drugs.
Substance Abuse
For almost half of the girls (46%), alcohol and other drug abuse was a factor that
was related to their delinquency and involvement into the system. Not surprisingly,
seventy percent of the girls whose alcohol and/or drug abuse was one of the pathways
into the system committed an offense while using drugs. Nearly all (over 90%) of these
girls were using drugs or alcohol on a weekly or more frequent basis. They were also
more likely to report using drugs or alcohol when they felt depressed and to have parents
with a history of drug or alcohol problems. Girls with significant drug abuse were also
more likely to be in a higher risk DJJ program.
Carmen is a Hispanic fourteen year old who lives with her mother, stepfather, and two stepbrothers. She was sexually abused by an uncle for a
period of three years, starting at the age of seven. At 12, she was gangraped by three different young men. Carmen has exhibited self-harm
behaviors and at age twelve believes she fell into the “wrong crowd.”
She does not get along with her mother who has a serious drug problem
and only feels cared for by her 22 year old boyfriend who is in and out of
jail. She has been skipping school and using drugs and alcohol. Her drug
of choice is cocaine which she was using almost daily. Carmen was
arrested for possession after her locker at school was searched and
marijuana and a box cutter were found. She violated probation because
she failed to go to school and did not show up to court. She has been in
the system for one year and reports not making progress in her program
because she curses at staff and hits when she is depressed.
Social Inadequacy and Criminal Orientation
The data showed that social inadequacy was a significant factor related to
delinquent behavior for one in four girls (25%). Social inadequacy refers to lack of social
skills (e.g. easily led, difficulty understanding cause and effect, inability to understand the
motives of other people). Girls were equally likely to demonstrate leadership or to be
following their peers. The majority of girls reported having a friend they can talk with
and share feelings. With regards to friends, girls reported no clear pattern regarding
preference for hanging out with groups or individual friends. Sixty one percent of girls

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

44

reported their friends’ use of drugs and alcohol was frequent or abusive, similar to their
own reported levels of substance use prior to placement in a program (56%).
Although most girls (79%) reported having friends with histories of delinquent
behavior, girls overall were no more likely to commit their offenses with accomplices
than they were to act alone. As expected, however, those girls who reported they had
friends or associates in gangs were more likely to act with accomplices. Also, Hispanic
girls were more likely to have an accomplice when compared to girls of other races.
For one in five girls (21%), criminal behavior and identification with criminal
friends was viewed as an acceptable, common part of their life and value system. As
expected, these girls were more likely to have greater criminal offense histories than girls
who did not view crime as acceptable or were frequently motivated by monetary gain.
Sarah is a White sixteen year old girl who lives with her father but has
been running away from home for months at a time since she was thirteen.
She has been smoking marijuana and using cocaine on a regular basis
since she was thirteen. Her brother is in jail for selling drugs. Sarah was
sent to an alternative school because of her chronic truancy and
disruptive behavior. She started hanging out with older friends who had
all dropped out of school and were also selling drugs. Her boyfriend and
his friends help her find different places to sleep and she has been going
from house to house with another friend. Sarah is in the juvenile justice
system for possession with intent to sell drugs.
School Inadequacy
Problems with academic performance were high across all program risk levels.
One quarter (24%) of girls assessed had received special education for learning
deficiencies. With exception of youth in low risk programs, more than 50% of youth
from every other DJJ program level linked academic performance problems to other
external achievement problems in school, including lack of interest and or dropping out.
The majority of girls indicated records of extensive truancy prior to placement in a
program (66%). Additionally, 23% were considered somewhat disruptive (shouting,
leaving without permission, etc), and 67% were considered seriously disruptive (major
truancy, suspended more than 3 times, etc.) while they were in school. School
achievement problems were most pronounced among the Hispanic girls.

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

45

Other Critical Health Issues
Many of the girls participated in high risk behaviors. Forty-nine percent of girls
indicated having engaged in self-mutilation4, with differences across race. African
American girls were less likely to report self-mutilation than other ethnicities. Thirtyfour percent of girls reported having made at least one suicide attempt and another 7%
had thought seriously of killing themselves.
One in three (35%) of girls in residential programs had experienced a pregnancy.
Ten percent of these girls had children. Fifteen percent of the girls reported having a
current major illness that interferes with daily functioning, while 12% reported
recovering from a major illness in the past.
Across DJJ program risk levels, girls are demonstrating a significant number of
needs. These include emotional/mental health due to trauma and victimization, family
conflict, ineffective parental supervision, and family incarceration. Girls also have other
risk and need factors including substance abuse/addiction, social inadequacy, criminal
orientation, school inadequacy, and critical health issues/self-defeating behaviors. Not
surprisingly, there was variability across DJJ program levels in these types of risk factors.
For example, the significance of drugs and alcohol as a factor contributing to problem
behavior increased with program level and social inadequacy was more of a factor for the
lower program levels. Criminal orientation was relatively low across all programs, with
the exception of maximum risk. The following section discusses specific findings for
girls in deep-end residential programs and for at-risk girls in non-residential programs.
Specific Findings for DJJ high risk programs
Girls in high risk programs were more likely to have a number of high risk
indicators. Specifically, girls in the high risk program level were more likely to have selfmutilated, be physically aggressive towards others when angry, have experienced abuse
from someone other than a parent5, have increased status offenses, have parents with a
4

Self-mutilation refers to cutting behavior and/or homemade tattoos.
Includes physical and/or sexual abuse by someone other than parent(s) and can include program staff.
Also includes prostitution.
5

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46

history of substance use and criminal behavior, and have siblings with an arrest history.
Girls in high risk programs were also more likely to report a mistrust of people.
Self-mutilation is more common in DJJ high risk programs. During the course of
the interviews, many girls showed where they had cut on themselves, some being recent
cuts. Girls who are not treated appropriately may "self harm" and learn institutionalized
behaviors in a cry for getting their needs met. Specialized training for staff who are
working with girls must be funded and implemented. Further analysis is needed to
determine whether cutting and other self-defeating behavior is learned institutionalized
behavior or if it is central to girls’ intervention needs.
While recidivism is lower than for boys, many girls keep coming back into the
system. This study found that the number of arrests for status offenses increased with
program level. The DJJ data suggests that such arrests are for violations of
probation/conditional release (e.g., violation for running away or not attending school)
that exacerbates situations for girls and eventually can institutionalize them.
Specific Findings for Non-Residential Girls
Girls in non-residential programs at PACE Center for Girls shared many of the
same common factors contributing to their delinquent behavior as the girls in residential
programs: emotional factors (84%) and family issues, including ineffective parental
supervision/conflict (64%) and family history problems (68%). Whereas substance
abuse was a factor for 46% of residential girls, less than 20% of non-residential girls had
substance abuse issues. However, social inadequacy was found to be a greater
contributing factor (39%) among the non-residential girls than for residential girls (25%).
School inadequacy as a factor was also more prevalent among the non-residential girls
(23%) than for residential girls (12%). The percentage of girls who had a criminal
orientation was lower than for residential girls. Again, there was no difference among
number of needs for girls, including non-residential girls. Girls in the non-residential
sample also experienced parental abuse, non-parental abuse, and family incarceration at
alarming rates. Over two-thirds of girls in the non-residential sample at PACE were
medium or high risk to re-offend.

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

47

Based on the aforementioned risk and need factors, the JAIS assessment identifies
the best supervision strategy for each girl based on her characteristics and individual
motivations. Programming for youth cannot be “one size fits all.” This is important for
better understanding girls in both residential and non-residential programs. It is
particularly important for DJJ with its limited resources. Differential programming that
can separate who needs what interventions and use resources accordingly is a more
effective system.

Supervision Strategies: Responding to Individual Differences
This section provides an introduction to the JAIS Supervision Strategy
framework. The JAIS findings show that there are different recommended supervision
strategy approaches for addressing the needs of girls in the system (see Figure 8). The
supervision categories are: 1) Casework Control 2) Selective Intervention, 3) Limit
Setting, and 4) Environmental Structure. Because these are supervision categories based
on risk and need factors, individual characteristics, and not offenses, girls can fall into
any of the four categories within all program levels.

Figure 8. Distribution of JAIS Supervision Categories
for Girls in Residential Programs (n=244)
Limit Setting
(15%)

Environmental
Structure
(7%)

Selective
Intervention
(28%)
Casework
Control
(49%)

In practice, supervision strategies help guide staff in their supervision planning.
Each supervision category has implications for case planning and response to girls given
individual differences in behavior/attitudes. When identification of her supervision

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

48

strategy is recognized, this valuable information can help staff to develop a proactive
rather than reactive supervision and care planning approach based on likely response to
treatment. For example, some juveniles may respond more positively to a
counseling/problem solving type of casework, while another is most effectively handled
with clear statements of behavioral expectation and strict enforcement of sanctions.
Planning for what to expect (e.g. behavior in programs, relationships with staff, security
issues, reentry issues, and relationships with peers) helps increase appropriateness of
services and effectiveness of management, thus increasing success with the girls. It can
also be beneficial for staff and the DJJ system in general, by reducing the number of girls
who pick up additional charges while in placement, thus avoiding transfer of girls into
costly, deeper end programs. Appendices 3 and 4 have more detailed information about
the supervision strategy groups, results for each, and a framework for working with the
different types of groups.

Implications
The major findings are now discussed with regard to their implications for change
in Florida’s response to girls in juvenile justice both in treatment services and in
policy/system changes.

Implications for Overall Programming: An Essential Set of Services
In the section above, the major findings from the research regarding the
commonalities across the girls (e.g., emotional motivation, family history problems,
family conflict, and drug abuse) and other important risk and need factors are presented.
These issues point to an essential set of services that are needed to specifically address
the factors that are contributing to delinquent behavior for girls, even at the lowest levels.
Specialized Mental Health and Substance Abuse Treatment Needs
The NCCD data shows that girls are mainly committing offenses from “emotional
reasoning.” Research on girls shows that trauma/victimization drives behaviors (see
Chapter 2). Victimization of young children and adolescents has consequences on their
school performance, alcohol and drug use, physical and mental health, delinquent
behavior, and future earning potential (Wordes and Nunez, 2002). This link is important
Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

49

because if the state does not meet these needs (e.g., emotional/mental health needs,
substance abuse treatment needs) and girls are released, it can be assumed that the unmet
needs will continue to drive their behaviors (emotional responses) to re-offending.
Individual, group, and family counseling and therapy with professionals who
focus on girls’ issues were named as some of the most imperative mental health services
by the staff. A therapeutic focus on domestic violence, self-harm, substance abuse,
physical and sexual abuse, and post traumatic stress disorder (PTSD) was said to be
essential for this population.
One of the barriers and gaps identified by staff during the focus groups were gaps
in training regarding gender specific programming and resources to provide adequate
treatment that responds to the behavior of girls (especially aggression that is a result of
trauma or victimization, PTSD, self-medicating, and self-defeating behavior). According
to trauma and addiction theories, girls will use substances to “self-medicate” or to escape
from the psychological pain they experience in destructive relationships. The Florida
system has few available substance abuse treatment centers that therapeutically address
addiction problems. Gender-responsive services mandate mental health treatment/
therapy that address the interconnectedness of trauma, addiction, and delinquent
behavior. Gender-responsive services must also establish girls’ safety from themselves
and others.
In relation to the significant emotional needs of girls across all programs, there are
currently few programs that actually provide intensive mental health services. Those that
do provide intensive mental health services (e.g., Desoto and Milton) are reporting
success, but not all residential programs have the same level of resources. This lack of
resources and services is further compounded by the lack of wraparound mental health
services available in the communities to which girls will return. Level of funding should
match and address the level of mental health needs and staff training, regardless of what
point girls are in the system.
Comprehensive Family-Focused Services
With such severe family issues--offenses against family, parent/sibling
incarceration, family substance abuse histories, and family conflict surrounding these

Rallying Cry: Florida’s Response to Girls in the Juvenile Justice System

50

girls--it is clear that families must be engaged in the treatment of youth rather than
treating the youth in isolation. The research shows that family issues are the pathways
into the system for most of these girls, yet the existing interventions in Florida hardly
reflect this issue because interaction with families is minimal, if existent at all.
Residential programs are not housed in the communities where these girls live and are
often far away, making visitation, family therapy, and other essential services very
challenging. It is not a surprise that the parents and siblings of more than 50% of girls in
Florida’s juvenile justice system have histories of incarceration. The state should consider
programs and services for young children of incarcerated parents as an effort to reduce
intergenerational incarceration.
These girls will be returning to their communities. More family-focused
programming in community-based settings when appropriate is critically needed.
Families need to be part of the treatment process and many times, these families need
support services themselves (e.g. parenting programs) in order to have more success with
their children. Girls also need to be aware of the resources available in their communities
should they need additional support that they cannot get at home. Relationships play a
primary role in the lives of teen girls, and according to relational theory, connection with
others is the guiding principle of growth for them developing a sense of self and selfworth (Bloom, Owen, and Covington, 2005). Because many of these girls experience
unhealthy relationships, therapeutic programs for girls must address issues of abuse,
violence, and family relationships.
Medical Care and Specialized Programming for Pregnant and Parenting Girls6
The finding that 35% of girls had experienced a pregnancy and 10% currently
have children stresses the need to provide specialized services for pregnant and parenting
girls. Currently, there is only one program in the state that offers comprehensive services
to pregnant and parenting girls. In some residential programs, girls are not allowed
contact with their children. Research with female offenders finds that women and girls
are more likely to successfully complete programming during incarceration and less
6

Our sample included one site where all girls were either pregnant or parenting.

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likely to recidivate if they are able to maintain healthy contact with children and families.
In addition, pregnancy prevention and parenting skills should be a part of all genderspecific curriculums for girls in residential programs.
Furthermore, health services such as gynecological care, prenatal and post-partum
care for pregnant girls, dental and vision, and health education that address HIV and other
sexually transmitted infections and diseases are essential.
Traditional and Non-Traditional Educational and Vocational Programming
The findings regarding social inadequacy, school achievement problems, and
cultural differences further document the need to incorporate programming that responds
to cultural diversity and individual differences. Also, early intervention for girls is
paramount, given the body of NCCD research in Florida that found that educational
failure particularly in middle school years was one of the biggest predictors of
involvement in the juvenile justice system (Acoca, 2000). These educational findings
indicate the need for traditional and non-traditional educational and vocational education
as well as GED preparation and testing in DJJ programs. The focus groups with staff
provided specific priorities for educational programming. Individualized instructional
strategies and gender-specific curriculum were identified as very important. Staff also
thought it was important to ensure that girls had the opportunity to explore and gain skills
related to their future employment and career goals.
The current NCCD data showed that social inadequacy was a factor that led the
girls into the system for one in four girls (25%). Staff in the focus groups reported that
the majority of the girls benefit greatly from receiving education and training in the area
of social and life skills development. Topics mentioned included hygiene, relationship
building, healthy boundaries, decision making, family planning, assertiveness, and anger
management.

Implications for Policy/System Changes: Appropriate Placements and
Resources to Match Needs
Placements should match level of intervention needs, with more intense services
to match girls with higher risk levels of re-offending. OPPAGA and NCCD have both

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argued that intense services should not be concentrated in deep end, costly, and highly
secure environments. This study found that 50% of girls in DJJ high risk programs scored
low or moderate risk on JAIS7. These girls may need to be re-assessed as to the
appropriateness of a step-down program if the step-down program has the available
interventions to address their individual needs. This study also found that 35% of girls in
DJJ low and moderate risk programs scored high risk on JAIS. Because high risk girls
have a higher probability of re-offending if appropriate level and intensity of services to
address their pathways into the system are not provided, this is a positive opportunity for
the state to make appropriate changes to the level of resources at ALL program levels.
Currently, these programs may not be able to appropriately address these needs given
lack of emphasis or resources. The ability to appropriately meet the needs of girls in the
minimum security environment, particularly for girls with less serious violations but a
high number of needs, is critical for the state.
Some of the girls currently served in non-residential programs have the same
critical needs. OPPAGA has recommended that some girls in residential programs can be
served in community alternatives that address risk factors of girls with lesser costs
(OPPAGA, 2006, report 06-13). One of the recommendations is to combine PACE with
Dialectical Behavior therapy (DBT) to serve girls with misdemeanors and non-law
violations who have intensive mental health needs and problems in school in a day
treatment alternative.
This study also found that there were differences in the recommended supervision
strategies for girls in the system, even within the same program levels. At the aggregate
level, the supervision category findings provide a snapshot of information about Florida’s
approach to girls in juvenile justice. The current distribution of the different supervision
categories suggest there is a subset of girls that require intense services; conversely, there
are at least 25% of girls who would thrive in less restrictive programs if provided
appropriate services (e.g. family interventions, substance abuse treatment). It is critical
that services are available in low and moderate risk programs to wraparound and enhance
7

When controlling for number of needs for high risk program girls who scored low or moderate risk on

JAIS, we found that 24% (n=27) had 3-4 needs and that 20% (n=23) had 0-2 needs.

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53

appropriate treatment in order to prevent these girls from more deeply penetrating the
system. It is also critical that alternative community based programs or pilot programs are
created for girls who do not need to be committed to restrictive programs. The need for
having resources to appropriately meet the girls’ needs was consistently reiterated by
staff as well as the importance of placing girls in the appropriate programs.
Safe and Healthy Environments
The data is showing that the deeper end girls have experienced more victimization
and should encourage the state to provide intensive mental health services to address
trauma and victimization issues and to provide safe and healthy environments. Staff from
DJJ programs have been responsible for some of this abuse (e.g. emotional, physical, and
sexual); in fact, abuse by staff has resulted in the closure of some facilities. This is
particularly troubling and exacerbates the barriers to building trust and appropriately
treating the multiple mental health issues that girls present in placement. When girls are
transferred to another facility, it is imperative that all of these factors be taken into
consideration and the receiving facility must be adequately funded to provide the
intensity of services that will be needed to address these issues. Extra effort needs to be
placed in gaining these girls’ trust and addressing the impact of institutionalized
victimization. Additionally, rates of reporting may be affected by different definitions by
others including race/ethnicity and mistrust of the system, and therefore, gender-specific
curriculum must be culturally responsive.
Transitional Programming
There are a number of girls who cannot or should not go back to their homes after
release from a residential program. The NCCD research found that girls who were deeper
in the DJJ system (2 or more residential programs), were more likely to have also
experienced out-of home placements (non-DJJ), including foster care. While this finding
deserves additional research, there are implications for the relationship between
Department of Children and Families (DCF)/foster care and DJJ. DJJ and the community
must be planning for transitional placement, including supportive independent living,
continued mental health services, and other support resources for girls before their

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54

release. The challenges and lack of aftercare services were consistently regarded as one
of the biggest frustrations and barriers.

Summary of Major Findings
NCCD has provided a snapshot of the girls in the Florida juvenile justice system
by assessing their risks and needs and common pathways into the system. As expected,
these findings show that many of the girls’ issues are interconnected: victimization and
trauma, substance abuse, mental and emotional health, and relationship difficulties, but
also that these are factors driving behaviors for most of the girls in the system.
Appropriately addressing these factors in overall programming and individual
intervention would help reduce risk of re-offending and prevent deeper penetration into
the system. The major findings from this research are:
The profile data of girls in the Florida juvenile justice system suggests there are
systemic factors contributing to the number of girls entering and cycling through the
system:
•

Almost 40% of all girls reported committing their first offense before the age of
13.

•

Girls with three or fewer self-reported criminal offenses were placed across all
program levels, including high risk.

•

73% of girls in moderate programs and 33% of girls in high risk programs were
currently in their first DJJ commitment placement.

•

There are girls who are low, medium, and high risk to re-offend committed across
every DJJ program level (e.g. low risk to re-offend in a high risk DJJ program,
high risk to re-offend in a low risk program).

There were common major factors (i.e. pathways into the system) related to the
delinquent behavior of these girls (see Figure 1). This information supports the
literature regarding pathways on how women/girls enter the system and gives emphasis
to why the state is urged to invest in gender-responsive programming to address these
critical factors:

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•

Emotional Factors: Depression, trauma, anger, self-destructive behavior, or other
mental health/clinical diagnoses was a factor for 79% of girls in residential
programs and 84% of girls in non-residential.

•

Family Issues and Conflict: Offenses against family, family history problems,
ineffective parental supervision or abuse by family were factors for more than
70% of girls in residential programs and 64% of girls in non-residential.

•

Substance Abuse: Alcohol and/or drug use was a problem related to the
delinquency of almost half (46%) of the girls in residential programs and 20% of
girls in non-residential.

Level of needs of girls does not differ by DJJ program level. This finding coupled with
the common pathways means an essential set of services needs to be available to girls
at ALL levels (low, moderate, and high). The most pressing intervention needs
include:
•

Specialized mental health services,

•

Substance abuse treatment,

•

Family focused services,

•

Specialized medical care,

•

Alternative, educational and vocational services, and

•

Transitional placements and services for girls.
Treatment services must address the interconnectedness of these needs in gender-

responsive ways. If girls are provided appropriate interventions and treatment services
that address her pathways into the system and individual risks at ALL program levels, her
opportunities for success are increased. Girls require individualized services based on
different needs, varying levels of risk of re-offending, and suggested supervision strategy
groups for working with them. Placements should match level of intervention needs, with
more intense services to match girls with higher risk levels of re-offending. Finally, safe
and healthy environments must also be ensured.
The lessons to be learned from this research are numerous and have
implications for many sectors of the community including DJJ system and staff,
legislature, judges, and justice system involved girls and their families. This research
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56

presented new data on the factors contributing to involvement into the system, identified
the intervention needs of girls, and discussed the gender-responsive treatment services
and policy system changes likely to address their needs. Certainly many of the
incarcerated girls have a variety of risk and need factors, but in spite of their needs, they
show resiliency. Many of the girls from the research sample are doing well in school,
staying drug-free, not displaying self defeating behaviors, have a positive self-concept,
and have positive relationships with others. For example, two out of three girls (68%)
wanted to continue education after high-school and 84% articulated long-term goals for
their future. Individual differences point to the critical need for Florida to use the
information to develop programs that are not only gender-specific, but also
developmentally appropriate, culturally responsive, and based on the unique experiences
of each girl.
When asked to describe their personality, 75 % of the girls emphasized a
positive strength. In spite of their many challenges, disappointments and a sometimes
horrific past, they were able to remain connected to some positive part of who they are as
a person. Likewise, the Florida juvenile justice system is marked by its own history of
failures as well as successes. The Florida DJJ and the state would do well to learn from
these girls and follow in their example of honest self-reflection and acknowledgment of
strengths, even in trying times.

Focus Groups Findings
The staff participating in the focus groups (n=75) helped provide context to the
research regarding the programming needs of girls, available gender-responsive services
and barriers to implementation. As noted in the major findings section, the benefit of
JAIS is that it captures each girls’ story including how each girl got involved in the
system, family history, interpersonal relationships (with family and peers), outside
educational experiences, and attitudes towards her personal experiences. However, it is
only through the individual case planning process with staff that their specific needs (e.g.
dire mental health needs, cutting behavior) can be truly addressed.
Staff were able to share invaluable insight about the needs of girls in their
facilities, the most effective services, gaps in services, and barriers to effective and

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57

appropriate treatment. Specifically, they voiced concerns about not having the adequate
resources (e.g. mental health, aftercare support, consistent, long term, appropriately
trained staff, parent involvement) to meet the girls’ needs. As a result, the girls are
affected as they are either released without having their needs met, or transferred to
different programs, cycling through two, three, and as many as five DJJ programs
because the programs have not been able to handle the “symptoms" of the girls’
emotional needs. Some of these girls have been in the system for most of their
adolescent lives.
Effective Services
Staff were also able to elucidate topics that have not yet been brought to the
forefront and are in need of attention and further examination. According to staff, the
most beneficial and effective services in girls’ residential programming centered around
the pressing physical and mental health needs, education and vocational training, and
recreation and life skills development. Girls were said to need health services such as
gynecological care, dental and vision, and health education that addresses HIV and other
sexually transmitted infections and diseases. Individual, group, and family counseling
and therapy that are gender-specific were named as some of the most imperative mental
health services. A focus on domestic violence, self-harm, substance abuse, physical and
sexual abuse, and PTSD was said to be essential for this population.
Focus group participants recognized both educational and vocational
programming as integral components to residential care. Individualized instructional
strategies, classroom structure, and gender-specific curriculum were identified as primary
needs in education programs along with tutoring and focus on subject areas such as math
and science. There was a strong desire to ensure that girls had the opportunity to explore
and gain skills related to their future employment and career goals. Being able to provide
girls with the education and training they need to be successful after transition was a
major concern for some participants.
Recreation was seen as a vital outlet and release for girls in programs where they
needed to have opportunities to get physical exercise, work with animals, do arts and
crafts, theater, drama, singing, dance, and other such activities. In addition, the majority

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58

of the girls were said to benefit greatly from receiving education and training in the area
of social and life skills development. Topics mentioned included hygiene, relationship
building, healthy boundaries, decision making, family planning, assertiveness and anger
management to name a few. Participants wanted girls to feel pride in their gender and
talked about the importance of empowerment.
Barriers and Gaps
Programs faced many barriers that prevented them from reaching their full
potential. Lack of funding and resources were repeatedly cited as one the most serious
limitations. The lack of collaboration with regulating agencies, community organizations
and various other stake-holders was also referenced as particularly problematic. Many
barriers were noted on the actual program level which included high staff turnover and
staff shortages.
Sadly, some of the most needed services were also those that had the most serious
gaps. While many of the necessary structures were in place, frightening gaps in training,
after-care, education/vocation, and gender-specific programming were reported.
Paramount to the discussions was the desire to offer services that were in fact genderspecific. This thread ran throughout the myriad of varied services. While much of what
was expressed reinforced current thinking and research, other issues specific to girls’
programming have not yet received as much attention. For example, staff felt they
needed additional information and training regarding the issue of girls seeking out sexual
encounters with female peers (“gay for the stay” is the language used by the girls).
Overall, the need for consistent, truly gender-responsive services remained a constant
across programs. The gaps in training and after-care were also extremely pronounced.

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59

Chapter 5. Recommendations
Girls require individualized services based on different needs and intensity of
services, varying levels of risk of re-offending, and suggested supervision strategy groups
for working with them. At the aggregate levels, the research findings underscore the
multiplicity and intensity of behaviors and needs of girls served throughout Florida’s
juvenile justice system. The combination of the needs, risk, supervision strategies, and
the professional judgment of the staff/team members who are directly working with the
youth are critical ingredients to appropriately meeting the needs of the youth and
balancing public safety concerns. The research shows that level of need did not
significantly differ by program levels which indicates that the majority of girls served in
both residential and non-residential settings require intensive and specialized
interventions to address the common factors related to their delinquency including
emotional factors (such as depression, trauma, anger, self destructive behaviors, and
mental health/clinical diagnosis); family issues and conflict; and substance abuse.
Of particular concern is whether or not services are available to appropriately
address the identified needs of girls served in both residential and non-residential
settings. Consistently in focus groups throughout the state, staff (including directors to
direct care workers) voiced frustration with the serious (and sometimes dangerous) lack
of resources to appropriately meet the needs of girls in their care. This same frustration
was repeated by nearly 100 participants at the Girls Summit convened by the Girls
Advisory Council, January 19-20, 2006. Staff feedback suggests that lack of resources
and appropriate services are at a critical point and are negatively impacting the wellbeing
of girls in the system.
This lack of services and other systemic factors that are impacting girls’
involvement deeper into the system compounds the challenges in providing effective
services and treatment. These issues create further instability for the girls and for the
system, because girls with high level of needs are placed in programs without resources,
or without staff who are trained/qualified/paid adequately. Further, lack of “real options”
either for youth who do not need to be in such restrictive environments or for youth who
need much more intensive treatment than can be provided by a DJJ residential program,

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lead to inappropriate placements. Lack of options put an additional burden on the system
that is in danger of reaching a critical breaking point.
There is no single solution to effectively address the needs of girls in or at risk of
entering Florida’s juvenile justice system. The following three-tiered set of
recommendations charts the direction for a comprehensive approach designed to address
girls’ pathways into the system and the essential set of services and policy initiatives that
are critical to meet the different needs of girls and reverse the escalating numbers of girls
entering the system. The three tiers are first summarized, with detailed recommendations
within each tier to follow.
Tier 1: Addressing Immediate Critical Needs
These recommendations are put forth to address the immediate needs of girls whom are
currently being served in residential and non-residential placements, including assessing
programs that are not equipped to address the severity of mental health and/or clinical
issues, consideration of alternative placements, and increasing level of funding in order to
meet critical needs.
Tier 2: Short Term Recommendations for FY 2006-07
These recommendations are put forth for consideration by the leadership of the
Department of Juvenile Justice (DJJ) and the 2006 Legislative Committees (Senate
Criminal Justice and Justice Appropriations and House Criminal Justice, Justice
Appropriations, and Juvenile Justice) as the beginning steps in implementing a set of
essential services to address the identified needs of the girls in Florida’s juvenile justice
system and to increase options for the courts.
Tier 3: Strategic Recommendations for Longer Term Solutions
These recommendations are put forth for consideration by the leadership of DJJ
current and future legislative committees as well as key stakeholders in juvenile justice
for addressing longer term solutions aimed at reversing the increased numbers of girls
entering the system and creating a gender responsive continuum of care equipped to meet
the multiplicity of treatment needs.

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Tier 1: Addressing Immediate Critical Needs
Critical Need 1: Severe mental health needs
Identify strategies for the re-allocation of resources (funds) to secure short-term, acute
psychiatric placement options for girls in need of intense mental health services. The
intent of the short-term acute placement is to properly assess and stabilize the youth in
order to determine the best option for her longer term placement. This also provides
relief for programs that do not have adequate resources or capacity to effectively meet the
needs of girls with extensive mental health needs.
Critical Need 2: Treatment needs
Develop evaluation criteria to determine programs’ ability to effectively meet the needs
of girls as identified by the research as well as criteria that ensure the safety and well
being of youth in programs (e.g. emotional and physical safety of environment, level of
institutionalized/symptomatic behavior, staff turnover, staff qualifications and
experience, youth outcomes).
Critical Need 3: Appropriate placements
Assess girls currently committed to DJJ that do not pose a public safety threat utilizing a
standardized assessment instrument coupled with staff recommendations. Further,
develop a uniform process for transferring girls to a lower level program to ensure proper
placement. Reserve space in residential programs for girls who pose a public safety risk.
Critical Need 4: Provider per-diem rates
Review the feasibility of increasing per diem rates through cost savings of placing girls in
lower levels of care who are low and medium risk to re-offend and who do not pose a
public safety threat. Additional funds would be earmarked for increased services to
address mental health/behavioral needs of girls.

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Tier 2: Short Term Recommendations for FY 2006-07
Recommendation 1: Funding for all program levels
Interventions to address specialized needs require highly trained, skilled staff and a
commitment to adequate resources. Assess and allocate appropriate per diem rates for
critical services to address the multiplicity of needs of girls in the juvenile justice system.
Recommendation 2: Support OPPAGA
Support the Office of Program Policy Analysis and Government Accountability
recommendations outlined in Report No. 06-13 (OPPAGA, 2006) which include
strategies for cost savings by creating community treatment programs for at-risk girls and
thus reducing the need for beds in residential delinquency programs. Funding for new
programs would need to be shifted from residential programs over time to avoid
disrupting existing placement options while the new programs are being established.
Specific new programs include:
•

Expanding the Redirection Program to serve girls who are at risk of residential
commitment for a misdemeanor; appropriate youth with prior violent crimes
could also be included.

•

Create a pilot project for girls with self destructive and aggressive behaviors,
mood disorders, and substance abuse. Using the Family Integrated Transitions
Program model developed by the Division of Public Behavioral Health and
Justice Policy at the University of Washington would provide an alternative to
residential placement for girls who have committed non-law violations or
misdemeanors.

•

Combine PACE with Dialectical Behavioral Therapy and day treatment for 30
girls in Duval, Escambia, and Pinellas Counties who are now being sent to
commitment for non-law violations and misdemeanors.

•

Pilot a community-based project for girls with mental health and abuse issues that
works with families to address girls’ multiple risk factors using the Multisystemic Therapy model.

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Recommendation 3: Appropriate assessment tools
Implement a uniform, gender- responsive screening and assessment process utilizing an
instrument that identifies risk level, intervention needs, and supervision strategies to
effectively work with them.
Recommendation 4: Practical supervision tools
Provide staff with tools for understanding differences of girls, such as the NCCD
recommended supervision strategy groups which can assist with supervision planning and
individual treatment case planning.
Recommendation 5: Gender-responsive training
Provide appropriate resources for the development and implementation of uniform
gender-responsive training for all staff working with girls along the entire DJJ continuum
(probation, detention, non-residential, residential) as part of the required training.
Recommendation 6: Collaboration
Assign a legislative work project to determine strategies that promote cross-agency
collaboration between the Department of Education, Department of Children and
Families, mental health, courts, police, public defenders, and the Department of Juvenile
Justice.
Recommendation 7: Policy change in community mental health
Mandate that local mental health providers accept referrals for appointments from
residential programs to ensure a smooth transition and the availability of mental health
service follow-up when girls transition back to the local community.

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Tier 3: Strategic Recommendations for Longer Term Solutions
Recommendation 1: System examination
Conduct further research using the “pathways” framework to better understand and
identify points in the process where girls could be diverted or appropriately referred to
the least restrictive services (or placement) based on level of need and public safety risks.
Recommendation 2: Policy and practice
Identify and re-examine policies and practices that drive girls into the system. For
example, charging girls with assault against family members; imposing additional
charges obtained during residential placement; and violating girls on probation for
running away are policies that have a direct impact on the numbers of girls that will enter
and stay in the system.
Recommendation 3: Statewide training:
Develop and provide specialized training for judges, state attorneys, police departments,
public defenders on topics such as female development, mental health, special education,
cross system collaboration and gender-responsive approaches.
Recommendation 4: Resources
Increase resources and expand gender responsive services in both residential and nonresidential programs to expand:
•

Specialized service options for pregnant and parenting girls.

•

Health services such as gynecological care, prenatal and post-partum care for
pregnant girls, dental and vision, and health education that address HIV and other
sexually transmitted infections and diseases.

•

Specialized services to address family conflict and associated risk.

•

Aftercare and transitional services to ensure success for girls.

•

Traditional and non-traditional education and vocational programming that is
gender specific.

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Recommendation 5: Intergenerational incarceration
Implement programs and services for young children of incarcerated parents as an effort
to reduce intergenerational incarceration.
Recommendation 6: Gender-specific probation
Explore the implementation of a female offender probation unit which would entail the
reorganization of caseloads so all girls on probation would be supervised under one unit
and probation officers would have all girl caseloads. Reassigned probation officers
working in this unit would receive specialized training on how to work with girls.
Recommendation 7: Research-focused pilot programs
Fund pilot programs to address the girls who continue to cycle through the system, both
in non-residential and residential programs. The pilots would be designed to specifically
address the significant factors that contribute to girls’ delinquency (e.g. emotional factors,
parental family problems, substance abuse).

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Bloom, B., Owen, B. and Covington, S. (2005). Gender-Responsive Strategies for
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Bloom, B., and Covington, S. (2000). Gendered justice: Programming for women in
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Chapman, S. (2005). Moderate and High Risk Residential Programming for Girls.
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the Florida Juvenile Justice System. Presentation to the Girls in Juvenile Justice
Summit- January 19, 2006. Jacksonville, Fl.
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FL: Bureau of Data and Research.
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Mullis, R.L., Cornille, T.A., Mullis, A. K., & Huber, J (2004). Female juvenile offending:
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Residential Programs. (Report No. 06-13). Tallahassee, FL: The Florida
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Appendix 1: Residential Programs by Level and Type

LOW-RISK
WHITE FOUNDATION Group Treatment Homes
STEP II (12 AVERAGE)(F)
FIRST STEP ADOLESCENT Group Treatment Homes (F)
VISION QUEST LOW RISK-Warrington Program
MODERATE RISK
BRIDGES ACADEMY (F)
SAWMILL ACADEMY
ALACHUA JUV RESIDENTIAL FACILITY
WILSON YOUTH ACADEMY (F)
FIRST STEP GIRLS JUV RES FAC
LIVE OAK GIRLS RESIDENTIAL FACILITY
BOWLING GREEN (F) JUV RES FACILITY
YMCA CHARACTER HOUSE (F)
WINGS FOR LIFE
PINES JUV RES FACILITY (F)
CAMP E NINI HASSEE
VISION QUEST MOD RISK
MODERATE RISK-Substance Abuse
BOWLING GREEN FEMALE SUBSTANCE ABUSE
FRANCIS WALKER
MODERATE RISK- Mental Health
MILTON GIRLS JUV RES FAC
LAKE ACADEMY (F)
HOPE (F)
LIGHTHOUSE JUV RES FACILITY
HIGH RISK
VERNON PLACE (F)
MONTICELLO NEW LIFE (F)
ORANGE Halfway House
UMATILLA GIRLS ACADEMY
HIGH RISK-Mental Health
DESOTO DUAL DIAG COR FAC FEMALE

MAXIMUM RISK
DESOTO MAXIMUM RISK FEMALE

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Appendix 2: Percent of Girls with Each Factor (Need) by DJJ Program Risk
Level
The graphs and tables below provide a snapshot of the primary needs, supervision
strategies, and risk of re-offending levels within DJJ program levels.
Major Factors Contributing to Juvenile Delinquency for Girls
by DJJ Program Levels
100%
90%
80%
70%

NonRes

60%

Low

50%

Medium

40%

High

30%

Max

20%
10%
0%
Emotional Factors
(n=254)

Family History
Problems (n=233)

Family Conflict
(n=224)

Drugs/Alcohol
(n=124)

Other Factors Contributing to Juvenile Delinquency for Girls
by DJJ Program Levels
100%
90%
80%
70%

NonRes

60%

Low

50%

Medium

40%

High
Max

30%
20%
10%
0%
Social Inadequacy (n=89)

Criminal Orientation (n=60)

School Inadequacy (n=45)

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70

Distribution of Girls within JAIS Supervision
Strategy Groups, by DJJ program level
60
50
40

Low

30

Moderate

20

High

10
0
Casework
Control
(n=116)

Selective
Intervention
(n=68)

Limit Setting Environmental
(n=33)
Structure
(n=18)

Distribution of Risk of Reoffending Levels by DJJ Program Level
DJJ Program Level
DJJ Low Security
Program (n=25)
DJJ Moderate
Security Program
(n=97)
DJJ High Security
Program (n=113)

Low Risk of
Reoffense

Medium Risk of
Reoffense

High Risk of
Reoffense

4%

68%

28%

8%

55%

37%

10%

41%

49%

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Appendix 3: JAIS Supervision Categories
NOTE: The JAIS assessment tool is specifically designed to include multiple components
(needs, risks, and supervision strategies). The assessments offer overall guidelines and
probability of what strategies will work best given the youth’s characteristics. Even
within a strategy group, no two youth are alike. Professionals are advised to consider all
of the components of JAIS as well as their professional judgment for individualized case
planning. The combination of the needs, risk, supervision strategies, and the professional
judgment of the staff/team members who are directly working with the youth are critical
ingredients to appropriately meeting the needs of the youth and balancing public safety
concerns.
The following analysis gives a brief description of the JAIS supervision strategy
categories, distribution for each, and implications at the system level.
Casework Control (CC) was recommended for almost half (49%) of the sample.
They are characterized by their general instability (e.g. family problems, chemical
dependency), negative self-concepts and, often, self-defeating behavior. They can be a
very frustrating group to treat because they are very needy, have problems with authority,
and have frequent crises. Generally, offenses for these girls follow inconsistent patterns
and may include both felonies and misdemeanors of various types.
Implication: Casework Control girls need intense mental health and substance
abuse treatment in highly therapeutic environments that addresses the interconnectedness
of victimization and trauma they may have experienced. These girls need experienced
staff who can help increase stability and help them recognize self-defeating behavior.
Symptomatic behavior may be further escalated in highly restrictive environments.
Alternative, less-restrictive therapeutic programs may be a more effective option for these
girls.
CC Group Differences
¾ Most impulsive behavior
¾ More likely than other groups to be drinking/drugs while committing
offenses
¾ Frequent/chronic drug abuse/addiction

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¾ Most offenses are directed towards family and have parent conflict and
family history problems.
¾ Excessive truancy
¾ Self-defeating behaviors (self-mutilation, suicide attempts)
¾ Physically aggressive when angry
¾ Most likely to have experienced many changes/moves in family residence
¾ Most likely to have been abused by parents and/or non-parents, parents
reported to DCF, and placed in an out-of home placement.
Selective Intervention (SI) was recommended for 28% of the sample. These are
girls who are generally pro-social but have experienced an abrupt onset of misbehavior
that is in response to an external stressor (e.g. death/divorce/incarceration of parent(s),
traumatic experience) or to an internal, neurotic need. There may be a rapid decline in
school attendance and/or achievement. There may also be a marked shift in peer
attachment from pro-social to problematic. These girls and their families are not likely to
understand the criminal justice system and may feel they do not belong there. These girls
can generally navigate the system better with adults/staff than their peers.
Implication: For the selective intervention group, identifying and addressing the
precipitating event is crucial before girls begin to internalize their “criminal” behavior.
Appropriate programming for this population is a great opportunity for the state because
adolescents in the SI group are often more readily able to return to their former patterns
of pro-social adjustment. Focus should be on resolving the stressor or establishing a way
to cope with it differently and returning back home. Piloting specific intervention for
trigger offense (e.g., domestic battery) would not only be cost effective for the state by
freeing up resources, but also very beneficial for the girls who staff may even agree do
not warrant placement in that environment.
SI Group Differences
¾ More likely than other groups not to have been in trouble before or in a
previous DJJ program
¾ Impulsive behavior

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¾ Least likely to have academic or discipline problems in school
¾ Least likely to have friends in legal trouble
¾ More likely to have the least number of needs
Limit Setting (LS) was recommended for 15% of the sample. These girls have a
fair degree of comfort with a criminal lifestyle and can display a callous disregard for the
rights and welfare of others. They have a strong self-concept, often take leadership roles
and can be very sophisticated/street smart. They may have a history of long-term
involvement in criminal activities and are often motivated by control, material gain,
and/or the need for excitement.
Implication: Because limit setting girls are more comfortable with a criminal
orientation and value system, innovative and challenging opportunities must be available
within programs to provide satisfying alternatives to a criminal lifestyle for this group of
girls. Treatment needs are often secondary to the youth’s attitude and value problems.
Enhanced vocational programming and non-traditional education may benefit these girls.
LS Group Differences
¾ Higher criminal offense histories/delinquency
¾ More likely to commit offenses for material reasons than other groups
¾ More likely to plan offenses and have criminal orientation
¾ Drug use is part of criminal lifestyle
¾ Most likely to have experienced first arrest before age of 12
Environmental Structure (ES) was recommended for 7% of the girls. These
girls often lack social skills and may behave badly as a result of their weak ability to
solve problems correctly and their social gullibility. They may not be able to weigh the
consequences of their behavior for themselves or for others and will often act
impulsively. They are motivated by acceptance. They are easily manipulated by more
sophisticated individuals and have low assertiveness skills.
Implication: Although environmental structure is not a predominant supervision
strategy group for the girls in the Florida juvenile justice system, these girls need extra

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support and structure (e.g. improve social survival skills, increase impulse control). Staff
should watch for exploitation by others. It is possible that the system (e.g. Department of
Education) has created a safety net to divert girls who are developmentally delayed from
entering the juvenile justice system. Upon release, these girls need strong
transitional/aftercare services.
ES Group Differences
¾ Less likely to admit responsibility for offenses than other groups
¾ More likely to have problems in school due to intellectual capacity or
learning deficiency
¾ Trouble expressing anger or avoids expression

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Appendix 4: Breakdown of Supervision Categories and Implications for
Programming: A guide for staff
Limit Setting (LS)

Casework Control
(CC)
Multiple problems.
Bad attitude toward
authority and other
residents.

Environmental
Structure (ES)
Tend to collect the
most infractions.
Can be due to
misunderstanding of
rules or being set up
by more
sophisticated
residents. May also
misbehave to avoid
release if
comfortable in the
setting.

Selective
Intervention (SI)
May encounter initial
problems due to lack
of familiarity with
rules and routine.
Usually adjust well
over time.

Behavior

Behavior often okay.
Adjust well to
familiar setting. Able
to manipulate the
environment to get
good jobs, etc. Able
to exploit others.

Relationship
with Staff

Will test and use;
prey on weaker staff
for fun and to
maintain control.
They do respect
power when used
fairly. Staff should
be consistent, and
communicate all
expectations clearly,
in writing when
appropriate.

Generalized authority
problems. May pick
one staff person to
antagonize. Can be
frustrating and
demanding.

Dependent. Will
attach to anyone who
will accept them –
staff or residents.
Eager to please.
Need a lot of
explanation. Staff
should be concrete,
offer praise for small
steps, repeat
instructions.

Prosocial values.
May identify more
with staff than other
residents. Staff may
expect too much of
them as a result.

Security
Issues

Set and enforce
reasonable limits.
Staff should be
consistent and
monitor off –grounds
activities carefully.

Due to authority
problems, may rebel
at any attempts to
control. May use and
engage in drug
trafficking.

Not leaders and not
malicious, but do get
used and can be
dangerous if acting
out of loyalty to
others. Staff
should watch for
exploitation by
others. May be
sexually vulnerable.

Fewest management
problems. Usually
truthful.

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(cont’d)

Limit Setting (LS)

Housing
Issues

Leaders. Will
complain about
menial jobs. Will
want the best
available
accommodations and
perks. Will use and
manipulate to get
them.

Reintegration/

Transitional
Considerations

Peers

Casework Control
(CC)
Many problems,
especially when
sharing a room.
Never satisfied, will
never admit to being
wrong or at fault.
Demands unearned
privileges.

Environmental
Structure (ES)
Vulnerable to
manipulation. Best
housed under close
supervision of staff
or with an SI
resident.

Selective
Intervention (SI)
Other residents may
see SI as “better”
than the rest,
therefore may see
some isolation. This
might be ok with the
SI, but initially may
see depression and
withdrawal.

Will often return to
same setting, same
subculture. Will need
strict monitoring.
Enforce
accountability; assure
public safety.

Will minimize
problems; claim that
all are solved. Stress
need for stability in
housing,
relationships, etc.

Plan for continuity of
service. Offer
considerable support.
Return to community
and family may be
stressful.

Will use and
manipulate others.
Limit contact with
ES and other
vulnerable youth.

Can be antagonistic
to other residents or
inappropriately
clingy and intimate.
Must moderate
extremes in
attachments.

Need support and
structure, especially
at first. Sheltered
settings, sheltered
jobs are good.
Volunteers and
mentors often
helpful.
Often isolated, seen
as slow and different.
Can be difficult if
they attach to
negative peers.
Better to allow them
to attach to staff or SI
residents.

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May see initial
isolation and
withdrawal, but
usually adjust well
over time.

77

Appendix 5: Girls Summit –Residential Programming Recommendations
The number of creative and viable strategies and solutions proposed by participating
staff at the Girls Summit (2006) speak to the level of care, commitment, dedication, and
understanding they bring to the field and their programs. Those high priority and specific
recommendations to enhance and improve services to girls included below:
1. Administrative Recommendations
Increase funding.
Immediately assess and appropriately place girls according to their level and need.
Implement more intense psychological testing before placement.
Require collaboration between DJJ, DCF, courts and programs.
Train judges on effects of committing girls with misdemeanors/ probation
violations and develop a position to monitor movement deeper into the system.
2. Create a Therapeutic Community
Address mental health issues and create more beds for those with intensive needs.
More mental health professionals on site.
Require family therapy when possible and provide adequate space and support for
family visits.
Provide opportunities for spiritual services.
3. Gender-Responsive Placements and Services
Require comprehensive services and programs for pregnant and parenting girls.
Create viable alternatives, day treatment programs and step-down options.
Pilot a program for girls with domestic violence offenses.
Create gender-specific curricula for programs to follow.
4. Improve Training and Professional Development Processes
Hire primarily female staff but provide girls with the opportunity to interact
appropriately with male figures.

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Require training and completion of hours in gender-specific topics.
Create a Gender Responsive Coordinator position.
5. Create a Educational Vocational Continuum
Address GED and school needs before transition.
Foster program involvement directly with schools and allow girls back into school
after the completion of their program.
Provide computer-aided instruction and interactive GED computer program.
Post job boards and provide vocational programs and job placement at every site.
Create a college campus environment and make online college courses available.
6. Improve Transition and After-Care Services
Create alternatives such as independent living programs for girls who do not have
a safe place in which to return.
Allow for seamless access to community mental health services (including
receiving needed prescriptions) after transition.
Provide a safety net for girls after completing the program.

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