RD245 - 2008 Impact of Gang Activity on Juvenile Justice Operations


Executive Summary:
Item 410(B) of the 2008 Appropriation Act (Chapter 879, 2008 Acts of Assembly) provides that:

“The Department of Juvenile Justice shall analyze the extent of juvenile gang activity as it affects the operation of court services units, local and regional detention facilities, and state juvenile correctional facilities. The analysis shall describe the programs which the department has developed to address gang activity, along with recommendations for further actions. Copies of the analysis shall be provided by September 1, 2008, to the Secretary of Public Safety and to the Chairmen of the Senate Finance and House Appropriations Committees.”

The Department of Juvenile Justice (DJJ) has been assessing gang activity and developing programs for addressing the impact of such activities for several years. A more formalized process began in 2004 with the creation of a position to oversee the development of data, assessment tools, an automated system for managing data, and programs for addressing gang activities.

While youth gangs have existed for many years, the more recent introduction of national business organization models in gangs has exacerbated problems they create. Many small, local gangs now affiliate with national organizations (primarily the Crips and Bloods) and align against each other in more structured ways. This change has altered both the structure of local gangs and the ability to recruit.

Large, organized gangs may follow a business model to engage in illegal activities, such as drug distribution, prostitution, or obtaining and disposing of stolen property. Many youth gangs associate with these larger adult gangs, but generally have not yet adopted those criminal business practices.

Studies by several national organizations identify the primary ages of gang members as between 14 to 24. However, recruitment of new members may begin in middle, and even elementary, schools. Those involved with the juvenile justice system are prime targets for gang recruitment.

DJJ has implemented a number of measures, as described in this report, to address gang membership in its Court Service Units (CSUs) and its Juvenile Correctional Centers (JCCs). These measures include: assessment and identification; supervision; programs to assist juveniles in leaving gangs; and, programs to prevent gang affiliation prior to membership.

In 2005, the department obtained grant funding to develop a Gang Management System (GMS), an automated system into which data on juveniles identified as members of gangs are stored. That same year, DJJ created a separate gang management unit to develop and provide training of agency staff and monitor overall program implementation.

In 2006, DJJ obtained grant funding to purchase a treatment program (Phoenix Behavioral Curriculum), along with technical assistance for implementation, for use in both its JCCs and CSUs. This program contains multiple modules that address criminological and social matters common among gang-involved juveniles.

In 2007, the department developed a reporting mechanism to provide information on juveniles who meet statutorily defined gang criteria to the Commonwealth’s Attorneys’ Services Council, as provided in §66-3.2(B) of the Code of Virginia. Other information is also shared with law enforcement agencies under the provisions of §16.1-309.1(G) of the Code of Virginia.

Overall, DJJ has taken measured steps to address the changes in gang activities over recent years and will continue to make changes as needs are identified.

A summary of the various statues relating to gang activities and members is included as an appendix to this report.