Item J2 _,OARD OF COUNTY COMMISSIG,,,:RS
AGENDA ITEM SUMMARY
Meeting Date: Aril 15 2009 KW Division: Monroe County Sheriff's Office
Bulk Item: Yes X No _ Department: Grants
Staff Contact Person/Phone 4: Tamara Snider/292-7092
AGENDA ITEM WORDING:
Approval to apply for Edward Byrne Justice Assistance Grant (JAG) for mental health and
substance abuse programs; approval for the Sheriff to be designated as the "signing official"
for the funding request and for the Monroe County Sheriff's Office to be designated as the
Organizational Unit; and authorization for the Sheriff to accept the grant and execute any
other required grant documents, if awarded.
ITEM BACKGROUND: In February 2009, the U.S. Department of Justice announced the
receipt of additional funds through the American Recovery and Reinvestment Act of 2009, to
be disbursed through the Edward Byrne JAG program. The DOJ invited state and local law
enforcement agencies to apply for funds through this program. JAG funds may be used for
law enforcement programs; court programs, prevention and education; corrections; drug
treatment and enforcement; planning/evaluation/technology; and crime victim and witness
programs. The deadline for applications is April 9, 2009.
The grant funds will be used to continue with the implementation of a jail diversion program.
This program will identify inmates with mental health and/or substance abuse issues and
assist them in getting the help they need outside of the correctional environment. The funds,
if awarded, are intended to replace the funds that would have been received under the
Criminal Justice, Mental Health and Substance Abuse Reinvestment Grant that was obtained
in August 2008. Funding for that grant runs out in April 2009.
PREVIOUS RELEVANT BOCC ACTION:
CONTRACT/AGREEMENT CHANGES:
STAFF RECOMMENDATIONS: Approval.
TOTAL COST: 0 98 641 grant revenue BUDGETED: Yes
No X
COST TO COUNTY: $0 SOURCE OF FUNDS: Grant—Recovery Act
REVENUE PRODUCING: Yes No AMOUNT PER MONTH Year
APPROVED BY: County Atty OMB/Purchasing Risk Management
DOCUMENTATION: Included X Not Required
DISPOSITION: AGENDA ITEM #
Revised 11/06
Recovery Act: Edward Byrne Memorial Justice Assistance Grant
(JAG) Formula Program: Local Solicitation
CDFA #16.804
Overview of the Edward Byrne Memorial Justice Assistance Grant
Program
This grant program is authorized by the American Recovery and Reinvestment Act of 2009
(Public Law 111-5) (the "Recovery Act") and by 42 U.S.C. 3751(a).
The stated purposes of the Recovery Act are: to preserve and create jobs and promote
economic recovery; to assist those most impacted by the recession; to provide investments
needed to increase economic efficiency by spurring technological advances in science and
health; to invest in transportation, environmental protection, and other infrastructure that will
provide long-term economic benefits; and to stabilize State and local government budgets, in
order to minimize and avoid reductions in essential services and counterproductive State and
local tax increases.
The Recovery Act places great emphasis on accountability and transparency in the use of
taxpayer dollars. Among other things, it creates a new Recovery Accountability and
Transparency Board and a new website — Recovery.gov--to provide information to the public,
including access to detailed information on grants and contracts made with Recovery Act funds.
The Edward Byrne Memorial Justice Assistance Grant (JAG) Program is the primary provider of
federal criminal justice funding to state and local jurisdictions. JAG funds support all
components of the criminal justice system, from multijurisdictional drug and gang task forces to
crime prevention and domestic violence programs, courts, corrections, treatment, and justice
information sharing initiatives. JAG funded projects may address crime through the provision of
services directly to individuals and/or communities and by improving the effectiveness and
efficiency of criminal justice systems, processes, and procedures.
Deadline: Registration
Registering with OJP's Grants Management System (GMS)
Applications must be submitted through OJP's online Grants Management System (GMS). To
access the system, go to hftps:/tqrants.omp.usdol.gov. Applicants should begin the process
immediately to meet the GMS registration deadline, especially if this is the first time they have
used the system. Each application requires a separate GMS registration. The registration
process for organizations includes: (1) Obtaining a Data Universal Numbering System (DUNS)
number; (2) Registering your organization with the Central Contractor Registration (CCR)
database; and (3) Registering with GMS prior to applying.
The deadline to register is 8:00 p.m. Eastern Time on May 18, 2009.
A DUNS number is required. All applicants under this solicitation must include a DUNS (Data
Universal Numbering System) number in their application. Applications without a DUNS number
are incomplete.
A DUNS number is a unique nine-digit sequence recognized as the universal standard for
identifying and keeping track of entities receiving Federal funds. The identifier is used for OMB No.
1121-0323 Approval Expires 9l3012009 2
tracking purposes and to validate address and point of contact information for federal assistance
applicants, recipients, and subrecipients. The DUNS number will be used throughout the grant
life cycle. Obtaining a DUNS number is a free, simple, one-time activity. Obtain one by calling 1-
866-705-5711 or by applying online at http://fedaov.dnb.com/webform/displa HomePage.do.
Central Contractor Registration CCR is re uired. In addition to the DUNS number
requirement, OJP requires that all applicants (other than individuals) for federal financial
assistance maintain current registrations in the Central Contractor Registration (CCR) database.
The CCR database is the repository for standard information about federal financial assistance
applicants, recipients, and subrecipients. Organizations that have previously submitted
applications via Grants.gov are already registered with CCR, as it is a requirement for
Grants.gov registration. Please note, however, that applicants must update or renew their CCR
registration at least once per year to maintain an active status. Information about registration
procedures can be accessed at www.ccr.gov.
Deadline: Applications
The due date for applying for funding under this announcement is 8:00 p.m. Eastern Time on
May 18, 2009.
Eligibility
Applicants are limited to units of local government appearing on the Recovery Act JAG
allocation list. For JAG Program purposes, a unit of local government is: a town, township,
village, parish, city, county, or other general purpose political subdivision of a state; any law
enforcement district or judicial enforcement district that is established under applicable state law
and has authority to, in a manner independent of other state entities, establish a budget and
impose taxes; or, it may also be a federally recognized Indian tribe or Alaskan Native
organization that performs law enforcement functions as determined by the Secretary of the
Interior. In Louisiana, a unit of local government means the office of a district attorney or a
parish sheriff.
Additional Requirements Related to the Recovery Act(including certification
requirements):
Reporting on the Use of Funds. In order to be eligible to receive funds under this solicitation,
applicants must certify that they will satisfy the reporting requirements of section 1512(c) of the
Recovery Act, which requires detailed reporting (including reporting on subawards) not later
than ten calendar days after the end of each calendar quarter. Detailed information on
section 1512(c) appears below, under"Accountability and Transparency under the Recovery
Act." A template for the certification is included in the appendix. Applicants may expect that a
standard form and/or standard reporting mechanism will be made available at a future date.
Certification regarding Infrastructure Investments. Pursuant to section 1511 of the Recovery Act,
a State or local government (including a federally-recognized Indian tribal government) may not
receive funds for an infrastructure investment (for example, construction or major renovation of
a correctional facility) unless the Governor, mayor, or other chief executive, as appropriate,
certifies that the infrastructure investment has received the full vetting required by law and that
the chief executive accepts responsibility that the infrastructure is an appropriate use of
taxpayer dollars. The certification must include a description of the infrastructure investment, the
estimated total cost, and the amount of Recovery Act funds to be used, and must be posted on
OMB No. 1121-0323 Approval Expires 9/30/2009 3
a web site that is linked to Recovery.gov. (Refer to the OJP Recovery Act Additional
Requirements web page at www.omp.usdom.qov/recovery/solicitationreciuirements.htm for the text
of section 1511.)
Consistent with section 1511, all applicants under this solicitation must complete a "General
Certification as to Requirements for Receipt of Funds for Infrastructure Investments," a template
for which is included in the appendix. Recipients that are awarded funds for one or more
infrastructure investment projects must also submit and post a certification that satisfies section
1511 as to each such specific project prior to obligating, expending, or drawing down funds for
such a project. Applicants or recipients that intend to prepare a section 1511 certification should
consult the OJP Recovery Act Additional Requirements web page at
www.owp.usdoi.gov/recovery/solicitationrequirements.htm. If a standard form becomes available,
OJP will include a notice in the appropriate section of the web page.
American Indian Tribes and Alaska Native Tribes and/or Tribal Organizations. If a grant
application is being submitted on behalf of a tribe or tribal organization, a current authorizing
resolution of the governing body of the tribal entity or other enactment of the tribal council or
comparable government entity authorizing the inclusion of the tribe or tribal organization named
in the application must be included with the application.
JAG Program-Specific Information
All awards are subject to the availability of appropriated funds and any modifications or
additional requirements that may be imposed by law. Applicants also should anticipate
that awards under the Recovery Act will be one-time awards and accordingly should
propose project activities and deliverables that can be accomplished without additional
DOJ funding.
Established to streamline justice funding and grant administration, the JAG Program allows
states, tribes, and local governments to support a broad range of activities to prevent and
control crime based on their own local needs and conditions. JAG blends the previous Byrne
Formula and Local Law Enforcement Block Grant (LLEBG) Programs to provide agencies with
the flexibility to prioritize and place justice funds where they are needed most.
Formula
The Bureau of Justice Statistics (BJS) calculates, for each state and territory, a minimum base
allocation which, based on the statutory JAG formula, can be enhanced by (1) the state's share
of the national population and (2) the state's share of the country's Part 1 violent crime statistics.
Once the state funding is calculated, 60 percent of the allocation is awarded to the state and 40
percent to eligible units of local government. States also have a variable percentage of the
allocation that is required to "pass through" to units of local government. This amount, also
calculated by BJS, is based on each state's crime expenditures. Additionally, the formula
calculates direct allocations for local governments within each state, based on their share of the
total violent crime reported within the state. Local governments that are entitled to at least
$10,000 awards may apply directly to BJA for Local JAG grants.
NOTE: Beginning in 2009, the formula calculation for the local portion of the JAG statute has
changed significantly as a result of final implementation of the JAG statute. The statute, 42
U.S.C. 3755(d)(2)(B), specifies that for Fiscal Years 2005 through 2008, allocations to units of
local government would follow the Local Law Enforcement Block Grant (LLEBG) formula.
Pursuant to the statute, however, calculations for FY 2009 (and subsequent JAG calculations)
OMB No.1121.032$Approval Expires 913012oo9 4
require that units of local government must have submitted to the FBI at least three years of
Uniform Crime Report (UCR) data during the most-recent ten-year period for which UCR data
are available (here, 1998-2007) in order to be eligible. As a result of this statutory requirement,
several local governments that were eligible in prior years for JAG formula funding are ineligible
this year due to a lack of compliant UCR data reporting.
Award Amount
The JAG allocation list established by the Bureau of Justice Statistics (BJS), and indicates the
amount for which each unit of local government is eligible to apply. For a listing of eligible units
of local government and eligible amounts, go to
www.omip.usdoo.gov/BJA/recove[yJAG/recovervallocations.htm1.
Purpose Areas
JAG funds may be used for state and local initiatives, technical assistance, training, personnel,
equipment, supplies, contractual support, information systems for criminal justice, and criminal
justice-related research and evaluation activities that will improve or enhance:
Law enforcement programs.
Prosecution and court programs.
Prevention and education programs.
Corrections and community corrections programs.
Drug treatment and enforcement programs.
Planning, evaluation, and technology improvement programs.
Crime victim and witness programs (other than compensation).
Responsibilities
The Chief Executive Officer (CEO) of an eligible unit of local government or a local agency
designated by the CEO must submit the application for JAG funds. A unit of local government
receiving a JAG award will be responsible for the administration of the funds including:
distributing the funds; monitoring the award; submitting reports including performance measures
and program assessment data; and providing ongoing oversight and assistance to any
subrecipients of the funds.
Administrative Funds
A unit of local government may use up to 10 percent of the award for costs associated with
administering JAG funds.
Disparate Certification
A disparate allocation occurs when a city or municipality is scheduled to receive one and one-
half times (150 percent) more than a county with concurrent jurisdiction, while that county bears
more than 50 percent of the costs associated with prosecution or incarceration of the
municipality's Part 1 violent crime. Multiple disparate allocations occur when multiple cities or
municipalities are collectively eligible to receive four times (400 percent) more than the county.
JAG disparate jurisdictions are certified by the Director of the Bureau of Justice Assistance
(BJA), based in part on input from the state's Attorney General. For a listing of disparate
jurisdictions, go to www_oio.usdoli.aovlBJA/recoveryJAG/recovervallocations.htmi.
Jurisdictions certified as disparate must identify a fiscal agent that will submit a joint
application for the total eligible allocation. The joint application must specify the award
distribution to each unit of local government and the purposes for which the funds will be
OMB No.1121-0323 Approval Expires 9/3012009 5
used. When beginning the JAG application process, a Memorandum of Understanding (MOU)
that identifies which jurisdiction will serve as the applicant/fiscal agent for joint funds, must be
completed, and signed by the Authorized Representative for each participating jurisdiction. The
signed MOU should be attached to the application. For a sample MOU, go to
www.o' .usdo'. ov/BJA/recove JAG/JAGrecove MOU. df.
Governing Body Review
The applicant agency (fiscal agent) must make the grant application available for review by its
governing body (or to the organization designated by that governing body) not fewer than 30
days before the application is submitted to BJA.
Public Comment
The Local JAG application must include a statement that the application was made public and
that, to the extent of applicable law or established procedure, an opportunity to comment was
provided to citizens and neighborhood or community organizations.
Length of Awards
Awards are made in the first fiscal year of the appropriation and may be expended during the
following 3 years, for a total of 4 grant period years.
Trust Fund
Each unit of local government may draw down any or all JAG funds after acceptance of the
award. To do so, a trust fund must be established in which to deposit the funds. The trust fund
may or may not be an interest- bearing account. If subrecipients draw down JAG funds in
advance, they also must establish a trust fund in which to deposit funds.
Recipients of funds, however, should be aware that the authority to retain such advance funding
may be withdrawn should the recipient persistently remain delinquent in applicable reporting
required by the Recovery Act. Specific information relating to this will be detailed in grant award
documents.
Prohibited Uses
No JAG funds may be expended outside of the JAG purpose areas. Even within the purpose
areas, however, JAG funds may not be used directly or indirectly for security enhancements or
equipment for nongovernmental entities not engaged in criminal justice or public safety. Nor
may JAG funds be used directly or indirectly to provide for any of the following matters unless
BJA certifies that extraordinary and exigent circumstances exist, making them essential to the
maintenance of public safety and good order:
Vehicles (excluding police cruisers), vessels (excluding police boats), or aircraft
(excluding police helicopters).
Luxury items.
Real estate.
Construction projects (other than penal or correctional institutions).
Any similar matters.
Non-Supplanting
Federal funds must be used to supplement existing state and local funds for program activities
and must not replace those funds that have been appropriated for the same purpose. See the
OJP Financial Guide (Part II, Chapter 3). Additional information appears on the "OJP Recovery
Act Additional Requirements" web page at
www.oip.usdom.gov/recovery/solicitationrequirements.htm. OMB No.1121-0323 Approval Expires 9/30/2009 6
Recovery Act: Buy American
All applicants that propose to use grant funds to construct, alter, maintain, or repair a public
building or public work should be aware that the Recovery Act (in section 1605) contains a "Buy
American" provision that applies to iron, steel, and manufactured goods, subject to certain
exceptions. The provision is to be applied in a manner consistent with United States obligations
under international agreements. Government-wide guidance on this provision is not yet
available, but is expected. For the text of section 1605, please refer to the ""OJP Recovery Act
Additional Requirements" web page at
www.onP.usdo0.qov/recovery/solicitationreguirements.htm.
Recovery Act: Wage Rate Requirements
All applicants should be aware that the Recovery Act contains a provision on wage rate
requirements that concerns projects funded or assisted by Recovery Act funds that employ
laborers and mechanics. See section 1606 of the Recovery Act, the text of which appears on
the "OJP Recovery Act Additional Requirements" web page at
www.oip.usdoi..govlrecovery/solicitationrepuirements.htm. Government-wide guidance on this
provision is not yet available, but is expected.
Recovery Act: Preference for Quick-Start Activities
Pursuant to section 1602 of the Recovery Act, recipient of funds under this solicitation for
infrastructure investment are to give preference to activities that can be started and completed
expeditiously, and also are expected to use grant funds in a manner that maximizes job creation
and economic benefit. For the details of this requirement, please refer to the text of section
1602, which appears on the "OJP's Recovery Act Additional Requirements" web page at
www.oiP.usdoI.gov/recoveM/solicitationreguirements.htm.
Recovery Act: Contracts
Generally speaking, the Recovery Act places special emphasis on the use of fixed-price
contracts awarded through competitive procedures. As information becomes available, OJP will
provide guidance to applicants as to what, if any, particular procurement requirements or
procedures may apply to contracts awarded with Recovery Act grant funds, apart from those
that appear in 28 C.F.R. Part 66 and 28 C.F.R. Part 70.
Recovery Act: Limit on Funds
The Recovery Act specifically provides that funds may not be used by any state or local
government, or any private entity, for any casino or other gambling establishment, aquarium,
zoo, golf course, or swimming pool.
Recovery Act: Use of Funds in Conjunction with Funds from Other Sources.
Recovery Act funds may be used in conjunction with other funding as necessary to complete
projects, but tracking and reporting of Recovery Act funds must be separate, to meet the
reporting and other requirements of the Recovery Act and other applicable law. There can be no
commingling of funds. (See "Accountability and Transparency under the Recovery Act," below.)
Accountability and Transparency under the Recovery Act
Separate Tracking and Reporting of Recovery Act Funds and Outcomes
Consistent with the special purposes and goals of the Recovery Act, and its strong emphasis on
accountability and transparency, it is essential that all funds from a Recovery Act grant be
tracked, accounted for, and reported on separately from all other funds (including DOJ grant ones
No.1121-0323 Approval Expires 9130l20o9 7
funds from non-Recovery Act grants awarded for the same or similar purposes or programs).
Recipients must also be prepared to track and report on the specific outcomes and benefits
attributable to use of Recovery Act funds.
The accounting systems of all recipients and subrecipients must ensure that funds from any
award under this Recovery Act solicitation are not commingled with funds from any other
source.
Misuse of grant funds may result in a range of penalties, including suspension of current and
future funds, suspension or debarment from federal grants, recoupment of monies provided
under a grant, and civil and/or criminal penalties.
Quarterly Financial and Programmatic Reporting
Consistent with the Recovery Act emphasis on accountability and transparency, reporting
requirements under Recovery Act grant programs will differ from and expand upon OJP's
standard reporting requirements for grants. In particular, section 1512(c) of the Recovery Act
sets out detailed requirements for quarterly reports that must be submitted within 10 days of the
end of each calendar quarter. Receipt of funds will be contingent on meeting the Recovery Act
reporting requirements.
Under this Recovery Act program, quarterly financial Due Dates
and programmatic reporting will be required, and will be
due within 10 calendar days after the end of each
calendar quarter, starting July 10, 2009.
Programmatic and Financial Reporting Periods
October- December January 10
January- March Aril 10
April-June July 10
July-September October 10
JAG Program Narrative (Attachment f
Introduction
As a result of the State of Florida's reduction in Criminal Justice, Mental Health and Substance
Abuse Re-investment Act funding, Monroe County has lost the only position designed
specifically to plan and implement Criminal Justice Diversion programs and services. The
Monroe County Criminal Justice, Mental Health, and Substance Abuse Diversion Planning
Council, had been established under this grant, and worked together to assess local needs, gaps in
resources, and make recommendations for the development of strategies, interventions and
services to address this population in Monroe County. After reviewing the County Council's
recommendations, and after researching evidence-based practices for Reentry Planning in the Jail
setting, the Monroe County Sheriff's Office proposes to establish the Wellness, Academic, and
Vocational Empowerment(WAVE) Project. Oriented towards assisting inmates to prepare for
community reentry, the Project will provide: assessment/screening in the areas of medical,
health, mental health and substance abuse, housing, education, and employment; and the
development of individualized plans to provide a comprehensive, coordinated and collaborative
effort to ensure a continuum of care and treatment during the reentry process. To facilitate
success within the community, the Project will provide leadership, training, resource
development and community relations.
Proposed Model
In an effort to address the reentry from jail of individuals with mental illnesses and dual
diagnoses, the National GAINS Center conducted a series of meetings with jail administrators
and reviewed programmatic reentry efforts around the country. This process resulted in the
development of the Asses, Plan, Identify, and Coordinate (APIC) model to inform transition
planning for people with co-occurring mental illness and substance use disorders, improve the
chances of successful reentry, and reduce the relapse and recidivism (Osher et al., 2002).
Although the APIC model targets people with co-occurring disorders, its principles can be
applied to the general jail population. The following are key elements of the APIC model:
■ Assess: Using standardized instruments, quickly and comprehensively collect
information on inmate's social and clinical needs and public safety risks. Because the
length of stay is often uncertain at intake, the goal is to collect as much relevant
information as possible in a short amount of time. When possible, update information on
inmates and reassess their needs prior to release.
■ Plan: At both the system and individual levels, plan for the treatment and services
required to address the identified needs. Know the problems and resources unique to
your own community to appropriately and efficiently match needs with resources.
Incorporate the inmate's perspective in the transition plan to make it more real for him or
her.
■ Identify: Identify the community and correctional programs responsible for providing
post release services. Ask who, what, when, where, and how. Provide those in jail for 48
hours or less with a resource card that includes pertinent information, such as how to get
a Social Security card, how to apply for federal benefits, and the contact information and
hours of various service providers and shelters.
1
■ Coordinate: Coordinate the transition plan to insure that implementation occurs and gaps
in the community are filled. At the systems level, an oversight group must be responsible
for coordinating the multidisciplinary action of all agencies involved. Case management
is a critical ingredient to successful transition plans, but because of the limited resources,
it may have to be prioritized for those most in need.
The WAVE Project will work in conjunction with a proposed Intensive Case Management
Program to be funded through other Justice and Substance Abuse and Mental Health funds, to
implement this comprehensive model. The Project will also coordinate with other Substance
Abuse treatment,jail diversion, and community services programs at the Monroe County
Detention Center.
Programs / Services to be funded by the JAG Award
Reep=Planning
These services include the following:
1. A comprehensive assessment including evidenced-based screening tools to assess the
following: medical/health, mental health and substance abuse, housing, education, and
employment. For re-offending inmates additional tools, such as readiness to change
scales or the Correctional Offender Management Profiling for Alternative Sanctions
(COMPAS)may be utilized.
2. Referral to in jail programs and services appropriate to the needs of the inmate to assist
the inmate in preparation for reentry/ community re-integration
3. Development of an individualized reentry plan which would include: Mental Health/
Substance Abuse care, Medical care, Medications, Appointments, Housing, Employment,
Health care benefits, Income benefits, Food/clothing, Transportation, Identification, Life
skills, Family/ Children, Emergency numbers for assistance, Referrals to other services,
Court dates, and summaries of jail-based treatments, laboratory and radiology results, and
medication regimens.
EMployMent Readiness Pro ram
The Employment Readiness Program will provide a wide range of services including vocational
assessments and an employment readiness scale, resume development, completion of
applications, appearance, body language, and interviewing skills. Using a strength-based
approach, attention will be placed on assisting the inmate in learning how to address their history
of incarceration with potential employers, and enhancing the inmate's confidence. Opportunities
will be created for inmates to assist each other in reading and language skills (English to Spanish
/ Spanish to English).
Training Component
The WAVE Project will include a specific training component oriented towards criminal justice
personnel regarding law enforcement-based and jail-based diversion strategies. In addition,
training will be provided to other community stakeholders, who participate in the provision of
services to inmates upon release from incarceration.
2
Community Collaboration
In order to facilitate and achieve a successful reentry program, efforts must be made to develop
formal linkages within the community, promote reentry, and educate the public. The Project
plans to develop a Reentry Council. Group composition would include corrections, probation,
law enforcement, courts, department of health, human services, housing, labor/employment,
homeless agencies, treatment services, workforce development,the local political leadership, and
representatives from the Twelve Step, and faith-based communities. In addition, the Project will
establish Memorandum of Understandings (MOU's) with specific governmental and non-profit
agencies providing reentry services.
Evaluation Component
An evaluation component including both Process Evaluation and Outcome Evaluation will be
developed for the WAVE Reentry Planning Project. The Process Evaluation will document all
aspects of program planning, development and implementation. The Outcome Evaluation will
be designed to identify the impact of the reentry strategy and the reasons behind the strategy's
success or failure. Public safety, public health, and educational and employment measures will
be utilized.
Statement of Need
Monroe County is considered to be an area of critical need with inadequate resources,to meet
the needs of a disproportionately high percentage of individuals with Mental Illness or Co-
Occurring Disorders, in need of services. Monroe County has the third highest incarceration rate
in the State of Florida. The Homeless rate in Monroe County is the one of the highest per capita,
in the State of Florida. Monroe County has only 12 Adult residential Substance Abuse treatment
beds. There is only 1 Assisted Living Facility with a Mental Health License serving a total of 16
clients, which usually has a I year waiting list; and only 1 permanent Housing facility with a
total of 28 beds willing to_take individuals with serious Mental Illness. While the County is
fortunate to have Adult and Juvenile Drug Courts, the availability of treatment options for
referral is minimal. The Community Mental Health Centers are under funded and over capacity.
There is no Mental Health Court or special docket to handle the high number of persons arrested
for misdemeanors and certain felonies, who are in need of mental health and/or co-occurring
disorder services.
Mental Illness and Substance Abuse
Serious mental illness is highly correlated with substance dependency or abuse. On a local level,
the Monroe County Jail estimates that approximately 10%to 15% of inmates experience mental
illness. In 2008, a group composed of representatives of Pre-Trial Services, Public Defender,
Monroe County Detention Center Classification, Prison Health Services, Jail In-House Program,
Jail Diversion and Forensic staff, and Watch Commanders, identified forty-four(44) frequent
repeaters who are considered to have a Mental Illness or Co-Occurring (Mental Illness and
Substance Abuse)Disorders. They were incarcerated a total of 5,053 days during FY 2007—
2008 period, costing the Jail/County$372,204. 75% were male, 25% were female, and 36%
were homeless. Fifty three percent(53%) were repeat offenders during the same year. This
study also indicates a progression in the seriousness of the crimes committed, as their Mental
Illness progressed untreated, resulting in subsequent incarceration for felony offenses.
3
A second study reviewed inmates with the highest number of incarcerations and their charges.
There were 14 inmates with histories of Mental Illness or Co-Occurring Disorders, with a
number of incarcerations ranging from 5 to 11 times during the FY 2007—2008. Eleven or 79%
had 7 or more incarcerations. 86%were male, 14% female. Nine had misdemeanor charges—
all for municipal ordinance violations. Five or 36%were homeless. They accounted for 2,501
days in jail, or$184,000. cost to Monroe County.
A third study of individuals with the charge of Trespassing (a frequent indicator of both Mental
Illness and homelessness) indicated 10 individuals with a total of 39 incarcerations for more than
a total of 1,487 days in jail. 80%were male, 20% female. The unduplicated days of
incarceration of the above three groups reviewed was a total of 8,358 days during that FY, at a
cost to the County of$617,860. During the 14 month period of 12/07 through 2/09, the Jail had
37 individuals booked under the Code of Signal 20 or Mental Illness. During that same period
37 inmates received 3.210's or psychiatric evaluations. The Key West Police Department
reported in 2008, a total of 4,604 incidents responded to related to the following classifications:
intoxicated drivers, intoxicated persons, mentally disturbed, trespass /unwanted persons, suicide
attempts/suicide completion, quality of life nuisance, city ordinance violations. These incidents
required a total of 3,900 hours by an average of 2.5 officers, costing the City of Key West
approximately $263,250.
Homelessness
A study conducted in 2008, by the Monroe Criminal Justice, Mental Health and Substance Abuse
Diversion Project, of Emergency and Transitional Housing services in Key West reported that
50%to 72% of the Transitional Housing populations and 60 % of the Emergency Housing
population have been arrested. In addition, the study reported that 47%to 67% of the
Transitional Housing participants have received counseling for Mental Health or Substance
Abuse, while only 14% of the Emergency Housing participants reported receiving counseling for
Mental or Substance Abuse. According to the Florida Keys Outreach Coalition,the largest
provider of Homeless services in Monroe County, 79% of their clients have substance abuse
issues.
Based upon a state survey conducted in 2006 by the University of South Florida—Florida Mental
Health Institute—Florida Criminal Justice, Mental Health, and Substance Abuse Technical
Assistance Center,.the following information was identified for Monroe County. Where
available, 2008 updates are provided.
Crime Data
Number of Arrests in County 10753
Number of Individuals Arrested in County 5121
Demographics of Arrestees within Count
Male % 81.43
Female % 18.28
African American% 13.26
White % 85.55
Other% 1.19
4
Number of Medicaid Enrolled Individuals 949
Percentage of Medicaid Enrolled Individuals 18.53
Employment
A study of all bookings from 1/1/08 through 12/31/08 indicates the following:
Male: White Black Hispanic Other Total
18-35 1,620 464 202 12 2,298
36-65 2,132 233 96 11 2,652
66 & Older 45 4 5 0 54
3,977 701 303 23 5,004
Female: White Black Hispanic Other Total
18-35 429 142 41 9 621
36-65 557 72 38 14 681
66 & Older 7 0 0 0 7
993 214 79 23 1,309
Total Bookings:
4,973 915 383 48 6,329
Numbers of Inmates_Unemployed:
Male: White Black Hispanic Other Total
18-35 916 317 102 7 1,342
36-65 1,441 159 57 8 1,845
66 & Older 28 4 3 0 35
2,565 480 162 15 3,222
Female: White Black Hispanic Other Total
18-35 278 99 26 6 409
36-65 416 53 30 12 511
66 & Older 3 0 0 0 3
697 152 56 18 923
Total Unemployed:
3,262 632 218 33 4,145
Total unemployed males= 3,222 or 64%.
Total unemployed females= 923 or 70%.
Due to the extremely high rate of unemployment among the inmate population, a key component
of the reentry program must be employment readiness, skill development.
Anticipated Coordination Efforts—Related Justice Funds
Monroe County has applied for Bureau of Justice Assistance funding for the development of a
Jail Diversion Intensive Case Management team to serve inmates with severe Mentally Illness or
5
Co-Occurring Disorders. This is a very specialized and highly resource consumptive population.
In addition, this BJA funded program would work with the Courts in the development of
specialized dockets to facilitate the diversion and undue detention of these individuals. The
WAVE Reentry Planning Project would complement this program by serving inmates who may
have Mental Health problems and/or Co-Occurring Disorders, but are higher functioning. The
reentry planning materials can be utilized by the Intensive Case Management team. The
Intensive Case Management Program includes a Post-Release Follow Up—Tracking system that
can be utilized for the WAVE Project participants. The scope of the Reentry Council can
include both grant populations. The evaluation component developed for the JAG Program, can
be replicated with minor revisions and utilized for the Intensive Case Management Program
Program Ob'ectives/Measurable Outcomes
Pro am/Function Ojectives Measurable Outcomes
Personnel 1. Recruit and Hire Program staff Number of FTE's paid for using
JAG funds
Number of Contract staff paid
for using JAG funds
Types of FTE's paid for using
JAG funds
Types of FTE's paid for using
JAG funds
Reentry Planning 1. Development or procurement of Number of tools developed or
comprehensive evidence base screening procured in each area
tools for:
Medical /Health Medical /Health
Mental Health Mental Health
Substance Abuse Substance Abuse
Housing Housing
Education Education
Employment Employment
Readiness for Change Readiness for Change
COMPAS COMPAS
Reentry Planning 2. Make recommendations for referrals Number of referrals made
to In-Jail Programs and services Number of referrals completed
Percentage of referrals
completed
Reentry Planning 3. Development of individualized Number of participating inmates
reentry plan for participating inmates Number of plans completed
Percentage of plans completed
Reentry Planning 4. Completion of Reentry Planning Number of participating inmates
services completing Reentry Planning
services prior to release
Percentage of participating
inmates completing Reentry
Planning prior to release
6
Number of participating inmates
re-offending/re-arrested within
6 months
Number of participating inmates
re-offending/re-arrested within
1 year
Employment 1. Referral of inmates for vocational Number of referrals made
Readiness assessments Number of vocational
assessments completed
Percentage of vocational
assessments completed
2. Implement employment readiness Number of referrals for
scales for applicable inmates employment readiness scales
Number of employment
readiness scales completed
Percentage of readiness scales
com leted
3. Provision of Resume writing training Number of referrals for resume
writing training
Numbers of inmates
participating in training
Number of inmates completing
training
Percentage of inmates
completing training
4. Provision of training on completing Number of referrals for job
job applications application training
Numbers of inmates
participating in training
Number of inmates completing
training
Percentage of inmates
completing training
5. Provision of employment training Number of referrals for
relating to appearance and body appearance and body language
language training
Numbers of inmates
participating in training
Number of inmates completing
training
Percentage of inmates
completing training
6. Provision of employment training Number of referrals for job
relating to job interviewing interviewing training
Numbers of inmates
artici ating in training
7
Number of inmates completing
training
Percentage of inmates
completing training
7. Inmate to Inmate instruction (reading Number of inmates participating
and language skills) in I/I instruction
Number of inmates that rate the
activities as useful
8. Completion of recommended Number of participating inmates
employment readiness activities completing employment
readiness services prior to
release
Percentage of participating
inmates completing
employment readiness activities
prior to release
Number of participating inmates
obtaining employment within 3
months of release
Number of participating inmates
obtaining employment within 6
months of release
Number of participating inmates
obtaining employment within 1
year of release
Number of participating inmates
re-offending/re-arrested within
6 months
Number of participating inmates
re-offending/re-arrested within
1 year
Training 1. Training provided to criminal justice Number of training requests
personnel received
Number of training events held
Number of criminal justice staff
completing training
Percent of criminal justice staff
rating the training as useful
2. Training provided to community Number of training requests
stakeholders received
Number of training events held
Number of community
stakeholders staff completing
training
Percent of community
stakeholders staff rating the
8
training as useful
Community 1. Development of a Reentry Council Completed Membership list
Collaboration including: Number of invited stakeholders
Selecting membership willing to participate
Extending invitation Percentage of stakeholders
Develop purpose /vision, mission willing to participate
statement and Bylaws Completed Vision/Mission
Establish schedule for meetings statement
Discussion of barriers inmates face Completed Bylaws
when returning home Minutes recorded from
Discussion of barriers the individual meetings delineating discussion
agencies face in helping inmates of barriers, recommended
address their multiple needs strategies, roles and
Determine what coordinated and responsibilities
collaborative reentry strategies
can be accomplished
Document the delineation of roles
and responsibilities
2. Development of an MOU Com feted MOU
3. Obtain signatures from participating Number of stakeholders signing
stakeholders the MOU
Percent of stakeholders signing
the MOY
4. Development of evaluation process Completed Evaluation Report
for the Council
5. Submission of report to Council for Minutes recording the review
review and comment and comment process
6. Submission of report to MCSO Documentation of receipt of
Administration re ort by Administration
Evaluation 1. Development of Process Evaluation List of Process Evaluation
measures: Measures
Program planning
Development
Implementation
2. Development of Outcome Evaluation List of Outcome Evaluation
measures: Measure
Public Safety
Public Health
Educational
Employment
3. Completion of Evaluation Report
4. Submission of report to MCSO
Administration
9
Organization Ca abilities and Competencies
The Monroe County Sheriff's Office is capable and experienced in successfully receiving,
managing and reporting on local, state and federal grants, and cooperative agreements. With
a solid history of awards from federal, state, private corporate grant programs,the MCSO has
proven itself to be a competent steward in all fiscal aspects of its operations and programs.
All grant awards have been carried out in a prudent, successful manner with strong
management and timely reporting - an indicator of strong organizational capacity. MCSO
has no history of delinquencies or negative findings from funding sources. Based upon
extensive experience and the variety of grants received, the MCSO financial services is fully
capable of tracking all drawdowns and grant expenditures separately from other federal
funding, through established financial policies, procedures, and practices.
In addition to financial accountability, MCSO has demonstrated its commitment and
capability in the development of programs to support inmates needs with programs
established with evidence-based and best clinical practices models. Examples of this
include:
■ The Jail In-house Program(JIP), a 6 month Substance Abuse treatment program that
has demonstrated the effectiveness of treatment for inmates. The recidivism rate for
the overall inmate population is approximately 70%re-incarceration within 1 year.
The recidivism rate for the JIP Substance Abuse program inmates is 27%.
■ The Women in Transition Program (WIT), a newly established 6 month treatment
program for incarcerated women with a history of homelessness, who have Co-
Occurring Substance Abuse and Mental Health Disorders. This SAMHSA Grant
program was established in partnership with a local Women's Housing Program, and
a local Outpatient Substance Abuse and Mental Health Center.
■ Jail Diversion Case Management and Forensic Case Management services are
contracted from the Care Center for Mental Health and funded through the State of
Florida Department of Children and Families.
■ Mental Health Counseling is provided to the inmate population on a referral basis,
through Prison Health Services, the contracted Medical and Psychiatric Services
provider for the Jail.
In addition to the Jail Services, the MCSO has provided leadership in the community. Chief
Tommy Taylor, Commander of Corrections, has served as the first Chairperson of the Monroe
County Criminal Justice, Mental Health and Substance Abuse Diversion Planning Council,
appointed in August of 2007 by the Monroe County Board of Commissioners. This Council was
established under the Florida Criminal Justice, Mental Health and Substance Abuse
Reinvestment Act. Monroe County was the second highest scoring applicant for planning grants,
in the state of Florida,
The agencies and grassroots organizations that make up the non-profit community in Monroe
County are a close-knit group working closely together on a daily basis to best serve the citizens
living in the Florida Keys. The MCSO goes to great lengths to collaborate with any groups or
individuals who can positively impact the lives of the inmates. The MCSO routinely participate
in the community collaboration efforts including: the Community Alliance, the Substance Abuse
10
and Mental Health Planning Council, the Inter-Agency Council; the Juvenile Justice Board; and
the Southernmost Homeless Assistance League.
Final Comment
The programs and services identified in this grant application are of vital importance to the
Monroe County Sheriff's Office to better serve the inmate population. They represent areas of
unmet needs and/or inadequate resources. To comply with the Recovery Act: Preference for
Quick-Start Activities, the Monroe County Sheriff's Office is prepared to initiate the
implementation of these activities within thirty days of receipt of the Grant Award. As noted in
this application, these grant funds are planned to provide services which will maximize the
potential for employment and economic benefit for inmates reentering the community. In
addition, the program will work with local employers through both, the current work release
program, and the WAVE Project, to foster a philosophy of acceptance, and willingness, to
provide inmates reentering the community with opportunities for employment and vocational
achievement.
ll
JAG Budget Summary (Attachment
Budget Cateaory Amount
A. Personnel $73,745.
B. Fringe Benefits $19,843.
C. Travel $801.
D. Equipment $ -0-
E. Supplies $4,252.
F. Construction $ -0-
G. Consultation/Contracts $ -0-
H. Other $ -0-
Total Direct Costs $
I. Indirect Costs $ -0-
TOTAL PROJECT COSTS $98,641.
Federal Request $98,641.
Non-Federal Amount' $ -0-
Budget Detail Narrative—JAG Pro ram: Local Solicitation Attachment 2
A. Personnel:
Total Personnel Cost is $57,745.
Project Director 100% $57,745.
The Project Director, (TBH) will devote 100% effort to the project, representing $57745. in
annual salary. The Project Director is responsible for the development, implementation and
evaluation of the program, including: recruitment/hiring contract staff; development of policies
and procedures for coordination within the jail, with the courts, and supervision systems;
collaboration with community stakeholders (educational/vocational, treatment; health, housing)
training of correctional, criminal justice, and community providers regarding the program;
development of program specific documentation system(client-based, inter-agency, information
and reporting system); development of additional resources for services expansion, and
sustainability The Project Director will have a Master's Degree in a behavioral health field;
extensive experience in clinical and community services, and experience with the criminal
justice population.
Re-Entry Planner(Contract) 800 Hours x $20/hr. $16,000.
The Re-Entry Planner, (TBH) will devote 720 hours to the project representing $14,400. in
annual contractual costs. The Re-Entry Planner will provide assessment screens, identify
inmates reentry needs, provide individual and group counseling and training; and collaboratively
work with community service providers. The Re-Entry Planner will have a Bachelors Degree,
Master's Preferred, in a clinical, educational/vocational, or related field; experience with
assessment, case management, supportive counseling and/or vocational/rehabilitative training.
Note: Cost of Living:
The salaries/wages established for these positions take into account the remoteness and extreme
high cost of living in the Florida Keys. The Price Level Index is 109.63, while the Florida State
Average is 100, making it the most expensive place in the State of Florida to live and work. In
addition, Monroe County ranks first among the State's counties in the cost of housing and health
care, and third in the cost of food and beverages.
B. Fringe Benefits
Total Fringe Benefits Cost is: $19,843.
These are standard fringe benefits for Project personnel. Fringe Benefits include: Wellness
FICA; Retirement; Life Insurance; Health Insurance; Worker's Stat Liability; Professional
Liability.
Project Director $19,843.
C. Travel
Total Travel Cost is: $801.00
Local travel is required for the Project Staff in order to provide services to clients in the
community. It is anticipated that staff will travel approximately 100 miles per month at a rate of
$.445 x 150miles x12 months= $801.
D. Equipment: _-0-
E. Supplies
Total Supplies Cost is: $4,252.
Operating Supplies:
One laptop and one printer will be needed = $1,500
One wireless card= $720.
One cell phone, including monthly service = $620.
Office Supplies (paper, notepads, staplers, hole punches, tape, tape dispensers, pens,pencils, etc
at$50. per month= $600.
Printing and Copying= $500.
Postage to mail correspondence = $312.
F. Construction: $ -0-
G. Consultant/Contractual: $ -0-
H. Other: $ -0-
Total Direct Costs: $
Indirect Costs: $
Indirect Costs include rent, utilities, vehicle use/gasoline, Administration(MCSO, HR, Finance,
MIS)
Total Project Amount $98,641.
JAG Program: Local Solicitation Request $98,641.
JAG Review Narrative (Attachment
In accordance with the policies and procedures of the Monroe County Board of County
Commissioners, grant applications and other such documents must go through a submission and
review process. First the application is submitted as an agenda item for the BOCC. The agenda
is then published in local newspapers, and on the Monroe County Board of Commissioners
website, per the Florida Sunshine Laws. The application is available for review on the BOCC
website, approximately two to three weeks in advance of the scheduled meeting. A copy of the
grant application is sent to each Commissioner for review, prior to the Commission meeting at
which the agenda item - application- is discussed in a public forum. At this time the application
is presented at the meeting, and the opportunity for citizens and neighborhood or community
organizations, to provide comment is made available. Following the submission of the
application, and presentation of the application at the BOCC meeting, the Commissioners make
public comment then choose to approve or deny the application.
JAG Pro ram Abstract LAttachment 4
Under the auspices of the Justice Assistance Grant purpose area for"Corrections and community
corrections programs", the Monroe County Sheriff's Office (MCSO) intends to address crime
through the provision of services directly to individuals and/or communities and by improving
the effectiveness and efficiency of criminal justice system, processes, and procedures. To this
end,the MCSO proposes the establishment of the Wellness, Academic, and Vocational
Empowerment (WAVE) Reentry Project. Oriented towards assisting inmates to prepare for
community reentry,the Project will provide: assessment/screening in the areas of medical,
health, mental health and substance abuse, housing, education, and employment; and the
development of individualized plans to provide a comprehensive, coordinated and collaborative
effort to ensure a continuum of care and treatment during the reentry process. To facilitate
success within the community, the Project will provide leadership, training, resource
development and community relations.
Specifically the Program Goals include:
■ Development of an infrastructure position for the ongoing development, implementation,
evaluation and sustainability for Jail Diversion, and Community Reintegration services
■ Increased number of reentry planning and employment readiness services for inmates
■ Reduction in the days of incarceration and undue detention of misdemeanant inmates,
particularly those with Mental Illness or Co-Occurring Disorders
• Reduction in recidivism of individuals participating in re-entry planning and employment
readiness services.
■ Increase the number of criminal justice personnel trained in law enforcement-based and
jail-based diversion strategies
■ Increased collaboration with community stakeholders (Mental Health and Substance
Abuse treatment providers, homeless providers, educational and employment support
services, healthcare agencies, financial assistance and social services, and the business
community)
The overall strategies to be utilized to meet these goals include the following: for the program,
systems-level and program level strategic planning; participation in the community; measuring
relevant processes/practices, and providing measurement feedback. For the inmate population,
strategies include: assessing risks/needs; enhancing intrinsic motivation; developing target
interventions; skill training; increase positive reinforcement; and engaging ongoing support.
The major deliverables/coordination plans for the Project include:
■ Employment of Project Director and contractual staff
■ Reentry Planning and Employment Readiness Service delivery to a minimum of 100
inmates annually
• Provision of training to a minimum of 50 criminal justice personnel annually
• Development of a minimum of 12 Memorandum of Understanding with Community
providers
■ Development of a local Reentry Council