Justice System Improvement Act Agencies - First Annual .

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·;u.s.n e tJqent of Justi\!e ''W'Flshiftttori;',ri,C.20531National Criminal Justice Reference Service0 lnCJrs,0 ',0"", .: ,,: :0'I)0,o,"Fir.,stAItDUal)leport . :;' 1",'VI- ilThis microfiche was produced from documents received forinclusion in the NCJRS data base. Since NCJRS cannot exercisecontrol over the physical condition of the documents submitted,the individual frame quality will vary. The resolution chart onthis frame may be used to evaluate the document quality.'O,fQtbc",,p,,',o.' r{o", '0"bJustice,SystemImprovement Act Agenc,ies .II\11 ',:i9" ,.'dJ,qoI1 I", 1.0'f}. .\ (}IfIII1.1-111111.25 111111.4"'BUreau'o/Justice Statistics" Law Enforcement' ,',',A sistance Administration' 'CJNational Institute ,,()/ Justice",O//iceo/JusticeAssistance,·,Research, and Statistics , "',' 1?,11'1!:d1 il,l!111111.6jMICROCOPY RESOLUTION TEST CHARTNATIONAL BUREAU OF STANDARDS-1963-AIiIIt\oI '""j"I.Microfilming procedures used to create this fiche comply withthe standards set forth in 41CFR 101-11.504.",0,'',".'. iI ,'j\,cIlj11II!"0,' '",c'1Ii rjlPoints of view or opinions stated in this document arethose of the author(s) and do not represent the officialposition or policies of the U. S. Department of Justice.0'Lj.'.,",'I',,'.- N'atio al I iitirte' o(Justice, " J .'I. United States Department of Justice. , .- ----------.jWashington, D. C. 20531, (J"DATE FI LMED ,}7/27 /81' II.JIIc. t, , '.I

LITO THE PRESIDENT AND THE CONGRESS OF THE UNITED STATESFirst Annual Reportof theJustice System.Improvement Act Agencies\ijFiscal Year 1980Bureau of Justice Statistics!Law Enforceme'!t.Assistance AdministrationINational Institute of Justice)1Ojfice of Justice A si tance,Research, and Statistics\iIf\1\\U.S. Department of Justi eNational Institute of Justiced ced exactly as received from theThis document has bee epr.o u. Points of view or opinions stat:dperson or organization originating It. thors and do not necessarilyin this document are tho.s.e of the es of the National Institute ofrepresent the official position or po ICJustice. Permission to reproduce thiS4 ; d material has beenP blic Domainu.U.S. Dept. of Justlcegranted byto the National Criminal Justice Reference Service (NCJRS).U.S. Department of J'i1sticeWashington, D.C. 20531. of the NCJRS system requires permisFurther reproduction outsidesion of the . owner.ItII\,lWe have the honor to transmit herewith the First Annual Reportof the Justice System Improvement Act Agencies, that is, theBureau of Justice Statistics, the Law Enforcement AssistanceAdministraton, the National Institute of Justice, and theOffice of Justice Assistance, Research, and Statistics, whichdescribestheir programs and activities during fiscal year1980.The Act, which took effect on December 27, 1979, restructuredthe Law Enforcement Assistance Administration (LEAA) , creatingthe four independerit Agencies within the Department of Justiceunder the authority of the Attorney General to help State andlocal governments improve the quality of their criminal justicesystems, to conduct research i criminal justice, and tocompile and disseminate criminal justice statistics. (OnDecember 8, 1980, subsequent to the end of fiscal year 1980,the Office of Juvenile Justice and Delinquency Prevention,which had been a part of LEAA, also was made an independentAgency within the Department.) The Act significantly changedthe manner in which the Federal government provides financialand technical aid to State, county, and municipal governments.WePlanning Agencies for their continuedpreparing this Report.njamin . Renshawting Directorureau of Justice StatisticsJ Harry;?a'ttActing DirectorNational Institute of JusticeAdI u-" H. BohlingerActing AdministratorLaw Enforcement AssistanceAdministration , l\. '4'11"" ert F. DiegelmaActing DirectorOffice of Justice Assistance,Research, and StatisticsjII

--.-- ------. --INTRODUCTIONThe first significant Federal aid to the State and localjustice systems was made possible through the creation ofthe Law Enforcement Assistance Administration (LEAA) in1968. LEAA also established a research program and astatistical program, which are now operated by theNational Institute of Justice and the Bureau of JusticeStatistics. The Justice System Improvement Act, which'took effect during fiscal year 1980, left LEAA responsiblefor the administration of the State and local aid program aswell as preventing and reducing juvenile delinquency,administering the public safety officers' death benefitsprogram, and providing financial and technical assistanceto community-oriented anti-crime programs.LEAA awards grants to support improvements in allTABLE OF CONTENTSIntroduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11The Justice System Improvement Act . 2. . .Budget. . 3Office of Justice Assistance, Research, and Statistics. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3Office of General Counsel. , . . 3Office of Civil Rights 'Compliance. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .parts of the criminal justice system-police, prosecutors,courts, probation, parole, corrections, and juvenile justiceagencies. It sponsors comprehensive State planning toimprove criminal justice and fosters new approaches tospecific nationwide problems such as organized crime,arson, and drug abuse .The National Institute of Justice conducts research toincrease knowledge about criminal behavior and criminaljustice operations and evaluates the effectiveness of variouscriminal justice programs .The Bureau of Justice Statistics develops reliable statisticson crime victims, offenders, and criminal justice systemoperations .-. 3Office of Public Information . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4THE JUSTICE SYSTEMIMPROVEMENT ACTOffice of Equal Employment Opportunity . 4. " . , . .4. , . .Office of Planning and Management. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Office of the Comptroller . . . 5Office of Operations Support. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Office of Audit and Investigation5. . 5Office of Congressional Liaison . .Law Enforcement Assistance Administration. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Office of Criminal Justice programs. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Office of Juvenile Justice and Delinquency Prevention. 66.10. .The Justice System Improvement Act (JSIA) (Public Law96-157) was enacted on December 27, 1979, to reauthorizeand restructure the Justice Department's program toimprove the administration of State and local criminaljustice. The Act created four agencies: the Office of JusticeAssistance, Research, and Statistics (OJARS); the LawEnforcement Assistance Administration (LEAA); theNational Institute of Justice (NIJ); and the Bureau ofJustice Statistics (BJS). Each operates under the generalauthority of the Attorney General and was authorized forthe four years through fiscal year 1983. Fiscal year 1980was a transition year from the earlier LEAA program.The aximum authorized appropriation for each year is 25 million each for NIJ, BJS, and LEAA's CommunityAnti-Crime Program, and 750 million for 'Other LEAAprograms. At least 19.15 percent of the appropriated fundsmust be used for juvenile delinquency programs, with theprimary emphasis on programs for juvenile criminal"offenders. This is in addition to amounts authorizedseparately under the Juvenile Justice and DelinquencyPrevention Act of 1974, as amended. Such sums as arenecessary are authorized for the Public Safety Officers'Benefits Act, under which LEAA provides a 50,000benefit to the survivors of public safety officers killed asthe result of a personal injury sustained in the line of duty . 12Office of Community Anti-Crime Programs . . . . . . . . . . . . . . . . . . . . . . . 13Office of Criminal Justice Education and Training . . . 14Public Safety Officers' Benefits Program . .Special Initiatives. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . : 1416.Formula Grant Program . . .National Institute of Justice. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2730.Bureau of Justice Statistics . '.' . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .33Appendix . � .1

-The individual appropriations for 1980 (in millions) wereas follows:(lIIJuvenile justice formula grants . .Criminal justice formula grants (Part D) . . .National priority grants program (Part E) . .General criminal justice grants program (Part F) . .Training:Educational development . .Prosecutor training . .General criminal justice training . .Subtotal, Training . . 63,750239,23429,90429,9055002501,7782,528I!Crime prevention programs . . .10,000IJuvenile justice programs:Speci l e p asi . : . .JuvenIle Justice Institute . .Technical assistance . .Concentration of Federal efforts . .Subtotal, Juvenile justice programs . .21,25011,0003,0001,00036,250Public safety officers' benefits program . .10,000Executive direction and control, OJARS . .10,285jl!(r!,fl\rin')\f!IAdministrative services, OJARS . .10,839Executive direction and control, LEAA . .Subtotal, LEAA . .442,695I1Research, evaluation, and demonstration programs . . 25,000!Justice statistical programs . .15,000,I!iExecutive direction and control, NIJ . .3,768Executive direction and control, BJS . .Sub,total, R&S . .43,768IOJARS provides direct staff support to and coordinatesthe activities of the JSIA agencies.During the year it developed a comprehensivereorganization plan in anticipation of a substantialreduction in appropriations for LEAA block grants. Theplan's goals are to create an LEAA structure that willefficiently end the State and local assistance program,create independent structures for NIJ and BJS, prepare foran Office of Juvenile Justice and Delinquency Preventionthat is independent from LEAA, and disperse OJARSsupport functions to the it'idependent agencies by September30, 1981. The plan was designed to make sure thatinterested employees in the JSIA agencies are offeredpositions in the reorganized units or elsewhere in theDepartment of Justice or other Executive Branch agencies.During the past year OJARS and the National Councilon Crime and Delinquency cooperated with the AdvertisingCouncil in sponsoring a major effort to help prevent crimein America. It brought together 36 national nonprofitorganizations and seven Federal agencies. This coalition,the National Citizen's Crime Prevention Campaign,encouraged all citizens to initiate new crime preventionprograms or enhance existing ones, emphasizing that crimecan, indeed, be prevented through citizen action. Thecampaign was given national publicity through television,the newspapers, and other media through the "Take a BiteOut of Crime" program.OJARS established a special 16-person task fmce to helpits Office of Civil Rights Compliance reduce a backlog of180 complaints of discrimination. The Office still receives,approximately 10 new complaints a month ofdiscrimination by State or local agencies that are fundedwith JSIA grants. The task force staff includes severalpeople on detail from the Drug EnforcementAdministration, the Immigration and NaturalizationService, and the Department of Justice.fII2.---OFFICE OF JUSTICE· ASSISTANCE,RESEARCH, AND STATISTICSBUDGETThe total budget for the four Justice SystemImprovement Act agencies for fiscal year 1980 was 486.5miIlion, compared to 646.5 million in 1979, 647.2 millionin 1978, and 753 million in 1977.----- ---Office ofGeneral CounselThe Office writes legal opinions and offers interpretations and legal advice on all JSIA agency activities,such as the congressional authorization, the appropriationslegislati( m, regulations, and guidelines. It also gives adviceabout the resolution of audit findings. The Office has theprimary responsibility for drafting legislative proposals andregulations. It writes and reviews contractual documents forlegal sufficiency and provides advice on legal matters concerning grants, contracts, and other aspects of Federal law.During the year the Office was actively involved in thedrafting and passage of the Justice System ImprovementAct of 1979, which reorganized Federal criminal justiceassistance, research, and statistics efforts.The Office also amended the OJARS nondiscriminationregulations to specify that JSIA agency funding recipientscannot subject any group of persons to physical abuse or adenial of their constitutional rights on the basis of theirrace, color, national origin, religion, or sex.Office of CivilRights ComplianceThe Office of Civil Rights Compliance monitorscompliance with the civil rights responsibilities of recipientsof Federal criminal justice system assistance. This includesenforcing Title VI of the Civil Rights Act of 1964, Section815(c) of the Justice System Improvement Act of 1979,Section 504 of the Rehabilitation Act of 1973, as amended,and the Age Discrimination Act of 1975, as amended.During the year extensive reviews were conducted in theArizona Department of Public Safety; the HamiltonCounty, Ohio, Pretrial Services; and the Shawnee County,Kansas, Sheriff's Department. Two resolution agreementswere signed and others were in the process of negotiation atthe end of the fiscal year.Thirteen notices of noncompliance were issued advisingof possible fund suspension if compliance was not secured.Suspensions were imposed in three cases.During the year 122 complaint cases were resolved,resulting in more than 100,000 in cash settlements to complainants. Plans for the training and utilization of detaileesto the Office were in progress at the end of the year. Theywill assist in the early resolution of the complaint caseload.Office ofPublic InformationThe Office is responsible for keeping the news media andthe general public fully informed about JSIA agency activities. It responds to questions and prepares news announcements and feature stories about all agency programsof general interest.The Office arranges news conferences and briefings toexplain the details of significant research findings or important new program initiatives and pflepares speeches,briefing papers, and policy statements for the agency administrators and directors.As the Freedom. of Information Act IJffice, it encouragesthe widest possible dissemination of information consistentwith the law. During fiscal year 1980 the Office respondedto 386 Freedom of Information and Privacy Act requests.The Office publishes a newsletter, Justice AssistanceNews, which is distributed ten times a year.The Office issued 42 new features about matters of na3

-------------- . ----- --. --tional interest during the year.During the year the Office also issued more than 50Dnews releases of general and regional interest.Office of EqualEmployment OpportunityThe Office's responsibilities include evaluating the JSIAagencies' personnel management policies, practices, andprograms for their impact upon EEO and the developmentand implementation of the agencies' Annual AffirmativeAction Plan. It processes informal and formal EEO complaints of discrimination and implements the requiredSpecial Emphasis Prvzsams.Fiscal year 1980 activities included: The JSIA agencies participated in 18 major nationalconferences on civil rights and equal opportunity forminorities and women. ' The Office continued to study and collect datacom:erning developments in the area of EEO. In addition,quarterly statistical reports on female and minority employment in relation to agencies' goals were analyzed. Heritage Week activities for blacks, Hispanics, women,and Asian/Pacific Americans included a wide range of activities during each special week, i.e., educational workshops, films, displays, and receptions with ethnic displays. The EEO Advisory Committee, which is made up ofsix representatives of the Black Affairs Program, HispanicEmployment Program, Federal Women's Program, Asian/Pacific American Program, Native American Program, andone employee union official continues to advise and assistthe EEO staff.Office of Planningand ManagementThe Office of Planning and Management providesgeneral policy direction for OJARS planning, management,and evaluation activities. It facilitates the coordination ofthese activities with LEAA, NIl, and BJS by providing information and advice on management and program topicsof mutual interest. The Office is the principal advisor tothe Director of OJARS on issues that cut across all JusticeSystem Improvement Act organizations.During fiscal year 1980, the Office was involved in thefollowing major activities: It chaired task forces that developed the OJARS reorganization proposal resulting from passage of the JSIA of1979. It participated in the contingency planning for thephase-out of LEAA resulting from the President's revisedfiscal year 1981 budget. It prepared the OJARS Reorganization Proposal datedJuly 9, 1980. It conducted a management review of civil rights processing procedures that resulted in improvements in complaint processing and the appointment of a task force toclear out the backlog. It conducted a management review of audit resolutionprocedures that resulted in improved processing and thecreation of an Audit Review Committee to deal with thoseaudit resolution issues that require bureau head policy decisions. It managed th'e Ad Council Campaign-"Take a BiteOut of Crime." It monitored the grant to the National GovernorsAssociation on the institutionalization of criminal justiceplanning in State governments.cooperative agreements. Accomplishments in this area include: Computer generated grantee financial reports (H-lTurnaround Documents) with preprinted fields and financial data entered by OJARS for the previous quarter. ThisH-l Turnaround Document has resulted in fewer errors forthe Accounting Division to resolve. System expansion to immediately log the receipt of H-lreport; and quarterly progress reports.Twenty-two computer terminals provide agency staff withimmediate access to information in the grants PROFILEsystem. Training about PROFILE and the use of these terminals has been provided to all offices within OJARS, including the five area audit offices. Additionally, an automated audit system was developed and implemented tokeep track of audit findings and their resolution. Thesystem provides audit staff with immediate access to thedata.In addition, a system was developed to track awardsmade under the Public Safety Officer's Benefits Program.This system provides detailed information on all aspects ofthis program. It is now in the process of being implemented.Office ofthe ComptrollerThe Office of the Comptroller is the principal advisor tothe Director of OJARS on financial management. It isresponsible for establishing agency policy about financialmanagement, planning, and administering the budget,operating an agencywide accounting and reporting system,supervising contract activity, and formulating proceduresfor the financial administration of grants. It also providestechnical assistance and training to the other JSIA agencies,State planning agencies, and other grantees in financialmanagement, grant administration, budgeting, accounting,and contracting. It ccordinates the JSIA agencies' compliance with financial and grants management regulationsand directives.The Office has five divisions-the Information SystemsDivision, the Accounting Division, the Budget Division, theGrants and Contracts Management Division, and the PolicyDevelopment and Training Division. (The Public Safety Officer's Benefits Program was transferred from the Office tothe new Law Enforcement Assistance Administration by theJustice System Improvement Act of 1979.)The Office of the Comptroller is responsible for providing data processing support. This includes internal,functionally-oriented systems, as well as national level grantmanagement and criminal justice statistical systems thatprovide information to the 57 States and territories, theCongress, the Office of Management and Budget, theGeneral Accounting Office, and program managers in theJSIA agencies.To help criminal justice councils develop and maintainaccurate financial and grant monitoring information, theOffice financed, coordinated, and monitored the development and installation of Stat !evel management information systems. The data bases provide a wide variety ofreports on current and completed grants. Twenty-fourStates have obtained grants to implement automatedmanagement information systems. Each is providing moreaccurate and complete information to LEAA about theirgrants. The States have been taught to code programmaticinformation about their own grants using the programclassification system. Fifty States and territories have implemented this system. This will allow LEAA to report accurate programmatic information about State subgrants.The Office has developed the capability to track grantsand contracts from initial application through filial closeout and has compiled an inventory of all JSIA agencygrants, subgrants, contracts, interagency agreements, and'.Office ofOperations SupportThe Office of Operations Support is responsible fordirecting and coordinating all activities concerning the internal and organizational support of OJARS and the otherJSIA agencies. In addition, the Office is responsible forcoordinating all international anti-terrorism programs.The Personnel Division provides employee services to allcomponents of OJARS and the other JSIA agencies. Thisincludes the recruitment, selection, and placement of allemployees. It also represents management in all labor relations matters. Major activities during the year centered onthe implementation of the iegislative reorganization of theagencies caused by the passage of the Justice System Improvement Act. These activities, along with the substantialdecline in the agencies' personnel strength (from 621 in1979 to 490 at the end of 1980), have resulted in increasedefforts to provide innovative methods of dealing with expanding workloads while facing major resource reductions.The Administrative Services Division is responsible forthe management and provision of security, furnishings,telephone systems, equipment, maintenance, office space,mail services, and safety and health programs. In addition,it assists grantees in obtaining Federal excess personal property. During fiscal year 1980 grantees obtained propertyoriginally costing 767,4OD at a cost of 191 850 for a totalsavings of 575,550.'Office of Auditand InvestigationThe Office of Audit and Investigation is responsible forreviewing grants and contracts awarded by the JSIA agencies. It investigates alleged irregularities, conducts specialinquiries which it coordinates with other Federal and Stateinvestigating agencies, and provides training and technicalassistance to State and local audit agencies. The Office alsois responsible for the Federal audits of 57 State criminaljustice planning agencies and approximately 100 nongovernmental units. In addition the Office coordinates the auditsof contracts and grants performed by other Federal andState audit agencies of agency activities.During fiscal year 1980 the Office issued 692 auditreports to various OJARS, LEAA, NU, and BJS programand staff offices. The Office also issued 160 significantissue bulletins on matters .pertaining to investigation activities and closed 92 investigations.Office ofCongressional LiaisonThe Office of Congressional Liaison is responsible formaintaining effective communications with the Congressand for providing general guidance in intergovernmentalaffairs.The Office performs liaison activities with congressionalleaders, committees, and with individual members of theCongress on legislative matters affecting the Office ofJustice Assistance, Research, and Statistics and the criminaljustice community. It is responsible for the review of proposed legislation affecting criminal justice and for the nreparation of statements for officials of JSIA agencies testifying at congressional hearings.It maintains a close working relationship with significantnational organizations interested in the criminal justicesystem, particularl concerning mutual legislative interests.45

I!LAW ENFORCEMENTASSISTANCE ADMINISTRATIONI\ The Law Enforcement Assistance Administration(LEAA) awards grants to support improvements in all partsof the criminal justice system-police, prosecutors, courts,probation, parole, corrections, and juvenile justice agencies. It sponsors comprehensive State planning to improvecriminal justice and fosters new approaches to specific nationwide problems such as organized crime, arson, andfamily violence.In addition, it supports improved criminal justice curricula in colleges and universities and provides specializedtraining for criminal justice officials at the State and locallevels.deterrence, detection, investigation, and control of crime byState and local law enforcement agencies. The objective ofthese projects is to improve and strengthen law enforcementcapability through specialized technical assistance tooperating agencies, provide training for management andline personnel, perform research to develop new information and techniques, and offer operational programs totest, demonstrate, and dissemin,ate enforcement technology.The Commission on Accreditation for Law EnforcementAgencies was formed by LEAA in December 1979. Thegoals of the program are to: Increase the effectiveness and efficiency of thedelivery of law enforcement services. Increase citizen and individual officer confidence inlaw enforcement standards and practices. Effect a greater standardization of administrativeand operational practices.The Office of Criminal Justice Programs (OCJP) wasThe Commission has 21 members: 11 officials from thecreated at the start of fiscal year 1978. It is the largest proenforcement community and 10 representatives fromgram office within LEAA and is the principal contact forgovernment and private sector agencies. ' hrough an agencyState and local criminal justice agencies. It awards,accreditation program, the Commission wiII adoptmonitors, evaluates, and terminates all planning and blockstandards with which to measure the strengths andaction grants and manages most of the Agency's discreweaknesses of law enforcement services provided to thepublic.tionary grants and technical assistance activities.The Office is compQsed of five criminal justice assistanceFour participating law enforcement associations, thedivisions, six program divisions, an Arson Desk, two staffInternational Association of Chiefs of Police (IACP), theunits, and a Critical Issues Team.National Organization of Black Law Enforcement Executives (NOBLE), the National Sheriffs' Association(NSA), and the Police Executive Research Forum (PERF),Criminal Justice Assistance Divisionsare working together to provide a staff of law enforcementThe five criminal justice assistance divisions

Assistance Administration National Institute of Justice Ojfice of Justice A si tance, Research, and Statistics U.S. Department of J'i1stice Washington, D.C. 20531 . improve the administration of State and local criminal justice. The Act created four agencies: the Office of Justice

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