County of Santa Clara
Social Services Agency

Department of Family and Children's Services

CSFC SSA04 121405
Prepared by: Randy Parker
Social Work Supervisor
Reviewed by: Norma Doctor Sparks
Director, Department of Family
and Chi ldren's Services

DATE:

December 14, 2005

TO:

Supervisor James T. Beall, Jr., Chairperson
Supervisor Don Gage, Vice-Chairperson
Children, Seniors & Families Committee

FROM:
Will Lightbourne
Agency Director, Social Services Agency
SUBJECT: Implementation Update of SJSU CWS Study

RECOMMENDED ACTION
Accept this Update on Social Service Agency (SSA) and Department of Family and Children's
Services (DFCS) activities addressing the recommendations of the San Jose State U niversity
study: An Evaluation of Factors Related to the Disproportionate Representation of Children of
Color in the Santa Clara County Child Welfare System (Evaluation).

FISCAL IMPLICATIONS

Bo.:irij 01:::upervis or s. C1cinald F. G.:i~1e. Blanca P·.l'•iarado, Pete McHu~1t1, .Jim Beall, Liz l<111s·;
•~ount•/ E~,eeut1ve F·eter Kutra·3 .Jr

Committee Agenda Date :December ·1 4, 2005

There is no fiscal impact or General Fund cost associated with the recommended action.

CONTRACT HISTORY
Not applicable.

REASONS FOR RECOMMENDATION
The Children, Seniors and Families Committee requested this update on the activities of the
Department of Family and Children's Services to address the findings of the three-phase
Evaluation conducted by the Child Welfare Research Team of San Jose State University's
(SJSU) College of Social Work.
Attached please find a matrix listing the recommendations made by SJSU and the
corresponding actions taken by SSA and DFCS.

BACKGROUND
The Board of Supervisors authorized funding for II An Evaluation of Factors Related to the
Disproportionate Representation of Children of Color in the Santa Clara County Child
Welfare System, 11 a three-phase study conducted by the Child Welfare Research Team of San
Jose State University's (SJSU) College of Social Work.
The Phase 1 report was exploratory and drew from three sources: research literature at the
national, state and county levels; DFCS' management information system (CWS/CMS); and,
focus groups with parents, caregivers and youth receiving Child Welfare Services (CWS) and
professional providing those services. The Phase 1 Evaluation report was issued in May 2001.
The Phase 2 Evaluation focused on the actual experiences of children in the CWS system and
the individual and family characteristics that were related to the children's experiences.
Results were based on extensive, in-dept review of closed child welfare and interviews with
DFCS managers and supervisors. The Phase 2 Evaluation report was issued in August 2002.
The Phase 3 study aimed at assessing key CWS practices for children and families of color to
generate strategies to reduce the overrepresentation of children of color in the system.
Inquiries included in-depth interviews with DFCS managers and supervisors, focus groups

Board of Supervisors: Donald F. Gage, Blanca Alvarado, Pete McHugh, Jim Beall, Liz l<niss
County- Executive: Peter Kutras .Jr.

2

Committee Agenda Date :Decernt)er ·1 4, 2005

with social workers and parents involved in CWS, and a statewide survey of promising
practices for servicing children and families of color. Phase 3 also involved a qualitative and
quantitative comparison of practices and outcomes between the DFCS South County and
Main Offices in San Jose; a reanalysis of cases from Phase 2 with successful outcomes and an
analysis of factors that contributed to positive outcomes; and, a review of supplemental data
related to court ordered changes to social worker recommendations at
jurisdictional/dispositional hearings. The Phase 3 Evaluation report was issued in September
2003 (revised in November 2003).
Reducing the overrepresentation of the children and families of color in the CWS system
remains a top priority and major concern for SSA and DFCS. One of goals of the System
Improvement Plan for DFCS is to reduce the number of children of color entering foster care
for the first time. Many of the enhancements to services resulting from the DFCS Service
Delivery Redesign directly impact and support best practices that offer the potential to reduce
the overrepresentation of children and families of color in the CWS system.
SSA and DFCS also promotes through collaboratives and contract administration activities
culturally and linguistically competent services in the community to prevent child abuse and
neglect, divert families from the CS system, and assist families in the CWS system to
successful maintain or reunify their families.
The Santa Clara County Child Abuse Council administers funds for many community-based
organizations devoted to the prevention of child abuse. The Council's Children of Color Task
Force and SSA/DFCS have formed a unified workgroup to further study and address the
complex issues surrounding the disproportionality of children of color, beginning with
examination of a proposed DFCS risk/safety assessment tool and Expanded Differential
Response Path 1 (intended to divert families at-risk of entering the CSW system).

CONSEQUENCES OF NEGATIVE ACTION
Negative action would result in the Children, Seniors and Families Committee would not
accept the Implementation Update on the SJSU CWS Study

STEPS FOLLOWING APPROVAL
The Clerk of the Board will follow the usual procedures for a report of this type.

Board of Supervisors: Donalij F. Gage, Blanca Alvarado, Pete McHugh, Jim Beall, Liz Kniss
Count,1 Executive: Peter Kutras Jr

3

Committee Agenda Date :Deceml:ier ·14, 2005

ATTACHMENTS
• Implementation Update of SJSU Study

Board ofSupervisors: Donald F. Gage, Blanca Alvarado, Pete McHugh, Jirn Beall, Liz J<niss

County- Executive: Peter J<utras Jr.

4

Attachment A
Implementation Update of San Jose State University Study: An Evaluation of Factors Related to the Disproportionate
Representation of Children of Color in the Santa Clara County Child Welfare System

1. In order to better assess whether safety,
permanency, and family and child wellbeing are maintained and enhanced, case
records should contain more complete and
measurable information that is collected in a
reliable and valid manner.

The primary record keeping database for the Child Welfare Services system in California is the
Child Welfare Services Case Management System (CWS/CMS). As a first step, DFCS will discuss
at the regional level the feasibility of adding data fields to this system for demographic, systemrelated, and psychosocial characteristic data that would report differences at different decision
points in the system and support research. Changes in this system must be made at the state
level.
Through the Connected by 25 Foster Youth Initiative, a more comprehensive data system is being
designed with the assistance of UC Berkeley and the Walter S. Johnson Foundation.

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3. Implementing better record keeping and
data collection over time on key
characteristics, based on agreed-upon
operational definitions would better address
the question of effectiveness and
performance.

The primary record keeping database for the Child Welfare Services system in California is the
Child Welfare Services Case Management System (CWS/CMS). A quality assurance monitoring
system, SafeMeasures, is also now available for supervisors and managers to track case activities
and child outcomes.

4 . Continuation of some practices that are
already in place is recommended, including
culturally specific ER response units and the

DFCS continues to have three culturally specific Emergency Response Units investigating
allegations of abuse and neglect and serving families with the following cultures/ languages:
Asian/P_§Cific Islander, Spanish/Latino and African American.

December 14, 2005

Page 1 of 14

"
Attachment A
Implementation Update of San Jose State University Study: An Evaluation of Factors Related to the Disproportionate
Representation of Children of Color in the Santa Clara County Child Welfare System

The primary record keeping database for the Child Welfare Services system in California is the
Child Welfare Services Case Management System (CWS/CMS). As a first step, DFCS will discuss
at the regional level the feasibility of adding data fields to this system for demographic, systemrelated, and psychosocial characteristic data that would report differences at different decision
points in the system and support research. Changes in this system must be made at the state
level.

1. In order to better assess whether safety,
permanency, and family and child wellbeing are maintained and enhanced, case
records should contain more complete and
measurable information that is collected in a
reliable and valid manner.

Through the Connected by 25 Foster Youth Initiative, a more comprehensive data system is being
designed with the assistance of UC Berkeley and the Walter S. Johnson Foundation.

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1- ~ - ~ - ~ - - ~ - ~ - - - - ~--3. Implementing better record keeping and
data collection over time on key
characteristics, based on agreed-upon
operational definitions would better address
the question of effectiveness and
performance.

The primary record keeping database for the Child Welfare Services system in California is the
Child Welfare Services Case Management System (CWS/CMS). A quality assurance monitoring
system, SafeMeasures, is also now available for supervisors and managers to track case activities
and child outcomes.

4. Continuation of some practices that are
already in place is recommended, including
cultural! s ecific E~_r:~~l?.~nse units and the

DFCS continues to have three culturally specific Emergency Response Units investigating
allegations of abuse and neglect and serving families with the following cultures/ languages:
Asian/Pacific Islander, S anish/Latino and African American.

December 14, 2005

Page 1 of 14

Attachment A
Implementation Update of San Jose State University Study: An Evaluation of Factors Related to the Disproportionate
Representation of Children of Color in the Santa Clara County Child Welfare System

SJSU Recommendation
use of family resource centers.

December 14, 2005

Implementation Status
DFCS continues to operate four culturally focused Family Resource Centers (FRC): Nuestra Casa
FRC, Ujirani FRC, Asian-Pacific FRC and Gilroy Family Resource Center. These FRCs provide
voluntary family maintenance services to families without court involvement. In addition, community
liaisons are available.

Page 2 of 14

Attachment A
Implementation Update of San Jose State University Study: An Evaluation of Factors Related to the Disproportionate
Representation of Children of Color in the Santa Clara County Child Welfare System

6. Practices that are inclusive, collaborative,
culturally appropriate and involve client's
communities appear to be best suited to
meeting the needs of children and families
of color.

December 14, 2005

DFCS Joint Decision Making programs (Team Decision-Making, Family Conferencing and Joint
Response with law enforcement) provide for decision making and planning that is culturally
appropriate and involve families' communities.

Page 3 of 14

Attachment A
Implementation Update of San Jose State University Study: An Evaluation of Factors Related to the Disproportionate
Representation of Children of Color in the Santa Clara County Child Welfare System

SJSU Recommendation

Implementation Status

8. Use of a vertical case management model
in the Main County office may help improve
outcomes.

The DFCS Service Delivery System Redesign introduced the essential characteristic of the vertical
model to North County: The family's continuing Service Bureau social worker is assigned to the
case soon after the family enters the court system and prior to initial disposition, and one social
worker continues to provide services to the family, including all siblings, regardless of their
placement until the case is closed. However, the emergency response and dependency intake
work are kept separate due to the short federal and state timelines required in these functions.
Recently, the vertical model in South County has been modified to the Service Delivery System
Redesign model to separate out the emergency response and dependency intake work. However,
the essential characteristics of the vertical model remain. The continuing Service Bureau social
worker teams with a Dependent Intake social worker prior to initial disposition by the Court and one
social worker continues to provide services to the family, including all siblings regardless of their
placement until the case is closed. Due to the short timelines required in the emergency response
and dependency intake work, the workloads were overwhelming the recently hired staff, the
majority of the social worker staff in South County.

10. Increasing preventive and early intervention
services for vulnerable families of color.

The DFCS has strengthened preventive and early intervention services for vulnerable families
through the following:
.__
___,_ onse (EJR) b
• Enhanced Joint Res
social workers and law enforcement in the assessment of

________________ _______ __

.__

December 14, 2005

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Page 4 of 14

Attachment A

Implementation Update of San Jose State University Study: An Evaluation of Factors Related to the Disproportionate
Representation of Children of Color in the Santa Clara County Child Welfare System

SJSU Recommendation

Implementation Status

•

•

•

alleged serious child abuse or neglect. The social worker brings unique assessment skills and
resources to these situations that can help establish voluntary services, avoid temporary
custody, facilitate emergency relative placement or ease the child's transition into temporary
custody by transporting the child to the Children's Shelter. EJR is in operation in San Jose and
Santa Clara from where the majority of serious allegations of abuse and neglect are reported.
Countywide implementation of EJR is planned.
Early Intervention (El) and Weekend Diversion (WO) services for children taken into temporary
custody and taken to the Shelter continue to divert children to voluntary services, arrange
temporary emergency relative placements and facilitate arrangements that will ease the child's
transition into temporary custody (e.g., supervised parent-child visitation). El and WD service
need levels have diminished as EJR has expanded.
The County continues the Family Strength-Based Services (FSBS) contract with the Gardner
Family Care Corporation to provide intensive services to 28 high-risk families at a time, referred
for voluntary services by Emergency Response, Dependency Intake and Early
Intervention/Weekend Diversion social workers. FSBS provides short-term, wraparound
intervention services as an alternative to initiating juvenile court dependency actions and DFCS
providing Family Maintenance or Reunification Services. Services are provided by culturally
and linguistically qualified staff. During FY05, 277 children in 102 families were served by
FSBS.
The Family Advocate Program at Resources for Families and Communities (RFC) also provides
culturally and linguistically complete wraparound case management services to families
diverted from formal Child Welfare Services. This program also served approximately 200
children in 100 families in FY05. A RFQ involving the current funding source for the Family
Advocate program is in process for an Enhanced Differential Response Program to begin in
September 2006.
Enhanced Differential Response Path 1 services will be provided by a community based service
program contractor with experience in working with families with child abuse and neglect
issues. The contract agency selected will need to have substantial cultural and language
capability. The target population for these services will be families for whom child abuse or
neglect reports are received, and who have difficulties that do not rise to the legal definitions of
child abuse and neglect, but who appear to have high cumulative risks and vulnerable to
enterin the Child Welfare Services system in the future. The contract service rovider will

December 14, 2005

Page 5 of 14

Attachment A
Implementation Update of San Jose State University Study: An Evaluation of Factors Related to the Disproportionate
Representation of Children of Color in the Santa Clara County Child Welfare System

SJSU Recommendation

Implementation Status
engage these families to build upon their strengths to stabilize their circumstances. A similar
Enhanced Differential Response Path 4 will be developed for families who have reunified or
established a permanency plan (such as adoption or guardianship) have a closed case, and
require services to prevent the family from having to enter the Child Welfare Services system
again.

12. Increasing the use of non-traditional,
culturally sensitive services.

December 14, 2005

OFCS continues to promote the development of new culturally sensitive approaches to prevent
abuse and neglect, such as the development of Enhanced Differential Response. The Child Abuse
Counsel administers funds to various community service providers that provide a wide range of
approaches to reduce child abuse and neglect. DFCS and community stakeholders on the
Continuum of Care Committee, including representatives from service providers and placement
resources, plan together to maximize the availability of culturally and linguistically appropriate
services and placement options for child.

Page 6 of 14

Attachment A
Implementation Update of San Jose State University Study: An Evaluation of Factors Related to the Disproportionate
Representation of Children of Color in the Santa Clara County Child Welfare System

14. Developing interagency formal agreements
and connections with liaisons in other
agencies would be beneficial as it can
facilitate collaboration and minimize the
potential for agencies to give conflicting
messages and mandates to clients.

The Continuum of Care Committee and the Child Abuse Prevention Community Collaborative
(CAPCC) are examples of community involvement in planning preventative and child welfare
services. DFCS and community stakeholders on the Continuum of Care Committee, including
representatives from service providers and placement resources, plan together to maximize the
availability and quality of culturally and linguistically appropriate services and placement options for
child. The CAPCC is a planning body with nearly 100 members representing the Board of
Supervisors, Child Abuse Council, numerous community service agencies, philanthropic
organizations, parent customers, educational institutions and county departments, including DFCS.
The Collaborative is primarily charged with providing input concerning the development of the
Enhanced Differential Response program.

16. Other collaborative efforts, such as
outstationed social workers, co-locations of
services and Family Drug Court could serve
as models for best practices for children and
families of color.

RFC Family Advocates are out-stationed at the Family Resource Centers to engage families in
voluntary services.
Enhanced Joint Response between DFCS social workers and law enforcement agencies is another
example of collaboration efforts that make it possible for DFCS to provide the most appropriate and
least restrictive intervention possible.
Drug Court in the Juvenile Dependency Court is a model for interdisciplinary problem solving and
policy development and continues to provide an effective array of services for families experiencing
substance abuse problems.

December 14, 2005

Page 7 of 14

Attachment A

Implementation Update of San Jose State University Study: An Evaluation of Factors Related to the Disproportionate
Representation of Children of Color in the Santa Clara County Child Welfare System

17. Regular assessment of ways in which
shortened timelines, early termination of
parental rights, bypass criteria, as well as
changes in adoption regulations and
incentives have had an impact on children
and families of color would be beneficial.

DFCS periodically provides the Board of Supervisors' Children, Seniors and Families Committee
with reports regarding children and families for whom the Juvenile Dependency Court did not order
Family Reunification Service ("bypass cases"). Over the past 4 years, there continues to be a
disproportionate number of children of color whose parents did not receive Family Reunification
Services. However, following implementation of a new DFCS bypass case policy in August 2004 in
which the DFCS Director reviews all potential recommendations for the bypass of Family
Reunification services, the overall number of children in bypass cases decreased; many parents
with circumstances meeting the legal requirement for bypass of services received Family
Reunification Services; the proportion of bypass cases where only one parent did not receive
services increased; and, the time between initial child removal and initial Court disposition and the
provision of services decreased.
There have been no changes in the legal time limits allowed to accomplish family reunification or
the legal grounds upon which the Juvenile Dependency Court can order bypass of Family
Reunification Services since the researchers completed their study. There have been no
substantial changes in adoption regulations since the researchers completed their study.

December 14, 2005

Page 8 of 14

Attachment A
Implementation Update of San Jose State University Study: An Evaluation of Factors Related to the Disproportionate
Representation of Children of Color in the Santa Clara County Child Welfare System

19. In order to more fully assess differences in
outcomes (particularly racial/ethnic
differences in outcomes) between the South
County and Main County offices, future
research should include a larger sample
from the South County office and include
methods to understand the reasons behind
these location differences.

There has been no additional formal research concerning DFCS services in South County.

21 . Further investigation of ways in which
relationships between court personnel and
child welfare workers have an impact on the
experiences of children and families of color
in the child welfare system is warranted,
including the assessment of factors such as
courtroom environment, stakeholder
characteristics, and other judicial issues.

There has been no additional formal research concerning the ways in which relationships between
court personnel and child welfare workers have an impact on the experiences of children and
families of color in the Child Welfare Services system.

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December 14, 2005

Page 9 of 14

Attachment A
Implementation Update of San Jose State University Study: An Evaluation of Factors Related to the Disproportionate
Representation of Children of Color in the Santa Clara County Child Welfare System

SJSU Recommendation

23. Future research efforts should also be
directed toward examining neighborhood,
community, and other macro-level factors
particular to Santa Clara County and ways
in which these factors interact with
individual, family, and system-related
characteristics to propel children of color
into and maintain them in the child welfare
system.

Implementation Status

There has been no additional formal research examining neighborhood, community, and other
macro-level factors particular to Santa Clara County and ways in which these factors interact with
individual, family, and system-related characteristics to propel children of color into and maintain
them in the Child Welfare Services system.

Members of focus groups also provided some
additional recommendations. A total of 13 focus
groups containing 67 social workers were
conducted. Focus groups were divided among
various units, including diversion, ER/DI, case
assignment, mandated services time limits, and
the South County office. Recommendations
from the focus groups to improve practices for
children and families of color included:

25. Family conferencing

December 14, 2005

DFCS continues to provide Family Conferences where families develop plans to recommend in
relation to placement and services. DFCS also provides Family Conferences for foster youth who
are emanci atin .
Page 10 of 14

Attachment A
Implementation Update of San Jose State University Study: An Evaluation of Factors Related to the Disproportionate

Representation of Children of Color in the Santa Clara County Child Welfare System

SJSU Recommendation

27. Formal and informal collaborative
relationships with other service delivery
systems, such as domestic violence and
substance abuse treatment systems

Implementation Status

SSA/DFCS continue to enter into formal and informal collaborative arrangements with numerous
service providers and delivery systems.
Key partners in planning child abuse prevention and child welfare services include: The Board of
Supervisors, Districts 1 through 5; the Child Abuse Council of Santa Clara County, the Child Abuse
Prevention Community Collaborative, the Status Offender Services Council, Project Cornerstone
and FIRST 5 Santa Clara County.

Other key public and private partners include, but are not limited to the following: San Andreas
Regional Center; Children's Health Council; Child Advocates of Santa Clara and San Mateo
Counties; Gardner Family Care, Resources for Families and Communities, Catholic Charities;
Catholic Charities Immigration Programs; DFCS Foster Youth Advisory Board; Foster and Adoptive
Parents Association; Foster and Adoptive Parents Association Resource Center; California Youth
Connection; Daybreak; Evelyn Cox Foster Family Agency; Families First; Future Families; JT
Residential; STAR House; Unity Care Group; Villa Rosanne; Casa SAY; Rebekah Children's
Services; Quetzal House: Silicon Valley Children's Fund; Indian Health Center; MACSA; Asian
Americans for Community Involvement; Billy de Frank Center; EMQ Child and Family Services;
Alum Rock Counseling Center; Corporation for Supportive Housing; San Jose State University;
California State University Consortium; Mission Community College; San Jose City/Evergreen
Valley College; West Valley College; EHC Lifebuilders; California School-age Consortium; NOVA
SVWIN; Project READ; Family and Children Services; Vision Literacy; Volunteer Center of Silicon
------------------~V_a_l_le-"-;'--N_e_xt_D~or Solutions; Sup art Network for Battered Women; Communi Solutions; Famil
December 14, 2005

Page 11 of 14

Attachment A
Implementation Update of San Jose State University Study: An Evaluation of Factors Related to the Disproportionate
Representation of Children of Color in the Santa Clara County Child Welfare System

SJSU Recommendation

Implementation Status
Violence Center; Choices for Children; 4 C's; Child Development Program; Mariposa Lodge; ARH
Recovery Home, Inc., House on the Hill; Pathways; Perinatal Substance Abuse Program; all Santa
Clara County law enforcement agencies; Juvenile Dependency Court; District Attorney; Associate
Dependency Attorneys; Dependency Legal Services; Mental Health Department; Department of
Alcohol and Drug Service; Health and Hospital System; Public Health, Department of Employment
and Benefits Services; Juvenile Probation Department; Santa Clara County Employee Services
Agency; Santa Clara Office of the County Counsel; Santa Clara County School Districts; and,
County Office of Education .
The Greenbook project continues to provide an effective array of services for families experiencing
domestic violence.
In 2005, SSA/DFCS has entered into an interagency agreement with the Department of Drug and
Alcohol Services (DADS) to provide intensive residential substance abuse treatment to women with
young children as ARH Recovery Home, Inc., House on the Hill.
Also in 2005, SSA/DFCS and local Workforce Investment Area Agencies entered into
Memorandum of Understandings to facilitate collaborative efforts on the Connected by 25 Foster
Youth Initiative. To begin the DFCS Work Experience Program, to provide job training that will lead
to meaningful work for 30 emancipated foster youth, DFCS has also formed partnerships with
philanthropic and business organizations.

December 14, 2005

Page 12 of 14

Attachment A
Implementation Update of San Jose State University Study: An Evaluation of Factors Related to the Disproportionate
Representation of Children of Color in the Santa Clara County Child Welfare System

29. Increasing culturally and linguistically
competent services

DFCS recognizes the critical need to increase cultural and linguistic competent services both within
DFCS and to encourage increased cultural and linguistic competent services within other County
Departments and community-based service provider organizations. An in-house Spanish language
course for intermediate level Spanish will be starting in January 2006 to increase the number of
certified Spanish-speaking social workers in DFCS. DFCS workers are presently being tested for
eligibility for the course .

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31. A strength-based approach

December 14, 2005

,:]f//i;;}'.!f'f . .-·,.. ~-' ,.,, .,. f,.;.J,,;:flf

,. . . ., '., ';'":, ' ;.-

The family strength-based approach permeates new social worker Induction Training and most
SSA Staff Development training sessions.

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Attachment A
Implementation Update of San Jose State University Study: An Evaluation of Factors R~lated to the Disproportionate
Representation of Children of Color in the Santa Clara County Child Welfare System

SJSU Recommendation

Implementation Status

33. Increasing preventive services and concrete
services

DFCS Enhanced Joint Response, Resources for Families and Communities Family Advocate
Program, Gardner Family Care's Family Strength-Based Services, and development of an
Enhanced Differential Response Path 1 and 4 program are examples of DFCS commitment to
increase preventative services and concrete services.

35. Improve availability and access to services

DFCS is committed to continuous improvement in regards to the availability and accessibility of
services within DFCS. and promoting improved availability and access to services provided by
other public agencies and community-based service providers.

December 14, 2005

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