The Crisis Intervention Team Model: An Intersection Point for the Criminal Justice System and the Psychiatric Emergency Service



The Crisis Intervention Team Model: An Intersection Point for the Criminal Justice System and the Psychiatric Emergency Service


Randolph T. Dupont



The Crisis Intervention Team (CIT) model has become the nation’s leading example of a positive use of the intersection between the criminal justice system and the psychiatric emergency system. The CIT model is the predominant model of law enforcement–based community intervention for individuals experiencing a behavioral crisis. The psychiatric emergency service (PES) provides a natural partnership with the CIT model in that it has the unique ability to work closely with other medical emergency services and trauma centers. This gives the PES a major role in the reintegration of those experiencing a crisis event related to a mental illness into a mainstream approach to health care. The CIT model challenges the PES to bring expertise in community psychiatry, emergency treatment, and general medical care together in an integrated format. This model of crisis intervention requires the PES to work in partnership with law enforcement and advocates. CIT also needs a cooperative system of care involving community mental health, substance abuse, and social service providers. Alternative approaches to law enforcement–related crisis intervention tend to make a minimal impact on the flow of individuals through the mental health system. Such alternative approaches tend to direct individuals experiencing a psychiatric emergency into treatment options in which psychiatric and general medical emergency care have a secondary or consultative role.

The partnership between the Crisis Intervention Team model and the PES relies on a series of building blocks, among which is a comprehensive relationship with the community that becomes a part of the standard operating procedure of the PES. The relationship with the community has to be ongoing and should include a cooperative structure able to influence a variety of community processes. The structure will often take the form of a community task force with a wide range of membership, including advocates, family members, and individuals with mental illness. Law enforcement, most particularly the police department, is a key partner in the task force. The third partnership involves providers and administrators from mental health, substance abuse, and social services systems of care. Finally, representatives from government, corrections, and the judiciary often serve important roles on the task force.

Engagement with the community results in a direct involvement with public policy and funding priorities. The model will result in the implementation of law enforcement–based training, the development of cooperative patient referral strategies, and the establishment of a feedback mechanism that addresses the ability of the ser-vice delivery system to meet community needs. Community needs include clinical outcomes such as the emergency service’s accessibility to referring law enforcement agencies, the ability of the emergency service to access appropriate disposition resources (inpatient and community mental health treatment) in a timely manner, and the level of patient and advocate satisfaction.


The CIT system of community-based crisis intervention makes some basic demands on the physical plant and staff of the PES. First, a PES needs the capacity to respond to individuals presenting with complex symptomatology and a wide range of impulsive or disorganized behaviors. Second, the PES should include adequate physical space with a logical layout that can accommodate multiple police offers arriving with patients at the same time. This will allow the ser-vice to receive individuals who are in need of involuntary treatment and see them in a safe area, while those arriving for voluntary treatment can make use of a waiting room. Third, the service must address the needs of a person who will require a significant level of intervention, including the possible need for seclusion and restraint.

A PES requires not only physical space, but also staff with the ability to provide adequate care for this patient population. Staff must have the diagnostic expertise necessary to make complex triage decisions, as well as the willingness to take a team approach when faced with individuals with substantial clinical needs, limited resources, and a wide range of disposition requirements. The demands that a community-based CIT program makes on a PES are substantial. As a result, ongoing administrative support is essential. Although the CIT model can be challenging, once this commitment is made, law enforcement, advocates, and government itself become strong advocates for emergency mental health care. Through the implementation of the CIT model of community-based crisis intervention, the PES can provide an intersection point for integrated health care and a primary point of entry for diverting individuals experiencing a mental illness crisis event away from the criminal justice system and into the health care system.


JAIL DIVERSION STRATEGIES FOR INDIVIDUALS WITH A MENTAL ILLNESS

E. Fuller Torrey, a psychiatrist and mental health advocate, focused a great deal of interest on the number of individuals with mental illness in local jails and prisons. In 1992, he headed a task force that found that 69.4% of jails saw more individuals with a serious mental illness than had been seen 10 years earlier (1). Torrey contended that the growth of the numbers of individuals with mental illness in jails was tied to the decrease in available psychiatric inpatient care beds. The number of individuals with mental illness in jails and prisons was estimated by the U.S. Department of Justice to exceed well over a quarter of a million individuals, constituting over 16% of the population of state prisons and local jails (2). The sheer number of individuals, along with attention provided by advocates such as Torrey, helped crystallize a government strategy to encourage jail diversion strategies that redirected individuals from the criminal justice system to the health care system (3).

Jail diversion strategies involve the path that leads an individual with mental illness from a crisis event in the community to a possible arrest during an encounter with law enforcement, through a booking in a jail, and on to a judicial hearing and potential sentencing. The basic goal of jail diversion strategies is to redirect individuals from the criminal justice system into the health care system. In general, strategies for jail diversion have been broadly categorized as prejail diversion strategies (prebooking, occurring prior to arrest) and postjail diversion options (postbooking, occurring after arrest) (4). The path that individuals follow from a crisis event to jail or prison occurs sequentially over time. The crisis event occurs first, and if not resolved, an encounter with the police might occur next. This process can continue through potential sentencing. At various points in this process, individuals can be intercepted and redirected toward a more appropriate treatment option.

Naturally, one would hope that crisis events could be prevented by community-based treatment strategies (5). However, once the crisis event has occurred, law enforcement authorities often become involved (6). Therefore the next set of strategies occurring in the diversion process involves prejail programs that emphasize the initial point of interaction between law enforcement and the citizen with mental illness. Prejail programs focus on the initial encounter by police with the emergency patient, and the subsequent events occurring prior to an arrest. Typically, the events leading to a possible arrest involve activities that are considered minor misdemeanors
under the law. Often the potential misdemeanors are related to quality of life issues, such as disturbing the peace or trespassing.

Prejail diversion programs include strategies such as the Crisis Intervention Team model, the mobile crisis team model, and a number of programs grouped together as co-responder models. The CIT model is a community policing strategy involving the frontline patrol officer as a first responder. The mobile crisis team model is based in the mental health system and makes use of mental health professionals to respond to crisis events. The co-responder model makes use of mental health professionals and various levels of law enforcement officers working together to respond directly to crisis events. These prejail diversion approaches anchor the beginning part of the jail diversion continuum.

The jail diversion continuum next focuses on the point of booking of an individual into a jail and on a possible trial for that individual. Multiple strategies are available at each point in the continuum. Postjail diversion programs intervene at the point of arrest (release on own recognizance or magistrate-ordered release programs), after time is spent in jail but prior to trial (negotiated release programs), and as part of the judicial hearing (mental health court programs). A detailed explanation of various jail diversion programs is available in the Council of State Governments’ Mental Health Consensus Project report (7). A review of the jail diversion continuum indicates that the opportunity for intercepting the greatest number of individuals with mental illness who might otherwise end up in jail occurs with prejail diversion programs (5). The most widely recognized prejail diversion program is the Crisis Intervention Team model.


THE CRISIS INTERVENTION TEAM MODEL

The Crisis Intervention Team model is a police-based first responder model that has been established as the most visible prejail diversion program in the United States (8). Over 600 municipalities follow this basic strategy of crisis intervention (9). It has been featured as a best practice model in publications by the U.S Department of Justice, the U.S. Department of Health and Human Services, and the human rights organization Amnesty International USA (10,11,12). This recognition has recently spread to Australia and Canada (13).

The success of prejail diversion programs relies on the strength of their receiving facility (14). The PES presents important opportunities for diversion (15). The original Memphis CIT model was developed with a psychiatric emergency facility as the receiving facility (10). Although other types of receiving facilities have been used on a limited basis, the hospital-based emergency room with a PES continues to play a key role in the national success of this police-based model of service delivery for individuals experiencing a behavioral crisis (16).


History of the Memphis CIT Effort

The CIT model evolved from a need to find a way to provide a better response to crisis events occurring in the community (17). The model has since grown into a nationwide approach and is rapidly becoming the standard for care of individuals experiencing a community-based psychiatric emergency. Advocacy groups such as the National Alliance on Mental Illness (NAMI) in Memphis, Tennessee, had advocated for change in the police response to individuals experiencing mental illness well in advance of the start of the CIT program in 1988. However, a crisis in which an individual with mental illness was shot by two Memphis police officers provided the impetus for major change (18). Ethnic and cultural issues added to the intensity of the event. The person with a mental illness was an African American man, and the officers were white. The tension created at the time lent urgency to the need for a positive, community-based solution in a city that had experienced the assassination of Martin Luther King. The task force appointed by the mayor included representatives from NAMI, the police department, the medical school department of psychiatry, the superintendent of the state psychiatric hospital, university educators, community psychologists, professors, community mental health administrators, advocates, and members of local government. A task force composed of key policy makers continues to be the hallmark of a developing CIT effort.


At the time the task force met, Memphis was providing a level of basic mental health training for police officers that exceeded the national average (4.5 hours). Other law enforcement–based crisis intervention models also existed elsewhere. Such models involved bringing expertise from outside the patrol division to a crisis event, and included the Los Angeles Mental Evaluation Team (MET) model, traditional mobile crisis team models, and the Travis County Mental Health Deputy Program based in Austin, Texas. However, the community task force was intent on pursuing a strategy that could provide a crisis intervention in a timely manner.


The Elements of the Model

The goal of immediacy of response set by the original Memphis task force was met by developing an approach focusing on the patrol officers who were the first responders to a crisis event. These officers volunteered for the assignment, received intense training, and interfaced with the local PES. The new CIT officers were to respond to crisis events when needed while maintaining their standard patrol duties during other periods. The use of patrol officers as primary responders distinguishes the CIT model from other prejail diversion models. This feature has led to the success of the model because the ability to respond at the patrol division level provides for immediacy of response; there is no longer a need to wait for additional expertise to arrive on the scene.

The PES in Memphis provided officers with immediate access and a turnaround time of 15 to 30 minutes. The goal of this short turnaround time was to provide a service comparable with the amount of time required for processing an arrest at the local jail. Previously, officers bring-ing mentally ill patients to a medical emergency department would face long waits while assessment and medical clearance were completed. Hence, the new model removed the disincentives that resulted in officers preferring to take mentally ill patients to jail. The PES then became the primary entry point to the health care system for individuals experiencing a behavioral crisis event in the community.

Training was provided to the police officers by mental health professionals, legal experts, and advocates. This training was conducted as a community service and remains a free community service to this day. The training program consists of 40 hours of intensive work involving a mix of classroom lectures, on-site community visits, question and answer sessions, and practical skill training. The didactics and lectures are focused on specialized knowledge about mental health diagnosis, psychopharmacology, substance abuse, developmental disabilities, ethnic and cultural differences, basic mental health law, and officer liability issues. Lectures are oriented toward practical knowledge, with an emphasis on visual learning strategies. On-site visits to community treatment resources allow officers an opportunity to interact with individuals experiencing a mental illness. This is empathy training by another name. The question and answer sessions involve understanding the local mental health, substance abuse, and social services systems. The practical skill training involves trainees learning de-escalation strategies by responding to a wide range of scenarios based on actual crisis events (19).

The initial task force formed by the mayor evolved into an operations committee consisting of advocates, government officials, and those responsible for service components of the model, including the PES, law enforcement, the state psychiatric hospital, and the community mental health system. A second training committee involved these same groups and additional representation from the local university. The training committee continues to evolve the curriculum in response to officer feedback 18 years later. As the CIT model spread through other cities, a steering group composed of leaders from CIT programs developed a document to identify the core elements of a CIT model (20); these elements are outlined in Table 33.1.








TABLE 33.1 Crisis Intervention Team (CIT) Core Elements




























Ongoing Elements
Partnerships: Law enforcement, advocacy, mental health
Community ownership: Planning, implementation, and networking
Policies and procedures
Operational Elements
CIT: Officer, dispatcher, coordinator
Curriculum: CIT training
Mental health receiving facility: Emergency services
Sustaining Elements
Evaluation and research
In-service training
Recognition and honors
Outreach

Steering groups in newly developing CIT programs are critical to success of the CIT model. The group provides a forum for partnerships, networking, and eventual community ownership (21). In Memphis, and in most of the CIT programs throughout the country, the steering groups take on the role of advocacy for the various components of the crisis intervention system, often obtaining significant funding for critical components of the psychiatric emergency system and other community-based mental health
efforts (22). The steering group also allows for communication regarding clinical issues, which can, in turn, become formal case conferences focusing on individuals at high risk of recidivism.

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Jun 13, 2016 | Posted by in PSYCHIATRY | Comments Off on The Crisis Intervention Team Model: An Intersection Point for the Criminal Justice System and the Psychiatric Emergency Service

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