Criminal Reform: Prisoner Reentry into the Community [1 ed.] 9781608765720, 9781606922880

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Copyright © 2009. Nova Science Publishers, Incorporated. All rights reserved.

Copyright © 2009. Nova Science Publishers, Incorporated. All rights reserved.

CRIMINAL REFORM: PRISONER REENTRY INTO THE COMMUNITY

Copyright © 2009. Nova Science Publishers, Incorporated. All rights reserved.

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CRIMINAL REFORM: PRISONER REENTRY INTO THE COMMUNITY

QUINTAN B. MALLENHOFF

Copyright © 2009. Nova Science Publishers, Incorporated. All rights reserved.

EDITOR

Nova Science Publishers, Inc. New York

Copyright © 2009 by Nova Science Publishers, Inc. All rights reserved. No part of this book may be reproduced, stored in a retrieval system or transmitted in any form or by any means: electronic, electrostatic, magnetic, tape, mechanical photocopying, recording or otherwise without the written permission of the Publisher. For permission to use material from this book please contact us: Telephone 631-231-7269; Fax 631-231-8175 Web Site: http://www.novapublishers.com NOTICE TO THE READER The Publisher has taken reasonable care in the preparation of this book, but makes no expressed or implied warranty of any kind and assumes no responsibility for any errors or omissions. No liability is assumed for incidental or consequential damages in connection with or arising out of information contained in this book. The Publisher shall not be liable for any special, consequential, or exemplary damages resulting, in whole or in part, from the readers’ use of, or reliance upon, this material. Independent verification should be sought for any data, advice or recommendations contained in this book. In addition, no responsibility is assumed by the publisher for any injury and/or damage to persons or property arising from any methods, products, instructions, ideas or otherwise contained in this publication. This publication is designed to provide accurate and authoritative information with regard to the subject matter covered herein. It is sold with the clear understanding that the Publisher is not engaged in rendering legal or any other professional services. If legal or any other expert assistance is required, the services of a competent person should be sought. FROM A DECLARATION OF PARTICIPANTS JOINTLY ADOPTED BY A COMMITTEE OF THE AMERICAN BAR ASSOCIATION AND A COMMITTEE OF PUBLISHERS.

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LIBRARY OF CONGRESS CATALOGING-IN-PUBLICATION DATA

ISBN: 978-1-60876-572-0 (E-Book)

Published by Nova Science Publishers, Inc.  New York

CONTENTS Preface Chapter 1

Chapter 2

Prisoner Reentry and Community Policing: Strategies for Enhancing Public Safety Nancy G. La Vigne, Amy L. Solomon, Karen A. Beckman, and Kelly Dedel Ready4 Reentry: Prisoner Reentry Toolkit for Faith-Based and Community Organizations United States Department of Labor

Chapter 3

Mentoring Ex-Prisoners: A Guide for Prisoner Reentry Programs Renata Cobbs Fletcher

Chapter 4

Offender Reentry: Correctional Statistics, Reintegration into the Community, and Recidivism Blas Nuñez-Neto

Chapter 5

Chapter 6 Index Copyright © 2009. Nova Science Publishers, Incorporated. All rights reserved.

vii 1

53 119

179

Key Components of Effective Prisoner Reentry Programs: A Guide to Matching National Service Programs with Weed and Seed and Other Citywide Initiatives on Prisoner Reentry

209

Ex-Offender Reentry and Americorps*Vista Roles

225 237

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PREFACE The prison population in the United States has been growing steadily for more over 30 years. The Bureau of Justice Statistics reports that each year more than 650,000 offenders are released into the community and almost 5 million ex-offenders are under some form of community-based supervision. Offender reentry can include all the activities and programming conducted to prepare ex-convicts to return safely to the community and to live as law-abiding citizens. Some ex-offenders, however, eventually end up back in prison. The most recent national-level recidivism study is 10 years old; this study showed that two-thirds of ex-offenders released in 1994 came back into contact with the criminal justice system within three years of their release. Compared with the average American, ex-offenders are less educated, less likely to be gainfully or substance abuse — all of which have been shown to be risk factors. Three phases are associated with offender reentry programs: programs that take place during incarceration, which aim to prepare offenders for their eventual release; programs that take place during offenders’ release period, which seek to connect ex offenders with the various services they may require; and long-term programs that take place as exoffenders permanently reintegrate into their communities, which attempt to provide offenders with support and supervision. There is a wide array of offender reentry program designs, and these programs can differ significantly in range, scope, and methodology. Researchers in the offender reentry field have suggested that the best programs begin during incarceration and extend throughout the release and reintegration process. Despite the relative lack of research in the field of offender reentry, an emerging “what works” literature has shown that programs focusing on work training and placement, drug and mental health treatment, and housing assistance have proven to be effective. This new book attacks these problems head on. Chapter 1 - Prisoner reentry—the process of leaving prison and returning to society—has generated tremendous attention among policymakers, public officials, corrections agencies, service providers, and the general public in recent years (see Sidebar 8 on the National Reentry Initiatives at the end of this report). To veterans of the corrections and law enforcement communities, “prisoner reentry” may appear to be simply a new name for something that has been occurring since the first prisoners were incarcerated in this country more than three centuries ago. Indeed, roughly 95 percent of people incarcerated in state and federal prisons are eventually released. Yet prisoner reentry today presents new and greater challenges for a number of reasons. First, prisoners are being incarcerated and released at historic volumes: approximately 656,000 people were released from state and federal prisons in 2003 alone, a four-fold increase over the past decades (Figure 1). These

viii

Preface

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returning prisoners are increasingly concentrated in communities that are often crime-ridden and lacking in services and support systems. Chapter 2 - Thank you for your interest in prisoner reentry and the Ready4Work (R4W) program. This toolkit, based on the Ready4Work model, is a promising practices guide for small to medium sized faith-based and community organizations interested in starting or bolstering their reentry efforts. Chapter 3 - Nearly 650,000 people are released from America’s prisons each year. They return to their communities needing housing and jobs, but their prospects are generally bleak. The majority of ex-prisoners have not completed high school. In addition, close to three quarters of them have a history of substance abuse, and more than one third have a physical or mental disability. Chapter 4- The prison population in the United States has been growing steadily for more over 30 years. The Bureau of Justice Statistics reports that each year more than 65 0,000 offenders are released into the community and almost 5 million ex-offenders are under some form of community-based supervision. Offender reentry can include all the activities and programming conducted to prepare ex-convicts to return safely to the community and to live as law-abiding citizens. Some ex-offenders, however, eventually end up back in prison. The most recent national-level recidivism study is 10 years old; this study showed that two-thirds of ex-offenders released in 1994 came back into contact with the criminal justice system within three years of their release. Compared with the average American, ex-offenders are less educated, less likely to be gainfully employed, and more likely to have a history of mental illness or substance abuse — all of which have been shown to be risk factors. Chapter 5 - This publication is designed as a reference for organizations and communities interested in developing or enhancing prisoner reentry programs. This information is geared toward community-based organizations and Weed and Seed sites using national service resources, specifically AmeriCorps*VISTA (Volunteers in Service to America) members. Chapter 6 - This document contains selected excerpts from the National Crime Prevention Council publication National Service and Public Safety: Partnerships for Safer Communities. It is intended to help AmeriCorps*VISTA members create programs that will support prisoner reentry initiatives in the communities the members serve.

In: Criminal Reform: Prisoner Reentry into Community ISBN 978-1-60692-288-0 Editor: Quintan B. Mallenhoff © 2009 Nova Science Publishers, Inc.

Chapter 1

PRISONER REENTRY AND COMMUNITY POLICING: STRATEGIES FOR ENHANCING PUBLIC SAFETY* Nancy G. La Vigne, Amy L. Solomon, Karen A. Beckman, and Kelly Dedel

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INTRODUCTION Prisoner reentry—the process of leaving prison and returning to society—has generated tremendous attention among policymakers, public officials, corrections agencies, service providers, and the general public in recent years (see Sidebar 8 on the National Reentry Initiatives at the end of this report). To veterans of the corrections and law enforcement communities, “prisoner reentry” may appear to be simply a new name for something that has been occurring since the first prisoners were incarcerated in this country more than three centuries ago. Indeed, roughly 95 percent of people incarcerated in state and federal prisons are eventually released.1 Yet prisoner reentry today presents new and greater challenges for a number of reasons.2 First, prisoners are being incarcerated and released at historic volumes: approximately 656,000 people were released from state and federal prisons in 2003 alone,3 a four-fold increase over the past 2 decades (Figure 1). These returning prisoners are increasingly concentrated in communities that are often crime-ridden and lacking in services and support systems.4 Further, despite the fact that correctional spending has increased from approximately $9 billion to $60 billion during the past 20 years,5 prisoners are less prepared for reentry than in the past, with a smaller share of prisoners receiving educational programming and * 1 2 3

Excerpted from US Department of Justice Report ISBN 1-932582-61-4 Hughes and Wilson (2005). For an overview of the challenges of prisoner reentry, see Travis, Solomon, and Waul (2001).

Harrison and Beck (2005). 4 La Vigne and Kachnowski (2003); La Vigne and Mamalian (2003); La Vigne and Thomson (2003); Lynch and Sabol (2001). 5 Bauer (2002).

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substance abuse treatment.6 Their limited program involvement is particularly problematic given that the majority of prisoners have serious histories of alcohol and drug addiction,7 and many lack the training and life skills to find and keep a job after their release.8 This depiction of prisoner reentry in the United States has clear implications for the individual challenges prisoners face in leading productive, law-abiding lives on the outside, yet these challenges also pose a distinct threat to public safety.

Source: The Urban Institute (2005). Based on BJS National Prisoner Statistics.

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Figure 1. Sentenced Persons Admitted and Released from Federal and State Prison, 1980–2003.

Prisoners who are not prepared to stay sober, find a job, secure housing, and avoid trouble will more than likely reoffend. In fact, more than two-thirds of released prisoners are rearrested for a new crime within 3 years of release.9 Communities are thus confronted with a dual challenge: to provide former prisoners with the services and environment necessary to navigate the transition from prison to the community, and to protect the public from potential harm. For many reasons, the expertise of police has not been fully brought to bear on these reentry challenges. In an effort to examine these issues from a community policing perspective, the Urban Institute, in partnership with the U.S. Department of Justice Office of Community Oriented Policing Services (the COPS Office), invited practitioners, policymakers, academics, and service providers to participate in a Reentry Roundtable to discuss ways in which the role of police could expand beyond actions traditionally taken in this arena (see Sidebar 1 on the Reentry Roundtable). The discussions and papers generated from the Roundtable, along with a scan of police reentry practices in the field and a review of additional literature on the topic, form the content of this report. This report explores the links between prisoner reentry and community policing in the context of enhancing public safety. Its goal is to encourage new thinking and generate innovative responses to reentry that harness the knowledge and expertise of police. The first 6

Lynch and Sabol (2001). Beck (2001). 8 Harlow (2003). 9 Beck and Shipley (1989); Langan and Levin (2002). 7

Prisoner Reentry and Community Policing

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section describes the local context of reentry, its effect on communities, and its impact on community safety and public perceptions of crime. In the next section, the role of police in reentry is examined. This part of the report describes the basic concepts of community policing and police problem solving, outlines the benefits of applying community policing strategies to prisoner reentry, and explores the many opportunities for police involvement in reentry. We then turn to specific examples from the field of how these new police roles in prisoner reentry have been put into practice across the country. These examples are followed by a discussion of the potential organizational and community-level challenges to expanding law enforcement’s role in reentry and suggested strategies for overcoming these obstacles. The report concludes with a discussion of opportunities for advancing police reentry initiatives from both a practical and a policy perspective.

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WHAT IS THE IMPACT OF PRISONER REENTRY ON PUBLIC SAFETY? The large and increasing numbers of prisoners returning to communities, coupled with high rates of reoffending, suggest that the police and the public alike have a vested interest in developing strategies to improve reentry outcomes for released prisoners. This section explores in more detail the links between reentry and public safety, looking at who reoffends and where. Understanding these aspects of reentry and public safety— especially as they are experienced at the community level—is important for crafting effective responses to the problem.

Reoffending Rates and Contribution to Crime in the Community As noted earlier, roughly two-thirds of released prisoners are rearrested within 3 years of release; nearly half of all releasees return to prison within that same period, either for a new crime or for a technical violation of the conditions of their release. While individual recidivism rates are undoubtedly high, there has been little attention to the amount of new crime for which returning prisoners are responsible. The one study on the topic (Rosenfeld, Wallman, and Fornango 2005) estimates that recent prison releases account for about one-fifth of all adult arrests by police.10 This statistic understates former inmates’ contributions to overall crime levels in that it does not include those reentering the community from jails (see Sidebar 2 on Jail Reentry) or prisoners who have been in the community for more than 3 years. Thus, while we cannot assert the exact proportion of crime for which returning prisoners are responsible, it is well documented that the majority of released prisoners will reoffend and contribute to a substantial share of crime.

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Individual Risks of Reoffending Despite the high proportion of all crime committed by released prisoners, not all released prisoners are at equal risk of reoffending. Recent research on prisoner reentry indicates that those who reoffend are more likely to be unemployed, to use drugs or abuse alcohol, and to have extensive criminal histories (see Sidebar 3 for a profile of returning prisoners).11 Those who reoffend also tend to be younger and have more negative attitudes toward police and the legal system than released prisoners who do not recidivate.12 Timing also plays a role in identifying risks of reoffending: Released prisoners are at greatest risk of reoffending during the 10

This statistic is influenced by a number of factors, such as the number of people released from prison, their rates of recidivism, and the number of arrests nationwide. The rearrest rates of former prisoners have remained stable during the past 20 years (Langan and Levin 2002). At the same time, the number of people released from prison has increased and nationally, the number of arrests has decreased. As a result, recently released prisoners are responsible for a larger share of arrests—and presumably crime—than in the past. It should also be noted that this statistic measures arrests, not all new crimes committed, many of which never come to the attention of the police. 11 La Vigne, Visher, and Castro (2004). 12 Visher, La Vigne, and Travis (2004).

Prisoner Reentry and Community Policing

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early months of their release, with nearly one-third (29.9 percent) of them rearrested during their first 6 months of freedom.13 These risk factors are based on both national and site-specific studies but may vary to some degree at the local level. Thus, it is important for law enforcement—in partnership with community corrections—to conduct local analyses of the characteristics and risks of returning prisoners to help inform the design and implementation of reentry efforts.

The Community-Level Impact of Reentry Information on the reoffense rates and risk factors of returning prisoners may be helpful when designing interventions, but these statistics reveal little about how threats to public safety are experienced at the community level. Most prisoners return to communities within major counties and cities;14 within these metropolitan areas, released prisoners are further

13 14

Beck and Shipley (1989); Langan and Levin (2002).

Lynch and Sabol (2001).

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concentrated in a handful of neighborhoods.15 For example, in Illinois, 51 percent of prisoners released from state correctional institutions in 2001 returned to Chicago, and 34 percent of those resided in just six of Chicago’s 77 neighborhoods (Figure 2). As discussed later in this report, these geographic concentrations of returning prisoners provide opportunities for placebased strategic reentry efforts, including enhanced services and supervision in a given area

Citizen Perceptions of Safety

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Another important consideration when examining the impact of prisoner reentry on communities is residents’ perceptions of the crime risks returning prisoners pose and the fear of victimization that may result from those perceptions. The prospect of new crimes committed by returning prisoners can elevate fear of victimization among residents and perceptions that the neighborhood is unsafe. Even drug crimes may not be perceived as victimless in that the behaviors associated with active drug markets can devastate neighborhoods.16

Source: La Vigne et al. (2003); see also La Vigne (2004). Note: The concentrations of returning prisoners in the South Lawndale community depicted in the map reflect 1,158 prisoners who were “released” to the county jail located there. Also note that no communities had a range of 701 to 1,253 returning prisoners. Figure 2. Prisoner Releases by Chicago Communities, 2001.

15

La Vigne and Kachnowski (2003); Johnson and Immerwahr (2004). 16

Prisoner Reentry and Community Policing

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While residents may believe that prisoners have the capacity to become productive, lawabiding citizens (after all, returning prisoners are also their neighbors and sometimes their family members), they also recognize that if former prisoners are not successful in turning their lives around, residents may be further victimized.17 Even if these perceptions are inaccurate, police have an interest in engaging in reentry efforts to reduce fear of crime among the general population. This section has described the safety risks—both real and perceived—that returning prisoners pose to communities. Despite the fact that not all released prisoners reoffend, many do. Moreover, returning offenders’ new crimes may affect not only community safety but also community perceptions of police performance, as both police and the public increasingly use crime rates as a yardstick of police success. For these reasons, along with others discussed below, police have a strong incentive to engage in prisoner reentry efforts. In the next section we continue the discussion about why police should be involved in reentry efforts and describe the types of reentry-related activities in which police can engage to secure public safety in their communities.

17

Ibid.

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WHY SHOULD POLICE HAVE A ROLE IN PRISONER REENTRY? The primary mission of law enforcement is to maintain peace and order and provide for a safe environment. Thus, the most compelling argument for police involvement in prisoner reentry is that a significant share of former prisoners presents a threat to that mission by committing new crimes in the community. As such, police have a natural role in reentry because making contact with former prisoners is part of their everyday business. In fact, arrest frequencies for returning prisoners are 30 to 45 times higher than for the general population.18 Police agencies stand to benefit from their involvement in reentry because successful efforts to reduce reoffending among released prisoners can, by definition, prevent future crimes and help improve community relations with police.19 Moreover, reentry initiatives fit well within the community policing and problem-solving model, which typically focuses on solving the underlying cause of a crime problem through partnerships with local businesses, residents, government agencies, and other community stakeholders. During the last several years, police have begun to reach out to these entities to create partnerships to reduce crime, and police have realized important benefits to public safety. Among them are (1) enhancing partner agencies’ capacities to protect the public by harnessing the powers of their respective line staff in complementary ways; (2) improving interactions among partner agency staff by reducing mistrust, correcting misinformation, and encouraging creativity and flexibility in solving community problems; (3) improving the delivery of services to targeted neighborhoods by extending partnerships to social service agencies and community organizations; and (4) increasing support for collaboration among policymakers and the general public.20 Furthermore, these partnerships allow criminal justice agencies to present a unified front focused on public safety, reassuring the public that the separate components of the criminal justice system are coordinated and working toward common goals. Prior research has found that such proactive crime-prevention partnerships can yield long-term crime- reduction benefits.21 It stands to reason that applying these same types of partnerships to the issue of prisoner reentry can also have a positive impact on community safety. Police involvement in reentry can also help diminish the public’s fear of victimization by former prisoners. Returning prisoners’ new crimes can have a negative impact on policecommunity relations: Society often views a returning prisoner’s crime as one that could have been prevented (see Sidebar 4 for more information on recidivism among former prisoners).22 Police involvement in reentry can serve to educate the public about what the true risks of reentry are and what they are doing to respond to those risks (e.g., targeted surveillance and linking ex-offenders to services, jobs, and the faith community).

18

Rosenfeld, William, and Fornango (2005). Research by Tom Tyler and colleagues suggests that as citizens increase their perceptions of police, they may be more willing to report crimes and engage in community crime- prevention activities (Sunshine and Tyler 2003; Tyler 2004; Tyler and Hou 2002). La Vigne and Mamalian (2003); La Vigne and Thomson (2003). 20 Parent and Snyder (1999). 21 Parent and Snyder (1999). 22 Travis (2005). 19

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Police Contributions to Reentry Efforts Just as police can benefit from involvement in reentry, those engaged in reentry efforts also have much to gain from police participation. Many reentry partnerships focus on assisting returning prisoners to access services, obtain housing, and find employment; police involvement sends the message that these initiatives are by no means “soft on crime” because, in addition to the support they provide, reentry programs also carry with them the distinct threat of rearrest. Police involvement in reentry also supports community corrections efforts by serving as additional eyes and ears on the street, enhancing both the surveillance and

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assistance functions of community supervision. Finally, police can support restorative justice reentry efforts by serving as intermediaries between victims and offenders. Clearly, police have an important role in prisoner reentry initiatives, and that role can take many forms. The following section begins by describing the community policing framework and how it can be applied to the issue of prisoner reentry, after which a series of examples of the different ways that police have become involved in prisoner reentry are presented. These examples extend beyond traditional law enforcement practices to include innovative and proactive crime-prevention strategies, problem solving, community engagement, and partnerships, all of which build on the community policing framework.

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Community Policing and Reentry Community policing addresses crime and social disorder using traditional aspects of law enforcement, such as surveillance, investigation, and apprehension, but expands that role to include prevention, problem solving, community engagement, and strategic partnerships.23 Whereas a traditional policing approach to reentry would include repeated arrests of the same offender, the community policing approach would be to analyze and understand the reasons behind the repeat offending and develop partnerships with relevant agencies and community stakeholders to address those underlying problems to prevent future reoffending. The community policing model also includes neighborhood residents as integral partners in identifying, responding to, and preventing crime.24 Central to that process is the use of problem solving to develop a better understanding of the context of the crime problem to be addressed The sequential steps of problem solving are represented by the SARA model25, whereby community police officers Scan the environment for information on recurring problems and their consequences, Analyze the events and conditions that contribute to the problem, develop a range of Responses designed to have an impact on the problem, and Assess the extent to which these responses have affected the size and scope of the problem (see Sidebar 5 for an example of the SARA model applied to prisoner reentry). Traditionally, problem-solving efforts focus on a specific type of crime, crimes occurring in a specific place, or crimes committed by a specific group of people. Community police officers can apply the SARA model to reentry-related problems in a particular neighborhood, identifying the specific risk factors of returning prisoners as well as the challenges they face as they return to the community. The assessment component of SARA is particularly important because if police are able to quantify a significant decrease in crime resulting from a reentry partnership, they are much more likely to generate ongoing support for the initiative.26

23 24 25

U.S. Department of Justice Office of Community Oriented Policing Services (2005). For a more extensive definition of community policing, see http://www. cops.usdoj.gov/default. asp?Item=36.

Kelling and Coles (1996). See Eck and Spelman (1987) for a more thorough discussion on the SARA model.

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Applying Community Policing to Reentry: Exploring Specific Roles Police involvement in reentry efforts can take many forms. Their expertise in problem solving and their existing community partnerships have direct applications to facilitating successful reintegration. The following categories describe the different ways that police have applied their authority, knowledge, and role in the community to improve reentry outcomes for released prisoners. These categories are by no means mutually exclusive; indeed, as illustrated in the descriptions of policing reentry projects that appear later in this report, in many cases police have multiple roles in reentry efforts. 26

For more information on conducting evaluations of policy initiatives, see the forthcoming COPS Law Enforcement Guide to Managing Local Evaluation at www.cops.usdoj .gov.

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Increasing Surveillance Police and corrections officers work with the same individuals at different times, giving them great collective insight into thepersonalities, peers, and family dynamics of returning prisoners.This information can provide an important window into the individual circumstances of former prisoners that might either enhance or threaten their ability to reintegrate successfully. In fact, joint supervision of parolees by teams of police and parole officers is perhaps the most common way that police currently contribute to prisoner reentry efforts. Team supervision usually takes the form of police accompaniment on parole home visits, parole ride-alongs on police patrols, and parole involvement in policing activities, such as attending community meetings and staffing neighborhood substations.27 Another means of enhanced surveillance is to use knowledge about the criminal and substance abuse histories of returning prisoners, continually monitoring their associations with gangs and their activities in the community.28 Such information enables law enforcement to focus their interventions strategically, targeting those who are at highest risk of reoffending rather than spreading scarce resources across the vast number of former prisoners within a community. Police are particularly well positioned to apply such assessment tools to those released from prison “unconditionally”— without any formal post-release correctional supervision or requirements. Almost 20 percent of all prisoners are released to the community unconditionally, meaning that they are not supervised by a parole or probation officer, are not required to abide by any special conditions of supervision, and may not be eligible for the supportive services that often accompany a conditional release.29 To the extent that postrelease surveillance occurs at all for those released from prison unconditionally, that surveillance role falls primarily on the shoulders of the police. Encouraging Compliance For most returning prisoners, compliance with special conditions of release—such as curfews, random drug testing, participation in treatment programs, and maintaining regular contacts with supervising agencies—is mandated. For police, reentry programs centered on increasing compliance and deterring crime typically build upon the activities of post-release supervision agencies. Research suggests that direct discussions with reentering prisoners about the range of sanctions for unlawful behavior as well as incentives for staying clean and drug free increase the odds of compliance (see Sidebar 6 on Project Safe Neighborhoods).30 This message may take the form of a contract or binding agreement, which enables the exprisoner and agency partners to walk through their obligations and the consequences for not abiding by the conditions of release.31

27

McGarrell et al. (2004). Given that they are sophisticated armed and equipped with communication devices, lead with officer-safety police generally take the issues (e.g., tactical decisions about how to approach a dwelling Increasing Surveillance for a home visit or officer safety issues in dangerous neighborhoods), while take the lead when parole officers usually interviewing parolees criminal activity or who suspected of new have been struggling to comply with the conditions of supervision (Parent and Snyder 1999). 28 McGarrell et al. (2004). 29 Travis and Lawrence (2002). 30 McGarrell et al. (2004). 31 Ibid.

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Engaging the Community As active agents in the community, police have the capacity to engage the public in activities that provide both formal and informal support and assistance in reentry efforts.32 The community is uniquely positioned to assist returning prisoners because it comprises their families, neighbors, and former and prospective employers, all of whom have the potential to exert “social control,” encouraging former prisoners to engage in prosocial behaviors and refrain from breaking the law.33 The police can encourage the community to engage in problem- solving partnerships by offering an opportunity for active participation in—and ownership of—the reentry effort. When police serve as a conduit for the involvement of community partners, both the community and the reentry program planners benefit. While the police may not be directly involved in implementing many of the initiatives resulting from the reentry partnership, they have an essential role to play in convening a diverse group of stakeholders, leading and directing the problem-solving initiative, and encouraging partners to identify resources, services, and mentors in the community. Another important role for the police is to educate the public about the topic of prisoner reentry and ways that state and local criminal justice agencies are addressing it. For many citizens, the issue of prisoners and their return to society may be met with fear; media coverage of released prisoners committing heinous crimes makes up the extent of many people’s knowledge of criminal offenders. Yet public opinion polls have shown that people are surprised by the paucity of treatment available to prisoners as well as the barriers to jobs, housing, and other stable institutions in the community.34 In fact, those polled on the topic support providing job training, work opportunities, treatment, and education to the ex-

32

Bazemore (2004). Sullivan et al. (2002). 34 Peter D. Hart Research Associates, Inc. (2001). 33

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prisoner population.35 Further, police can educate the community about strategies in place to both support and supervise returning prisoners, enhancing the public’s confidence that the issue is being addressed in a comprehensive way. Restorative justice models are another way to bring members of the community (including former prisoners and victims) together with police and corrections officials to develop ways for returning prisoners to succeed on the outside.36 A restorative model designed to address prisoner reentry would focus on (1) holding returning prisoners accountable for their past and future actions (e.g., acknowledging harm caused, making amends to the victim and the community, and developing a plan for leading a crime-free life); (2) protecting victims and the community at large from future victimization; and (3) helping returning prisoners to develop competencies—work experiences, life skills, anger management so that they can become productive members of society.37 Police have a role in this process through their links to community resources, such as jobs and services that could increase a returning prisoner’s competency, as well as through the more traditional police role of preventing future victimization.

Focusing on Places, Situations, and Contexts In recent years, as more law enforcement agencies have come to embrace community policing, many have realigned their patrol allocations from large police districts to smaller patrol areas, such as police service areas that are defined by neighborhood rather than by census tract, voting district, or other arbitrary geographic boundaries. These smaller, neighborhood-based assignments, many of which center around police substations, create an opportunity to develop sustained and positive relationships with the community. They are also useful for supporting public safety efforts focused on the characteristics of places and targets that generate crime. Such place-based approaches are often used in the context of problemoriented policing (POP). The vast majority of POP projects are defined not just by crime type but also by place,38 requiring an analysis of the characteristics of places that provide the opportunity for crime. Place-based prevention has its roots in situational crime prevention and opportunity theories of crime, both of which purport that most potential offenders are not highly motivated to commit crime but do so when they are presented with opportunities to offend easily, with little risk of detection.39 In turn, increasing the perceived effort and risk associated with committing crime and reducing the anticipated benefits of the crime will deter criminal behavior. These types of crime-prevention measures have succeeded in reducing crimes of all types, with minimal displacement,40 across a variety of settings.41 Applying situational crime prevention to prisoner reentry requires focusing not just on the individual risk factors of returning prisoners but also on the risk factors associated with the people, property, and places returning prisoners encounter upon their release.42 By way of 35

Ibid. McWhinnie and Brown (1999). 37 Karp (2002); Taxman (2004). 36

38 39 40

Scott (2000). For more information on situational crime prevention, see Clarke (1997).

Displacement is typically defined as the shifting of crime to other places, times, tactics, or targets in response to a crimeprevention initiative or police intervention (Clarke 1997; Felson and Clarke 1998). 41 Clarke (1997); Felson and Clarke (1998). 42 Dickey and Klingele (2004).

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illustration, consider two released prisoners with similar criminal backgrounds and risk factors. One returns to a crime- ridden, gang-infested area with few public resources while the other returns to a relatively safe neighborhood that is rich in assets to assist in his return. These two individuals are likely to have very different prospects for successful reentry. This example perhaps states the obvious, but prisoner reentry initiatives often overlook the role of place. And yet community policing is well equipped to employ a place-based focus, because police can work in partnership with supervision agencies to identify the types of places and situations that are likely to increase a returning prisoner’s criminal opportunities and how those opportunities might be reduced.43

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Exchanging Information and Intelligence Partnerships formed through the community policing framework can promote information sharing that can help police suppress criminal activity and preemptively intercede in situations that could result in violence. Perhaps the most common exchange of information across agencies engaged in prisoner reentry is between community corrections and law enforcement agencies. Information exchange among police and parole officers can create new opportunities to intervene proactively and to mobilize resources in response to circumstances or behaviors that threaten stability or compliance with the conditions of supervision. Further, sharing information can advance efforts to enforce accountability by ensuring that appropriate sanctions are meted out quickly and consistently in response to noncompliant behavior. Similarly, information sharing between prisons and police can provide police with important information about a prisoner’s experiences. Relevant information can include the following: 1. Classification records, which may provide information about a prisoner’s behavior and social service needs.44 2. Gang-related rivalries, which may prompt violence when prisoners return to the community.45 3. Information about suicide attempts while in prison, which can inform effective prevention strategies for police responding to a suicide call.46 4. Information about prisoners’ release dates and times—particularly for those released without supervision—to increase awareness of potential risks and opportunities for intervention. 5. Notification of the release of sex offenders, which can help police work with the public to protect themselves against potentially dangerous sex offenders residing in their community.47 6. Information about mental health status, which may be relevant for understanding subsequent crimes of disorder (e.g., when appropriate, police may direct the individual to a health provider rather than the county jail). 43

Cullen et al. (2002). Baker et al. (2001). 45 Baker et al. (2001); Travis (2005). 46 Baker et al. (2001). 47 For more information on community notification of sex offenders, see Center for Sex Offender Management (2001). 44

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Police are also uniquely positioned to share community-level information that can benefit and inform reentry strategies and educate residents. Cognizant of the risks that reside in places, associates, and local situations, police officers with knowledge of the community’s dynamics are essential when crafting release plans for returning prisoners. Previous interactions with returning prisoners also provide police officers with background knowledge of an individual’s temperament, peer and family relationships, and skills and weaknesses, all of which can be used in creating and implementing an effective strategy for reintegration. Moreover, police can exchange information with community residents, providing them with accurate information about the local concentration of returning prisoners, plausible risks and assets, and ways in which they can protect themselves and their neighborhoods from further victimization.

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Connecting to Social Services Police officers have several opportunities to link ex-offenders to social services. Many police organizations already have an existing role in community enrichment programs (e.g., athletic leagues and youth mentoring) designed for at-risk youth, and thus have built useful bridges to the social service community. In addition to direct links to specific communitybased organizations, police are well positioned to broker new connections to resources, potential employers, and mentors in the community.48 In fact, some law enforcement agencies have already made great strides in this arena by developing service referral protocols for police to follow when interacting with special populations who are involved in crime or disorderly behavior, such as those with mental illness or the homeless.49 For example, prior research has found that the first few hours after release are critical for returning prisoners, presenting both risks and opportunities.50 Police can take a role in connecting prisoners to social services during that important time.51 Finally, as discussed below, police can partner with service, faith, and safety organizations to provide a wide range of services that can help connect returning prisoners to positive support in the community. Assisting Victims of Crime The police role in reentry may also draw on their historical emphasis on helping the victims of crime. One way that police can continue their alliance with victims in the context of reentry is to encourage both individual victims and victims’ organizations to participate in the reentry process. To date, victims have had little voice in prisoners’ release to the community and often are not privy to information about parole proceedings and terms of an offender’s release.52 Many people assume that victim participation in these processes would inevitably result in negative outcomes for prisoners.53 Yet victims share the same goal as other partners in a reentry effort: to prevent future victimization by released prisoners. Toward this end, victims can contribute important, offender-specific information to standard reentry plans. Some victims know their offenders well (e.g., victims of domestic violence and 48 49 50

Allender (2004); McGarrell et al. (2004). Castellano-Hoyt (2003).

Nelson, Deess, and Allen (1999). 51 Thistlethwaite (2002). 52 Herman and Wasserman (2001). 53 Shapiro (1997); Staples (1997).

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sexual assault by friends or acquaintances) and because the communities in which victims reside and to which prisoners return are often the same, victims may have helpful insights about how to manage the risks associated with a prisoner’s return. However, for victim involvement in reentry to be meaningful, the victim must know how to gain access to and participate in the criminal justice system. Police are typically the first to respond when an individual has been victimized and are tasked with addressing victims’ needs to feel safe, to express their emotions, and to know what happens next.54 Their involvement at the front end of the system makes police ideally suited to continue their relationships with victims through to prisoner reentry and to use the same approaches to assist victims in participating in the parole and reentry processes. Finally, the involvement of the victim and police in the reentry process is invaluable in those situations in which an order of protection is required prior to a prisoner’s return to the community.

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EXAMPLES FROM THE FIELD In an effort to provide concrete examples of how police are contributing to prisoner reentry efforts, we conducted a “scan of practice” on the topic. The examples that follow illustrate how police agencies have examined the characteristics and challenges of prisoner reentry in their communities and developed tailored approaches for improving reentry outcomes and increasing public safety. These relatively new practices were identified in several ways. At the beginning of the project, COPS disseminated an announcement (Call for Reentry Sites) to all its grantees to solicit examples from law enforcement agencies engaged in reentry work. We also solicited nominations from Reentry Roundtable participants and organizations that work in the area of policing, such as the Police Executive Research Forum, the Police Foundation, the Institute for Law and Justice, the Center for Problem-Oriented Policing, the Regional Community Policing Institutes, the International Association of Chiefs of Police, and the National Sheriffs’ Association. Reports and publications from agencies such as the National Institute of Corrections, the American Correctional Association, and the National Institute of Justice were also reviewed. Additional key sources of information included the Report of the ReEntry Policy Council,55 Outside the Walls: A National Snapshot of Community-Based Prisoner Reentry Pro grams,56 and program summaries of initiatives funded through grant programs such as the Serious Violent Offender Reentry Initiative and Project Safe Neighborhoods.57 These search strategies revealed a breadth of police reentry initiatives currently in practice. Programs vary both on the extent of police involvement and the type of role that police play. For example, in many programs, the principal function of police centers on contributing to “notification” meetings and encouraging released prisoners to comply with the law and their conditions of release. In others, the police role includes activities such as coordinating services for released prisoners or sharing intelligence with partner agencies. Notwithstanding the range of strategies, 54

Woods (2000). Reentry Policy Council (2005). 56 Solomon et al. (2004). 57 A complete list of references is on file with the authors. 55

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there is a high level of consistency in the way most law enforcement agencies approach reentry, with information sharing, communication of a deterrence message, and enhanced surveillance central to the police role in most cases. Additionally, we identified several police initiatives targeting probationers or parolees in efforts that had a broader focus than prisoner reentry. For example, many police agencies are involved in community prosecution partnerships that target habitual offenders yet do not take advantage of the prisoner release process as a prime opportunity to work with this population. While these types of partnerships are well positioned to add reentry components, they are not included in the examples that appear below. In the body of this report, we have highlighted strategies in which law enforcement plays a lead or key role in reentry. Although this narrow scope may exclude many reentry programs that include law enforcement, the limited focus demonstrates how police may proactively— and centrally—engage in reentry initiatives directed toward reducing crime and disorder in their communities. Each of the summaries provided below details the background and goals of the initiative, highlighting the police role.58 Few, if any, of these initiatives have been formally evaluated. Accordingly, these examples do not necessarily represent best practices or model programs. Rather, they illustrate examples from across the country of police practice in the area of prisoner reentry.

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− − − − − − − − − − − − − −

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Baltimore Police Department (Maryland) Boston Police Department/Suffolk County Sheriff’s Office (Massachusetts) Burlington Police Department (Vermont) Hampden County Sheriff’s Office /Springfield Police Department (Massachusetts) Indianapolis Police Department (Indiana) Knoxville Police Department (Tennessee) Lancashire Constabulary (United Kingdom) New Haven Police Department (Connecticut) Oakland Police Department (California) Ogden City Police Department (Utah) Racine Police Department (Wisconsin) Redlands Police Department (California) Redmond Police Department (Washington) Savannah-Chatham Police Department (Georgia) Winston-Salem Police Department (North Carolina)

For each program highlighted below, telephone calls were made to agency contacts to clarify the nature of the program and level of police involvement. Summaries of each project were also shared with the law enforcement agencies to confirm their accuracy and that the key elements of the programs were appropriately highlighted.

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Baltimore Police Department (Maryland)

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Maryland Reentry Partnership Initiative The Maryland Reentry Partnership Initiative is a collaboration of diverse public and private partners working to reduce recidivism, increase offender accountability, and harness community resources to meet the needs of recently released prisoners. The partnership works to create a continuum of services for participants who are returning to neighborhoods in Baltimore with disproportionately high crime levels. The primary role for police is to deter reoffending through exit orientation meetings, termed “notification sessions.” Key Program Elements ¾ Reentry Planning. Twelve to 18 months before release, participants undergo a needs assessment to determine appropriate programs to support successful reentry (e.g., educational/vocational training, treatment programs, etc.). Individual structured service plans are developed for each participant by the case management staff within the Division of Correction. An additional assessment is conducted approximately 75 days before release. This information is used to create an after-care case plan, which is shared with the Division of Probation and Parole and the assigned community-based case manager (CM) and appointed advocate. From the first day of release, the CM and the advocate work closely together to support and monitor the participant’s progress throughout the post-release transition— reporting monthly for the first year of release, then every 2 months for the remaining supervision period. ¾ Encouraging Compliance. Participants are required to attend an exit orientation before release, during which they are notified about the consequences of reoffending as well as the community resources that are available to them to assist in the reentry process. ¾ Connecting to Services. The CM or advocate may link participants to substance abuse treatment programs, mental health counseling, and vocational and educational training, and secure them identification, health services, and other urgent social services. Transitional housing (for up to 3 months) is also available for roughly one-third of the program participants. ¾ Increasing Surveillance. A variety of corrections officials and community-based networks supervise participants upon release with the goal of fostering positive social influences while deterring them from committing new crimes. All program participants must report to a “Community Conference” within 72 hours of release. Convened in a nonthreatening venue within the community (e.g., at a recreation center), the conference is designed to provide former offenders and community stakeholders (residents, relatives, and program partners) an opportunity to demonstrate their commitment to each other in achieving successful reentry transitions. In addition, the conference provides a mechanism for regular compliance checks coupled with positive reinforcement. Partners include the Baltimore Police Department; the Enterprise Foundation; the Maryland Department of Corrections; the Mayor’s Office on Criminal Justice, Division of Parole and Probation; and the community development corporation.

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Contact Information Baltimore Police Department 6776 Reisterstown Road Baltimore, MD 21215-2342 410.585.3300, http://www.baltimorepolice.org/

Boston Police Department/Suffolk County Sheriff’s Office (Massachusetts)

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Boston Reentry Initiative The Boston Reentry Initiative (BRI) is a comprehensive reentry program supported by local, state, and federal partners aimed at reducing recidivism among serious and violent offenders.59 High-risk classification (“high-impact player”) is based on risk assessment protocols and intelligence-driven nominations by the Boston police based on likelihood to recidivate, history of gang involvement, and the neighborhood to which the prisoner is returning. While participation in BRI is voluntary, prosecutors often recommend it as a condition of release. The program offers returning prisoners comprehensive reentry planning and support and emphasizes individual accountability and the negative consequences of continued criminal involvement. While intensive post-release surveillance and increased accountability mechanisms are integral to the program, the initiative’s central focus is to provide individuals with the social support and resources needed to promote their successful reentry. The primary role for police includes intelligence sharing, enhancing a deterrence message, and providing advisory and assessment support throughout all stages of the reentry initiative. Key Program Elements ¾ Reentry Panel. Within 45 days of entering the Suffolk County House of Correction, program participants begin working on a “transition accountability plan” and attend one of the Initiative’s monthly community panel sessions. During the panels, representatives from law enforcement and criminal justice agencies, social service providers, and faith-based organizations form a semicircle and sit across from the 10 to 20 inmate participants. Each member of the panel addresses the inmates from the unique perspective of his or her organization. Social service and faith-based organizations talk about the resources and support that they can provide to assist inmates with transition, both while they are in prison and post-release. Prosecutors, probation, and parole discuss the consequences that await inmates if they are caught committing crimes upon their return to their neighborhoods. Collectively, the panel conveys a unified message that the inmates have the power to choose their own destiny. Also, the panel serves to remind the inmates that they are not doing their time anonymously and that information on their criminal histories, current incarceration, and planned release dates are shared among law enforcement agencies and with some community agencies. ¾ Reentry Case Management. Following the panel, inmates are assigned caseworkers and faith-based mentors from the community, who begin meeting and working with them immediately in the prison setting. Enrollments in education, substance abuse, and other institutional programs are coordinated as part of their transitional accountability 59

The juvenile component of the Boston Reentry Initiative (Metro Reentry Program) was added in 2003.

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plans. On the day of release, the institution arranges for either a family member or a mentor to meet them at the door. The returning prisoners are encouraged to continue to work with their caseworkers, mentors, and social service providers during the reentry period. For those inmates who leave the prison on conditional supervision, the supervising agency is asked to incorporate participation in the BRI as part of their stipulations of release. ¾ Day Reporting Center. Participants receive supervision and support services through a local Day Reporting Center. Each Day Reporting Center also has the capacity to house juveniles as a short-term sanction for those who fail to comply with the terms of their release. Partners include the Boston Police Department, the Suffolk County House of Correction, U.S. Probation Officer, the Massachusetts Department of Probation, the Massachusetts Parole Board, the Massachusetts Department of Youth Services, Suffolk County District Attorney’s Office, United States Attorney’s Office, various faith-based and community organizations, The Massachusetts Behavioral Health Partnership, Boston Public Health Commission, Boston Centers for Youth and Families, the Boston Private Industry Council, and Boston public schools. Contact Information Blake Norton, Director, Public Affairs and Community Programs Office of the Police Commissioner, Boston Police Department, 1 Schroeder Plaza, Boston, MA 02120, Phone: 617.343.4500. E-mail: [email protected]. Web site: http://www.cityofboston.gov/ police/default.asp

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Burlington Police Department (Vermont) Offender Reentry Project For many communities, crime—especially that of a violent nature— engenders feelings of vulnerability, anger, and mistrust, which in turn may impede the acceptance of a former prisoner back into a community. The Burlington Offender Reentry Project offers a holistic approach aimed to bridge the barriers created by criminal offending by offering a supportive environment for successful reentry. Following a community justice framework, community stakeholders (including victims, police, and other community representatives) actively engage in reentry planning and monitoring of serious and violent offenders who were incarcerated for at least 1 year. The goal of the Offender Reentry Project is to allow both offenders and the community an opportunity to make amends for prior harms. It also allows former prisoners to demonstrate their achievements and ability to successfully reenter the community through active involvement in offender reentry planning that ensures victim safety and fosters opportunities for positive victim/offender interactions. While the Reentry Project is not directly involved in offender sentencing or institutional programming decisions, a reentry panel does make recommendations to these entities such as community placement, treatment programs, restitution, reentry planning, and conditions/stipulations of release that support victim safety. The involvement of police in this partnership provides valuable knowledge about exoffenders in the community (e.g., criminal history, drug activity, and peer and gang

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associations). In addition, activities throughout all phases of reentry afford police an opportunity to interact with former prisoners in a positive way and to play a supportive role in helping them achieve successful reintegration outcomes.

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Key Program Elements ¾ Reentry Planning. Within 30 days of incarceration a correctional services specialist within the Department of Corrections works with offenders to develop an Offender Responsibility Plan. The Responsibility Plan is based on a needs assessment (e.g., substance abuse, mental health, life skills) and outlines a strategy for successful reintegration. Within 60 days of release, the reentry panel, in collaboration with the Department of Corrections, meets to review the Offender Responsibility Plans and Reentry Plans, which detail the components of the offender’s community placement, including housing and vocational and treatment services. The panel reviews each plan to ensure that the elements support victim and community safety, reflecting restorative justice elements and victim input. Approximately 1 month prior to the offender’s release date, the reentry panel makes a final recommendation for a reentry plan. Notably, the panel may decline to accept an offender into the program if it disagrees with the Department of Corrections’ plan. ¾ Encouraging Compliance. The panel meets regularly to monitor individual progress both before and after release. Mechanisms for monitoring include reviewing correctional department reports and videoconferencing with offenders. When released, the individual regularly meets with the reentry panel for a predetermined period of time. ¾ Enhanced Supervision. Although there is no direct enhanced supervision component of the program, police are informed of release plans and release dates of program participants. This reduces the anonymity of former prisoners in the community and supports monitoring and supervision activities. ¾ Coordinating Services. The reentry panel provides participants with access to resource information and referrals to service providers or assistance programs, as needed. Partners include the Burlington Police Department, the Vermont Department of Corrections, the Burlington Housing Authority, Spectrum Youth and Family Services, the Vocational Rehabilitation Division, Vermont Associations of Business Industry and Rehabilitation, Howard Community Services, and Burlington Community Justice Center. Contact Information Lt. Don Lilja, Burlington Police Department, 1 North Avenue, Burlington, VT 05401. Phone: 802.658.2704 ext. 173. Sally Fox, Burlington Community Justice Center 82 South Winooski Avenue Burlington, VT 05401. Phone: 802.865.7688. E-mail: [email protected]. E-mail: [email protected]. Web site: http:// www.police.ci. burlington.vt.us/

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Hampden County Sheriff’s Department/Springfield Police Department (Massachusetts) After Incarceration Support Services ProgramCriminal Justice Re-Entry Pro gram60 The After Incarceration Support Systems Program (AISS) is a multiagency collaboration designed to meet the reentry needs of both jail and state prison inmates returning to Hampden County. All jail inmates are encouraged to participate in the structured AISS program within 90 days of their release date. Individuals in the custody of the Massachusetts Department of Corrections who were either sentenced from or returning to Hampden County are also provided opportunities to participate.61 The goal of AISS is to prepare individuals for successful reentry via prerelease planning and social service support followed by continued support and enhanced post-release supervision. The primary role for police centers upon eligibility decisions, intelligence sharing, and enhanced supervision. The police provide information and intelligence about high-risk releasees (e.g., propensity for violence, gang affiliations, drug activity) that is shared with partners via one-page summary briefs. Notification of releases are also provided to all applicable local police agencies and are accessible to all patrol units via in-car technology systems. Accessible up-to-date information on high-risk offenders supports supervision and monitoring activities and increases the likelihood of detecting individuals who are demonstrating problems or challenges with reentry transitions. Key Program Elements ¾ Release Planning. There are two phases of release planning. Release Planning I (RPI) informs eligible participants of the services provided through the program. Interested candidates are asked to respond to a self- assessment questionnaire to inform Phase II activities, which begin within approximately 1 week of Phase I. In Release Planning II (RPII), the release planning coordinator works with each program participant to develop individualized release plans. These plans are based on the participant’s self-assessment and recommendations from correctional staff who are familiar with the individual’s unique needs such as case managers, and mental health, vocation, and education staff. Based on these activities, the release planning coordinator compiles a comprehensive release plan. Participants then complete an individualized release plan and meet with the education reintegration counselor and a community staff member from AISS. ¾ Connecting to Services. AISS provides participants with unlimited access to information and resources available to support reentry needs such as residential programs, employment training, substance use programs (e.g., AA/NA). An electronic directory allows participants to identify services that are close to the area where they will be living upon release. 60

The Criminal Justice Re-Entry Program is currently a pilot component of AISS directed toward high-risk offenders. 61 Eligible participants are those that score 6 or higher on the Level of Services Inventory (LSI) screening instrument and are considered dangerous. Program participants selected from the Massachusetts Department of Corrections must also meet the following eligibility criteria: (1) Sentenced from and planning to return to Hampden County; (2) Have at least 12 months remaining in their sentence; (3) Are classified at level 4 security (medium) or lower; and (4) Would not require placement in segregation. Through the reentry process the goal is to graduate inmates to lower levels of security for a gradual supported and monitored release.

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¾ Encouraging Compliance. Upon release, high-risk AISS participants meet with police, probation/parole, and the Hampden County Sheriff’s chief of security to review reentry plans, stipulations of community supervision, and consequences of future offending. These sessions may take place either at police headquarters or at the Hampden County House of Corrections. The Public Safety Committee meets monthly to review each participant’s progress and provides recommendations for appropriate sanctions if the participant reoffends. ¾ Enhanced Surveillance. The Springfield Police Department has developed the information-sharing technology to make one-page summary briefs available to their officers in the patrol cars. In addition, the sheriff’s officers hold joint meetings with the Massachusetts Department of Corrections officials and police departments in neighboring areas to share information about the recent releasees, including their name, photo, and criminal history. In addition, the district attorney’s office maintains a central file on each participant, which includes a copy of the reentry plan, probation/parole status, and other relevant information (i.e., criminal history and vital statistics). Partners include the Hampden County Sheriff’s Department, Springfield Police Department, the Massachusetts Department of Corrections, District Attorney’s Office, U.S. Attorney’s Office, and District and Superior Probation. Contact Information Jennifer Sordi, Assistant Deputy Superintendent, Hampden County Sheriff’s Department, After Incarceration Support Services Program 311 State Street, Springfield, MA 01105. Phone: 413.733.5469 ext. 5201. E-mail: jen.sordi@SDH. state.ma.us. Web site: http://hcsdmass.org/ aiss.htm

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Indianapolis Police Department (Indiana) Indianapolis Violence Reduction Partnership The Indianapolis Violence Reduction Partnership (IVRP) is a multitiered effort involving increased monitoring of persistent and violent offenders in high-crime neighborhoods; improved information sharing among agencies; rapid processing of new crimes or offenses; and enhanced social service programs for youth and young adults in the targeted communities. The primary role for police is to coordinate information and intelligence exchange among the IVRP partners. The police also lead the notification sessions for the IVRP reentry effort, which provides the collaborative with an opportunity to demonstrate to returning prisoners the strength of the partnership and the consequences of reoffending. Police activities that support the deterrence message include various specialized enforcement tactics. Key Program Elements ¾ Increasing Surveillance. A working group of representatives from law enforcement organizations, the U.S. Attorney’s Office, the Aggravated Assault Unit, the Gang Unit, and the Narcotics Unit meets weekly to discuss the status of all program

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participants and the status of the neighborhoods under heightened supervision (e.g., any new crimes committed or nuisance/abatement calls). ¾ Encouraging Compliance. Once released, program participants are required to attend a notification session, led by the deputy police chief of the neighborhood in which they reside, to reinforce the consequences of noncompliance. Additional statements by homicide detectives and community leaders support the initiative’s “zero tolerance” message on future offending. In response to homicides and/or increases of violence in the targeted areas, multiagency teams initiate geographically based responses, including frequent directed patrol. Additionally, the fugitive response team combs the neighborhood for offenders with outstanding warrants, and parole and probation officers increase the frequency of their visits with clients in the neighborhood. Juvenile curfews are also stringently enforced to decrease future crime in the area. ¾ Exchanging Information. Participants in the Violence Impact Program Enhanced Response (VIPER) program (referred to as “VIPER offenders”) are tracked for outstanding warrants, parole or probation violations, arrests, and supervision status. The Indianapolis Police Department manages the database, accessible to all partners via a secured web site. If a VIPER offender reoffends or commits a technical violation, information is shared among local, state, and federal agencies to assess the most expedient and successful avenue of prosecution of the offender. In addition, law enforcement partners coordinate efforts to dismantle drug and illegal arms markets. ¾ Connecting to Services. Officials in the Police Action League work with at-risk youth in the community to connect them to positive social environments through mentorship and community programs, job opportunities, and faith-based programs. In conjunction with the community education and support programs, prior offenders will be contacted for brief meetings to inform them of the reinforced law enforcement presence in the community, the expectations for their behavior, and how to receive social support if needed. Partners include the Indianapolis Police Department; the Federal Bureau of Investigation; United States Marshal’s Office; Marion County Prosecutor’s Office; Marion County Justice Agency; Department of Corrections; Marion County Probation; Crime Stoppers; Hudson Institute Crime Control Policy Center; Marion Superior Court; Indiana State Police; Bureau of Alcohol, Tobacco, and Firearms; Indiana University; U.S. Probation Office; Marion County Sheriff’s Department; U.S. Attorney’s Office; Drug Enforcement Administration; Indiana Department of Education; and various community and faith-based organizations. Contact Information Jason D. Hutchens, Marion County Justice Agency, 200 E. Washington Street, Suite 1901. Indianapolis, IN 46204. Phone: 317.327.3131. E-mail: [email protected]. Web site: http://www.indygov.org/eGov/City/DPS/IPD/ home.htm

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Knoxville Police Department (Tennessee)

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Knoxville Public Safety Collaborative62 The Knoxville Public Safety Collaborative (KPSC) partnership was formed to respond to community concerns about crime committed by repeat offenders released from prison. Building on preexisting partnerships between corrections and probation/parole, the Knoxville Police Department joined the collaborative to develop a strategic response geared to improve the reentry success of high-risk individuals returning to the community. The KPSC offers a multidisciplinary case management approach that begins prior to release and continues with intensive post-release supervision. Release planning ensures that individuals receive appropriate services to support positive reentry including mental health, alcohol, and drug treatment, medical provisions (e.g., prescriptions), vocational or educational services, and housing. The Board of Probation and Parole issues an identification card to all released individuals; it must be carried at all times and produced when interacting with program staff, including parole officers and law enforcement. The identification cards ensure that information obtained via the various partner sources is accurately and efficiently shared among all partners. For example, if the police stop an individual or are conducting a compliance check, the interaction is logged into the Knoxville Police Department database and shared with the parole officer. This systematic tracking improves supervision and monitoring activities. The primary role for police is to use this identification card system and other intelligence to support the timely and accurate dissemination of information among partner agencies—particularly police officers, corrections officials, and treatment providers. Key Program Elements ¾ Reentry Planning. Before release, comprehensive, individualized case plans are developed to identify needs and services for successful reentry transitions. ¾ Encouraging Compliance. After release, representatives from the collaborative perform joint site visits and frequently share information to ensure the careful monitoring of participants’ progress. ¾ Exchanging Information. The police enhance supervision by providing up-todate information to all partners. At the end of each shift, officers enter information into the database about any contacts with persons of interest. This information is transmitted to the supervising corrections officer of the program participant and can be accessed electronically at any time. To assist in supervision activities, the police map residential addresses of the individuals under supervision and share this information with the Board of Probation and Parole. Partners include the Knoxville Police Department, the Knox County Sheriff’s Office, the Tennessee Department of Corrections, Tennessee Board of Probation and Parole, Child and Family Tennessee, Knox County Drug Court, Knoxville County Probation, U.S. Probation Office, the University of Tennessee School of Social Work, the Metropolitan Drug Commission, and various state and city agencies, social service providers, and community and faith-based organizations. 62

The Knoxville Public Safety Collaborative was a finalist for the Innovations in Government Award in 2003.

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Contact Information Lee Ragsdale, Community Corrections Program Manager Knoxville Police Department, P.O. Box 3610, Knoxville, TN 37927 Phone: 865.215.7521 E-mail: lragsdale@cityof knoxville.org. Web site: http://www.knoxsafety.org

Lancashire Constabulary (United Kingdom)

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Tower Project The Tower Project was developed in response to a growing problem of increasing rates of burglary, auto crime, and street robberies in the Western Division of Lancashire, England. Using the tools of problem-solving analysis, the Lancashire Constabulary learned that almost 50 percent of persistent adult offenders test positive for drug use and that a small group of these persistent drug users accounted for a large proportion of crime. These findings led to the development of a targeted reentry initiative that combined intensive supervision with directed drug treatment to reduce recidivism. The goal of the program is to encourage desistance from crime by addressing risk factors of persistent drug use. The police are responsible for hosting and implementing the project. In addition to providing an advisory role in recruitment, the primary role for police is to collect and process intelligence gathered through enhanced supervision activities, such as surveillance and specialized enforcement. More important, the police facilitate the flow of intelligence information between the partner agencies. The program has changed how police handle persistent offenders who are problematic drug users by encouraging treatment in lieu of arrests and jail time. According to the Lancashire Constabulary, since the start of the Tower Project, crime committed by the target population has decreased by 30 percent. The program’s success has prompted expansion to additional jurisdictions throughout Lancashire. Key Program Elements ¾ Reentry Planning. Participants are recruited up to 3 months prior to release to develop a post-release drug treatment plan including treatment, abstinence support, accommodation, benefits, and employment and lifestyle skills. ¾ Exchanging Information. The police provide critical support through analysis and assessment. They identify the most persistent offenders based on indicators including number of types of criminal justice contacts and types of offenses. They also engage in monitoring and surveillance activities, which are increased or decreased based on the individual’s progress. The information collected and shared among the partners is integrated into the police intelligence system. The police provide daily information briefings at the project’s main office. Each program participant is required to sign a consent form authorizing drug testing and free dissemination of personal information among the partner agencies. ¾ Encouraging Compliance. Monitoring and supervision activities begin immediately upon release. In many cases, the program staff meets the offender at the gate to ensure that there is no diversion to high-drug areas. “Drug action teams” monitor drug treatment progress. Additionally, a one-stop shop, based at the police station, connects persistent drug users to treatment providers.

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Nancy G. La Vigne, Amy L. Solomon, Karen A. Beckman et al. ¾ Increasing Surveillance. Police engage in specialized enforcement activities, such as undercover operations. In addition, they increase surveillance through high-visibility patrol tactics.

Partners include the Lancashire Constabulary, Western Division; National Probation Service Lancashire; Crown Prosecution Services; the National Association for the Care and Resettlement of Offenders; Housing Authority; and drug treatment and medical service providers. Contact Information Tower Project, Multi-Agency Problem Solving Team, Western Division Headquarters, Bonny Street, Blackpool FY1 5RL, United Kingdom. E-mail: lancashirepolice@lancashire. police.uk. Web site: http://www.lancashire.police.uk

New Haven Police Department (Connecticut)

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Project One Voice Project One Voice is a partnership of local, state, and federal law enforcement and various service agencies created to address crime problems caused by persistent criminals in four New Haven neighborhoods. This place-based strategy focuses on individuals and gangs responsible for contributing to the violent crimes and drug activities in the community. The strength of the collaborative is derived from the commitment of the community to encourage the successful reentry of probationers and parolees returning to these areas. With the support of its partners, the community has formed management teams that are responsible for sharing community concerns and providing a mechanism for transferring intelligence to police. In addition, the community offers support to returning prisoners, such as employment and social service referrals. The primary role for police is to provide enhanced supervision and surveillance of high-risk offenders. Regular patrol and specialized enforcement gather intelligence on possible technical violations. A “palm card” system notifies probation and parole about violations identified by police. This involvement communicates to the community that police are aware of the problems and are proactively responding. It also promotes open communication between the criminal justice system and the community. Key Program Elements ¾ Engaging the Community. Approximately once each month, residents meet with district managers in management teams to help the police identify areas at the local level that should be included in the program. In addition to targeting places that local residents identify, the management teams work with the New Haven Public Works Department and the New Haven Livable City Initiative to ensure that abandoned and blighted lots or properties are not used for illegal activities. ¾ Encouraging Compliance. Strict bail conditions are set for these habitual offenders. Upon release, parole officers, probation officers, and police—oftentimes working together— closely monitor them to ensure compliance. The New Haven Housing Authority assists in a similar manner by enforcing lease conditions more strictly and improving and maintaining public housing.

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¾ Exchanging Information. When police officers witness program participants violating their conditions of release, they issue participants fluorescent “palm cards” and tell them to report to their probation or parole officer the next day. Police also work with the community to develop intelligence on criminal activity in the neighborhood. Partners include the New Haven Police Department; the Federal Bureau of Investigation; Bureau of Alcohol, Tobacco, Firearms and Explosives; Drug Enforcement Administration; Chief State’s Attorney’s Office; New Haven State Attorney’s Office; Connecticut Department of Public Safety; Connecticut Department of Correction; Connecticut Board of Parole; Connecticut Office of Adult Probation; Connecticut Office of Juvenile Probation—New Haven; Connecticut Bail Commission; the Office of Alternative Sanctions; the Housing Authority of New Haven; the New Haven Department of Public Works; and the New Haven Livable City Initiative. Contact Information Bonnie Winchester, New Haven Police Department, One Union Avenue New Haven, CT 06519 Phone: 203.946.6271, E-mail: [email protected]. Web site: http://www.city ofnewhaven.com/police/home.htm

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Oakland Police Department (California) Police and Corrections Together (PACT)/Project Choice The Police and Corrections Together (PACT), in partnership with Project Choice, operates a comprehensive reentry program aimed at reducing recidivism among high-risk male offenders between the ages of 14 and 2963 The initiative provides social support for reentering prisoners and aids compliance with terms of supervision and accountability for staying free of crime. The police play a supportive role in the program by enhancing the message about complying with conditions of release. In addition, the police are represented on the Project Choice advisory committee. The committee represents all facets of the community, including parole, corrections, employment, and health agencies, as well as a former prisoner, a community organizer, and faith- and community-based provider staff. This diverse partnership works to provide returning prisoners with access to services while communicating the importance of complying with conditions of release and desisting from crime. Key Program Elements ¾ Reentry Planning. Six to 12 months prior to release from prison, participants are required to develop “life plans” for successful reentry. Needs assessments are also conducted to support reentry planning. Once completed, life plans and assessments are forwarded to the Project Choice advisory committee for review and revision.

63

Similar initiatives are being implemented throughout California, including in Sacramento, Redlands, Vallejo, Stockton, and San Francisco.

30

Nancy G. La Vigne, Amy L. Solomon, Karen A. Beckman et al. ¾ Encouraging Compliance. Once released, police partner with California Department of Correction (CDC) parole officers to track compliance of release conditions and encourage rehabilitative support. In addition, program participants must attend a PACT meeting (led by police and probation) within 1 week of their release, during which stipulations of release and program requirements are reviewed and reinforced. Participants are required to attend regular PACT meetings throughout their supervision period. If a participant fails to attend a PACT meeting, a team of Oakland Police Department officers and CDC parole officers are dispatched that day to the parolee’s address on record. ¾ Connecting to Services. Services offered upon release include employment training, job referrals, adult education, and mental health and substance abuse treatment.

Partners include the Oakland Police Department, the California Department of Corrections, Alameda County Probation Department, California Youth Authority Institutional and Parole Divisions, Alameda County Behavioral Services, the Oakland Private Industry Council, community and faith-based organizations, and the Institute for Contemporary Studies. Contact Information Lt. Pete Sarna, Oakland Police Department, 455 Seventh Street, Oakland, CA 94607. Phone: 510.238.3380. E-mail: [email protected]. Web site: http://www.oakland police.com/

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Ogden City Police Department (Utah) Project T.E.A.M. Team Enforcement and Monitoring (Project T.E.A.M.) was formed in response to crime committed by the high number of individuals returning to a small area within Ogden City. Assessments of reentry patterns revealed that nearly 12 percent of the population in one eight-block neighborhood were under either probation or parole supervision. This high concentration of ex-offenders resulted in unmanageable caseloads for Weber County community supervision officers and restricted the amount of one-on-one contacts with clients. The goal of the Project T.E.A.M. collaborative is to improve the capacity of criminal justice agents to monitor and support reentry transitions by linking participants to social service organizations. To do so, the project has granted the police authority to act as community supervision agents. Although this authorization is contingent upon the individual signing a waiver, the incentive to participate is attractive to many releasees because it is often offered as an alternative to returning to prison for technical violations. The primary role for police includes strengthening the deterrence message communicated during the face-to-face introductory notification sessions, during which the consequences of noncompliance, especially for weapons offenses, are explained. In addition, police support supervision activities by conducting random curfew checks and home visits. This program benefits parole agents who typically have 60 to 80 offenders on their caseload, giving them extra support from the police to supervise higher risk parolees. For police, face-to-face meetings foster positive interactions

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with former prisoners and provide police with important context to individual circumstances of reentry.

Key Program Elements ¾ Encouraging Compliance. Individuals returning to Weber County on parole attend a meeting with police officers on the day of their release during which they are informed of the consequences of not abiding by the law. They are specifically informed that they may be federally prosecuted if they possess or use a firearm. If a parolee commits a technical violation, he or she is offered the option of joining the program instead of returning to prison. Participation in T.E.A.M. is contingent on the individual signing a contract that permits police officers to act in the capacity of parole officers and may include a curfew requirement or alcohol restrictions, among other stipulations. ¾ Increasing Surveillance. The police have the same powers that the parole officer has over the parolee, including the right to make unannounced visits and search without a warrant or consent if they believe the individual is participating in criminal activity. Twice a month a police officer joins a parole officer in conducting visits to every high-risk parolee in the county. ¾ Connecting to Services. The program offers participants opportunities to receive education and employment support, including access to general equivalency diploma classes, computer courses, and career centers. Participants are linked with relevant social service organizations in the community during notification sessions. Partners include the Ogden City Police Department, all law enforcement agencies within Weber County, the Utah Department of Corrections, the Weber County Adult Probation and Parole Office, Ogden City’s Enterprise Community, Safe Haven, and the Utah Department of Workforce Services.

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Contact Information Lt. Mike Ashment, Ogden Police Department 2186 Lincoln Avenue Ogden City, UT 84401 Phone: 801.629.8221. E-mail: [email protected]. Web site: http://www. ogdencity.com/index.php?module=ibcmsandfxn= police.main.

Racine Police Department (Wisconsin) Community Re-Entry Program The Community Re-Entry Program, a multiagency partnership spearheaded by the Racine Police Department, is designed to reduce recidivism among high-risk offenders released from state prison. Each month, four to five high-risk individuals with prior convictions involving violent crimes, weapons offenses, or gang crimes are selected for program participation. The program emphasizes individual accountability as well as employment assistance and mentoring opportunities. The role of police involves working directly with probation/parole in the four community- based housing stations. The decentralization of supervision activities fosters consistent information sharing between police and supervision officers. In addition, police participate in notification sessions through which participants are made aware that the

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police and the community will be watching them carefully (thereby reducing their perceptions of anonymity). The program began in the fall of 2004, when the police began playing a substantial role in coordinating services and monitoring progress. Recently, the project has benefited from a project coordinator tasked with managing the day-to-day operations and facilitating weekly updates on individual cases between the police and probation/parole. According to Racine police, less than a quarter of those who have participated in the program to date have been rearrested for new crimes.

Key Program Elements ¾ Encouraging Compliance. Upon release, participants are required to attend a notification session, during which they are informed of available social services as well as the fact that they will be monitored for subsequent criminal activity and that it will not be tolerated. These sessions are very well attended with approximately 100 to 150 community representatives present at each session. The coordinator makes follow-up contacts with each program participant within 30 days of release. ¾ Connecting to Services. Participants are offered workforce development support such as donated clothing, job training, interview training, and employment referrals. Additional services include family support and links to faith- based organizations. The project benefits from a dedicated coordinator, bridging with partner agencies and brokering services to program participants. Partners include the Racine Police Department, Racine County Sheriff’s Office, the U. S. Attorney for the Eastern District of Wisconsin, the Mayor’s Office, Wisconsin Department of Corrections, the Racine County Executive, Neighborhood Watch, Weed and Seed, numerous faith-based organizations, Racine County Workforce Development Center, private-sector employers, the United Way of Racine, and other community organizations. Contact Information Sgt. Steve Madsen Project Coordinator, Racine Police Department, 730 Center Street Racine, WI 53403 Phone: 262.635.7815. E-mail: smadsen@ cityofracine.org. Web site: http://www.cityofracine.org/depts/police/

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Redlands Police Department (California) Police and Corrections Team Redlands Police and Corrections Team (PACT) is a comprehensive approach to prisoner reentry that incorporates the tenets of community policing, community engagement, and organizational development. Redlands PACT focuses on the successful reintegration of prisoners returning home to Redlands. Prior to PACT’s inception, the majority of parolees arrested by the Redlands Police Department (RPD) were local residents. A recent analysis shows that 63 percent of all parolees arrested by RPD officers are nonresidents and live where similar PACT services are not available.

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Key Program Elements ¾ Reentry Planning. The Department of Corrections requires all returning inmates to develop “life plans” prior to release to facilitate their successful reentry. Corrections staff also conduct individual-specific needs assessments that highlight areas of concern for each inmate. ¾ Encouraging Compliance. Within a week of release, parolees are required to attend the first of a two-part session to notify them of the consequences of violating the terms of their parole and the services available to facilitate their reentry. Parole agents, police officers, deputy district attorneys, service providers, and community leaders attend the sessions to provide the necessary notifications and information. ¾ Increasing Surveillance. Two parole agents and a Redlands police officer work as partners, from an RPD office, to increase the frequency of contact with parolees and the level of support for reentry they and their families are given. Visits to parolee homes have increased more than 300 percent since the program began. The team informs patrol, street crime, and community policing substation officers of the inmates’ return and their respective circumstances. This communication has dramatically increased the PACT team’s notification by RPD officers of parolee activities (both good and bad). ¾ Engaging the Community. Redlands’ faith community has demonstrated tremendous support for prisoner reentry and drug court efforts. Recently, one church held a daylong festival that brought together 250 volunteers and more than 600 parolees, drug court clients, and their families. Service providers, police recreation specialists, and community groups supported and celebrated the reentry progress of the “guests” with food, music, games and informational booths. A van was raffled off to one deserving—and previously car-less— parolee and his family. A separate makeover day, focusing on increasing self-esteem in female parolees and drug court clients, treated these guests to hair styling, manicures, and fashion advice. Other faith groups have mentoring projects lined up. Reentry now is included in the department’s Citizens Police Academy curriculum. A specialized Citizens Reentry Academy, to further increase community understanding, is scheduled in 2006. Finally, through a series of public presentations, there has been a noticeable increase in the number of employers who have agreed to employ parolees. ¾ Building Partnerships. In Redlands, community reentry from incarceration and drug addiction are closely linked. Through a partnership with the local drug court, addicted parolees are eligible for the 18-month drug court program in lieu of parole revocation. Early indications are that participating parolees are experiencing the same success rate—currently in excess of 85 percent—as traditional drug court clients. ¾ Organizational Development, Knowledge Management, and Information Sharing. For the police to become a helpful participant in reentry efforts, organizational change within police departments must occur. Accordingly, the RPD has integrated reentry concepts into its field training and leadership development programs, promotional processes, and strategic planning efforts. In addition, reentry has been incorporated into the department’s Knowledge Management Initiative. For instance, all RPD PACT officers attend California’s Parole Agent Academy; parolee focus groups are conducted to capture parolee knowledge about crime, police legitimacy, and their reentry needs; and reentry publications are widely distributed throughout

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Nancy G. La Vigne, Amy L. Solomon, Karen A. Beckman et al. the department. The RPD also has integrated parolee information into its databases for easy access by street officers and uses its extensive analytical capacity to examine parolee activities via mapping

Partners include the Redlands Police Department, California Department of Corrections, San Bernardino County Probation Department, Redlands Drug Court, Cops and Clergy Network, Pathway Church, and a wide variety of community groups. Contact Information Officer Steve Starr, Redlands Police Department, P.O. Box 1025, Redlands, CA 92373. Phone: 909.798.7546. E-mail: [email protected]. Web site: http://www.redlands police.org/

Redmond Police Department (Washington)

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SMART Partners Program The Supervision, Management, and Recidivist Tracking (SMART) program facilitates costeffective surveillance and compliance checks for adults and juveniles returning to the community from prison and jail/detention facilities. The primary role for police is to provide enhanced supervision, intelligence gathering and assessment, and timely communication with their probation and parole partners. In addition, police visit high-risk offenders just prior to release to communicate the consequences of weapons violations.64 The SMART program has expanded to most of the 39 counties in Washington, and plans to expand SMART to a state-wide data-sharing system are currently in development. Key Program Elements ¾ Increasing Surveillance. Police provide supervision support for one to two highrisk supervised releasees residing within each patrol area. In additional to regular patrol, police conduct random monthly home visits for participants with curfew restrictions. Such home visits provide the SMART partners with up-to-date information about criminal activity, compliance with terms of supervision, current residence, and family circumstances. Documentation of home visits is forwarded to the participant’s corrections officer. ¾ Exchanging Information. The Redmond Police Department has developed a systematic information-sharing mechanism among community corrections officers. Field Interview Report (FIR) cards recording all police stops (e.g., traffic, investigation, suspicious person) are systematically processed and checked against an active supervision case list provided by the Department of Corrections. Once verified by the supervising lieutenant, FIR records on active clients are copied and forwarded biweekly to the Department of Corrections for review and to identify possible compliance violations. Crime analysts within the police department also receive a copy of the FIR cards to track the criminal activity of supervised releases. In addition, community corrections officers and intelligence analysts have electronic 64

Prerelease notifications are conducted through Project Safe Neighborhoods.

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access to police information systems and are also provided designated work stations within the police department. Community corrections officers are immediately informed when an individual under their supervision is released from a state correctional facility. The police also maintain the Homicide Intensive Tracking System (HITS), a centralized database of homicide and violent crime information collected by police and sheriffs across Washington. This database is accessible to all program partners. Partners include the Redmond Police Department, the Washington State Department of Corrections Bellevue Field Office, King County Sheriff, Washington Department of Wildlife, King County Juvenile Rehabilitation Services, King County Department of Adult and Juvenile Detention, and the HITS Unit of the Washington State Office of the Attorney General. Contact Information Commander Terry Morgan, Redmond Police Department, 8701 160th Avenue NE, P.O. Box 97010, Redmond, WA 98073-9710, Phone: 425.556.2523. E-mail: tmorgan@redmond. gov. Web site: http://www.ci.redmond. wa.us/insidecityhall/police/

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Savannah-Chatham Police Department (Georgia) Savannah Impact Program65 The Savannah Impact Program (SIP) combines highly structured supervision with targeted support services to support successful reentry of individuals convicted in Chatham County. The Department of Corrections and the Department of Juvenile Justice administer assessment tools to identify high-risk juvenile and adult offenders. Once selected for the program, each individual is assigned to a team comprising of a probation/parole officer and a police officer. The team approach supports the partnership’s success on two fronts. First, team caseloads are kept low to allow time for frequent compliance checks, such as abiding with curfews and refraining from substance use. Second, the team approach unifies and strengthens the deterrence message that future crime will not be tolerated and guarantees a swift response from the collaborative. In addition, it provides opportunities to link participants to appropriate social services, such as life skills training, substance abuse treatment, and educational support. The program also emphasizes the importance of employment in supporting desistance from crime and assists with job placement for each program participant. The primary role of police in the partnership is to work closely with probation and parole throughout a participant’s reentry transition. Police also contribute to decisions on technical violations and provide programmatic assessments and analyses when needed. Currently, success of the program is measured by rates of revocation, employment, number of referrals, number of contacts with the SIP Team, and drug use. According to the Savannah– Chatham Police Department, almost all program participants have secured employment. In addition,

65

The Savannah Impact Program received the 2003 IACP Community Policing Award for Best Practices in Community Policing Worldwide.

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Nancy G. La Vigne, Amy L. Solomon, Karen A. Beckman et al.

revocation rates of program participants are reported to be less than half that of the general population (14 percent and 39 percent, respectively).

Key Program Elements ¾ Encouraging Compliance. Participants attend a one-on-one meeting with their assigned team followed up by a program orientation during which they are informed of the expectations of the program and the consequences if they reoffend. The program keeps the team’s caseloads to a manageable size to allow for more frequent contact and more intensive supervision, including drug screenings and curfew enforcement. As a result, notifications of technical violations are transmitted immediately. The team makes joint decisions on the outcomes of violations. ¾ Connecting to Services. Services, such as life skills training, education, and substance abuse and behavior modification treatment, are made available to increase the odds that individuals will transition successfully to life in the community. A specialist from the Department of Labor is assigned full time to the program to assist with employment referrals. Partners include Savannah-Chatham Police Department, the Georgia Department of Pardons and Paroles, Georgia Department of Corrections, Georgia Department of Juvenile Justice, Gateway Community Service Board, and the Georgia Department of Labor. Contact Information Keith Vermillion, Director, Savannah Impact Program Savannah–Chatham Police Department Savannah, GA 31401, Phone: 912.651.4350. E-mail: keith_ vermillion@savannah ga.gov Web site: http://www.ci.savannah.ga.us/

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Winston-Salem Police Department (North Carolina) Violent Crime Task Force/Project Re-Entry The Violent Crime Task Force (VCTF) is responsible for coordinating all violence reduction strategies used by the Winston-Salem Police Department. While there are more than a dozen local, state, and federal strategies currently in practice, Project Re- Entry provides an opportunity for police to address recidivism of individuals returning to the community from prison. The goal of the Project Re-Entry Coalition is to facilitate successful reentry through focused release planning, structured support services, and intensive case management. The primary role of police currently draws on the support provided through numerous strategies directed toward individuals under active community supervision such as communicating a strong message against future offending via notification sessions (callins) (see sidebar Project Safe Neighborhoods). In addition, police provide enhanced supervision and outreach support for both program participants and high-risk individuals released without conditions of probation or parole residing in high-crime areas.66 Currently, Project Re-Entry is a pilot project implemented in several North Carolina counties. The role of police is planned to expand through prerelease notification sessions so that the deterrence 66

Risk classifications are based on an arrest history point-scale system developed by the Violent Crime Task Force.

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message may be communicated to high-risk individuals released without conditions of probation or parole.

Key Program Elements ¾ Reentry Planning. Approximately 3 months prior to release, program participants enroll in a 12-week program and meet with Project Re-Entry staff to identify individual reentry needs and available support services. ¾ Encouraging Compliance. Notification sessions provide police and other criminal justice and community stakeholders with an opportunity to address probationers and parolees of the risks of reoffending. The police organize and lead quarterly notification sessions. ¾ Connecting to Services. Project Re-Entry staff monitor program participants to ensure appropriate links to social services including employment training, counseling, and job placement. Partners include the Winston-Salem Police Department, the North Carolina Department of Corrections, North West Piedmont Council of Governments, Partnership for a Drug-Free North Carolina Inc., North Carolina Division of Vocational Rehabilitation, Goodwill Industries of North Carolina, Forsyth Technical Community College, and various county and city social service agencies. Contact Information Detective John W. Leone Jr. Violent Crimes Task Force Winston-Salem Police Department, 725 N. Cherry Street, Winston-Salem, NC 27101 Phone: 336.773.7827. E-mail: [email protected]. Web site: http://www.ci.winston-salem. nc.us/psc/ Rebecca Sauter, Program Manger, Project Re-Entry, North Piedmont Council of Governments 2701 University Parkway, P.O. Box 4299, Winston-Salem, NC 27101, Phone: 336.748.4666. E-mail: [email protected]. Web site: http://www. nwpcog.org

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CHALLENGES FOR POLICE REENTRY PARTNERSHIPS Successful reentry initiatives promise considerable benefits for police departments and the public alike. Before police commit time, resources, and energy to the issue of prisoner reentry, however, they must first recognize the potential organizational and community-level challenges they are likely to face. Some of the most common barriers are not unique to police organizations, while others stem from the police organization itself, such as internal culture, chains of command, and sensitivity to external community or political forces. In this section, we present some potential obstacles to effective police involvement in reentry initiatives and discuss ways in which these barriers might be overcome.67

67

Many of these barriers were identified and discussed in Parent and Snyder (1999).

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Creating Realistic Goals and Operating with Limited Resources Because the challenges of reentry are so diverse, ranging from substance abuse to housing to employment issues, reentry efforts may take on comprehensive—and often unrealistic—goals and approaches. If plans are overly ambitious, an early-stage reentry program risks overextending itself and jeopardizing the integrity of the intervention. It is critical, therefore, to develop strategies that are realistic and do not reach beyond an agency’s capacity to fulfill both ongoing and new commitments fully and consistently. In many cases overly ambitious plans are curtailed by a lack of resources, which can limit the scope and nature of the intervention— sometimes for the better.68 Researchers of policecorrections partnerships have observed that low-budget initiatives can sometimes lead to creative fundraising efforts69 and the sharing of both human and physical resources.70 Fledgling reentry efforts might also consider targeting one segment of the reentry population for services, such as gang members or youthful offenders, or one specific geographic area that might have a disproportionate share of returning prisoners.71 Another approach is to address a single substantive area, such as job training and placement, for the reentry population in a given area. Often this pilot approach generates additional support and resources to expand the initiative.

Overcoming Internal Organizational Challenges

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Organizational structures can present considerable obstacles to implementing reentry partnerships, limiting the nature of the strategies used, the amount and types of information that is shared, and the extent of resources that are available.72 In many respects, these structural limitations stem from the disparate missions of the partnering agencies, as well as from confusion about who the client really is.73 One way to resolve these structural problems is for reentry partners to agree on and accept a new collective goal (e.g., enhancing public safety by increasing the prospects that released prisoners will lead lawful lives) and a shared definition of the client (e.g., all community members, including returning prisoners). Accepting this new role among line staff will depend, in large part, on the extent to which this reentry philosophy is supported at multiple levels of each agency, and particularly by each agency’s chief executive.

68 69

Ibid.

Ibid. 70 McGarrell et al. (1999). 71 Such targeted initiatives, however, run the risk of racial profiling (see Manning 2003), and thus should be implemented with caution. 72 Dickey and Klingele (2004). 73 Ibid.

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Agreeing on Data-Sharing Protocols While reentry partners may set out to share information, many agencies do not have the appropriate mechanisms in place for doing so. Even when agencies have modern equipment and software, secure transmission of information to an agency with a different level of technological sophistication or incompatible software platform requires extensive planning and cooperation.74 Agencies also tend to be reticent to share sensitive data that might compromise the confidentiality of their client base, the identity of informants, or the integrity of investigative intelligence. Prior research has identified several steps to breaking down these barriers to information and data sharing across law enforcement and other public agencies.75 When sharing information across agencies, agreements should be made about data distribution as well as security protocols.76 The first step in this process is to identify the requirements of existing confidentiality laws.77 Practitioners have noted that data-sharing barriers can be minimized once partners start communicating and realize that the obstacles to information exchange were based on the nature of their bureaucracies rather than any existing statutes.78 This review of local statutes could be followed by establishment of a memorandum of understanding (MOU) among the partner agencies with regard to what data will be shared, with whom, and how. Limiting the scope of information to be shared and providing clear direction about what staff should do with the information once they receive it can help streamline the crafting of datasharing agreements. While not all agencies develop formal written agreements on the nature of their datasharing arrangements, those that do find that MOUs are useful for solidifying partnerships.79 Educating staff about the importance of increased information exchange is critically important— particularly for those who hold jobs that are essential to any changes in information flow.80 Without staff cooperation, MOUs are simply pieces of paper. While many information obstacles are inevitable, identifying and facing them at the outset of the project— and using established, agreed-on procedures early on—can minimize delays and yield a great payoff down the road.81

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Overcoming Mistrust and Misinformation Mistrust and stereotypes about differing objectives and approaches are common among police-corrections partnerships,82 police- community relationships,83 and relationships

74

La Vigne and Wartell (2001). Ibid.; Parent and Snyder (1999). 76 La Vigne and Wartell (2001). 77 Parent and Snyder (1999). 78 Ibid. 79 Ibid 80 Parent and Snyder (1999). 81 La Vigne and Wartell (2001). 82 Parent and Snyder (1999). 83 Taxman (2004). 75

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between the police and former prisoners.84 This mistrust can thwart efforts to forge productive partnerships, hinder the free flow of information across partners, and in some cases reduce the public’s confidence in the police and their effectiveness.

Police and Corrections Relationships Police may view parole officers as too lenient, while parole officers may believe that police harass parolees and hinder their efforts to reintegrate into the community.85 One way to overcome stereotypes and develop trusting interagency relationships is to create opportunities for police, parole officers, and corrections staff to become more familiar with each other’s approaches. This can be accomplished by encouraging partners to explain their jobs to each other and talk candidly about past negative experiences and how they can be avoided in the future.86 Activities that allow partners to view each other in action, such as ride-alongs or joint home visits, can be also be an effective means of breaking down barriers of misinformation and mistrust.

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Police and Resident Relationships Community residents may also be wary of police involvement in reentry initiatives. Often police-corrections partnerships in reentry result in the police serving as additional “eyes and ears” on the street, which in turn can enhance the likelihood of detection of new crimes committed by parolees or technical violations of parole, increasing the number of parolees returned to prison. Because many reentry initiatives are focused in high-crime, minority communities that receive high numbers of returning prisoners, this type of police involvement can give the appearance of racial profiling.87 For this reason, reentry partners have raised concerns about the involvement of police when police do not clearly articulate specific ways in which they can serve a supportive function in reentry programs.88 On the other hand, prisoner reentry may rekindle fear, anger, andresentment among some community residents and particularly victims. Perceptions of the threat of victimization posed by returning prisoners may need to be tempered by presenting maps and information that clarify the threat and present it within the context of crime prevention. For example, a study using the addresses of released prisoners in Baltimore found that the communities receiving the greatest numbers of former prisoners are not in the same geographic areas as those experiencing the highest rates of serious crimes.89 Research in Cleveland found similar results for neighborhoods where serious crimes were committed,90 but also found that the locations of drug-related crimes91 were much more closely aligned to where released prisoners lived.92 84

Mobley (2004). Parent and Snyder (1999). 86 Ibid. (2004). 85

87 88 89 90

Byrne and Hummer Young, Taxman, and Byrne (2002). La Vigne and Kachnowski (2003). Serious crimes were defined as crimes listed as Part I offenses under the FBI’s Uniform Crime Reports: murder, rape, robbery, aggravated assault, burglary, larceny (theft), and motor vehicle theft.

It should be noted that the concentrations of Part I crimes in both Cleveland and Baltimore may reflect the concentrations of desirable targets (e.g., cars to steal, businesses to rob). It could well be are commuting from their that returning prisoners homes to these areas to commit their crimes. 91 As measured by police arrests, which are naturally more likely to be police-initiated than are Part I crimes. 92 La Vigne and Thomson (2003).

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While these studies demonstrate that former prisoners do not necessarily cause a one-for-one increase in crime in the communities to which they return, they also indicate that the relationship between where released prisoners live and where crime occurs may vary by both jurisdiction and crime type. Given these findings, police officials and their partner agencies could benefit from doing their own mapping and analysis of the issue.93 Examining where released prisoners live and where crimes occur can help educate the public—often allaying fears of victimization—and can also lead to more effective police-led reentry efforts. When engaged in these mapping and related reentry activities, police must engage in a delicate balancing act between protecting victims while communicating to the families and friends of returning prisoners that they are there to help. This message is best communicated in a public forum that enables residents to voice their concerns and to learn from the police and other members of the reentry partnership that their collective goal is successful reintegration, not reincarceration. At the same time, police—as the first responders when a resident is victimized—are ideally suited to encourage and assist victims in participating in the parole and reentry processes.

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Police and Former Prisoner Relationships Hostility and mutual distrust often characterize relationships between police and former prisoners.94 Many former prisoners believe that police unfairly target them, and they perceive their interactions with law enforcement as sending the message that the system lacks confidence in their ability to succeed.95 These interactions make it difficult for former prisoners to feel positive about adopting new pro-social identities as employees, parents, or community members, and underscore the need for police to consider released prisoners’ perspectives when interacting with them in the community. Research on police “legitimacy” has demonstrated that the way people are treated by the police affects whether they accept the enforcement of rules and decisions made by police.96 When police actions are deemed fair, people are more willing to accept their decisions voluntarily and are more likely to comply with the law over the long term.97 The procedural justice model—for which both undesirable behaviors and the sanctions resulting from them are clear and agreed on—is one approach that can be used to communicate to the returning prisoner that he is being treated equitably.98 Virtually any form of contract or binding agreement that clearly states roles, expectations, and outcomes can enhance the perception that the system is fair.99

93

La Vigne (2004). For more information on mapping prisoner reentry at the local level, also see http://www.urban.org/reentry-mapping/index.cfm for a description of the Urban Institute’s Reentry Mapping Network, a partnership of 12 jurisdictions engaged in mapping and analyzing corrections and public safety data to help inform local prisoner reentry initiatives. 94 McGarrell et al. (2004); Mobley (2004). 95 Taxman (2004). 96 Tyler (2004). 97 Ibid. 98 Taxman (2004). 99 McGarrell et al. (2004).

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SIDEBAR 7. Cops Office Reentry Integrity Training In 2004, the COPS Office requested that the Mid-Atlantic Regional Community Policing Institute (MARCPI), affiliated with Johns Hopkins University, develop a 2-day course modeled after a highly successful MARCPI youth/police curriculum for ex-offenders. MARCPI staff, in collaboration with the COPS Office, held a focus group of faith-based reentry program directors and others to develop a training curriculum for both released prisoners and members of the community. The training was designed to create a nonadversarial environment within which former prisoners, police officers, parole/probation officers, social workers, clergy, and citizens can develop trust, support, and guidance to identify and use all the available support networks and services for successful reentry. The 2-day course comprises five interactive modules Module 1. Perceptions and Understanding. By examining perceptions of each participating group, an understanding of the values, beliefs, symbols, and mission (e.g., culture) of each group can be achieved, increasing the levels of trust between groups. Module 2. Challenges of Reentry. By sharing information and identifying similarities and differences between each group’s experience with reentry, understanding and sensitivity will be increased, leading to more positive working relationships among participating groups. Module 3. Ethics and Responsibilities in Reentry. By examining the qualities and components of a healthy, safe community, participating groups can explore their own roles, rights, and responsibilities as members of the community. Module 4. Decision Making. By learning a specific, structured process for decision making, more positive and productive decisions can be made, which will improve the experience and outcome of the reentry process for each group and for the community. Module 5. Resources. By sharing information and learning methods for locating resources, each group can become empowered both independently and in partnership with other groups, producing more positive outcomes in the reentry process. A draft curriculum was developed and the training piloted in Washington, D.C., in December 2004 in partnership with the Metropolitan D.C. Police Department, faith-based organizations from the community, and ex-offenders. The curriculum consists of both an instructor’s manual and a participant’s manual and is available through MARCPI. Copyright © 2009. Nova Science Publishers, Incorporated. All rights reserved.

For further information, visit http://www.marcpi.jhu.edu/.

Forging Strong and Sustainable Partnerships As the above barriers indicate, confidentiality issues, competing organizational goals, clashing organizational cultures, and mistrust often complicate effective partnerships among police, social service providers, supervision agencies, and the public. And while the goal of reentry efforts is to increase self-sufficiency and promote lawful behavior among former prisoners, such efforts take time to develop and require long-term engagement. One-time interventions are unlikely to result in positive reentry outcomes, and they do little to forge lasting productive partnerships among agencies and the public.

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These obstacles can be minimized—and in some cases overcome— by ensuring clear, consistent, and ongoing communication, outlining specific agency responsibilities for each partner in the reentry initiative.100 These open lines of communication should occur at all staff levels: managers need to engage in honest, ongoing dialogue about operational concerns, territorial issues, and procedural difficulties, and line staff need to be open to each others’ perspectives and be willing to find common ground on which to operate in the community. Sharing resources and joint efforts to assess circumstances that affect the safety of community residents (e.g., by concentrating caseloads geographically to mirror those of community police officers) can strengthen partnerships. Successful and sustainable partnerships are those that take time to articulate the anticipated benefits of the effort to each partner at the table.101 Delegating authority to line-level staff who are open to new ideas and tend to question current ways of doing business can also aid in developing strong and long-term partnerships; this approach is also consistent with the community policing philosophy of giving more authority to line officers.102

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LOOKING FORWARD This report has presented information on why prisoner reentry is an important issue for the policing profession and has described, with the support of examples from the field, various models for police involvement in reentry. Whether harnessing community policing partnerships for the purpose of prisoner reentry, participating in prerelease reentry planning, or joining parole officers in supervision activities, police are crucial partners in the pursuit of successful prisoner reintegration. The benefits of police reentry partnerships can be tremendous, the most important of which are crime reduction and improved prospects for released prisoners leading productive and law-abiding lives. In addition to these key outcomes, the various methods of reentry partnership may yield considerable benefits across all types of police activities. For example, increased information sharing and cross-agency collaboration generated from a police reentry partnership is likely to make other types of public safety initiatives more efficient and effective as well. Likewise, police involvement in prisoner reentry may have the collateral effect of increasing public confidence in all aspects of policing far beyond those of prisoner reentry. While the promise of police involvement in reentry initiatives is great, so too are the challenges. From forging effective partnerships, to overcoming barriers, to data sharing, engaging in reentry efforts can be a difficult undertaking for organizations already strained by the demands of community safety in the post-9/11 era. At the same time, it is encouraging to observe a significant number of law enforcement agencies engaged in reentry efforts in some fashion, with police at the table alongside colleagues from corrections, service and faithbased organizations, victims, and community members. Many of these efforts bring the police’s enforcement capacities to bear, relying on traditional police roles of surveillance, deterrence, and apprehension, while also embracing community policing’s philosophy of engaging in collaborations that involve a broad array of agency and community actors. While 100 101 102

Mc Garrell et al. (2004). Parent and Snyder (1999). Ibid.

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these are important contributions, additional efforts to harness the spirit of police problem solving by considering the context and place in which crime occurs may produce even more effective responses and more sustainable partnerships. As police scholars have observed, applications of problem-oriented policing tend to be weak with regard to both the analysis and assessment stages of the SARA process.103 These same deficits are evident in our review of police reentry initiatives, with very little focus on identifying the underlying cause of the problems stemming from reentry and scant attention to outcome measures. Police reentry partnerships should be assessed not just by whether offending behaviors have declined among the target population or by whether crime rates have declined in the geographic area of the intervention. These critical outcome measures should be enhanced by examining Also important is an assessment of the costs of the intervention relative to its benefits. Even a cursory analysis of costs and benefits can go a long way toward building support for sustainability of the reentry initiative over time. Indeed, perhaps one of the greatest challenges of any type of reentry initiative is obtaining continued financial support. For example, several of the programs we had originally intended to highlight in the text of this report were excluded because a telephone inquiry revealed that after start-up funding ended, so too did the initiatives. This is discouraging, as many of the models of police involvement in reentry highlighted in this report required little in the way of additional resources, relying primarily on leadership from all ranks, starting from the top. whether the reentry effort achieved its intermediate goals, such as increasing employment and reducing drug use among former prisoners. Fortunately, the COPS office has funded several companion initiatives to the Urban Institute’s Community Policing Reentry project that may serve to leverage police leadership on this topic. The Council of State Governments, for example, received a COPS grant to partner with the Police Executive Research Forum to develop a toolkit to help law enforcement agencies determine their level of readiness for involvement in reentry efforts and to guide them through the steps it will take to launch a reentry initiative. The International Association of Chiefs of Police (IACP) also received a COPS grant and is planning a Prisoner Reentry Summit, inviting about 120 police chiefs and other law enforcement officials to discuss and present recommendations on how police might take a lead role in prisoner reentry. IACP is also in the process of surveying its membership on the attitudes of police on the topic of reentry. This survey project, which is funded by the Bureau of Justice Assistance (the technical assistance arm of the U.S. Department of Justice, Office of Justice Programs), can help inform efforts to overcome organizational, cultural, and attitudinal barriers to police involvement in this issue. These initiatives are representative of the enormous momentum in the area of prisoner reentry. Policymakers from across the country—from statehouses to the White House—are seeking bipartisan solutions to the multiple challenges reentry brings to the fore. Practitioner leaders in the fields of corrections, health, housing, and workforce development are claiming reentry as a top priority, as is the faith community. An active role for police in reentry initiatives can only increase the country’s prospects of improving outcomes for released prisoners while safeguarding communities and protecting victims of crime.

103

Scott (2000).

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SIDEBAR 8. National Reentry Initiatives Prisoner reentry has been at the forefront of policy discussions for the last several years. Listed below are some of the major national reentry initiatives that are under way across the nation.

COPS Value-Based Reentry Initiative The Office of Community Oriented Policing Services Value-Based Reentry Initiative (VBRI) supports projects that partner law enforcement agencies and community and faithbased organizations to build safer and healthier communities through the successful reintegration of offenders. The Value-Based Reentry Initiative sponsors five sites in Oakland, California; Washington, D.C.; Boston, Massachusetts; Detroit, Michigan; and Kansas City, Missouri. For more information see http://www.cops.usdoj.gov/default.asp?Item=188. Prisoner Reentry Policy Academy Coordinated by the National Governors Association (NGA), the Reentry Policy Academy works with seven states (Georgia, Idaho, Massachusetts, Michigan, New Jersey, Rhode Island, and Virginia) to assist governors and other state policy makers in their efforts to develop reentry strategies that reduce recidivism and improve access to key services and supports. NGA is currently expanding the Policy Academy to include additional states and state-local partnerships. For more information see http://www.tinyurl.com/fu7az.

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Reentry Mapping Network The Reentry Mapping Network is a partnership among community-based organizations and The Urban Institute designed to create community change through the mapping and analysis of neighborhood-level data on reentry and community well-being. The Networks’ 12 partner sites use mapping to pinpoint neighborhoods that experience high concentrations of returning prisoners and examine the extent to which such communities are equipped to address the challenges that prisoner reentry creates. For more information see http://www.urban.org/content/ PolicyCenters/Justice/Projects/reentry-mapping/. Reentry National Media Outreach Campaign The purpose of the Reentry National Media Outreach Campaign is to expand public awareness and dialogue and facilitate discussion and decision-making around reentry programs. The campaign partners with local organizations that engage in initiatives to strengthen families and neighborhoods and provides media-based resources that highlight innovative programs across the nation. The Campaign has developed a resource guide that describes relevant research and promising practices. For more information see http://www.reentrymediaoutreach. org/. Re-Entry Policy Council Established by the Council of State Governments in 2001, the Re-Entry Policy Council assists state government officials in developing reentry policies and practices to address the growing numbers of prisoners returning to the community. The landmark Report of the ReEntry Policy Council reflects the results of a series of meetings among 100 of the most

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respected workforce, health, housing, public safety, family, community, and victim experts in the nation. The report offers hundreds of bipartisan recommendations to help make prisoners’ transition from a correctional facility to the community safe and successful. For more information see http://www.reentrypolicy.org/.

Serious and Violent Offender Reentry Initiative (SVORI) SVORI is a national effort that addresses the preparation of reentry of both juvenile and adult serious and violent offender populations. SVORI is supported by the U.S. Department of Justice, Health and Human Services, the Departments of Labor, Education, and Veterans Affairs, as well as Housing and Urban Development and the Social Security Administration. SVORI provides funding to develop, implement, enhance, and evaluate reentry strategies with the goal of community safety and reducing violent and serious crime. For more information see http://www.ojp.usdoj.gov/reentry/ and http://www.svori-evaluation.org /index.cfm?fuseaction=dsp_home. Transition from Prison to the Community (TPCI) Abt Associates, in a collaborative effort with the National Institute of Corrections (NIC), developed the Transition from Prison to the Community Model to provide technical assistance to corrections and community corrections administrators. Missouri and Oregon were selected to pilot test this model, and based on these experiences, NIC selected four additional sites in North Dakota, Rhode Island, Michigan, and Indiana. http://nicic.org/resources/topics/ transitionfromprison.aspx.

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ACKNOWLEDGMENTS The authors would like to thank the many individuals and organizations that made this report possible. First, we would like to thank Jeremy Travis, president of John Jay School of Criminal Justice, and Chief Jim Bueermann of the Redlands (California) Police Department for serving as cochairs for the Reentry Roundtable, which serves as the basis for this report. We would also like to thank the Roundtable participants whose thoughtful discussion over the course of the meeting shaped the content of this report. We owe a special thanks to those who prepared discussion papers and presentations that framed the meeting of the Roundtable and greatly influenced this monograph. Early in the life of this project we convened a planning meeting to seek the advice of law enforcement professionals. We thank representatives of the International Association of Chiefs of Police (IACP), the Police Foundation, the National Sheriffs’ Association, and John Hopkins University Police Executive Leadership Program for their sage advice. At the Urban Institute, we benefited from the assistance of Meagan Funches, Dionne Davis, Demelza Baer, Erica Lagerson, and Elizabeth McBride. We also thank Betsey Nevins from the Council of State Governments, John Firman of the IACP, and Chief Jim Buermann of the Redlands (California) Police Department, who provided critical feedback on various drafts of the report. Finally, we are especially grateful for the substantive and financial support provided by the Office of Community Oriented Policing Services (COPS).

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Carl Peed, director of the COPS Office; Pamela Cammarata, deputy director of COPS; and COPS Senior Policy Analyst Katherine McQuay were enthusiastic and resourceful colleagues.

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REFERENCES Allender, David M. “Offender Reentry. A Returning or Reformed Criminal?” FBI Law Enforcement Bulletin 73 (2004) (12): 1–10. Baker, R., R. Hingst, J. Howard, and J. Hoyt. “Information Sharing Increases Correctional Safety and Security: Technology Update.” Corrections Today (June 2001). Lanham (Maryland): American Correctional Association. Bauer, Lynn. Justice Expenditure and Employment in the United States. Washington, D.C.: U.S. Department of Justice, Bureau of Justice Statistics, 2002. Bazemore, Gordan. “A Civic Engagement Model of Reentry: Involving Community through Service and Restorative Justice.” Federal Probation 68 (2004) (2): 14–24. Beck, Allen J. “State and Federal Prisoners Returning to the Community: Findings from the Bureau of Justice Statistics.” Paper presented at the First Reentry Courts Initiative Cluster Meeting, Washington, D.C., April 13, 2001. Beck, Allen J., and Bernard E. Shipley. “Recidivism of Released Prisoners in 1983.” Washington, D.C.: Bureau of Justice Statistics, U.S. Department of Justice, 1989. http://www.ojp.usdoj.gov/bjs/pub/pdf/rpr83.pdf. (Accessed January 24, 2006.) Braga, Anthony A., David M. Kennedy, Elin J. Waring, and Ann M. Piehl. “ProblemOriented Policing, Deterrence, and Youth Violence: An Evaluation of Boston’s Operation Ceasefire.” Journal of Research in Crime and Delinquency 38 (2001) (3): 195–225. Byrne, James M., and Don Hummer. “Examining the Role of Police in Reentry Partnership Initiatives.” Federal Probation 68 (2004) (2): 62–69. Castellano-Hoyt, Don W. Enhancing Police Response to Persons in Mental Health Crisis: Providing Strategies, Communication Techniques, and Crisis Intervention Preparation in Overcoming Institutional Challenges. Springfield (Illinois): Charles C. Thomas, 2003. Center for Sex Offender Management. “Sex Offender Notification and Education” 2001. http://www.csom.org/pubs/notedu.html. (Accessed January 24, 2006.) Clarke, Ronald V. Situational Crime Prevention: Successful Case Studies, 2nd ed. Monsey (New York): Criminal Justice Press, 1997. Cullen, Francis T., John E. Eck, and Christopher T. Lowenkamp. “Environmental Corrections: A New Paradigm for Effective Probation and Parole Supervision.” Federal Probation 66 (2002) (2): 28–37. Dalton, Erin. “Lessons in Preventing Homicide.” Project Safe Neighborhoods: Making America’s Communities Safer. Lansing: Michigan State University, 2003. Dickey, Walter, and Cecelia M. Klingele. “Promoting Public Safety: A Problem-Oriented Approach to Prisoner Reentry.” Paper prepared for the Reentry Roundtable, Prisoner Reentry and Community Policing: Strategies for Enhancing Public Safety, Washington, D.C., May 12–13, 2004. Ditton, Paula A. Mental Health and Treatment of Inmates and Probationers. Washington, D.C.: Bureau of Justice Statistics, U.S. Department of Justice, 1999.

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Eck, John, and William Spelman. Problem-Solving: Problem-Oriented Policing in Newport News. Washington, D.C.: Police Executive Research Forum, 1987. Felson, Marcus, and Ronald V. Clarke. Opportunity Makes the Thief: Practical Theory for Crime Prevention. Police Research Series paper 98. London: Home Office, 1998. Hammett, Theodore M., Cheryl Roberts, and Sofia Kennedy. “Health-Related Issues in Prisoner Reentry.” Crime and Delinquency 47 (2001) (3): 390–409. Harlow, Caroline Wold. Profile of Jail Inmates 1996. Washington, D.C.: Bureau of Justice Statistics, U.S. Department of Justice, 1998. Harlow, Caroline Wold. Education and Corrections Populations. NCJ 195670. Washington, D.C.: Bureau of Justice Statistics, U.S. Department of Justice, 2003. Harrison, Paige M. and Allen J. Beck. Prisons in 2003. Washington, D.C.: Bureau of Justice Statistics, U.S. Department of Justice, 2004. ———. “Prison and Jail Inmates at Midyear, 2004.” Washington, D.C.: U.S. Department of Justice, 2004. http://www.ojp.usdoj.gov/bjs/abstract/pjim04.htm. (Accessed January 24, 2006.) Harrison, Paige M., and Jennifer C. Karberg. “Prison and Jail Inmates at Midyear, 2003.” Washington, D.C.: U.S. Department of Justice, 2004. Herman, Susan, and Cressida Wasserman. “A Role for Victims in Offender Reentry.” Crime and Delinquency 47 (2001) (3): 428–45. Holzer, Harry, Steven Raphael, and Michael Stoll. “Employment Barriers Facing ExOffenders.” Paper prepared for the Reentry Roundtable, The Employment Dimensions of Prisoner Reentry: Understanding the Nexus Between Prisoner Reentry and Work, New York, May 19-20, 2003. http://www.urban.org/url. cfm?ID=410855. Hughes, T., and Doris J. Wilson. “Reentry Trends in the United States.” Washington, D.C.: U.S. Department of Justice, Bureau of Justice Statistics, 2005. http://www.ojp.usdoj.gov/ bjs/reentry/reentry.htm. (Accessed June 29, 2005.) James, Doris J. Profile of Jailed Inmates, 2002. Washington, D.C.: Bureau of Justice Statistics, U.S. Department of Justice, 2005. Johnson, Jean, and John Immerwahr. “The Revolving Door: Exploring Public Attitudes Toward Prisoner Reentry.” Presentation prepared for the Reentry Roundtable, Prisoner Reentry and Community Policing: Strategies for Enhancing Public Safety, Washington, D.C., May 12–13, 2004. http://www.urban.org/url.cfm?ID=900743. (Accessed January 24, 2006.) Karberg, Jennifer, and Doris J. James. Substance Dependence, Abuse, and Treatment of Jail Inmates, 2002. Washington, D.C.: Bureau of Justice Statistics, U.S. Department of Justice, 2005. Karp, David R. The Offender/Community Encounter: Stakeholder Involvement in the Vermont Reparative Boards. In What Is Community Justice? Case Studies of Restorative Justice and Community Supervision, edited by David R. Karp and Todd R. Clear. Thousand Oaks (California): Sage Publications, Inc, 2002. Kelling, George L., and Catherine M. Coles. Fixing Broken Windows. Restoring Order and Reducing Crime in Our Communities. New York: Free Press, 1996. Langan, Patrick A., and David J. Levin. Recidivism of Prisoners Released in 1994. Washington, D.C.: Bureau of Justice Statistics, 2002. http://www.ojp. usdoj.gov/bjs/pub/pdf/rpr94.pdf. (Accessed January 24, 2006.) La Vigne, Nancy G. “Why Map Prisoner Reentry?” Crime Mapping News 6(4): 1–3. Washington, D.C.: The Police Foundation, 2004. http://www. policefoundation.org/.

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La Vigne, Nancy G., and Vera Kachnowski. A Portrait of Prisoner Reentry in Maryland. Washington, D.C.: The Urban Institute, 2003. http://www.urban. org/url.cfm?ID=410655. (Accessed January 24, 2006.) La Vigne, Nancy G., and Cynthia A. Mamalian. A Portrait of Prisoner Reentry in Illinois. Washington, D.C.: The Urban Institute, 2003. http://www.urban. org/url.cfm?ID=410662. (Accessed January 24, 2006.) La Vigne, Nancy G., and Gillian L. Thomson. A Portrait of Prisoner Reentry in Ohio. Washington, D.C.: The Urban Institute, 2003. http://www.urban.org/ url.cfm?ID=410891. (Accessed January 24, 2006.) La Vigne, Nancy G. and Julie Wartell. Mapping Across Boundaries: Regional Crime Analysis. Washington, D.C.: Police Executive Research Forum, 2001. La Vigne, Nancy G., Christy Visher, and Jennifer Castro. Chicago Prisoners’ Experience Returning Home. Washington, D.C.: The Urban Institute, 2004. http://www.urban.org/ url.cfm?ID=311115. (Accessed January 24, 2006.) Lynch, James P., and William J. Sabol. Prisoner Reentry in Perspective. Washington, D.C.: The Urban Institute, 2004. http://www.urban.org/url.cfm? ID=410213. (Accessed January 24, 2006.) Manning, Peter. Policing Contingencies. Chicago: University of Chicago Press, 2003. McGarrell, Edmund F., Steven Chermak, and Alexander Weiss. Targeting Firearms Violence Through Directed Police Patrol. Indianapolis (Indiana): Crime Control Policy Center, Hudson Institute, 1999. McGarrell, Edmund F., Steven Chermak, and Alexander Weiss. Reducing Gun Violence: Evaluation of the Indianapolis Police Department’s Directed Patrol Project. Washington, D.C.: National Institute of Justice, 2002. McGarrell, Edmund F., C. Zimmerman, Natalie Hipple, and Nicholas Corsaro. “The Roles of the Police in the Offender Reentry Process.” Paper prepared for the Reentry Roundtable, Prisoner Reentry and Community Policing: Strategies for Enhancing Public Safety, Washington, D.C., May 12–13, 2004. McWhinnie, A. J., and R. E. Brown. Restorative Justice Alternatives to Parole Suspension. Perspectives (Fall). Lexington (Kentucky): American Parole and Probation Association, 1999. Mobley, Alan. “Turning ‘Weeds’ Into ‘Seeds.’ ” Paper prepared for the Reentry Roundtable, Prisoner Reentry and Community Policing: Strategies for Enhancing Public Safety, Washington, D.C., May 12–13, 2004. Mumola, Christopher J. Substance Abuse and Treatment, State and Federal Prisoners, 1997. Washington, D.C.: Bureau of Justice Statistics, U.S. Department of Justice, 1999. Nelson, Marta, Perry Deess, and Charlotte Allen. The First Month Out: Post-Incarceration Experiences in New York City. New York: The Vera Institute of Justice, 1999. Parent, Dale, and Brad Snyder. “Police-Corrections Partnerships.” Washington, D.C.: National Institute of Justice, 1999. Peter D. Hart Research Associates, Inc. Changing Public Attitudes toward the Criminal Justice System. Telephone survey of 1,056 U.S. adults and six focus groups Open Society Institute, 2001. Re-Entry Policy Council. “Charting the Safe and Successful Return of Prisoners to the Community.” 2005. http://www.reentrypolicy.org/. (Accessed January 24, 2006.)

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Ritchie, B. “Issues Incarcerated Women Face When They Return to Their Communities.” Paper presented at the Urban Institute Reentry Roundtable, Washington, D.C., October 2000. Rosenfeld, Richard, Joel Wallman, and Robert Fornango. “The Contribution of Ex-Prisoners to Crime Rates.” In Prisoner Reentry and Crime in America, edited by Jeremy Travis and Christy Visher (80–104). London: Cambridge University Press, 2005. Rossman, S., S. Sridharan, C. Gouvis, J. Buck, and E. Morley. Impact of the Opportunity to Succeed (OPTS) Aftercare Program for Substance-Abuse Felons: Comprehensive Final Report. Washington, D.C.: The Urban Institute, 1999. Scott, Michael S. Problem-Oriented Policing: Reflections on the First 20 Years. Washington, D.C.: U.S. Department of Justice, Office of Community Oriented Policing Services, 2000. Shapiro, Carol. La Bodega: A Neighborhood Center of Services to Families of Drug Offenders. New York: Vera Institute of Justice, 1997. Solomon, Amy, Michelle Waul, Ashley Van Ness, and Jeremy Travis. Outside the Walls: A National Snapshot of Community-Based Prisoner Reentry Programs. Washington, D.C.: The Urban Institute, 2004. http://www.urban. org/url.cfm?ID=410911. (Accessed January 24, 2006.) Solomon, Amy, Kelly Dedel Johnson, Jeremy Travis, and Elizabeth McBride. From Prison to Work: The Employment Dimensions of Prisoner Reentry. Washington, D.C.: The Urban Institute, 2004. http://www.urban.org/ publications/411097.html. (Accessed January 24, 2006.) Staples, W. The Culture of Surveillance. New York: St. Martin’s Press, 1997. St. Gerard, Vanessa. “New Study Proves Jails Are an Important Component of the Reentry Equation.” On Line 28 (2005):1–2, American Correctional Association. Sullivan, Eileen, Milton Mino, Katherine Nelson, and Jill Pope. Families as a Resource in Recovery from Drug Abuse: An Evaluation of La Bodega de la Familia. New York: Vera Institute of Justice, 2002. http://www.vera.org/ publications/publications_5.asp? publication_id=163. (Accessed January 24, 2006.) Sunshine, Jason, and Tom R. Tyler. “The Role of Procedural Justice and Legitimacy in Shaping Public Support for the Policing.” Law and Society Review 37 (2003):513–48. Taxman, Faye. “Brick Walls Facing Reentering Offenders.” Paper prepared for the Reentry Roundtable, Prisoner Reentry and Community Policing: Strategies for Enhancing Public Safety, Washington, D.C., May 12–13, 2004. Thistlethwaite, Edward. “The Tower Project. Submission for the Nick Tilley ProblemOriented Policing Award.” Blackpool (United Kingdom): Blackpool Central Police Station, 2002. http://www.popcenter.org/Library/Tilley/ 2002/02-33.pdf. (Accessed January 24, 2006.) Thoennes, N. The El Paso County Parent Opportunity Project (POP): An Evaluation. Denver (Colorado): Center for Policy Research, 2002. Travis, Jeremy. But They All Come Back: Facing the Challenges of Prisoner Reentry. Washington, D.C.: Urban Institute Press, 2005. Travis, Jeremy, and Sarah Lawrence. Beyond the Prison Gates: The State of Parole in America. Washington, D.C.: The Urban Institute, 2002.

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Travis, Jeremy, Amy L. Solomon, and Michelle Waul. From Prison to Home: The Dimensions and Consequences of Prisoner Reentry. Washington, D.C.: Urban Institute Press, 2001. Tyler, Tom R. “Enhancing Police Legitimacy.” Annals of the American Academy of Political and Social Science 593 (2004) (1): 84–99. Tyler, Tom R., and Yuen J. Hou. Trust in the Law. New York: Russell Sage, 2002. U.S. Department of Justice, Office of Community Oriented Policing Services, “What is Community Policing?” http://www.cops.usdoj.gov/default. asp?Item=36. (Accessed January 24, 2006.) Visher, Christy, Nancy G. La Vigne, and Jeremy Travis. Returning Home: Understanding the Challenges of Prisoner Reentry. Maryland Pilot Study: Findings from Baltimore.Washington, D.C.: The Urban Institute, 2004. http://www.urban.org/url.cfm?ID=410974. (Accessed January 24, 2006.) Woods, Timothy O. First Response to Victims of Crime: A Handbook for Law Enforcement Officers on How to Approach and Help. Washington, D.C.: Office for Victims of Crime, 2000. Young, Doug, Faye Taxman, and James Byrne. Engaging the Community in Offender Reentry. College Park: University of Maryland, Bureau of Governmental Research, 2002.

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In: Criminal Reform: Prisoner Reentry into Community ISBN 978-1-60692-288-0 Editor: Quintan B. Mallenhoff © 2009 Nova Science Publishers, Inc.

Chapter 2

READY4 REENTRY: PRISONER REENTRY TOOLKIT FOR FAITH-BASED AND COMMUNITY ORGANIZATIONS United States Department of Labor INTRODUCTION Thank you for your interest in prisoner reentry and the Ready4Work (R4W) program. This toolkit, based on the Ready4Work model, is a promising practices guide for small to medium sized faith-based and community organizations interested in starting or bolstering their reentry efforts.

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The Prisoner Reentry Process Each year, more than 650,000 former inmates from state and federal institutions return to communities throughout the U.S. Many of these men and women are returning to resourcepoor neighborhoods, and the only positive place available they have to turn is to a local and trusted faith-based or community organization. As more and more prisoners are released into America’s communities, it is increasingly vital to connect them with sustainable employment and caring mentors to keep them from relapsing into a life of criminal activity. Oftentimes, faith-based and community organizations (FBCOs) are uniquely well positioned to provide quality transitional services to men and women returning from prison. Local FBCO reentry programs can provide ex-prisoners with the compassion and services they need to thrive in the communities they are returning to. Placing ex-prisoners in steady employment that matches their abilities and needs is an important effort that helps ensure the safety of America’s streets and the successful integration of ex-prisoners into America’s communities. Recidivism is a vicious cycle of crime, prison, more crime, reim-prisonment, and so on. Statistics show that more than two-thirds of released prisoners will be charged with new crimes within three years following their release, and over half will be

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reincarcerated . According to criminal justice experts, an attachment to the labor force through stable employment, in concert with family and community connections, is a key element in helping ex-prisoners break this cycle. Oftentimes, former inmates face numerous barriers to successful employment, including: (1) employers often are hesitant to hire ex-prisoners for various reasons; (2) ex-prisoners often lack skills to properly market themselves to potential employers; and (3) ex-prisoners frequently lack the needed social supports that allow them to enter and remain in the workplace. These and other obstacles to reentry, such as substance abuse and housing, create a demand for structured reentry programs. Often times, employers in need of qualified workers are more likely to hire ex-prisoners who are supervised by a reentry program than those who are not. A well-structured and highly-regarded program can make a big difference in the lives of ex-prisoners in your community.

The Ready4Work Model

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In 2003, the Department of Labor launched R4W, a three-year pilot program to address the needs of ex-prisoners utilizing FBCOs. This $25 million program was jointly funded by the U.S. Department of Labor (DOL), the U.S. Department of Justice, Public/Private Ventures (P/PV)—a Philadelphia-based research and demonstration non-profit—and a consortium of private foundations. The program was administered by P/PV. R4W placed faith-based and community organizations at the center of social service delivery to ex-offenders. It placed an emphasis on employment-focused programs that incorporate mentoring, job training, job placement, case management and other comprehensive transitional services. R4W served adult offenders in eleven sites across the nation. To be eligible to participate in the adult R4W sites, an ex-prisoner had to be between the ages of 18 and 34 and within 90 days of release. Ex-prisoners who had been convicted of violent or sexual offenses were not eligible for the program. Each site was encouraged to recruit up to 40 percent of their participants prior to their release from prison. Clients were served up to 12 months, and each site had to maintain an active caseload of at least 125 participants. The R4W model had three central components: (1) case management, (2) mentoring and (3) job training and placement. Each of these components will be covered in detail in later chapters.

Ready4Work Adult Sites The eleven R4W adult sites funded by the DOL Employment and Training Administration are listed in the following table.

Ready4 Reentry Ready4Work Adult Lead Agencies Allen Temple Economic and Development Corporation (Allen Temple Baptist Church) America Works (with Hartford Memorial Baptist Church) EIMAGO (Union Rescue Mission) East of the River Clergy-Police-Community Partnership Exodus Transitional Community Operation New Hope Search for Common Ground Second Chance Ex-Felon Program (City of Memphis) The Safer Foundation 5C’s Foundation (Wheeler Avenue Baptist Church) Word of Hope Ministries (Holy Cathedral Church of God in Christ)

Organization Type Faith-based nonprofit

55 Site Location Oakland

For-profit Detroit in partnership with religious congregation) Secular nonprofit Los Angeles Faith-based nonprofit

Washington, DC

Faith-based nonprofit Faith-based nonprofit Secular nonprofit City program Secular nonprofit Faith-based nonprofit Faith-based nonprofit

New York Jacksonville Philadelphia Memphis Chicago Houston Milwaukee

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Ready4Work Results The R4W pilot program formally ended August 31, 2006. The results of the program, which were verified by an independent third party, are promising. A total of 4,482 formerly incarcerated individuals enrolled in R4W. Of these participants, 97 percent received comprehensive case management services, 86 percent received employment services and 63 percent received mentoring services. R4W sites placed 2,543 participants (57 percent) into jobs, with 63 percent of those placed retaining their job for three consecutive months after placement. On average, program costs were approximately $4,500 per participant, compared with average costs of $25,000 to $40,000 per year for re-incarceration. Data analysis on R4W prepared by P/PV shows that only 2.5 percent of R4W participants have been re-incarcerated in state institutions within 6 months of release, and 6.9 percent were re-incarcerated at the one-year post-release mark. Though these statistics are promising, it is important to note that a random-assignment study has not been performed, so no strict control group existed for the sake of comparison. When, however, compared against the recidivism benchmark from the Bureau of Justice Statistics (BJS) re-incarceration study, “Recidivism of Prisoners Released in 1994 ,” R4W recidivism rates are half the national re-incarceration rate of 5 percent at six-months and 44 percent lower than the 10.4 percent national rate of re-incarceration one-year after release.

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R4W recidivism statistics are of particular significance given the fact that the program’s population was at a statistically higher risk for recidivating than the general ex-prison population represented by the BJS statistic. When compared against a subset of the 1994 BJS study that includes only African American male inmates between the ages of 18 and 34 released after serving time for nonviolent offenses, the 2.5 percent recidivism rate for R4W participants at 6 months is 58 percent lower than the 6 percent BJS benchmark figure. The 6.9 percent R4W recidivism rate at the one-year post-release mark was 52 percent lower than this BJS subset at the one-year post-release point.

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Over 60 percent of R4W participants received mentoring as part of their services. Participants who met with a mentor at least once showed stronger outcomes than those who did not participate in mentoring in a number of ways: • •

•

Mentored participants remained in the program longer than unmentored participants (10.2 months versus 7.2 months). Mentored participants were twice as likely to obtain a job. After the first encounter, an additional month of meetings between the participant and mentor increased the former’s likelihood of finding a job by 53 percent. Meeting with a mentor increased a participant’s odds of getting a job the next month by 73 percent over participants who did not take advantage of mentoring. An additional month of meetings increased aparticipant’s odds of finding a job by another 7 percent.

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Those who met with a mentor were 56 percent more likely to remain employed for three months than those who did not. An additional month of meetings with a mentor increased the participant’s odds of remaining employed three months by 24 percent.

A complete analysis of mentoring outcomes can be found in Mentoring Ex-Prisoners in the R4W Reentry Initiative, on-line at www.dol.gov/cfbci.

Ready4Reentry Toolkit Ready4Reentry Toolkit is a collection of practices and tools for small to mid-sized FBCOs involved or anticipating involvement in prisoner reentry based on the experience of successful reentry program. Following the R4W model, this toolkit explores the building blocks of a successful reentry program and provides examples of promising practices drawn from the eleven adult R4W sites. This toolkit is meant to provide real world examples that may assist FBCOs in establishing effective case management, mentoring and job training and placement services in their reentry curriculum. Other areas essential for operating a successful reentry program, such as forming community partnerships and adopting effective recruiting practices, are also covered in the toolkit. Each chapter of the toolkit focuses on a distinct issue facing FBCOs and offers related practices from R4W. Chapters are divided into sections that include:

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(1) (2) (3) (4)

an overview of the chapter topic, a few innovative practices used by R4W sites, a set of action questions to help you evaluate your prisoner reentry program, and sample job descriptions and documents from R4W.

Each chapter’s initial discussion will orient you to the central issues in that chapter. It will provide you with a general, and in some cases specific, understanding of the subject matter. The next section will provide you with ideas on how to proceed by referencing particular practices from the R4W adult sites and by posing valuable questions meant to encourage you to take action. The remaining pages include practical documents, including sample job descriptions, agreements, and publicity tools, each on its own page, patterned after those used by R4W. Before entering into any agreements it is wise to consult with a legal representative.

Tools: Job Descriptions and Documents The job descriptions and documents included in this toolkit are intended to be user friendly and adaptable to your particular program. You should use these tools to customize your own program descriptions and documents. Each item includes a reminder to add program-specific information before integrating the job description or document into your practice of reentry.

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Job Descriptions Identifying and filling important roles with qualified employees and volunteers is crucial to providing quality services to program participants. This can be accomplished more effectively and more efficiently if your organization is clear in defining the requirements for each position. Creating a file of detailed job descriptions will aid in this process. Several of the chapters in this toolkit include sample job descriptions from R4W sites. Some of the roles are essential, such as a Case Manager, while others are optional, such as an Employer Recruitment Specialist. Your program may choose, for example, to integrate the duties of this job developer into the job description of your case managers. The mission of your organization, the size of your budget and your organiza-tion-specific circumstances will determine how many employees are required to effectively run your organization’s programs. You must always keep in mind that assigning too much responsibility to one staff member may result in a lower quality of service. The job descriptions included in this toolkit are summaries of actual job announcements from the R4W sites. The positions listed should satisfy the needs of a small, communitybased program. If your organization is larger, requiring more than several case managers, it may be expedient to add another level of management and divide the tasks between more employees, possibly including positions not listed here. For instance, Eimago, in Los Angeles, splits management responsibilities among several positions, including a program coordinator, a program director and a program manager. In smaller agencies, many tasks can be delegated to the case managers and/or volunteers in lieu of hiring additional management or an extra employment specialist.

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Documents This toolkit also features examples of useful documents – applications, forms, agreements, flyers, etc. – modeled after those used by R4W sites. These documents are provided for you to create documents that will specifically suit your organization’s needs. The original documents were collected from both P/PV and the R4W sites. We hope that your organization finds this toolkit informative and beneficial to your current or future prisoner reentry programs. Each chapter is designed to stand alone from the rest of the toolkit, but it is most beneficial to read the entire toolkit to understand some of the best practices for prisoner reentry programs. If you have any questions regarding workforce development, prisoner reentry or the content of this toolkit, do not hesitate to contact the Center for Faith-Based and Community Initiatives at the U.S. Department of Labor. U.S. Department of Labor Center for Faith-Based and Community Initiatives 200 Constitution Avenue, S2235 Washington, DC 20210 www.dol.gov/cfbci Email: [email protected] Phone: (202) 693-6450

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The Memorandums of Agreement/Understanding, applications, forms, flyers, etc. inserted throughout this toolkit are examples of agreements that Ready4Work used in its programs. The Department of Labor does not endorse these documents as conforming to federal law. Rather, each organization should consult with a legal representative to adapt these documents to their organization’s needs and to ensure the final agreements are in accordance with local, state and federal law

CHAPTER I: LAUNCHING A REENTRY ORGANIZATION This chapter features successful practices employed by faith based and community organizations who train and equip ex-prisoners for successful reentry into their communities. While it is beyond the scope of this publication to go into how and why the organizations participating in Ready4Work (R4W) formed, it is relevant to engage the mission of each organization and to understand how they became involved in reentry generally and in R4W specifically. R4W lead organizations vary in terms of experience. Some have years of experience with reentry, while others have only recently entered the field by expanding their work with other populations (e.g., the homeless). Each organization’s path to helping ex-prisoners is unique. For example, you may lead an existing organization that wishes to become involved in reentry, or you may desire to create a new nonprofit to serve ex-prisoners as they reenter their communities. Alternatively, you may want your house of worship to organize a separate entity for ex-prisoner outreach. The following are examples of organizations that participated in the R4W program.

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Reentry Organizations Created to Deal Solely with Ex-Prisoners Safer Foundation (Safer) and Exodus Transitional Community (Exodus) both existed prior to R4W solely to reach out to ex-prisoners. While they may have a common vision, the organizations’ size, structure and strategies are very different. Safer, located in Chicago, Illinois, is the largest provider of services to ex-prisoners in the United States. Safer has operated since 1972 and now has nine locations in Illinois and Iowa, a staff of approximately 300 and an annual budget of $19.1 million. Safer has served over 8,000 ex-prisoners and places over 1,700 into employment yearly. Exodus, located in New York City, is engaged in much of the same activity, but on a smaller scale. Founded by a former inmate in 1999, Exodus dramatically expanded its service capacity following its involvement with R4W. Exodus now reaches out to approximately 500 ex-prisoners a year. Both Safer and Exodus remain committed to helping ex-prisoners reintegrate into the community and secure a lasting attachment to the labor market.

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Church-Established Offshoot Organizations to Serve Community Needs Churches often launch spin-off organizations to serve a particular community more efficiently and effectively. These organizations take a variety of forms – from an agency devoted exclusively to serving prisoners to one committed to numerous underserved populations. This is the case with Wheeler Avenue Baptist Church, Allen Temple Baptist Church and Holy Cathedral Church of God in Christ. Wheeler Avenue has been providing social services in Houston, Texas since its inception in 1962. The lead agency at this site is Wheeler Avenue’s 5C’s Foundation, an organization formed by the church for community development efforts. Allen Temple, a congregation of 5,500 members in Oakland, California, created the Allen Temple Housing and Economic Development Corporation to help lowincome residents find housing and jobs. The Holy Cathedral Church of God, in Milwaukee, Wisconsin, created Word of Hope Ministries, a comprehensive service provider. As demonstrated by these three churches, religious congregations can create nonprofit agencies as one way to supply their communities with necessary services. Through these organizations, churches are able to provide separate staffing and bookkeeping, which provide organizational independence that can provide high-quality management and financial accountability.

Some Organizations Must Adapt to Serve Ex-Prisoners Many groups are already serving other segments of their communities and desire to integrate a reentry program into their existing operations. Operation New Hope, housing and community development service organization located in Jacksonville, Florida, and Philadelphia’s Search for Common Ground, an international conflict resolution organization, are two examples of organizations already serving their communities that desired to reach out to the ex-prisoner population by incorporating a reentry program into their services. While an established organizational culture with a lack of expertise in reentry may present unique challenges, a good reputation can enable your organization to recruit new staff members with experience in reentry and/or workforce development in order to leverage resources within the community.

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Some Organizations Serve Similar Populations America Works and the Union Rescue Mission have years of experience serving populations, including ex- prisoners, and offer services necessary for successful reentry. America Works, located in Detroit, Michigan, is a for-profit, experienced welfare-to-work agency operating since the early 1980s. Union Rescue Mission, founded in 1891, is a faithbased homeless shelter in Los Angeles, California. America Works and the Union Rescue Mission have successfully integrated the R4W program into their organizations. Both organizations altered staff and curriculum to adjust to R4W requirements. If your organization is currently serving a similar population and wants to become more involved with the ex-prisoner population, this toolkit will help enable you to do that. Highlighting your organization’s desire to reach out to the ex-prisoner population may facilitate your recruitment of new partners and resources within your service area.

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Some Ex-Prisoner Organizations Were Recently Created to Address Community Needs In other organizations, a lead agency was created specifically to assist ex-prisoners’ reentry into their respective communities. For example, in Memphis, Tennessee, the Second Chance Program is an innovative initiative created by the mayor’s office to help local exprisoners reenter the community. Another example is East of the River Clergy-PoliceCommunity Partnership (ERCPCP). ERCPCP was formed in the District of Columbia to combat crime and facilitate successful reentry. ERCPCP estimates that 40 percent of the organization’s efforts are devoted specifically to reentry. Creating a new organization in response to the reentry crisis may be a necessary step in many communities across the United States because reentry touches many lives in a community – from the neighborhoods affected by high crime to the children without their incarcerated parents to the businesses that need dependable employees. ERCPCP saw a need east of the Anacostia River in Washington D.C. and enhanced their organization’s social services to include reentry. If you assess the needs of your community, you may find a specific, pressing need for more effective reentry services.

Action Questions 1. How has the reentry crisis affected your community? What is the crime rate in your community? How many men and women are reentering your community from prison? 2. Do ex-prisoners in your area have access to a reentry program? 3. What can be done to address the issues caused by crime and prisoner reentry in your community? 4. Which of these services can be offered by your organization? 5. Which organization discussed in this chapter seems must like your organization? Why? 6. Follow-up by researching and/or contacting the organization you referenced in question 5 to gain a greater understanding of the organization’s reentry program.

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CHAPTER II: DESIGNING AN EFFECTIVE PROGRAM STRUCTURE An effective program structure serves as the backbone of your organization’s reentry efforts. It is important to remember that reentry programs come in many varieties. Most R4W sites follow a more traditional social service model accompanied by additional unique concepts that depend on the type of agency offering the services. The 11 adult sites in R4W include six faith-based organizations, three secular nonprofits, one city program and one forprofit company. Each organization approaches reentry from a unique and dynamic position, allowing their strengths to determine the nature of each site-specific program. The sites all serve the same target population, but each site takes a unique approach in administering their services. Identifying your organization’s strengths is the first step in designing an effective program structure. For instance, if you operate a congregation-based nonprofit, you may want to take greater advantage of recruiting volunteers. If you do not have a large network of

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volunteers, it may benefit your organization to connect with FBCOs in your area for the purpose of recruiting volunteers. Partnership between a reentry program and local FBCOs will further all stakeholders’ missions by advancing community cooperation and by maximizing the strengths of all the organizations involved. This chapter provides the basic model that has shown proven success throughout the R4W demonstration and an introduction to the unique variations of this model in the specific adult sites. Reviewing the fundamental R4W model should provide insight into how to structure your organization.

General Program Structure: From Recruitment to Placement and Beyond

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There is a common approach taken by the R4W program organizations:

During the intake process, R4W participants are assigned to an individual case manager. Following the initial assessment, case managers develop a service plan for each participant to give the participant the best chance of a successful transition from prison to work. Thereafter, participants go through orientation, ranging from one day to a week-long course, often including an overview of the program, individual education and skills assessments and softskills development workshops. Based on each individual’s situation, this plan might include additional services not offered in the standard program, such as drug or alcohol treatment, transitional housing and/or childcare. These services may be offered through referrals to other providers. All R4W sites provide job-readiness training. Job-readiness training covers resume writing, interviewing, computer skills and other preparatory tools. Following the completion of all program components, participants are placed in employment through job leads from classified advertisements and/or from participating employers. Throughout the program, the sites connect participants with a mentor. Many volunteer mentors are recruited from religious congregations in the community. Organizations continue to follow-up with participants after they place them into employment. These follow- ups become less frequent over time, as the participants become more integrated into their community.

Diversity Determines Divergent Structures While all of the R4W sites include some form of faith-based and community partnership, each site incorporates unique approaches to case management, mentoring and supportive services. Organizational structures often determine the exact nature of the program itself. For instance, some organizations offer support services in-house and others do not; some organizations recruit in prisons immediately prior to release, while others do all recruitment from within affected communities; some programs perform intake and case management in a

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central program office while others deal with clients at neighborhood-based locations throughout the city. These program distinctions are described in the following chapters. There are many options from which to choose, but you must assess your organizational strengths and weaknesses carefully and choose the approach that best suits your particular organization.

Action Questions How are ex-prisoners different from the population you currently serve? What unique needs do ex-prisoners have that your current clients do not? Is serving ex-prisoners consistent with your organization’s mission? If so, what programmatical changes must be made to effectively serve ex-prisoners? If you are currently operating a reentry program, draw a map of your program. What similarities exist between your approach to reentry and R4W’s approach? What differences exist? 6. What do you hope to learn from the R4W model? 1. 2. 3. 4. 5.

Position Title: Program Manager Responsibilities/ Duties • • • • • •

Manage all aspects of the reentry program Supervise Case Managers, Employment Training Specialists, Employer Recruitment Specialists and Volunteers Develop organizational partnerships with government and private and nonprofit entities Monitor the quality of services offered Account for all funds associated with the program Perform any other duties necessary to properly manage the program

Minimum Qualifications

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• • • • • • • •

Bachelor’s Degree in Business/ Public Administration, Communications, Criminology, or any related field Master’s Degree preferred (MBA, MPA, MPP, MSW, or MA/MS in related field) 3-5 years experience managing social services with a nonprofit or other entity Excellent verbal, written and interpersonal communication skills Ability to work effectively with people of diverse educational and cultural backgrounds, from ex-prisoners to public officials Computer literacy, including knowledge of basic software applications and familiarity with the internet and email communications Knowledge of the criminal justice system and experience working with ex-prisoners Ability to travel within the metropolitan area and nationally or internationally if required

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Sample Job Description: Program Manager Every organization offering reentry or any other social service needs an administrator to supervise all aspects of the program. This position may be referred to as the program manager, coordinator, supervisor or director. It may also consist of multiple positions depending on the size and structure of the organization. In a small organization, the Executive Director may fill this role. In most other organizations, however, this position is a distinct role that focuses on managing one individual program or a set of programs, such as R4W or all of the organization’s prisoner reentry efforts.

CHAPTER III: FORMING SUCCESSFUL PARTNERSHIPS No organization can effectively meet all of the needs of the ex-prisoner population. Community and strategic partnerships make successful reentry possible. Working with criminal justice officials, the faith and nonprofit community, local employers, One-Stop Career Centers, as well as mental health, substance abuse and other social service providers will allow your organization to effectively identify, serve and place clients. Partnerships that provide drug and alcohol treatment, transitional housing and other services should be a component of any well-designed reentry curriculum. Even if your organization intends to provide in-house job preparation and support services, outside partnerships with employers are still necessary for job placement. Partnerships are also very helpful for non-placement activities, such as recruitment, referrals and retention. Take advantage of the immeasurable resources offered by faith-based, community-based and other organizations in or near your service area.

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Building and Sustaining Powerful Partnerships It is essential that you begin the coalition-building process as early as possible. Building partnerships with other organizations can be as simple as creating a referral relationship that benefits all parties involved. For example, if an organization is struggling to recruit clients for its drug addiction program and your reentry clients desperately need drug treatment, it makes sense to develop a referral network that benefits both parties. The same is true in many other relationships, such as those with local businesses. Businesses need employees and your participants need jobs. Corrections agencies need help preventing crime and you have an interest in keeping ex-prisoners from recidivating. FBCOs can be effective partners in these types of relationships. However, coalition-building will not create an enduring reentry program unless a conscious effort is made to nurture existing organizational relationships. You must work towards sustainable partnerships through frequent dialogue and joint-evaluation of the relationship. Connecting one addict with the drug treatment he/she desperately needs will change one life. On the other hand, it is possible to point hundreds in the direction of recovery through a long-term, multi-year partnership. Encourage your reentry participants to treat other organizations with respect in order to lay the groundwork for future participants.

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Formal Agreements It is advisable that your organization formalize its working relationships through a written agreement known as a Memorandum of Agreement or Understanding (MOA/MOU). This document sets out the clear roles of each party, the terms of the relationship and the potential causes for separation. Several examples of these agreements are included at the end of this chapter. However, before entering into any agreements, it is wise to consult with a legal representative.

Partnering with One-Stop Career Centers Partnering with the One-Stop Career Center in your area is an easy way to offer quality employment services to your clients. One-Stops are designed to provide a full range of assistance to job seekers. Established by the Workforce Investment Act, the centers offer training referrals, career counseling, job listings and other employment-related services. Clients can visit a center in person or connect to the center’s information remotely kiosk. Contact your local One-Stop today to begin to build a relationship and to find out what services are available for your clients. For more information or to search for a One-Stop location in your area, visit www.careeronestop.org

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Example 1: East of the River Partnership Brings Together Clergy, Policy and Community Washington, DC’s East of the River Clergy-Police-Community Partnership (ERCPCP) is an example of public- private partnership in action. ERCPCP has been successful at organizational relationship-building. The collaboration consists of 1) clergy – the faith community, 2) police – law enforcement agencies and 3) community – the affected neighborhoods and community-based groups. The partnership was formed by two local pastors, Rev. Anthony Motley and Rev. Donald Isaac, along with former DC Police Chief Charles Ramsey, who connected with community leaders to help form the partnership. The founders modeled ERCPCP after the Boston Ten-Point Coalition, an ecumenical group of ministers and lay leaders working to encourage action on minority youth issues from within the Christian community. The three Washington, DC leaders coordinated a trip to Boston to observe the “ten-point” effort along with other area institutions. Initially, ERCPCP held steering committee meetings once every month, which were open to the public. At these meetings, partners would voice their concerns about where ERCPCP’s efforts should be directed. As these meetings gained publicity, the partnership base increased. ERCPCP served as the central location to learn about resources in the community and was responsible for coordinating meetings to ensure that existing service gaps were covered. In its formative stages, ERCPCP was viewed as the coordinating entity at the table. Today, ERCPCP identifies its role as “connecting the dots” between service providers interested in facilitating reentry and a crime-free community. ERCPCP’s partnership network includes many organizations from throughout DC. In the area of job readiness, ERCPCP regularly works with the Congress Heights Training

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Center for literacy instruction, a concrete construction company for job placement and Carter Investment for job readiness, housing and placement. Carter Investment is a faithcentered organization that provides transitional housing and real estate training for homeless men. ERCPCP also partners with the Court Services and Offender Supervision Agency for the District of Columbia (CSOSA), an independent federal agency established by Congress in 1997 to offer support and assistance to offenders under supervision in DC. This unique program links CSOSA-supervised offenders with ERCPCP and other reentry services, including mentoring. ERCPCP also works closely with the Naylor Road One-Stop Career Center because of Naylor’s focus on reentry. The two agencies share referrals and ERCPCP’s job placement specialist works with the One-Stop Career Center’s team of specialists to provide supportive services to participants.

Example 2: Safer Foundation Establishes “Mini-Sites” in Affected Communities Chicago’s Safer Foundation (Safer) relies on partnerships for the administration of its R4W program. Safer partners with four different denominational congregations to establish “mini-sites” in several affected neighborhoods throughout Chicago. They include: • • •

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•

Saint Sabina, an African-American Catholic church (West Englewood/Auburn Gresham) People’s Church of the Harvest C.O.G.I.C., a Church of God in Christ congregation (North Lawndale) Ambassadors for Christ, a non-denominational church (Englewood/Auburn Gresham) Trinity United Church of Christ, an African-American U.C.C. congregation (Auburn Gresham)

These four churches serve as regional headquarters for R4W throughout Chicago. Each site is equipped with R4W office space, a Reentry Counselor (i.e., case manager) on site, a mentor coordinator from the congregation and numerous volunteer mentors. These partnerships with faith institutions allow Safer to fulfill its recruitment goalsSafer has formed additional partnerships to provide employment-related services in the community. Safer works with the Mayor’s Office of Workforce Development and the Council for Adult and Experiential Learning to link R4W participants with training providers that have industryrecognized credentials. Training providers supply R4W participants with adult literacy education leading to a High School diploma or GED certificate and possibly a credential in a vocational trade. In addition, community colleges partner with Safer to offer specific vocational training, including Olive Harvey College and Prairie State College that offer commercial driver’s license training and Kennedy King College that provides automotive mechanic certificates. Safer also partners with the One- Stop Career Center in Chicago for hard skills training and to utilize the One-Stop’s employer database system. According to Rev. Steve Epting, Safer’s Associate Vice President for Faith and Community Partnerships, “Critical lessons were learned through the R4W program that will

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facilitate success in future initiatives. First, services are best delivered in communities most affected by reentry.” Safer accomplished this by partnering directly with congregations in the various neighborhoods. Rev. Epting continued, “Second, true community partnerships must be established among clients, family, church and public and private organizations. Third, employers must be brought into these partnerships as full-fledged members. Fourth, partnerships work. If any element is missing, that becomes a barrier to successful reentry.”

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Example 3: Search for Common Ground Builds Consensus Search for Common Ground (SFCG) is an international organization that conducts conflict resolution in over a dozen countries. SFCG convened a policy consensus workgroup in Philadelphia along with local stakeholders to address the prisoner reentry crisis. These stakeholders included the Probation and Parole Department, the Police Commissioner, Philadelphia Prison System and local faith-based and community organizations. These groups together formed the Philadelphia Consensus Group on Reentry and Reintegration of Adjudicated Offenders. SFCG’s unique ability to foster cooperation and consensus greatly aided this process. The Philadelphia Consensus Group’s membership included two unlikely partners: the District Attorney’s Office and the Public Defender’s Association. The consensus group collaborated and made over forty recommendations to improve the current system of integrating ex-prisoners into the community. As a result of the partnerships that developed through this process, SFCG was in a unique position to effectively implement and manage Philadelphia’s adult R4W site. SFCG began the demonstration partnering with various FBCOs to provide all the core components of R4W, including case management, mentoring and job placement. Some partnerships were formal, complete with a Memoranda of Agreement (MOA), and others were more informal, built on the relationships developed through the consensus process. During the first year of R4W, SFCG provided sub-grants and technical assistance to four faith-based organizations (FBO) and one community-based organization (CBO) who in turn provided the core services of R4W. As the demonstration advanced, SFCG’s program evolved. SFCG partnered with one FBO to provide the core components of R4W in the second program year. Eventually, SFCG decided to take direct responsibility of the core services for R4W and to establish its own program office. However, SFCG continued to partner with other government agencies, FBOs and CBOs for recruitment and to provide supplemental services. SFCG partnered with the Philadelphia Adult Probation and Parole Department (APPD) from the beginning of R4W. This relationship has allowed SFCG to effectively make use of APPD resources. APPD has made many in-kind contributions to SFCG’s implementation of R4W, including access to office space and criminal databases and providing referrals and copies of court petitions for participant recruitment purposes. This partnership has been essential for SFCG’s ability to effectively recruit and screen participants for R4W. The Philadelphia Prison System (PPS) is another one of SFCG’s criminal justice partners. The consensus process made arrangements for SFCG’s access to PPS. The SFCG staff has organized several recruitment events at PPS for inmates to access R4W services. SFCG has also partnered with Turning the Tide, an FBO, to coordinate the mentoring component of

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R4W. Turning the Tide recruited over 40 mentors from the faith community to serve as mentors in R4W. The Transitional Work Corporation (TWC) provides job placement services to Philadelphia R4W participants. TWC, an organization that usually serves the welfare-to-work population, collaborated with SFCG to modify the TWC model for ex-prisoners in order to serve approximately 75 R4W clients. Services provided through this partnership include job readiness classes, a transitional work experience and eventual placement in permanent employment. In addition, SFCG developed a relationship with the local One-Stop Career Centers, called CareerLink, and SFCG staff often refers participants to CareerLink locations. Once referred, SFCG staff notifies CareerLink that a referral has been made. The R4W participant then works with a job developer who specializes in ex-prisoner job placement.

Action Questions 1. What services does your organization offer that you would consider your “core competencies”? What other services might be necessary for successful reentry that your organization might not be providing? 2. List organizations that you currently partner with. What services are not offered by these organizations that you may want to secure through new partnerships? 3. What organizations do you believe offer these services in your community? How might you build a bridge between the two agencies? 4. Are you aware of the nearest One-Stop Career Center? Do you know what services they offer? 5. Who do you know – people and organizations – that offer services that would complement the services you offer? 6. How can you go about creating and maintaining partnerships for complimentary services that your organization might not offer?

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Sample Document: Memorandum of Agreement (MOA) with FaithBased Partner/Congregation or Community-Based Organization (Insert your organization’s name and information, as well as the name and information of the partnering organization. The original MOA that this sample is patterned after refers specifically to a partnership with an organization for the purpose of recruitment and mentoring. This MOA will require alteration to apply to your specific organization and partnership.) MOA Between (Your Organization) And (Partnering Organization) Ready4Work (Program Name)

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I. The Parties The parties to this Memorandum of Agreement (MOA) are: • •

Primary Organization (Primary), address Partnering Organization (Partner), address

II. Term of this Agreement This agreement is effective between (start date) and (end date). III. Description of the Project Ready4Work (R4W, or Program) is a demonstration program focused on assisting young ex-offenders, 18-34 years of age, leaving places of incarceration and reentering area communities. The Program has three primary components: case management, mentoring, and employment. R4W is intended to positively affect the lives of its participants, their family, and their community. (Attach a more-detailed Program Description to a completed MOA.) IV. Scope and Purpose of this Memorandum The purpose of this memorandum is to outline: •

•

The roles and responsibilities of Primary and Partner in connection with the funding and operation of the Program during the period specified above. Specifically, this MOA will delineate the role of Primary and the role of Partner in relation to the Program. It also outlines how grant funds from Primary will be disbursed to, used by, and accounted for by Partner.

V. Roles and Responsibilities of Primary Operational Responsibilities

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•

•

• • •

Primary is the lead agency responsible for the Program. As such, Primary will implement its Program in accordance with the mission and strategic work plan of the organization. Primary will work with Partner to recruit 30-40 eligible participants for the Program. An eligible participant is any man or woman (age 18-34) who has been sentenced and served time for a non-violent and non-sexual felony offense. An eligible participant must be enrolled prior to release from confinement or within 90 days of release. Primary will complete intakes on participants. Primary will provide or coordinate employment training and placement opportunities for participants Primary will provide case management services, providing direct or referral services in all areas relating to barriers to successful reentry, including, but not limited to, child support, housing, addiction, physical and mental health, and family support.

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•

• •

•

Primary will provide guidelines to assist Partner with determining criteria for mentor selections and the mentoring component. Primary will provide office equipment and furniture set-up for Partner’s Program office, including a desk, computer, fax, phone, computer, and will cover the costs of Program phone/ fax calls each month. Primary will provide mentor screening, training, and match services for Partner’s recruited mentors. Primary will coordinate with Partner’s Mentor Coordinator to facilitate these services. Primary will facilitate at least one group celebration event each year for all mentors and participants. Primary will work cooperatively with Partner and meet at least quarterly with the Program Leader or other delegate appointed to review progress and at least monthly with the Mentor Coordinator to discuss, review, and plan program progress. Primary will work with Partner to provide capacity building and technical assistance aimed at planning for Partner’s long-term funding and service delivery to returnees.

Reporting and Research Responsibilities •

Primary will provide administrative and physical security for personally identifiable data and to preserve the anonymity of participants in the Program.

VI. Roles and Responsibilities of Partner Operational Responsibilities •

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•

•

Partner will develop and implement the mentoring component for the Program. The mentoring component includes recruitment and retention of mentors, ensuring all mentors’ completion of screening, interviewing, training and match-components; engagement in consistent mentoring activity; and maintenance/ submission of mentor documentation. Partner is responsible for meeting the goals outlined in the work plan (attach). Activities performed by Partner will be at their own expense unless outlined within this MOA. Partner is responsible for recruiting and ensuring that 10 qualified mentors are actively involved in the Program for the 12-month period. Active involvement entails 4-8 hours per month of face-to-face positive interactions with participants. A qualified mentor is a mature, caring adult committed to devoting focused, quality, and consistent time to the participant, with the goal of helping the participant become a responsible adult member of the community. Mentors shall not have been convicted of any sex crime or crime against children; nor convicted of a violent offense within the last 5 years. The mentor should view his/ her role as developing a trusting relationship with the participant, as well as being an agent of change for the participant. Partner will provide a Mentor Coordinator for the Program. The Mentor Coordinator is the primary contact for the mentoring program. The Mentor Coordinator is responsible for the recruitment and retention of mentors; the facilitation of the group

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mentoring sessions; ensuring all required forms are submitted on time; and mentors are actively participating in the program. Partner’s Program Leader will regularly participate on Program’s advisory body twice per year. The advisory body will be composed of the faith community, business community, corrections, and community leaders. The advisory body will meet twice per year with Primary leadership to offer guidance and resources in building and sustaining the Program. Partner will work cooperatively with the Primary program staff. Partner will participate in at least quarterly review sessions and provide monthly mentoring progress updates. Partner will provide office space for at least one case manager. This office space must have access to phone lines, computer connections, and adequate space and privacy for conducting participant intakes and storing secure files Partner will provide space for conducting employment training and hosting group mentoring sessions. Partner agrees to participate in Program events, including but not limited to participant success celebrations, mentoring learning sessions, and media events. Partner will make available other supportive services offered to community residents available to participants.

Reporting and Research Responsibilities •

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•

Partner will provide Primary with all required Program mentor forms on the 1st of each month; these include, but are not limited to mentor consent forms, mentor intake forms, and monthly mentoring activity forms. Partner leadership and mentors will meet twice per year with the Primary research team in one-on-one interviews and focus groups.

VII. Payment Primary will pay Partner a total of $5,000 for expenditures incurred as outlined in the Program Budget. Primary must be invoiced quarterly for all payments. Partner will utilize this funding to provide for: (1) a Mentor Coordinator who will facilitate the recruitment and retention of at least 10 mentors; the facilitation of bi-weekly (4-8 hours/mentor) group mentoring sessions for 12 months; and monthly completion and submission of mentor forms. (2) space for Program services, including a case management office space and group mentoring/ job training space. Partner is responsible for completing and providing Primary with all required forms outlined in this MOA. If progress, reports, and invoices are submitted from Partner to Primary in a timely manner, payment will be made as follows: − − − − −

On contract: $1,000 August 15: $1,000 November 15: $1,000 February 15: $1,000 May 30: $1,000

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Primary will disburse each installment, provided that the financial reports and mentor reports indicated have been received. Delays in submitting reports may result in the delay of grant payment release.

VIII. Disputes and Termination •

• •

Primary and Partner agree to contact each other immediately on the occurrence of any serious problem, or if concern effecting the continuance of the Program or the partnership emerge during the term of this MOA. Primary and Partner agree that key Program representatives will meet as quickly as is practical and reasonable to attempt to resolve any such concern or problem. In the event that either Primary or Partner conclude that the problem or concern cannot be resolved and that the Program’s operation or the relationship between Primary and Partner cannot continue, that party will give a 30-day notification to the other in writing that it intends to terminate the MOA. At the time of termination, Partner must provide an accounting of all Program-related expenditures and return to Primary any unused funds

IX. Notices All notices concerning this MOA will be presented in writing by either party to the other, addressed as follows: To Primary: Name Executive Director Primary Organization Address

To Partner: Name Executive Director Partner Organization Address

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IX. Other Requirements No person shall on the grounds of race, color, religion, national origin, gender, disability, or age be excluded from participation in the Program, denied the benefits of the Program, or subjected to discrimination under or in connection with this Program. X. Extensions and Modifications of this MOA This MOA is a complete representation of the responsibilities of the parties to this agreement. Modification or extension of the terms of this agreement may be made only in writing and only if signed by both parties. For: Primary Organization

For: Partner Organization

__________________

__________________

Signature Executive Director Date:

Signature Executive Director Date:

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Sample Document: Memorandum of Agreement (MOA) with Faith-Based Partner/Congregation (Insert your organization’s name and information, as well as the name and information of the partnering organization. The original MOA that this sample is patterned after refers specifically to a partnership with a faith-based organization for the purpose of recruitment and mentoring. This MOA will require alteration to apply to your specific organization and partnership.) MOA Between (Your Organization) And (Partnering Organization) Ready4Work (Program Name)

I. The Parties The parties to this Memorandum of Agreement (MOU) are: • •

Primary Organization (Primary), address Partnering Organization (Partner), address

II. Purpose of this Agreement The mission of Primary is to enroll, assess, and serve recently released offenders who have limited training and/ or work experience for the purpose of engaging them with available training and employment opportunities. The mission of Partner is to train and equip unemployed and underemployed individuals for the world of work through soft and hard skills training.

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III. Summary of the Project Ready4Work (R4W, or Program) is a demonstration program focused on assisting young ex-offenders, 18-34 years of age, leaving places of incarceration and reentering area communities. The Program has three primary components: case management, mentoring, and employment. R4W is intended to positively affect the lives of its participants, their family, and their community. IV. Roles of Primary and Partner Primary and Partner agree to jointly collaborate on the training and job placement of trainees engaged in the reentry program. As partners, Primary and Partner agree to work together to provide recently released offenders with the training tools needed to successfully enter the work force upon completion of such training. The parties propose to serve candidates from the reentry program that are in need of obtaining marketable skills through training.

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V. Responsibilities of Primary and Partner Primary will conduct intake sessions, assess candidates prior to referral, develop action plans, provide case management, provide job referrals, follow-up on training and subsequent employment, and arrange for training payments. Partner will provide pre-training orientation sessions during the first week of classes, identify problem areas needing attention, test trainees following each module, provide job leads, provide reports and outcomes, and refer to jobs. VI. Timeline and Duration This MOU shall remain in place for 12 months from signing, unless modified in writing before that date. VII. Grounds for Termination This MOU may be terminated in whole or in part by either party without cause. The MOU will be deemed to be terminated 30 days after written notice of intent to terminate has been received by the other party. This notification must include a detailed reason for termination. This MOU will terminate automatically if either agency ceases operations. In the event of termination, all required reports will be completed through the end of the agreement period. VIII. Reporting Requirements Reports will be submitted to each other on a quarterly basis. Partner will provide the total number of participants enrolled in each training program to Primary. Agency representatives will participate in meetings on a quarterly basis. This meeting will provide an opportunity to discuss performance measures, assess referral linkages, and suggest necessary improvements. IX. Assurances and Nondiscrimination Clause •

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•

•

•

The partners in this MOU agree that they will not discriminate in its employment practices or services on the basis of gender, age, race, color, creed, religion, national origin, disability or veterans’ status or any other classification protected under state or federal law. The partners in this MOU assure that they will comply with all nondiscrimination and equal opportunity provisions under current laws and regulations, including 29 CFR Part 31 and 29 CFR Part 32. The partners to this MOU must, upon request from state and federal law enforcement entities, furnish all necessary employment and training records for the purpose of investigations to ascertain compliance with the provisions of nondiscrimination clauses. The partners to this MOU will assure that complaints alleging discrimination on any of the above bases will be processed in accordance with all applicable state and federal nondiscrimination laws. Copies of complaint procedures developed pursuant to all applicable laws under (29 CFR Part 37.76 and amendments) and approved by the U. S. Department of Labor’s Civil Rights Centers will be made available to be followed in processing discrimination complaints.

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X. Attachments Attachments necessary to complete this MOU include: • • • • • •

Detailed mission statements and program description Federal Procurement Policy/ Laws if government funding is involved Lobbying certification page More detailed mission statements and program description Forms utilized by Primary and Partner in execution of duties Financial declarations

XI. Signatures For: Primary Organization

For: Partner Organization

_________________

__________________

Signature Executive Director Date:

Signature Executive Director Date

Sample Document: Subcontractor Agreement with Residential Facility

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(Insert your organization’s name and information, as well as the name and information of the subcontractor. The original Agreement that this sample is patterned after refers specifically to a partnership with a residential facility. This Agreement will require significant rewording if applied to an alternate relationship.) Agreement Between Contractor (Your Organization) And Subcontractor (Residential Facility) Ready4Work (Program Name) This Agreement is made and entered into this _______day of (month), _______(year), by and between Reentry Organization, hereinafter referred to as the “Contractor,” and Residential Facility, a residential facility for men and women, hereinafter referred to as the “Subcontractor.”

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RECITALS WHEREAS, Contractor desires to have the Subcontractor provide sober-living housing to eligible program participants, and WHEREAS, Subcontractor holds itself out as capable, competent and licensed to perform the required service, NOW THEREFORE, the parties hereto agree as follows:

SCOPE OF SERVICES Subcontractor shall perform the following services relating to housing for male and/or female program participants pursuant to the Agreement: 1. For those eligible program participants determined by Contractor staff, Subcontractor will provide clean and sober housing at the facility located at #### New Home Street, City, State, Zip. 2. Subcontractor will provide supportive services such as 12-step meetings, seminars, group and/or individual counseling, random drug testing and anger management to program participants.

AGREEMENT Section 1. Subcontractor: Residential Facility Contact: CEO (###) ###-#### #### New Home Street City, ST ##### Tax ID # ##-####### Section 2. Contractor: Reentry Organization Contact: Vice President #### Reentry Avenue City, ST #####

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Section 3. Term of Agreement The term of this agreement is from through. Section 4. Professionalism All work shall be done in a professional manner and in accord with standard industry practices. Section 5. Licensing Subcontractor shall maintain all necessary licenses to perform the services contemplated by this Agreement. Section 6. Ethics Subcontractor shall render services to Contractor in connection with the tasks and services defined in Scope of Services. Subcontractor shall conduct their business affairs with ethics, integrity and acceptable business practices.

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Section 7. Employer Relationship The parties to this Agreement concur that the relationship is that of prime contractor and independent subcontractor. Consistent with the foregoing, Contractor shall not deduct withholding taxes, FICA or any other taxes required to be deducted by an employer. Subcontractor is expected to conduct its business with integrity and pay its employees and all related applicable taxes, workers’ compensation, etc. in accordance with federal guidelines. Section 8. Conflict of Interest The existence of this Agreement shall not restrict the Subcontractor’s right to engage other consulting and business activities as long as no conflict of interest exists. Likewise Subcontractor and its employees shall not share or disclose proprietary information that they learn about Contractor or its participants while fulfilling this agreement. Section 9. Payment Schedule Contractor shall pay the Subcontractor at a rate of $12.50 per day, up to 28 days per client but not to exceed $350 and will make payment after receipt of a monthly invoice which will be submitted to Contractor the first day of the following month. A check will be processed by Contractor and will be sent to the Subcontractor within (7) seven business days following the receipt of the invoice. The balance of the required monthly rent, will be paid by the participant in accordance with prior agreed upon conditions between the Subcontractor and the participant, not to exceed $100 per month for their portion of the rent. Section 10. Confidentiality The Subcontractor shall maintain the confidentiality of all documents, discussions with and information obtained from Contractor and its program participants, unless otherwise required by state or federal audit of financial disclosure laws, and that information is to be secured with lock and key at the program site.

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Section 11. Interns Subcontractor must ensure that all interns working in its program have the proper supervision with certification to perform an internship training program Section 12. Disputes Subcontractor and/or Contractor shall notify the other party of any dispute immediately, in writing. Contractor and Subcontractor, within thirty (30) days thereafter, shall in good faith attempt to resolve said dispute. If after thirty (30) days the parties cannot resolve said dispute, then the parties agree to resolve said matter in accordance with Section(s) 13 and 14. Section 13. Arbitration In the event of a dispute between Contractor and Subcontractor the parties mutually agree to submit to arbitration under the standard rules and provisions of the American Arbitration Association.

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Section 14. Venue In the event of judicial action by either party against the other, the parties agree that the venue for dispute resolution shall be the State of _________ in the County of ____________. The laws of the State of ____________shall govern. Section 15. Insurance Subcontractor shall maintain insurance coverage, and to name Contractor as an additional insured during the entire term of this agreement, and at all times during which Subcontractor provides service hereunder. Subcontractor shall provide Contractor with at least 60 days notice of cancellation of any insurance coverage required here under. Subcontractor agrees to provide and maintain coverage, each in the sum of at least $1,000,000 for the following insured endorsements: 1. 2. 3. 4.

General Liability Social Services Organization Professional Liability Coverage Sexual or Physical Abuse or Molestation, Vicarious Liability Coverage Workers’ Compensation Coverage

Section 16. Compliance Subcontractor warrants and represents that it is fully eligible to provide services for projects covered under this agreement. Further, Subcontractor shall at all times during the period of the work covered under this agreement, remain eligible under said provisions. Should debarment occur or certifications and eligibility be revoked, suspended or temporarily halted, Subcontractor shall immediately notify Contractor of such, revocation, suspension or temporary halting and cease any further work on the project. Subcontractor acknowledges and agrees that they shall not be eligible to bill Contractor for any work remaining incomplete as of the date of the revocation, suspension or temporary halting. Should Contractor deem it necessary to complete the work with a “Substitute Subcontractor” then Contractor shall be relieved of any further financial obligations to Subcontractor.

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Section 17. Conflict in Language In the event there is a conflict in provisions between this agreement and any attachments, this agreement prevails. Section 18. Contract Termination Contractor and/or Subcontractor may terminate this agreement with or without cause if not fully satisfied with the relationship. Termination notice must be submitted in writing. Contractor and Subcontractor agree that before contract termination is made final, that a 30day notice to correct action will be attempted. Section 19. Client Information Subcontractor agrees to meet with the Contractor’s management and/or case management staff as outlined in a mutually agreed upon schedule to share information and provide input on the overall goals for the program participants. IN WITNESSES WHEREOF, the Contractor and the Subcontractor have caused this Agreement to be executed by their duly authorized representatives.

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Executed the______________day of

___________________ , ________

___________________ , _________

For: _________________________

For: __________________________

By:__________________________

By:___________________________

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CHAPTER IV: RECRUITING CLIENTS AND VOLUNTEERS Recruitment is a vital first step for your reentry program. Organizations must recruit willing clients and motivated volunteers to have a successful reentry program. To do this, organizations employe diverse recruiting techniques.

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Recruiting Clients Many programs are successful at recruiting participants for several reasons: they target communities with high rates of ex-prisoners; they rely on partners and the community for referrals; and they maintain a high-quality, high-profile image in the community. Pointing young men and women in the direction of employment and the independence that comes with it is a community effort. Client enrollment can be done pre-release or post-release; through formal routes or informal word-of-mouth; by staff, partners, volunteers or even former participants. Some sites found pre-release recruiting more effective because the program can form a relationship with the participant before he/she returns to the community. Formal partnerships with correctional institutions that provide access to prisoners nearing release enable recruitment on the inside of prison walls. Outside the walls, your program generally has a small window of opportunity to recruit an ex-prisoner. While R4W restricts recruitment to those within 90 days of release, it may be possible for your organization to actively recruit exprisoners who were released longer than the than three-month success window. Some individuals, unable to find success after release, may be encouraged by stories from exprisoners who participated in your program. This is an important vehicle for recruitment across the R4W adult sites. If your program works for one ex-prisoner, others will take note of that person’s experience and inquire about how your program enabled that particular exprisoner to successfully reenter his/her community.

Recruiting Volunteers/Mentors While marketing your organization to potential participants is of primary importance, maintaining an active recruitment drive for new volunteers is also imperative. Volunteers can fill the gap by supplying necessary administrative assistance, supplementing case

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management through mentoring and providing networking opportunities for your program and its clients. The most important volunteer role in R4W is that of a mentor. Mentors serve as role models for the ex-prisoners participating in the program. To ensure that you have enough individuals on hand to mentor your caseload, you must actively recruit volunteers from the community. Mentoring will be discussed at greater length in chapter nine. Volunteer recruitment can be done through neighborhood non-profit organizations, at community events or from local religious congregations. Churches, mosques, synagogues, other houses of worship and other community organizations may be good resources for recruitment. Faith-base and community organizations are familiar with service delivery, which is built upon their years of experience in the areas of prison ministry, housing assistance and other social services. You should utilize the networks of counselors, healthcare professionals and business owners from within those FBCOs in your community.

Example 1: Safer Foundation’s Strategy on Recruiting Clients and Mentors

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Due to its reputation as an effective organization, the Safer Foundation (Safer) is very good at recruiting participants in its programs. Safer exists as a testimony to the need for reentry organizations and ex-prisoners’ willingness to work. This is due to years of marketing and promotion through various avenues, such as the Sheridan Correctional Center’s Substance Abuse Treatment Program case managers, police officers, the Department of Corrections’ prisons and parole, Safer’s own Adult Transitional Centers’ case managers, faith partners and family/community members. The faith-based partners conduct outreach through announcements during worship services and flyers distributed in the community. They seek connections with parole officers, police districts, employers and family members of exprisoners. In addition to post-release efforts, participants are also recruited prior to release from confinement through orientation sessions for inmates provided by Safer’s staff at the Sheridan Correctional Center and at the Adult Transitional Centers. Partnerships with congregations throughout Chicago make for easier volunteer mentor recruitment as well. With R4W office space on site, Safer staff are able to coordinate the mentoring component in cooperation with each congregation’s mentor coordinator. This strategy will be discussed more in a later chapter on mentoring.

Example 2: Word of Hope Ministries Recruits through Several Outlets Word of Hope Ministries (WOHM) recruits reentry participants pre-release from the Wisconsin Department of Corrections’ institutions. In addition, the organization distributes flyers to individual parole/probation of-ficers (POs). WOHM also provides space for POs to meet with clients at the organization’s site. Another avenue for the recruitment of exprisoners is through meeting with other faith and community-based organizations. WOHM also utilizes a weekly telecast, radio broadcast and newspaper advertisements promoting their programs. The newspaper ad appeared in the Milwaukee Journal Sentinel and produced a sizable response from interested ex-prisoners. WOHM employs a full-time Mentoring Director and a part-time mentor coordinator to oversee the mentoring component of this R4W site. Together, they are responsible for

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recruiting and training mentors and matching mentors with participants. They regularly make presentations for recruitment at faith-based, community-based and professional organizations. Their efforts have led to the recruitment of over 90 volunteer mentors.

Action Questions Participants 1. Do you know the correctional facilities in your area? Do you have relationships with the wardens, corrections staff and parole or probation officers? 2. What are some strategies used by the R4W sites to recruit participants that may be useful in your organization’s context? What steps should you take to incorporate these ideas into your reentry program?

Volunteers 3. What facets of your program need volunteers (in addition to paid program staff)? Do you have enough volunteers? If not, what is your strategy to recruit more volunteers? 4. Do you have relationships with faith institutions or other community-based organizations for the purpose of recruiting volunteers? 5. What are some strategies used by the R4W sites to recruit volunteers that may be useful in your organization’s context? What steps should you take to incorporate these ideas into your reentry program?

Sample Document: Program Application (Adjust the header and questions with information on your organization.)

PERSONAL INFORMATION

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FIRST NAME:______________ LAST NAME: _____________ DATE OF BIRTH: ______ /______ / ______ ARE YOU AN EX-FELON? Yes NO Dep. of Corrections #:_________ DATE OF RELEASE: ______ /______ / ______ PHONE: ______________ WAS YOUR CRIME VIOLENT? Yes NO WAS YOUR CRIME SEXUAL? Yes NO

PROBATION/ PAROLE OFFICER PAROLE/ PROBATION OFFICER’S NAME:________________________

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TELEPHONE #:________________________________________________ ADDRESS:____________________________________________________ PRISON (IF CURRENTLY INCARCERATED)______________________ PRISON NAME:_______________________________________________ ADDRESS:____________________________________________________ DORM #: BED #:_______________________________________________ RESIDENCY/HOUSING WHERE DO YOU CURRENTLY LIVE?___________________________ IF CURRENTLY INCARCERATED, WHERE WILL YOU RESIDE ONCE RELEASED:______________________________________________________

EMERGENCY CONTACT NAME: _____________________________________________________ RELATIONSHIP TO YOU: _____________________________________ TELEPHONE #:_______________________________________________

Sample Document: Participant Recruitment Print Advertisement

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(Insert your organization’s name and information to suit the ad for your marketing needs. The original advertisement was placed in the Milwaukee Journal Sentinel by Word of Hope Ministries.)

ARE YOU AN EX-PRISONER LOOKING FOR WORK? We may have the solution for you! We have several positions, skilled and unskilled, available through our Reentry Program. We can also serve those without any job history. For immediate consideration, please stop by on July 31 or August 3 at 9:00 am. Organization Name #### New Job Street City, ST ##### (###) ###-####

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Sample Document: Participant Recruitment Flyer 1 (Insert your organization’s name and information. You may also want to add color, photographs from your program or stock images of workers in action.)

ARE YOU READY FOR WORK? We Can Help You Find a Job and Can also Provide You with Specialized Training and Career Planning Services Include: • • • • •

Assessment to determine strengths and interests Job placement and specialized/educational training Mentoring by successful individuals Transportation and housing assistance Other support services

Eligibility Guidelines: • • • •

Ex-prisoners, male or female, ages 18 – 34 years old Released within the past 90 days or within 90 days of release Unemployed or underemployed Offenses must be nonviolent and nonsexual

PLEASE CALL: (###) ###-#### Or stop in at: ##### NEW JOB STREET

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Sample Document: Participant Recruitment Flyer 2 (Insert your organization’s name and information. You may also want to add color, photographs from your program or stock images of workers in action.)

NEED A JOB? HAVE YOU BEEN RELEASED WITHIN THE PAST 90 DAYS WITH A FELONY CONVICTION? ARE YOU UNEMPLOYED AND HAVING A HARD TIME GETTING A JOB? ARE YOU BETWEEN THE AGES OF 18-34? DO YOU NEED SOMEONE TO GIVE YOU A SECOND CHANCE? If you answered “YES” to the above... The Reentry Program can help you! All services are FREE.

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United States Department of Labor EMPLOYMENT TRAINING CLASSES ARE HELD MONDAY, WEDNESDAY, AND FRIDAY 9:30 AM - 11:30 AM Reentry Program #### New Life Street City, State ##### Call (###) ###-#### for more information RECEIVE $10 FREE FOR ENROLLING IN THE PROGRAM Eligibility: Recently released 18-34 year old, 90-days out of prison/jail, non-violent felony (presenting charge), and no sex offenses.

CHAPTER V: CRAFTING INTENSIVE CASE MANAGEMENT Case management is the foundation for all other reentry services. The case manager, sometimes referred to as a “reentry counselor,” “workforce development specialist” or “navigator,” is a key staff member of a successful reentry program. These individuals facilitate the entire reentry experience from prison to sustained employment. They provide a human face to an otherwise structured program. Normally, case management begins with a comprehensive individual assessment. From this assessment, a service plan is created that manages every aspect of the participant’s reentry program. The case manager monitors the plan, ensuring that all goals and objectives are being reached. Case managers often participate in client recruitment, services, mentorship and job training and placement. The following are examples of successful case management strategies.

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Example 1: Eimago Uses “Team” Strategy to Manage Cases Comprehensive case management is the foundation of Eimago’s reentry program, and many members of Eimago’s staff are involved in the case management process. The organization assists each client in addressing a wide variety of systemic problems that contribute to recidivism. This process includes providing resources and fostering changes in behavioral patterns. Case managers assist participants in rebuilding their lives by addressing factors that contribute to homelessness, incarceration and addiction. Through its comprehensive approach to removing barriers, Eimago reduces recidivism by providing a supportive safety net for its participants. Eimago’s programs provide assistance in the areas of supportive housing, substance abuse, legal advocacy, social skills, financial management, basic skills education, vocational training and job placement. This “holistic” approach to rehabilitation, accessed through case managers, encourages accountability. The organization continually evolves with the participant base to offer the best and most complete services. Eimago’s philosophy is embodied in their vision: “By being consistent in our offerings, our

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attitude, and in the practical, professional skills we offer; we build that trust that will allow our clients to see beyond their current circumstances.” Case management is the vehicle that transports clients from unemployment and failure to employment and success; the case manager designs and administers the services needed for successful reentry.

Example 2: Safer Foundation Employs “Community-Based” Reentry Counselors The Safer Foundation (Safer) utilizes “community-based” case managers for its R4W program. Safer established mini-sites in neighborhoods hit hardest by the reentry crisis. Each site is community based and located at a neighborhood church. Safer’s reentry counselors assess participants during the intake process to determine what types of services participants need. After the initial assessment, reentry counselors provide access to the following program components: case planning, service matching, housing, job retention, legal assistance and post-placement/aftercare support. This community-based approach allows the case management staff to connect with program participants in a family-like atmosphere. Reentry Counselors even refer to participants as “family members.” Through this community-based approach, they can encourage participation and retention in employment and accountability and integration in the community.

Example 3: Exodus Transitional Community and the Exodus Contract Permit Self-Assessment

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Exodus Transitional Community’s (Exodus) strategy is centered on the Exodus Contract. This document, included in the toolkit as a “Goal Contract,” frames the case management process. It essentially serves as a “self- assessment,” allowing the participant to assess his/her own life and create goals in several areas including: Family and Relationships, Education, Health, Community Involvement and Service and Spirituality. The participant can then track his/her success in accomplishing each goal. This approach places control in the hands of the participant rather than dictating what he/she needs. The contract is a powerful tool that can help ex-prisoners assess their lives and take action - leading to a better life “outside of the walls.”

Example 4: Second Chance Uses Employer-Style Zero Tolerance Policy and Other Unique Tactics to Manage Clients’ Cases The Memphis’ Second Chance program has a zero tolerance policy. The program involves an agreement or “bargain” between Second Chance staff and the ex-prisoner. If a participant violates part of his/her bargain – such as missing a scheduled event like a meeting with his/her case manager – he/she may be terminated from the program. While some may find this approach too harsh, the staff believes it encourages responsibility and is the best preparation for entering the workforce. Since participants know termination is imminent if

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they violate the rules, they have an incentive to be present and punctual for all meetings and necessary services. Also unique to the Memphis program is a meeting with the Mayor during orientation. This reiterates the seriousness of the program and the need for every participant to work hard to achieve success.

Action Questions 1. What case management strategies outlined in this chapter seem like they would be successful if employed by your organization? 2. What steps can you take to implement these strategies? 3. What types of skill sets and experiences must an effective case manager possess? Who would be the best possible candidate to work for your organization as a reentry case manager?

Sample Job Description: Case Manager This position is the central role in any social service program. The various R4W sites refer to case managers by many names, including Reentry Counselors, Project Service Coordinators and Navigators.

Position Title: Case Manager Responsibilities/Duties • • •

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• • • • •

Service a caseload of 25-30 active participants, all of which will be adult exprisoners Provide individual case management sessions with all clients at regularly scheduled intervals Develop individual service plans for all clients that identify barriers to successful reentry Document all client contact and progress, including time and date, type of contact, outcome and plan of action Provide or broker services to holistically address clients’ needs Oversee sessions with volunteer mentors, including tracking contact times, facilitating activities and resolving issues May also perform the duties of employment training specialist and/or job developer Provide regular updates to the Program Manager

Minimum Qualifications •

Bachelor’s Degree in Social Work (BSW), Psychology, Counseling, Criminology or a related social/behavioral science field

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Master’s Degree in Social Work (MSW) provides distinct advantage 2-3 years experience in delivering case management services Excellent verbal, written and interpersonal communication skills Ability to work effectively with people of diverse educational and cultural backgrounds, from ex-prisoners to public officials Computer literacy, including knowledge of basic software applications and familiarity with the internet and email communications Knowledge of criminal justice system and/or experience with ex-prisoners is preferred Ability to travel within city and surrounding communities

Sample Document: Participant Intake Assessment (Add organization-specific information.)

BASIC/ CONTACT INFORMATION DATE:____________________PARTICIPANT’S NAME:_______________ SEX: .. Female Male STREET ADDRESS: ____________________________________________ CITY: __________________________________ ZIP: __________________ PHONE #s: ______________(HOME)___________(CELL)______________ ALTERNATIVE PHONE #:_______________________________________ TIME AT PRESENT ADDRESS:___________________________________

ADDITIONAL CONTACTS NAME:________________________RELATION:_____________________ ADDRESS:_____________________PHONE #:_______________________

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NAME:________________________RELATION:_____________________ ADDRESS:_____________________PHONE #:_______________________

DOCUMENTS TO OBTAIN BIRTH CERTIFICATE DRIVER’S LICENSE

SS CARD OTHER PHOTO ID

LIBRARY CARD

PERSONAL INFORMATION DATE OF BIRTH: ___________PLACE OF BIRTH:___________________ RACE: _____________________MARITAL STATUS:_________________ CHILDREN: YES NO IF YES (NAMES/ AGES):__________ ______________________________________________________________ CHILD SUPPORT: YES NO NEEDS CHILDCARE SERVICES: YES NO

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United States Department of Labor CURRENT RESIDENCE:_________________________________________ WITH WHOM:_________________________________________________ ______________________________________________________________ PERMANENT RESIDENCE: YES NO RESIDENCE FOR PAST YEAR: PARENT OR GUARDIAN’S HOME TRANSITIONAL/TREATMENT FACILITY CORRECTIONAL FACILITY OTHER RELATIVE’S HOME HOMELESS SHELTER FRIEND’S HOME INDEPENDENTLY HOMELESS FOSTER HOME OTHER_____________________________________________________ _____________________________________________________________ SOURCE OF FINANCIAL SUPPORT______________________________ ______________________________________________________________

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LEGAL HISTORY EVER ARRESTED: YES NO DATE AND DESCRIPTION OF OFFENSE(S):______________________ _____________________________________________________________ _____________________________________________________________ _____________________________________________________________ _____________________________________________________________ _____________________________________________________________ _____________________________________________________________ _____________________________________________________________ _____________________________________________________________ EVER CONVICTED OF A CRIME: YES NO NATURE OF THE OFFENSE(S):_________________________________ _____________________________________________________________ _____________________________________________________________ _____________________________________________________________ _____________________________________________________________ _____________________________________________________________ _____________________________________________________________ _____________________________________________________________ _____________________________________________________________ EVER BEEN IN JAIL: YES EVER BEEN IN PRISON: YES

NO NO

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PRISON ID#_____________________ RELEASE DATE:______________ NUMBER OF TIMES IN JAIL/ PRISON AS A JUVENILE:_____________ NUMBER OF TIMES IN JAIL/ PRISON AS AN ADULT:______________ TOTAL TIME SPENT INCARCERATED AS AN ADULT:_____________ CURRENTLY ON PROBATION: YES NO CURRENTLY ON PAROLE: YES NO IF YES TO EITHER, HOW LONG:_________________________________ NAME OF AGENT:_____________PHONE OF AGENT:_______________ MEET HOW OFTEN: ___________________________________________ INVOLVED IN A GANG: YES NO ACCESS TO WEAPON(S): YES NO EXPLAIN:_____________________________________________________ ______________________________________________________________ ______________________________________________________________ ______________________________________________________________ ______________________________________________________________ ______________________________________________________________

EMPLOYMENT HISTORY EVER BEEN EMPLOYED: YES NO LAST TWO POSITIONS HELD: A. POSITION, DATES, SALARY, AND DUTIES: ____________________ ______________________________________________________________ ______________________________________________________________ ______________________________________________________________

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B. POSITION, DATES, SALARY, AND DUTIES:_____________________ ______________________________________________________________ ______________________________________________________________ ______________________________________________________________ WORK-RELATED SKILLS:______________________________________ ______________________________________________________________ ______________________________________________________________ ______________________________________________________________ FUTURE EMPLOYMENT GOALS:________________________________ _____________________________________________________________ _____________________________________________________________ _____________________________________________________________ ANY PROFESSIONAL REFERENCES (OTHER THAN FAMILY FRIENDS):_______________________________________________________ _____________________________________________________________ _____________________________________________________________ _____________________________________________________________

AND

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EDUCATIONAL HISTORY HIGHEST SCHOOLING COMPLETED: NO SCHOOLING/ LESS THAN HS HS DIPLOMA/GED SOME COMMUNITY COLLEGE/TRADE SCHOOL ASSOCIATE’S DEGREE SOME COLLEGE/ UNIVERSITY BACHELOR’S DEGREE SOME GRADUATE SCHOOL GRADUATE DEGREE NAME AND LOCATION OF LAST SCHOOL ATTENDED: ___________ ______________________________________________________________ EVER RECEIVE SPECIAL EDUCATION SERVICES: YES NO EVER HAD AN INDIVIDUAL EDUCATIONAL PLAN (IEP): YES NO EVER SUSPENDED FROM SCHOOL: YES NO EVER PLACED IN AN ALTERNATIVE SCHOOL: YES NO EXPLAIN YES ANSWERS:_______________________________________ ______________________________________________________________ ______________________________________________________________ WHAT DID YOU LIKE BEST ABOUT SCHOOL?____________________ ______________________________________________________________ ______________________________________________________________ WHAT DID YOU LIKE LEAST ABOUT SCHOOL?___________________ ______________________________________________________________ ______________________________________________________________ FUTURE EDUCATION GOALS:__________________________________ ______________________________________________________________ _____________________________________________________________

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ANY SKILL DEFICIENCIES/BARRIERS TO SUCCESSFUL LEARNING: ______________________________________________________________ ______________________________________________________________

PHYSICAL and MENTAL HEALTH HISTORY HEALTH INSURANCE: YES NO SELF-HEALTH RATING: POOR FAIR GOOD EXCELLENT EXPLANATION: _______________________________________________ ______________________________________________________________ KNOWN HEALTH PROBLEMS/ DISABILITIES:_____________________ ______________________________________________________________ ______________________________________________________________ CURRENTLY TAKING ANY PRESCRIPTION MEDICATIONS? YES NO DATE OF LAST PHYSICAL EXAM: EVER HOSPITALIZED: YES NO

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IF YES, CONDITION AND APPROXIMATE DATE: _________________ ______________________________________________________________ ______________________________________________________________ DATE OF LAST EYE EXAM:_____________________________________ ______________________________________________________________ REQUIRE GLASSES TO READ, WORK, ETC. YES NO EVER EXPERIENCED NEGLECT OR ABUSE: YES NO PHYSICAL ABUSE: YES NO SEXUAL ABUSE: YES NO DIFFICULTY SLEEPING: YES NO ALCOHOL ABUSE: YES NO DRUG ABUSE: YES NO SELF-MUTILATION: YES NO ATTEMPTED SUICIDE: YES NO CASE MANAGER CERTIFICATION NEEDS ADDITIONAL ASSESSMENT: YES NO NEEDS OUTSIDE REFERRAL: YES NO SERVICES NEEDED:___________________________________________ _____________________________________________________________ _____________________________________________________________ REQUIRES IN-HOUSE SERVICES: YES NO SERVICES NEEDED:___________________________________________ ______________________________________________________________ ______________________________________________________________ CASE MANAGER SIGNATURE:_________________DATE:___________

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Sample Document: Individual Service Strategy (Customize this document for use by your organization.) Name:_________________________Date of Birth:_____________________ Address:_______________________Zip Code:________________________ Telephone:___________________________________Sex: Male Female Emergency Contact (Name/Phone #): _______________________________ ______________________________________________________________ In addition to case management, job training and job placement assistance, what other employment/ educational services would you like to receive? Job Search and Readiness Assistance Resume Development Interview Skills

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United States Department of Labor

Educational Referrals- High School Diploma/GED, Trade/Vocational, Financial Aid Assistance Short-Term Employment Goal:_____________________________________ ______________________________________________________________ ______________________________________________________________ Barriers to Employment: Lack of updated resume Appropriate clothing for job search Transportation Stable housing Substance abuse Poor interview skills Poor job search skills Non high school graduate No documentation (ID, SS card) Other:_______________________________________________________ ______________________________________________________________ ______________________________________________________________ Strategies for Overcoming Short-Term Employment Barriers (to be completed by case manager): Barrier:___________________________________ ______________________________________________________________ ______________________________________________________________ Time line and method for overcoming barrier:_________________________ ______________________________________________________________ Barrier:________________________________________________________ ______________________________________________________________

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Time line and method for overcoming barrier:_________________________ ______________________________________________________________ Barrier:________________________________________________________ ______________________________________________________________ Time line and method for overcoming barrier:_________________________ ______________________________________________________________ Barrier:________________________________________________________ ______________________________________________________________ Time line and method for overcoming barrier:_________________________ ______________________________________________________________

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Current Education Level: Less than high school GED completion High school graduate Trade/Tech/Vocational certificate Some college Associates degree College graduate Would you like to further your education?

Yes

No

If yes, to what level?____________________________________________ _____________________________________________________________ Long-Term Employment Goal:____________________________________ _____________________________________________________________ _____________________________________________________________ Method of Achievement (to be completed by case manager):____________ _____________________________________________________________ _____________________________________________________________ _____________________________________________________________ I understand that Organization provides job training, job placement and referral services to qualified applicants. As a participant, I am responsible for working with Organization’s staff and partners to progress toward my employment and educational goals. _____________________

______________________

Participant Signature

Date

_____________________

______________________

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Case Manager Signature

Date:

Sample Document: Participant Program Checklist (Customize based on your program structure.) Name:_____________________ Potential Program:___________________ Start Date:_________________ Intake Date:_________________________

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United States Department of Labor Workshops Completed

Date

Time Spent

Staff Initials

Orientation Employment Preparation Mock Video Interviews Attitudes Spiritual Awakenings (optional) Intro to Resumes Resume Writing/Typing Resume Writing/Typing Other Services (list dates) Metrocards Food Clothing Other (define)

Other

Date

Staff Initials

Employment Assessment (sent to Employment Office) Resume (emailed to Employment Office) Interview Observation Form (sent to Employment Office) Interview Attire Acceptable ID

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Sample Document: Goal Contract (This document is patterned after the “Exodus Contract” created by Exodus Transitional Community. The following text is the organization’s own description of the contract and the following two pages include samples from the contract itself.) “The Exodus Contract is based on the understanding that successes in different areas of your life are interconnected. Family problems affect you at work while a deeper faith in God influences your family life. The contract helps you achieve your goals in all areas of your life by creating a concrete plan for success. Each of the six pages in the plan represents an area of importance (employment, education, family, health, community service, and spirituality). The first step is to develop one or two goals in every category. To improve your employment pros-pects, you could choose to become computer literate. A family goal might be to reconnect with your son. After identifying a goal, list each of the steps necessary to complete that objective. For example, to reconnect with your son, you may have to make amends with his mother for some past action. You may also need to commit to spending your weekends with him or speak with his teachers to become involved in his education. After listing the steps, you arrange them in

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the correct order. By completing this process in every category, you create a concrete plan to transform your life. Following a plan is critical to avoid repeating the activities that resulted in your incarceration. With the many obstacles society places in front of formerly incarcerated individuals, absent a plan for success, it can be easy to lose hope a condition that all too often leads back to prison. Alternatively, as you move forward in your plan, the vision of a brighter future becomes clearer with every step. As you progress, you will often need to include new actions or amend your contract in other ways. Life rarely goes exactly according to plan. However, if you keep working, you will eventually overcome your setbacks and move forward in your life. The key to progress is to ensure that you work on at least one action every day. To accomplish this objective, the night before, it is important to write down on the daily schedule, which action you plan to take and, of equal importance, at what time this will occur the following day. Review your scheduled action in the morning, and, upon completing it, cross it off of your list. EMPLOYMENT Goal 1 Goal 2

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Sample Goals: Learn to us email, find a full time job, obtain a commercial driver license, go on give job interviews.

Actions require to complete Goal #1

Correct Order of actions to complete Goal #1

Correct Order of Actions require to actions to complete complete Goal #2 Goal #2

1

1

1

1

2

2

2

2

3

3

3

3

4

4

4

4

5

5

5

5

6

6

6

6

7

7

7

7

8

8

8

8

9

9

9

9

10

10

10

10

*“Employment” is a sample contract sheet. Other sheets include: Family/ Relationships, Education, Health/ Physical Fitness, Community Involvement/ Service, and Spirituality (optional).

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United States Department of Labor CONTRACT CALENDAR

WEEK 1* Actions

Scheduled Time

Monday Tuesday Wednesday Thursday Friday Saturday Sunday Scheduled Time

Monday Tuesday Wednesday Thursday Friday Saturday Sunday

WEEK 4 Actions

Scheduled Time

Monday Tuesday Wednesday Thursday Friday Saturday Sunday WEEK 5 Actions

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Scheduled Time

Monday Tuesday Wednesday Thursday Friday Saturday Sunday WEEK 3 Actions

Monday Tuesday Wednesday Thursday Friday Saturday Sunday

WEEK 2 Actions

WEEK 6 Actions

Scheduled Time

Scheduled Time

Monday Tuesday Wednesday Thursday Friday Saturday Sunday

*The “Weeks” should extend for the full duration of the program and possibly beyond if participants wish to continue using this valuable tool. Make as many copies as needed.

After achieving a goal, it is important to create a new one to keep progressing in your life. If a goal is ongoing, develop a new goal after you have repeated this action for six weeks. By then you will have integrated the activity into your daily life. Since change can be stressful, there will be times when you resist following your plan. Your Exodus Case Manager and Mentor form an important supportive network that assists in developing and modifying your plans and encourages you to achieve success – especially in the difficult times when a better life seems out of reach. It is important to also share your

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contract plans with your family. This shows them you are serious about change and will help involve them more fully in your life. The Exodus Contract has guided so many formerly-incarcerated people through the wilderness to the promised land of a new life. Despite the many obstacles in your way, you have control of your future. Take action and your dreams will soon be within your grasp.”

CHAPTER VI: REMOVING BARRIERS TO EMPLOYMENT THROUGH SUPPORTIVE SERVICES Removing barriers to successful reentry is an integral part of case management. Often, it must be done prior to any job training and placement. Support services are a necessary component of any realistic workforce reentry program. These services may include such essential items as: physical/mental healthcare, transitional housing, transportation, identification documents, childcare and drug or alcohol treatment. Many of the services necessary to remove barriers are offered by partnering organizations within your community. Since it is highly unlikely that your organization could provide all of the necessary services that an ex-prisoner would need, it is important that your organization become familiar with other agencies in your area. Before entering into a referral relationship, you must be sure about the quality of the organization you are considering partnering with. Never enter into formal or even informal arrangements without ensuring that your referrals will result in high-quality services provided to the participants in your program. The following are examples of successful partnerships of this type.

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Example 1: East of the River Connects with Drug Treatment and Temporary Housing Providers East of the River Clergy-Police-Community Partnership’s (ERCPCP) joint ventures and referral networks include organizations that provide many of the necessary supports for exprisoners reentering the community. Major examples include drug treatment facilities and extensive transitional housing operations. ERCPCP operates its own transitional house funded by the Court Services and Offender Supervision Agency (CSOSA) for the District of Columbia. This 180-day program offers on-site case management, substance abuse treatment with mandated random drug testing and possibly most important – a place to live. Residents complete a 30-day internal assessment followed by a 30- to 45-day period to secure employment. Two other transitional housing partners collaborate with ERCPCP – Community Action Group (CAG) and the Hope Village Halfway House (Hope Village). CAG operates separate men’s and women’s facilities. The organization provides two main services in addition to providing temporary housing: 1) substance abuse treatment and 2) mental health services. Women are permitted to bring up to four children under ten-years-old so they do not forego treatment in order to care for their children. Most other residential programs do not allow children to stay on the premises. Residents generally stay at CAG’s facility for 3-4 months leave when they have obtained another housing option. Another important program feature

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United States Department of Labor

allows past program graduates to return and help current residents by sharing their experiences in the program. Hope Village is transitional facility housing up to 360 exprisoners. It offers job training courses through its Congress Heights Training Center.

Example 2:Safer Foundation Refers Clients to Partnering Service Providers The Safer Foundation connects clients with services through their directory of approved public and private community-based service providers. Safer’s partner organizations provide medical care, mental health care and family support services. Safer’s assessment process identifies the special needs of each individual and, if required, the Reentry Counselor refers the R4W participant to a partnering organization. The Reentry Counselor evaluates the R4W client’s eligibility for federal benefits, such as Temporary Assistance for Needy Families, Medicaid, Social Security Insurance and Children’s Health Insurance, and refers the individual to the Chicago Department of Human Services for enrollment. Safer includes in the reentry plan strategies to fulfill court-ordered child support, restitution, community service, fines and cost obligations

Example 3:Many Sites Provide Transportation Assistance Most of the R4W sites provide transportation solutions to their clients. This often comes in the form of “metro cards” or equivalent passes to ride the community’s subway, light rail or bus service. The City of Memphis and Jacksonville’s Operation New Hope often provide transportation to job interviews. Case managers drive participants and provide encouragement and support along the way. Without these transportation services program participants would most likely have no means of travel to and from the program headquarters, supplemental service providers and eventually their place of employment.

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Action Questions 1. 2. 3. 4.

What services do you think are necessary to run a comprehensive reentry program? Of these necessary services which do you have the capacity to offer in-house? Which of these services must you partner with other organizations to provide? Do you have a referral system in place for services that you do not offer? If not, how would you go about developing a referral system?

Sample Document: Agency Referral Form (Personalize with your organization’s name, information and/or logo.) Client Name:___________________________________________________ ______________________________________________________________ Program Name:_________________________________________________ ______________________________________________________________

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Service Providing Agency:________________________________________ ______________________________________________________________ Service to be Provided:___________________________________________ ______________________________________________________________ This Agency Referral Form is to be used specifically for the purpose of providing a written referral for___________________________ and may not be used for any other purpose. Please feel free to contact me directly should you need further information. __________________________

________________________

Case Manager Name

Telephone

__________________________

________________________

Case Manager Signature

Date:

CHAPTER VII: IMPLEMENTING EFFECTUAL EMPLOYMENT PREPARATION

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Job-readiness training is a very important service offered in a reentry program. Training can be done either in-house or through referrals. It can take the form of soft or hard skills training. It can occur in many places – including classrooms, computer labs or construction sites. It may utilize various forms of training including worksheets or mock interviews. Most sites provide soft skills workshops in-house as a part of the orientation process, including interview preparation, resume-writing and dress-for-success instruction. Hard skills, such as those provided through a construction apprenticeship, are often made accessible through organizational partnerships with employers and educational institutions. The following examples demonstrate how R4W sites have implemented employment preparation into their reentry programs.

Example 1:Word of Hope Ministries Connects Clients to Employment Services Word of Hope Ministries (WOHM), in Milwaukee, Wisconsin, provides two orientations to job seekers and two full weeks of job readiness training. WOHM places applicants with no work history into transitional jobs through the New Hope Project. WOHM also has agreements with several outside programs that provide hard skills training. This training often leads to careers in high-growth industries, such as construction, manufacturing, graphics, and packaging. Job seekers without a high school diploma, or its equivalent, receive free GED preparation through WOHM’s Family Technology labs. In addition, those who qualify can apply to Milwaukee Area Technical College and University of Wisconsin-Milwaukee. A representative from both schools serves on WOHM’s Prisoner Reentry Advisory Board.

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United States Department of Labor

Example 2: Safer Foundation Provides Soft and Hard Skills Training Safer Foundation’s (Safer) participants who lack employment history are placed in job training services. Ex- prisoners participate in a 40-hour (divided into eight modules) job readiness and job retention training program that focuses on workplace-readiness skills training, soft skills, job-seeking and interview techniques, resumes, workplace acclimation, job retention skills and career development. During this training, Safer’s Sector Manager (or Employer Recruitment Specialist) ensures that each participant has the necessary identification (e.g., state-issued photo ID, Social Security card and birth certificate) for employment. Qualified R4W participants interested in hard skills training are referred to OneStop Career Centers. Safer also participates in several hard-skills apprenticeship training programs that allow participants to get valuable workforce experience. For example, some clients enroll in a truck-driver training program while others work with the Illinois Manufacturing Foundation (IMF) to receive additional hard skills training in the manufacturing sector. Participants receive a stipend over the course of the 14-week training. IMF then connects program graduates with employment that may pay a starting rate of up to $14 an hour. Safer is also able to provide state-funded stipends to other ex-prisoners willing to train for three months in food services, construction or manufacturing.

Example 3: America Works Seeks Work Experience through Quick Placement

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America Works, a for-profit welfare-to-work agency in Detroit, Michigan, takes a different approach to job training. They provide a one-week soft-skills orientation followed immediately by placement in an entry-level job. Once employed, the organization works with the participant to address long-term needs. The brief training is conducted in a classroom setting with computer access and web-based tutorials as needed. The trainer provides materials on the pre-interview setting, the application process, interviewing skills and career development. Following several interviews, participants usually obtain entry-level employment. This “rapid attachment” strategy is a successful alternative to providing a stipend over the course of a long training period.

Example 4: Operation New Hope’s Flexible Approach to Job Readiness Jacksonville’s Operation New Hope developed a flexible approach to dealing with participants’ varying levels of job preparation and experience. All participants are required to enroll in a two-week course upon entry into the program. After one week of soft-skills workshops, participants meet one-on-one with a job placement specialist. If a placement does not occur quickly, the participant returns for additional employment preparation.

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Action Questions 1. What skills are necessary for successful placement in local jobs? 2. What training does your organization offer? 3. If you do not currently provide any training, does your organization have the capacity to deliver in-house job training? 4. Do you know of other organizations, technical schools, apprenticeship programs, One-Stop Career Centers or employers that supply soft or hard skills training in your area?

Sample Job Description: Employment Training Specialist This position is responsible for providing job-related education, including soft and hard skills. It may be a regular employee(s) or a contractor; done in-house or through a referral to an outside partner agency; or absorbed into the responsibilities of the case managers. This position may be referred to as Job Trainer or Instructor.

Position Title: Employment Training Specialist Responsibilities/Duties • • • • •

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• •

Develop and conduct initial orientation session for program participants Create and implement multifaceted curriculum that meets the needs of ex-prisoners Administer skills assessments tests and any other examinations Conduct soft-skill training sessions on resume writing, interview skills, dress for success, etc. May also be required to train participants in hard-skills, such as computer literacy, or arrange such training through an outside partner agency, such as a construction apprenticeship Prepare program participants for quick placements once they are interview-prepared Provide regular updates to Program Manager

Minimum Qualifications • • • • • •

Bachelor’s Degree in Education, Business Administration, Communications, Social Work, Psychology, Counseling or a related field (or equivalent experience) 2-3 years experience in teaching, training or counseling ex-prisoners or another highrisk, adult population Experience with Adult Basic Education Excellent verbal, written and interpersonal communication skills Ability to effectively teach ex-prisoners with little education Computer literacy, including knowledge of basic software applications and familiarity with the internet and email communications

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United States Department of Labor • •

Knowledge of criminal justice system and/or experience with ex-prisoners is preferred Ability to travel within city and surrounding communities

Sample Document: Employment Readiness Curriculum (Adjust this curriculum to the needs of your participants and staff.)

Session I • •

Create Individual Class File Folders to Include Pre-Employment Preparation Materials Introduce the Assessment Materials and Have Participants Complete the Materials

Session 2 • • • • • • • •

Goals and Objectives Building a Foundation Brainstorming/Introduction to Retention When Success Takes Time Complete Job Search Attitude Inventory Form How to Answer the Difficult Questions How to Explain the Gaps in Employment History Salary Negotiating

Session 3

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• • • • •

Application Tips and Tools Master Application Skills Assessment Worksheet Practice Applications Reasons for Leaving a Job

Session 4 • • • • • • • •

Introduction to Mock Interviews Role Playing Face-to-Face with Employers Personal Strengths Interview Tips To Remember Interview Questions to Answer Interview Follow-Up – Thank You Review the Employment Plan One-on-One

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Session 5 • • • • •

Writing a Winning Resume Before You Begin Learning Key Resume Verbs Assistance in Choosing the Right Type of Resume Creating the Proper Cover Letter

Session 6 • • • • • •

Employment Resources One-Stop Workshops – Employment Development How to Network with Employers How to Use Classified Ads Cold Calls to Employers Mock Interview

Session 7 • • • •

Expectations During Job Search Completing Goals Calendar Constructive Criticism – Group Review of Mock Interviews Issuance of Pre-Employment Preparation Certificates

Session 8 •

Dress for Success

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CHAPTER VIII: SUCCEEDING AT JOB PLACEMENT Matching a program participant with an appropriate employment opportunity is critical tool in preventing re- incarceration. Just as with training, placement can either be done inhouse or outside of your organization. The most efficient route may be through a formal referral relationship with the local One-Stop Career Center. These partnerships are discussed in chapter three. Employer recruitment specialists, commonly called job developers, form the relationships with employers that make placement possible. They accomplish this through various avenues. Most R4W sites network with employers through job fairs, past/current relationships and reaching out to new employers. Religious congregations often have business leaders as members who may be willing to hire ex-prisoners through your structured program. Knowledge of the case management and supportive services supplied by your organization will often encourage employers to hire ex-prisoners. If the placement is successful, your organization will build a reputation for preparing qualified employees.

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Example 1: Word of Hope Ministries Employs Job Developer Word of Hope Ministries (WOHM) employs a full-time job developer who obtains between seven to eight job orders from businesses per week. Once a participant completes the job readiness training, he/she is referred to the job developer and matched with employers. If he/she is hired, the case managers and career counselors follow up at the job site to provide retention services for up to one year. WOHM also provides financial incentives to participants remaining on the job for 90 days. The goal is to place the participant in a “high growth/high wage job.”

Example 2: Safer Foundation’s “Ever-Expanding Network” The Safer Foundation (Safer) excels at job placement through an ever-expanding network of employer contacts. Sector managers investigate the Chicago area job market for potential employers to add to Safer’s network. The industries that Safer selects are those with a high demand for workers. Safer has agreements with roughly 300 employers and training providers that benefit R4W participants. Participants with a prior history of employment, a high school diploma/GED and a high level of motivation will be placed by the sector manager early on. The sector manager is responsible for the development of long-term employer relationships that result in Safer’s participants obtaining “career path” placements. The reentry counselors maintain contact with employed R4W participants on a weekly basis for the first four weeks. Counselors then follow up bi-weekly for one month and then monthly after that. The counselors maintain contact with participants for a total of twelve months after placement to ensure success.

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Example 3: East of the River Partners with Employers in the Interest Areas of Participants East of the River Clergy-Police-Community Partnership’s (ERCPCP) job placement specialist develops partnerships with employers in the interest areas of participants. ERCPCP believes that listening to clients helps tailor employment opportunities to each individual and, thus, creates a greater chance of compatibility with stable, long-term employment. Through these partnerships, ERCPCP serves as a mediator between the employer and the participant. In addition, participants are paired with a job coach to ensure a successful placement

Example 4: America Works: Entry Level Employment First, Higher Paying Job Later As discussed in the chapter on job training, America Works takes a different approach that emphasizes getting an entry-level job first and addressing long-term needs second. Through a partnership with Jackets for Jobs, a national nonprofit that provides professional

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clothing and training seminars, participants are given business clothes for interviews. The site also provides bus passes to help clients attend job interviews as early as their third day in the program. The program expects that each client may require several interviews to obtain employment. The salesperson, charged with matching clients with appropriate employers, uses a business-to-business approach to “sell” R4W participants to potential employers, emphasizing the benefits of hiring program participants. Following placement, the case manager visits the job site weekly, then bi-weekly, and so on with growing intervals between visits. Participants work in numerous fields from telemarketing to food service start at an hourly rate between $6.50 and $10.00.

Example 5: Wheeler Avenue’s 5C’s Foundation Identify Employers as “Consumers” The Houston site’s “sales pitch” emphasizes that employers are the consumers for R4W’s final product – program graduates who are ready for employment. The program staff assesses each individual client based on general factors like work- readiness, as well as by focusing on specific job skills that can contribute to a successful employer- employee match. For instance, a client who already has skills and experience in the manufacturing sector will likely be in demand by a manufacturing employer.

Example 6: Operation New Hope Offers New Hope in the Form of a Job Under Jacksonville’s Operation New Hope, participants complete one week of jobreadiness training. From there one-on-one meetings are arranged with the job placement specialist to develop individual employment programs. Following placement, the job placement specialist and case managers perform monthly visits to each worksite to support the employer-employee relationship. The site maintains a network of willing employers, including restaurants, building contractors, a supermarket and healthcare organizations.

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Action Questions 1. What occupations or industries in your area are in need of employees? 2. Do these employers generally hire ex-prisoners? 3. Which strategies do you think would be most effective at “selling” your program’s participants to local employers? 4. How would you go about developing and maintaining these relationships? 5. Do you have any connections that make placement possible?

Sample Job Description: Employer Recruitment Specialist This position is also known as Job Developer, Salesperson or Sector Manager.

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Position Title: Job Developer Responsibilities/ Duties •

•

• • • • • • • • •

Build sustainable relationships with current and potential employers through a range of sales and marketing initiatives (telephone, field visits, job fairs, direct mail, presentations, marketing materials, social networking, etc.) Manage time and performance by meeting and documenting weekly/ monthly targets for prospecting calls, new employer appointments, job starts, verifications and follow-ups with existing employers Discuss the need for a program matching ex-prisoners with employment Provide the “public face” of the organization and program Maintain an updated roster of participant placements and potential job opportunities Work with Case Managers and the Employment Training Specialist to match participants with appropriate employers Potentially participate in training and mock interviews at the request of the Employment Training Specialist Research program’s success (recidivism and retention rates) and maintain database to measure that program compliance and performance goals are met Create marketing materials targeted to current and potential employers Explain participants’ failures and reconcile relationships with employers Provide regular updates to Program Manager

Minimum Qualifications • •

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• • • • • •

Bachelor’s Degree in Marketing, Business Administration, Communications, Public Relations or a related field (or equivalent experience) 2-3 years experience in Marketing, Public Relations, Sales or a related field with a proven track record of success Acquaintance with the local employment market and community resources Familiarity with city, state and federal laws, regulations and codes related to employment and Equal Employment Opportunity regulations Excellent verbal, written and interpersonal communication skills Computer literacy, including knowledge of basic software applications and familiarity with the internet and email communications Knowledge of criminal justice system and/or experience with ex-prisoners is preferred Ability to travel within city and surrounding communities

Sample Document: Participant Placement Form (Customize this form to your particular organization.)

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Date: / / Name:_________________________________ DOB: / / Age: Gender: M F Phone Number: ( _____ ) _________-___________ Alternate Number: (______ ) __________-_____________ Current Address: _____________ City:________ State:________ Zip:______ How long @ current address: _______________________ Valid DL: YES NO DL State and #:______________________________ Ethnicity: ________________ Marital Status: ( ) Married ( ) Separated ( ) Single ( ) Divorced ( ) Widow Describe mode of reliable transportation or do you depend on transportation?______________________________________________________ ______________________________________________________________ Most recent release date: ____/____/____ What was your crime?__________ What type of position/s are you interested in?__________________________ ______________________________________________________________ ______________________________________________________________ General type of work experience:___________________________________ ______________________________________________________________ ______________________________________________________________ Prison work experience:___________________________________________ ______________________________________________________________ ______________________________________________________________

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Do you have any restrictions? (ES, Curfews, Currently in CCC, etc.) YES NO Describe restrictions in detail:______________________________________ ______________________________________________________________ ______________________________________________________________ ______________________________________________________________ High School Diploma: YES NO GED: YES NO Educational level:_____________________________________________________________ Certifications:___________________________________________________ ______________________________________________________________ ______________________________________________________________ ______________________________________________________________ Languages Spoken: English Spanish Other

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Sample Document: Employee Performance Evaluation (Add organization-specific information.)

Performance Evaluation Purpose of Performance Evaluation: This review evaluates the employee’s performance over the review period and provides feedback to help improve performance for the next review period Employee Name: ID Number: Job Title: Date of Hire: Effective Date: Evaluated By:

What do the performance ratings mean? 1 = Unsatisfactory; requires immediate improvement 2 = Below average; deficient in specified areas 3 = Good; meets performance standards 4 = Very good; exceeds most position requirements 5 = Outstanding; far superior to others (ALL RATINGS OF FIVE REQUIRE PERFORMANCE COMMENDATION) N/A = Not applicable/Too soon to rate

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1. General Work Habits 1. WORK ETHICS 2. DEMONSTRATES INTEREST IN CURRENT DUTIES 3. DEMONSTRATES INTEREST IN NEW SKILLS/ DUTIES 4. THOROUGHNESS and ATTENTION TO DETAIL 5. INITIATIVE 6. MEETS DEADLINES 7. ADHERENCE TO POLICIES and PROCEDURES 8. RESOURCEFULNESS 9. CREATIVITY and IMAGINATION 10. PLANS and ORGANIZES WORK EFFICIENTLY 11. ATTENDANCE and PROMPTNESS 12. PERFORMS WORK SAFELY

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OVERALL TOTAL = TOTAL POINTS FOR #1-12 _____ DIVIDED BY 12 _____ (DO NOT INCLUDE N/A) OVERALL WORK HABITS ASSESSMENT 1 2 3 4 5 COMMENTS:__________________________________________________ ______________________________________________________________ ______________________________________________________________ ______________________________________________________________

2. Attitude and Cooperation 1. WILLINGNESS TO ASSUME RESPONSIBILITY 2. CAN ADMIT FAULT and MISTAKES 3. COOPERATION WITH CO-WORKERS 4. COOPERATION WITH SUPERIORS 5. ABILITY TO WORK ON A TEAM 6. PRIDE IN WORK 7. REACTS WELL TO CONSTRUCTIVE CRITICISM 8. COMMITMENT TO GOALS OF ORGANIZATION 9. EXERCISE OF SOUND JUDGMENT 10. ABILITY TO TAKE DIRECTION

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3. Job-Related Skills and Abilities 1. PRODUCTIVITY 2. QUALITY OF WORK 3. JOB KNOWLEDGE 4. COMMUNICATION SKILLS 5. ANALYTICAL SKILLS 6. TECHNICAL SKILLS 7. PROBLEM SOLVING SKILLS 8. DECISION MAKING SKILLS 9. LEADERSHIP

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OVERALL TOTAL = TOTAL POINTS FOR #1-9 _____ DIVIDED BY 9 _____ (DO NOT INCLUDE N/A) OVERALL SKILLS ASSESSMENT 1 2 3 4 5 COMMENTS:__________________________________________________ ______________________________________________________________ ______________________________________________________________ ______________________________________________________________ OVERALL RATING_____________ (TOTAL POINTS IN THE THREE PRIOR ASSESSMENTS DIVIDED BY 3) OVERALL QUALITY OF WORK 1 2 3 4 5 REVIEWER’S SIGNATURE _____________________ DATE__________ DEPARTMENT HEAD SIGNATURE_____________ DATE__________ HUMAN RESOURCES__________________________ DATE__________ I certify that I have reviewed a copy of this evaluation and have had the opportunity to discuss it with my reviewing supervisor. My signature means that I have been advised of my performance status, goals and objectives. It does not necessarily imply that I agree with the evaluation of my performance. EMPLOYEE’S SIGNATURE_____________________ DATE:__________

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CHAPTER IX: MENTORING ADULT EX-PRISONERS Mentoring adult ex-prisoners is an innovative aspect of R4W, especially since mentoring is a technique usually applied when the mentee is a child or adolescent. The mentoring component can be the linchpin holding a reentry program together, reinforcing the work of the case managers. Mentoring does, at times, present a challenge for organizations to overcome. Working intimately with outside volunteers and local faith-based or community organizations may not come naturally for your organization. Thus, this chapter will present some strategies and techniques from R4W on how to mentor adult ex-prisoners. Mentoring is separate and distinct from case management. While case managers are professionally-trained social workers “managing” a participant’s entire program of services, mentors are volunteers willing to donate their time to share their life experiences with an exprisoner. The mentoring relationship enables an ex-prisoner to build a responsible, fruitful friendship with a mature, responsible adult. This relationship may be a new thing for a participant and the mentor may serve as a role model. Regular meetings with a mentor will foster responsibility and accountability. Ideally, mentors will support your participants through many situations as they seek to re-enter into their community. The R4W sites employ various mentoring strategies. Some offer team mentoring sessions where several mentors meet with a group of R4W participants. Others offer one-on-one

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mentoring, which may be more effective for your program, although recruiting enough volunteers for this option may pose a challenge. Some sites found a middle ground where mentoring sessions begin with discussion in large groups and then discussions move to smaller groups of two-to-three participants. In these cases, each smaller group is paired with a mentor to encourage greater transparency. The R4W experience has shown that male and female participants should always be paired with same-sex mentors to avoid the appearance of impropriety. It has been the experience of some R4W sites that same-race relationships often proved more successful; however, recruiting African-American, male mentors was often difficult. Notwithstanding, several sites were able to overcome this difficulty and recruit committed, African-American, male mentors. Pairing ex-prisoner mentees with ex-prisoner mentors may be the most successful option. Knowing that other ex-prisoners have faced similar challenges in their lives and successfully re-integrated back into the community may be the best motivator for your participants. Consult the recruiting chapter and the following examples for an overview of how several sites partnered with religious congregations to recruit mentors for their participants. For more information on mentoring, including a mentoring guide for exprisoners, please visit www.dol.gov/cfbci.

Example 1: Safer Foundation’s “Mini-Site” Mentoring

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As mentioned earlier, the Safer Foundation has an innovative “mini-site” approach to mentoring participants that maximizes recruitment. The organization has partnered with several congregations throughout Chicago in the neighborhoods most affected by the reentry crisis. Through these partnerships, Safer has established minia-ture reentry programs. These congregation-based sites allow for on-site volunteer mentor recruitment. Safer prefers using a group mentoring model because it increases the social, behavioral and relational skills of ex-prisoners who can draw on experiences of other formerly incarcerated persons. Prior to facilitating a R4W mentoring group, each mentor undergoes an eight-hour training session on group mentoring conducted by Safer’s mentoring training provider, the National Mentoring Center. After completing the mentoring training session, each mentor provides the following services to R4W participants for a twelve-month period: 1. Phone contact – at least weekly; 2. Four to eight hours of mentoring each month; and 3. Linkages to community resources. Each mentor provides information and support to the mentoring coordinator, reentry counselor and sector manager to assist in the completion of the reentry plan. The mentoring coordinator collaborates with the reentry counselor after each mentoring session to provide information that will be incorporated into the reentry plan. The reentry counselor and the mentoring coordinator ensure that the special needs of participants with any physical or mental disabilities are addressed. Mentors are equipped with the knowledge and skills necessary to handle these special-needs clients. The reentry counselor and the mentoring coordinator are located on-site and ensure that mentors do not proselytize through training. This is done by co-facilitating mentoring groups, interviewing R4W clients and supervising

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mentors. The use of R4W funds, or any other direct federal funding, is not permitted for any inherently religious activity, including worship or religious instruction. To strengthen relationships and instill positive self-esteem, each R4W participant is encouraged to express his/her appreciation to the mentor through some form of donated service to the congregation or community. A mentoring coordinator is appointed by each partnering congregation, who is supervised by the on-site Reentry Counselor, to manage the mentoring program. This individual recruits, interviews and selects mentors from within the congregation or community. Trained mentors are matched with R4W participants based on gender, age, other demographic characteristics and life experiences. A minimum of ten mentors provides group mentoring to about 40 R4W clients at each site – a ratio of at least one mentor to every four R4W participants. Priority is given to potential mentors who were once incarcerated but are now self-sufficient, law-abiding citizens. Mentoring sessions begin in a large setting where a relevant topic is discussed. The large group is then broken down into smaller groups for more personal discussion. A modest stipend is provided to partners for mentoring expenses, such as travel or food.

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Example 2: East of the River Partnership Uses Past Role Models as “Life Coaches” East of the River Clergy-Police-Community Partnership’s (ERCPCP) employs a system where ex-prisoners are asked to pick a role model. During the intake process participants are asked to identify a positive role model from some point in their life. For participants who choose role models who are not family members, ERCPCP reaches out to officially incorporate him/her as a “life coach.” For participants who do not have a positive, caring adult in their life, the organization recruits life coaches from within the congregations of faith partners. These pairs are matched based on interest and participant needs. One-on-one relationships are fostered, beginning in a group setting, with each group containing one life coach and three R4W participants. Two monthly meetings are held. The first meeting occurs at one of the eight churches involved in the local R4W program, and the second involves an activity in the city. In addition, mentors telephone individual participants at least once a week. To avoid the appearance of another reporting requirement, ERCPCP works to ensure that participants control the direction of the discussion. Rather than dictate a preplanned topic, life coaches strive to discover the topics of concern to the program participants. Along with its partners, ERCPCP also designed a unique mentoring program to provide pre-release mentoring services. Since Washington DC prisoners are housed in a federal prison in North Carolina, video mentoring allows DC-based mentors to meet and develop a relationship before a prisoner’s release.

Example 3: Career Coaches Join Eimago’s Team At Eimago’s Los Angeles site, volunteer mentors serve as part of the holistic case management team by providing additional support for participants. Mentors are called career coaches, a technique that seems to make the adult ex-prisoners more receptive to the

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mentoring relationship. The organization’s mentoring coordinator interviews potential career coaches to ensure that an appropriate match is formed. The coach is assigned to facilitate group or one-on-one mentoring sessions.

Action Questions 1. Why is mentoring an important facet of a reentry program? What are the benefits of mentoring adult ex-prisoners? 2. How can mentoring be incorporated into your program? 3. What challenges might need to be overcome to implement a successful mentoring program? 4. How is mentoring distinct from case management? 5. What makes more sense for your program – a team approach to mentoring or a oneon-one approach? 6. What curriculum should you use to train mentors? 7. What steps might you take to prevent mentor burn-out? 8. What strategies might you use to match mentors and mentees?

Sample Job Description: Mentor Coordinator The Mentor Coordinator can be either a paid part-time or full-time staff member or a volunteer, usually from an area congregation. Larger organizations may want to hire someone for this position since more participants mean more mentors are required and, thus, more work for the Mentor Coordinator.

Position Title: Mentor Coordinator Responsibilities/ Duties • •

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• • • • • •

Coordinate the mentoring component of the reentry program Recruit and train new mentors from local congregations and the community who will be able to support the program mission by mentoring adult, same-sex ex-prisoners Recruit other volunteers from local congregations and the community for clerical support, outreach and other services Provide regular updates to Program Manager Screen mentors for eligibility and suitability Prepare mentees as to the expectation of the mentoring relationship Match mentors with mentees in a manner that brings mutual support and energy to the overall recovery and empowerment goals of participants Monitor progress of the mentoring relationships through regular contact and prepare necessary reports

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Minimum Qualifications • • • •

High school diploma required, college degree recommended Previous volunteer recruitment experience desired Excellent planning, organizing and project management skills Understanding of and experience working with the various faith traditions within the community, especially including those that are traditional partners of the program or organization (i.e., those that share a similar religious tradition and represent pools of potential volunteers (for faith-based organizations and programs)

Sample Job Description: Volunteer Mentor Mentors are an original and important component of the R4W model of reentry. Most sites recruit mentors from area congregations. This position is strictly voluntary, although some sites offer a small stipend to cover expenses such as travel and food.

Position Title: Mentor Responsibilities/ Duties • • • •

Develop and maintain a meaningful relationship with one or more program participants Participate in mentor orientation and attend other scheduled training sessions Abide by all guidelines set forth by the program and organization Provide regular updates to Mentor/ Volunteer Coordinator

Minimum Qualifications

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• • • • • • • •

High school diploma required, college degree recommended Relatively successful in life and career (i.e., able to offer guidance to newly released ex-prisoners) Ability to listen Realistic expectation of mentee’s receptiveness and cooperation Respectful of mentee’s religious beliefs and cultural sensitivities Willing to spend time alone with an adult, same-sex ex-prisoner convicted of a nonviolent, non-sexual offense(s) Genuine desire to help ex-prisoners maintain a stable, crime-free lifestyle Ability to adapt to constructive criticism

Sample Document: Mentor-Mentee Match Cards (Add your organization’s contact information and/or logo.)

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MEET AND MATCH Name: __________________________ Life Coach name and contact: ________________________________ ________________________________ ________________________________ I plan to meet/contact my Life Coach on: Date ___________________________ ________________________________

MEET AND MATCH Name: __________________________ Life Coach name and contact: ________________________________ ________________________________ ________________________________ I plan to meet/contact my Life Coach on: Date ___________________________ ________________________________

MEET AND MATCH Name: __________________________

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Life Coach name and contact: ________________________________ ________________________________ ________________________________ I plan to meet/contact my Life Coach on: Date ___________________________ ________________________________

CHAPTER X: MONITORING PROGRAM SUCCESS The faith-based and non-profit communities often measure success by anecdotes and testimonies. While this works well for “spreading the word” about your reentry program, it will not provide you with an accurate and verifiable measure of your success. Often times,

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grant-making foundations, government agencies and private donors, need to see data that demonstrates the positive impact that you are having on the lives of your participants. In order to do this, you must develop goals – outputs and outcomes – in the form of quantifiable data. Proper methods of data collection must be employed throughout every stage of your program to accurately measure your success. Data collection must be integrated into your reentry design as a program management tool. P/PV conducted constant evaluation of R4W sites by collecting monthly updates from all sites. Two important measures for any reentry program are 1) recidivism rates and 2) employment data (both placement and retention). With outcome goals of preventing both unemployment and recidivism, these measures would help evaluate the results of your program. Your program should collect pre-program data, such as demographic information and the nature of the offense, and post-participation data, such as services delivered, employment status and recidivism status.

Public/ Private Ventures’ MIS P/PV initiated a Management Information System (MIS) data collection operation to monitor the success of the R4W sites. Information collected through this MIS system included participant demographics (age, ethnicity gender), enrollment information (when enrolled, pre-release vs. post-release) participation in services (mentoring, job-training case management, counseling, education, health, life skills), program participation (active case load, graduates, terminations, etc., job placements, job retention and recidivism status.

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Action Questions 1. Does your organization adequately monitor the success of your programs? 2. What quantifiable data points can you develop that would define “success” in your program? 3. Does the data produced and distributed by your organization provide an accurate portrayal of your activities and rates of success? 4. Are there other data elements that you are not collecting that would more accurately portray your program’s activities and successes? 5. What is your target employment rate? Your target recidivism rate? 6. What do you think you can do as a nonprofit administrator to better the performance of program monitoring at your organization? 7. How can you use data as an effective management tool?

CONCLUSION Hopefully this toolkit provided you with helpful practices and tools to establish or enhance your prisoner reentry program. Faith-based and community organizations play a vital role in prisoner reentry in communities all across the country. These trusted neighborhood organizations provide compassionate and caring services and are valuable community partners that help touch the lives of many ex-prisoners.

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If you need more information on prisoner reentry, please visit the Department of Labor, Center for Faith-Based and Community Initiatives website at www.dol.gov/cfbci.

REFERENCE

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[1]

Langan, Patrick A. and David J. Levin. 2002. Recidivism of Prisoners Released in 1994. Washington, DC: Bureau of Justice Statistics.

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In: Criminal Reform: Prisoner Reentry into Community ISBN 978-1-60692-288-0 Editor: Quintan B. Mallenhoff, pp. © 2009 Nova Science Publishers, Inc.

Chapter 3

MENTORING EX-PRISONERS: A GUIDE FOR PRISONER REENTRY PROGRAMS Renata Cobbs Fletcher

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I. INTRODUCTION Nearly 650,000 people are released from America’s prisons each year. [1] They return to their communities needing housing and jobs, but their prospects are generally bleak. The majority of ex-prisoners have not completed high school. [2] In addition, close to three quarters of them have a history of substance abuse, and more than one third have a physical or mental disability. [3] These former prisoners are going home to some of the nation’s poorest neighborhoods, where they often lack stable social bonds and support networks and where there are few services to help them restart their lives. Given the huge gap between their complex challenges and their limited opportunities for addressing them, it is not surprising that recidivism rates are high. In fact, more than half (52 percent) of former state prisoners are back behind bars within three years after their release, either as a result of a parole violation or because they have committed a new crime. [4] This cycle of recidivism produces many negative consequences. Households that are already fragile become overwhelmed. Communities that are already struggling fall further behind. The lives of those who move in and out of prison are wasted. And the cost to taxpayers is enormous. Overall, the US spends more than $60 billion a year on prisons and jails. (It costs more than $23,000 to incarcerate someone in a Federal Bureau of Prisons facility for one year and approximately $3,500 per year for probation; incarceration in a state prison can run as high as $45,000 per year or more.) [5] Without the development of effective approaches for reducing recidivism, the problem is certain to grow. The number of Americans behind bars has increased steadily and now includes more than 2.1 million men and women. [6] Almost all of them will eventually be released, and, unless something changes, more than half of them will not be successful in reentering their communities and will return to prison.

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Ready4work The economic and social considerations discussed above led the U.S. Department of Labor (DOL) and Public/Private Ventures (P/PV) enter into a grant relationship to develop Ready4 Work: An Ex-Prisoner, Community and Faith Initiative in 2003. Funded by DOL and the Annie E. Casey and Ford Foundations, Ready4Work was designed to address the needs of the growing ex-prisoner population and to test the capacity of community- and faith-based organizations to meet those needs. Services consisted of employment-readiness training, job placement and intensive case management, including referrals for housing, health care, drug treatment and other programs. Ready4Work also involved a unique mentoring component— including one-to-one and group mentoring—in the belief that mentors can help ease exprisoners’ reentry by providing both practical and emotional support. The Ready4Work program served adult former prisoners in 11 cities around the country. [7] The lead agencies at six of the sites were faith-based organizations; at three of the other sites, the lead agencies were secular nonprofits. Operations in the remaining two cities were headed up by a mayor’s office and a for-profit entity. After the formal, three-year demonstration period ended in Fall 2006, nine of the participating programs continued their operations using the Ready4Work model. Ready4Work targeted 18- to 34-year-olds whose most recent incarceration had been for a nonviolent, nonsexual felony offense and enrolled them within 90 days of their release from prison. All participants entered the program voluntarily. Together, the sites enrolled approximately 4,500 formerly incarcerated individuals—predominantly African-American males, with an average age of 26. Half of all participants had extensive criminal histories at the time of their enrollment, with a record of five or more arrests. A majority had spent more than two years in prison, and almost 25 percent had spent five or more years behind bars. Once individuals entered the program, they were eligible for services for up to one year. The cost per participant/per year of service was approximately $4,500.

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Why Include Mentoring in a Reentry Program for Adults? For more than ten years, research has demonstrated that carefully structured, well-run mentoring programs can positively affect social, behavioral and academic outcomes for atrisk young people. [8] Research has also shown how mentoring works—through the development of a trusting relationship between the young person and an adult mentor who provides consistent, nonjudgmental support and guidance. Among the questions that Ready4Work was designed to explore was whether mentoring could similarly lead to positive outcomes for adult ex-prisoners. Early findings from the evaluation of Ready4Work suggest that mentoring can have real benefits in strengthening outcomes in the context of a multifaceted reentry program. Across the 11 sites, about half of the participants in the reentry program became involved in mentoring. Those participants fared better, in terms of program retention and employment, than those who did not participate in the mentoring program: [9] Specifically: •

They remained in Ready4Work. Because individuals who leave programs early are less likely to realize the full benefits of participation, one key question is whether

Mentoring Ex-Prisoners

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there is an association between mentoring and the length of time participants remain in a reentry program. Ready4Work participants who met with a mentor spent an average of 10.2 months in the program, whereas those participants who never met with a mentor only spent an average of 7.2 months in the program. They were more likely to find a job while in the program. Research has found that employment plays a crucial role in helping ex-prisoners avoid criminal behavior and reincarceration. [10] Thus, a primary goal of Ready4Work is to prepare ex-prisoners for success in the labor market and increase their employment opportunities. Overall, 56 percent of Ready4Work participants were successful in finding jobs. Furthermore, participants who met with a mentor were more than twice as likely to find jobs than participants who never met with a mentor. They were more successful in retaining jobs. People recently released from prison not only need to find a job, but they also need to remain employed in order to establish stability and, ideally, to lay the foundation for long-term advancement and wage growth. However, the jobs they find are often temporary or transitional. Exprisoners also have a high rate of either quitting these jobs or being fired. Thus, Ready4Work looks at three months of continuing employment, although not necessarily in the same job, as a key job retention benchmark. Among the participants who found ajob and were active in the program for at least three months, 65 percent met the job retention benchmark. Furthermore, those who met with a mentor were 56 percent more likely to meet the benchmark than those who did not. They were less likely to recidivate. At the one-year post-release mark, mentored Ready4Work participants, regardless of whether they attained employment, were 39 percent less likely to recidivate than those participants who were not mentored.

These results are based on comparing participants who chose to meet with a mentor against those who did not meet with a mentor. Participants, however, were not randomly assigned to meet with a mentor—it was a voluntary component of the program. It is possible that whatever motivated them to take advantage of mentoring may also have motivated them to remain active in the program longer and to try harder to find and retain employment. It is also possible that variances in program quality and structure were sometimes factors in whether or not participants engaged in the mentoring component. Because the evaluation did not include a control group, these results are not definitive; however, the results are extremely promising. They suggest that as participants make a transition back into their communities after a period of incarceration, mentoring may play an important role in keeping them involved in the program, employed and less likely to recidivate.

The Purpose of This Manual Ready4Work’s most innovative aspect may have been its mentoring component. Few social programs have attempted to provide high-risk adults—and, particularly, ex-prisoners— with mentors. Thus, there are few resources that offer practical recommendations and helpful strategies for mentoring this population based on its distinct needs, assets and challenges. While much remains to be tested and learned, this manual draws on the experiences of the

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Ready4Work sites and promising practices in mentoring to provide information and suggested guidelines for practitioners who are interested in developing a mentoring component that helps support ex-prisoners and quite possibly enhances the effectiveness of other program areas, such as job placement and retention.

Key Considerations There are several important points to keep in mind before developing and operating a mentoring program. These include: 1. Mentoring alone is not enough People newly released from prison have many needs—including housing, health care and employment—that must be addressed very quickly so that they do not develop into insurmountable barriers to successful reentry. Virtually all of the participants in Ready4Work received case management and employment services, including soft-skills training and job placement assistance. In addition, some participants took advantage of other wraparound services, such as GED classes or alcohol and drug counseling. The importance of such services is well known. While dependable and supportive mentoring relationships can be a crucial component of a reentry initiative, those relationships are a complement to—not a substitute for—these necessary reentry services. 2. It is Challenging to Convince Participants to Become, and Remain, Involved in Mentoring Mentoring was the most challenging aspect of Ready4Work for the sites to implement. Participation in mentoring was voluntary, and only about 50 percent of the ex-prisoners met with a mentor. In addition, female Ready4Work participants were more likely than male participants to become involved in the mentoring program. Despite Ready4Work’s staff efforts to present mentoring as a key and potentially valuable service, some participants lacked interest in becoming involved. These participants described a variety of reasons why they were not interested in mentoring, including:

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Mentoring does not seem like a priority. As they returned to the community and tried to reestablish their lives, most of the former inmates prioritized finding ajob and being able to pay their bills as their major first goals. Any activity not directly related to those two goals seemed less important. In addition, with family obligations, transportation obstacles such as accessibility and cost, other programs or classes they were attending, and jobs (once they began working), some participants found it hard to find time to participate in mentoring. It can seem like another form of reporting. Often, a condition of release from the criminal justice system requires ex-prisoners to report to parole or probation officers and, in many cases, to regularly submit to drug testing. “Reporting” for a mentoring session can thus, at least initially, seem more like a burden than an opportunity. It can evoke feelings of being treated like a child. For some participants, having a mentor seemed more suitable for youth than for adults. They felt it was unnecessary or even would reflect a position of weakness, as the mentee. Participants said that, as adults with life experience, they could take care of themselves; they did not like

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talking to strangers about their problems; or that they already had a close friend or family member who they talked to about personal issues. Participants can feel like there is no common ground with the mentors or that mentors’ motives cannot be not trusted. Some participants believed that mentors who had never been incarcerated themselves could not understand ex-prisoners’ experiences, which created a communication gap that rendered any investment in mentoring pointless. Others were hesitant to engage in mentoring because of concerns that a mentor volunteering through a faith institution would try to influence their religious beliefs or pass moral judgments on their criminal histories. Because the majority of lead organizations in Ready4Work were faith- based, P/PV worked closely with sites to ensure that mentors were clear about their role, as well as about federal funding guidelines that prohibit proselytizing and overt references to faith, and that they maintained a solid separation between their religious beliefs and their mentoring relationships; however, some participants continued to have concerns. Participants worry about confidentiality. Some ex-prisoners were worried that personal information shared with a mentor might be reported back to their parole officer and then used against them as possible evidence of a violation that could put them back in prison.

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Even after participants became involved in mentoring, it was challenging to keep them committed and engaged. At times, after they found a job, coordinating schedules and other commitments became obstacles to continuing the mentoring. Further, participants not showing up for their scheduled sessions led to the challenge of retaining mentors. Mentors would get discouraged and become less motivated to maintain the relationships and some-times drop out themselves.

3. Mentoring of Ex-prisoners is Likely to Look Different then the Traditional Image of “Mentoring,” which is Drawn from the Relationship between a Young Person and an Adult Mentoring was included in the Ready4Work program design in order to provide exprisoners with additional support during their period of reentry. Many sites had no experience with mentoring programs prior to Ready4Work. Early on in the project, it became clear to P/PV that mentoring adults was going to follow a different pattern than mentoring youth. One major difference was in the form of the mentoring. To address the likelihood that a) sites might struggle with recruiting an adequate number of mentors for one-to-one matches and b) participants might, at least initially, be more comfortable in group mentoring settings, P/PV offered sites the option of implementing either or both approaches. While there were many one-to-one matches of mentors and participants, group mentoring was also common across the sites. Most frequently, sites combined both types of mentoring. In addition, the adults in Ready4Work did not meet with their mentors as regularly or as often as is typically the case in youth mentoring. In part, this may reflect the additional demands on an adult ex-prisoner’s time, but it may also reflect the ambivalence that some participants feel about engaging in mentoring. Participants who became involved in mentoring met with a mentor and/or attended group sessions for just over three months, on average. About a third of those participants remained involved for only a month or less. The

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two thirds who continued to meet with their mentor or attend group sessions did so for an average of 3.5 hours per month, which was one half hour less than the P/PV recommendation to sites of at least four hours per month.

4. As with all Mentoring Initiatives, it is Essential to Build on Proven Practices When mentoring works, it looks deceptively simple: the mentor and participant go out for dinner together and talk; two mentors and five participants sit around a table and discuss successes and challenges on the job; a mentor phones the ex-prisoner she is paired with to ask how things are going in the computer skills training she just started. However, as all mentoring programs have learned and as research has consistently demonstrated, programs have to implement a number of key practices—involving staffing, recruiting, training, supervision and support—if the mentoring efforts are going to succeed. [11] This manual aims to provide guidance about what these key practices look like and how to implement them in programs for ex-prisoners. Structure of the Manual The following sections provide guidelines and recommendations intended to address the challenges and to increase the benefits of mentoring ex-prisoners as part of their involvement in reentry programs: • • • •

Section II provides guidelines for designing a mentoring component, including an overview of mentoring models. Section III discusses the importance of hiring a coordinator for the mentoring component. Section IV outlines policies and procedures that programs should have in place before implementing their mentoring component. Sections V, VI and VII offer guidelines for recruiting, training and matching mentors and for providing them with supervision and support.

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There are also four appendices that provide additional details. Because group mentoring is likely to be an unfamiliar approach for many program operators, Appendix A describes it in more detail. Appendices B, C and D provide sample forms, suggested training exercises for mentors and a list of additional resources.

II. DESIGNING THE MENTORING COMPONENT In many cases, the lead agency operating a reentry program will plan and implement the mentoring component itself. In some cases, however, the agency might decide to partner with another organization with more experience and expertise in this area, to carry out the mentoring component. If a lead agency has contracted with a partner organization to operate the mentoring component, it should work closely with that organization in creating the component. In either case, there are a number of key steps to work through in developing an approach to mentoring that increases the potential for success with a population of exprisoners.

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This section describes several initial steps: • • • •

Defining the mentor’s role Deciding on a mentoring model Developing an approach for providing pre-release mentoring Deciding what to call the mentors, mentees and the component as a whole.

1. Define the Mentor’s Role Whatever specific form the component takes, whether it is one-to-one or group mentoring, the role of the mentor is the same: to provide support and to serve as a positive role model in the ex-prisoner’s life. Mentors: • • • • •

Listen Are nonjudgmental Help participants stay focused on the big picture Help participants problem-solve and assess how to make wise choices among competing alternatives Maintain regular contact so the participant knows there is someone there on whom they can rely.

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In some cases, the mentors might also offer practical support by helping participants set goals, cope with stress and/or budget their money. Mentors might pass along leads on jobs and housing or give participants tips on how to dress for a job interview. Further, mentors might help participants deal with everyday challenges in life, such as figuring out the best way to commute to work. One of the most important roles of a mentor is to be a friend. It will take time for some participants to open up and feel comfortable engaging in discussions during mentoring meetings and during other interactions with their mentors. Mentors have to work thoughtfully to build the relationship and develop trust—and then maintain that trust over time.

2. Decide on a Mentoring Model There are, as yet, no proven best practices for what a mentoring model for ex-prisoners should look like. This section provides an overview of two potential models—one-to-one mentoring and group mentoring—as well as a brief discussion of how these two models might be combined.

One-to-one Mentoring Individual—or one-to-one—mentoring typically includes the following features: •

One mentor is matched with one participant

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They meet consistently (ideally once a week or once every other week, for six months to a year) at a time and place of their choosing. Mentoring sessions usually last from one to two hours. Between meetings, they maintain contact by telephone. The participant and mentor decide how they want to spend their time together. They might, for example, go out for a meal, to the movies or to a sporting event. In conversations during these activities and on the telephone, the mentor acts as a support, a sounding board and a steady, nonjudgmental guide. The conversations might be about family, work, concerns and frustrations about adjusting to life outside prison, sports, politics or life in general.

Potential advantages: One-to-one mentoring is generally considered to be the most effective model because of its potential to foster deeper, more meaningful relationships and to provide stronger support to the participant. On a practical level, because mentors and participants decide when and where each meeting will take place, this model also might help address the issues of time and transportation that sometimes make it difficult for participants to attend group mentoring sessions that take place at a set time in a designated place. Potential challenges: Some ex-prisoners may be resistant to one-to-one mentoring because they feel that it puts them in a childlike role. This model can also be demanding for programs to implement—it requires intensive efforts to recruit large numbers of mentors and to screen, train and supervise them. In addition, some potential volunteers may not have the confidence to mentor an ex-prisoner in a one-to-one setting. Finally, it may also be harder to retain mentors. If their mentee drops out of the program, the mentors may see themselves as having failed and, in turn, become more likely to leave the program rather than get matched with a new mentee.

Group Mentoring Because group sessions are a relatively new approach to mentoring, there is no research, as of yet, that identifies specific practices that may make it most effective. However, group mentoring typically includes the following features and opportunities for variation (Appendix A discusses group mentoring in more detail):

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Several participants and mentors meet as a group at a set time and place on a weekly or biweekly basis. While the size of a group and the mentor-to-participant ratio can vary from program to program, ideally the same mentors meet consistently with the same group of participants over time. Sessions typically last about two hours. There are several approaches groups might take during these sessions. They might use a structured format, which includes a curriculum (such as a life skills curriculum), or in which a staff member determines major discussion topics and activities for the group ahead of time. Or, they might use a less structured approach, in which mentors and participants decide on discussion topics at the beginning of each session. Regardless of which approach is taken, the sessions focus on topics that are relevant to formerly incarcerated individuals and their reentry efforts. For example, topics might include goal-setting, stress management, budgeting and financial stress, family reunification, strategies for avoiding past negative behaviors and involvement with

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negative acquaintances, persistence and responsibility. Watching relevant themebased movies together can also serve as a springboard for group reflection and discussion. Even in the most structured formats, group leaders should be flexible, so that there is always time for participant-initiated discussions. Mentors’ roles during the meetings include contributing to discussions and providing nonjudgmental guidance and support. In some models, mentors take turns leading the meetings and moderating the discussions; in other models, program staff serve in those roles Groups can vary their meetings by having guest speakers and going on outings, such as to baseball games and films.

Potential advantages: Group mentoring requires fewer mentors, making the recruitment process less intensive and demanding on staff time. The group sessions also might hold more appeal for at least some of the ex-prisoners because the dynamic of peer support is used, and participants might feel more comfortable sharing experiences and ideas with other exprisoners—people who are “walking in their shoes.” Potential challenges: While there is, thus far, no research that has provided evidence one way or the other, it seems possible that group mentoring might not result in relationships and support that are as strong as those in one-to-one mentoring. In addition, although some participants may feel more comfortable in a group situation because they have taken part in group sessions during incarceration, for others the group setting could promote feelings of still being institutionalized. Finally, some participants and mentors may not feel as committed to the mentoring process because even if they do not show up for a particular session, mentoring activities still proceed for the other people who are present. Thus, it can be easier to rationalize missing a meeting.

A Combination of the Models In Ready4Work, sites typically offered a combination of both one-to-one and group mentoring. Their experiences suggest several potential approaches:

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A focus on group mentoring, including some one-to-one mentoring that serves as an extension of group meetings. In this approach, some or all of the participants are matched one-to-one with mentors. Mentors and participants attend group mentoring meetings and, at that time, engage in individual conversations. Between group mentoring meetings, they have “check-in” phone calls. However, unlike programs that focus on a one-to-one approach, the mentor and participant do not necessarily spend time together in individual meetings or outings aside from in the group sessions. A focus on group mentoring, encouraging one-to-one relationships to evolve naturally. Even when the mentoring is done in groups, participants may develop special bonds with specific mentors who are part of the group. Thus, group mentoring sessions can provide some time before and after the actual meeting where participants and mentors have the opportunity to talk one-to-one. In addition, programs may want to develop a policy governing situations in which participants

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and mentors who have gotten to know each other in a group setting can transition into a one-to-one mentoring relationship. A focus on one-to-one mentoring, including some group meetings. A third “combined” model could include a focus on one-to-one mentoring, including occasional group meetings that bring together several sets of mentors and participants for group discussions.

In addition, programs might offer one-to-one and group mentoring as separate alternatives and work with each participant to determine which model would be best for him or her. Or, a program might start a participant in one model and later encourage him or her to move into the other model, based on that person’s individual needs and preferences, or on the availability of mentors.

3. Develop an Approach for Providing Pre-release Mentoring A promising approach for breaking through participants’ barriers to becoming involved in mentoring takes place through services provided while they are still in prison. In Ready4Work, prisoners were permitted to enroll in the program if they were within 90 days of being released. This provided sites with the opportunity to begin developing relationships by offering mentoring to enrollees while they were still incarcerated. Pre-release mentoring might take place through a lead agency’s or partner organization’s prison ministry outreach. In other cases, pre-release enrollees may be matched with mentors with whom they interact through letter writing, prison visitation and phone contact, thus beginning to form relationships before returning to their communities. In addition, one Ready4Work site, through its partnership with a correctional facility and the local offender supervision agency, integrated videoconferencing into its pre-release mentoring, thus allowing mentors and participants to meet “face-to-face.”

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4. Decide what to Call the Mentors, Mentees and the Component as a whole Language matters—words have meaning. Thus, another strategy for addressing participants’ resistance to becoming involved in mentoring is to use words for “mentor” and “mentee” that eliminate the potentially negative connotations these words may have for some ex-prisoners. Well-selected terms might help participants have more positive attitudes about becoming involved in mentoring. They might also help attract volunteers who may have difficulty seeing themselves as a “mentor” but may be more comfortable in a role with a different designation. While, for consistency, this manual most often calls the recipients of mentoring services the “participants” and their counterparts the “mentors,” other terms might be preferable, given the circumstances of individual programs. These terms could include: •

For “mentor”—“coach” or “life coach.” Using one of these terms can make the concept of mentoring more appealing for those participants who might associate “mentoring” with being in a childlike role, while they connect “coaching” with sports

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and with helping to develop specific skills. Those terms may also be more appealing to potential volunteers—particularly male volunteers, who are traditionally more difficult to recruit as mentors—because the words place more emphasis on guidance than on forming relationships. Alternate terms might include “career coach” or “transition coach.” For “mentee”—“participant,” “partner” or “associate.” The word “mentee” is likely to have negative connotations for at least some of the participants enrolled in the reentry program because they may feel it defines them as being in a lesser role. For the mentoring component—“life coaching” or “transition coaching.” As a staff member at one of the Ready4Work sites said, “Life coaching is what we call it. They [participants] can buy into that. Coaching includes helping the participant think through different situations with the objective of helping him/her make positive life choices. They can live with that definition of mentoring. They get involved in sports, and coaching is something they like.”

The terms a program chooses to use—whether one of these suggested terms or a different term—should not alter the content and approach of its mentoring component. However, the right terms can be an effective tool for avoiding preconceptions about “mentoring” that create a barrier for both participants and potential volunteers.

III. HIRING A MENTOR COORDINATOR One of the key lessons that emerged from the Ready4Work sites was the importance of hiring a mentor coordinator—one staff member whose work is dedicated to the mentoring component and who is familiar with all mentoring concerns. Some sites faced initial challenges in getting their mentoring components operating effectively because they did not have a single staff person in that role. When responsibilities were divided among several people, it became difficult to develop a coherent process for implementing the mentoring component. This section provides guidelines for hiring a mentor coordinator, including:

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Defining the mentor coordinator’s roles and responsibilities; and Identifying the experience, personal characteristics and skills necessary for performing effectively in this position. In addition, Appendix B includes a sample job description for the mentor coordinator position.

1. Define the Mentor Coordinator’s Roles and Responsibilities While programs will modify this list based on their particular circumstances, the roles and responsibilities of the mentor coordinator typically include:

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• • • •

Taking the lead on all aspects of the mentoring program, including recruiting, screening, training, matching and supervising mentors; Working closely with other program staff to encourage the ex-prisoners to become involved in mentoring and connecting the mentoring component with other program services, such as job training and placement; Helping participants and mentors develop positive and supportive relationships; Supporting mentoring retention efforts by consistently monitoring the participantmentor matches; Taking the lead on planning and implementing group activities, celebration ceremonies and other events related to the mentoring component; and Assisting in increasing public awareness of the program, including speaking in front of groups to recruit volunteer mentors or to identify potential sources of additional program resources.

2. Identify the Experience, Personal Characteristics and Skills Necessary for Performing Effectively in this Position Ideally, it would be possible to hire a mentor coordinator who has past experience running a mentoring program for high-risk adults; however, there are few people who have served in that role. Thus, other relevant backgrounds could include working with high-risk populations, particularly with formerly incarcerated individ uals; experience in social work or counseling; experience running a mentoring program for other populations. In addition, the following personal characteristics and skills may be essential to an effective mentor coordinator: • •

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A commitment to working with ex-prisoners and an understanding of the potential value of mentoring for this population. Interpersonal skills, including an ability to get along with people of diverse backgrounds and the expertise to help mentors and mentees address and overcome problems and build trusting relationships. Presentation skills, including ease with giving recruitment presentations in small- and large-group settings; assisting with, and sometimes providing, trainings for mentors; and, for programs with group mentoring, facilitating those sessions. Administrative and organizational skills, including the ability to maintain orderly records and files, track and keep appointments and respond promptly to phone messages and emails. A positive and flexible personality, contributing to the ability to work well with other program staff and respond calmly and thoughtfully to the many ups and downs involved in running a mentoring program.

In addition, the mentor coordinator should be skilled at establishing connections and developing relationships that will support successful recruitment efforts. Further, it would be especially helpful if the mentor coordinator has connections with the communities from which mentors will be recruited.

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IV. DEVELOPING INITIAL POLICIES AND PROCEDURES Before programs can start recruiting and training volunteers and begin the actual mentoring activities, they should develop policies and procedures that will guide their efforts. This section discusses six key steps in this process: • • • • • •

Identify mission, goals and objectives Define eligibility requirements for mentors Create a “mentor participation agreement” Develop a confidentiality policy for mentors Create guidelines for screening potential mentors Develop strategies and procedures that encourage participants to become involved in mentoring.

The rest of this manual will then provide guidelines for implementing the mentoring component, including recruiting, training, supervising and supporting mentors.

1. Identify Mission, Goals and Objectives The process of creating a written statement that defines the mentoring component’s mission, goals and objectives encourages everyone to forge a common vision. The final document should also help guide implementation of the mentoring component. While each program must develop its own mission, goals and objectives, the following are brief examples (a sample form illustrating these three elements appears in Appendix B): •

The mission statement describes the main purpose of the mentoring effort. The mission statement for the mentoring component will be different than the mission statement for the lead agency or for the reentry program as a whole.

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Example: The mentoring component of the Former Prisoners Reentry Program provides consistent and caring mentors to support and guide participants as they develop the attitudes and skills that will help them become successful in their personal lives and in the workplace. •

Goals describe how the program will achieve its mission. They are usually worded broadly.

Examples: 1) Provide participants with support from mentors that will help them learn to overcome barriers, increase their confidence and gain hope for their futures; 2) Decrease rates of recidivism by encouraging participants to make choices that will enable them to be successful. •

Objectives describe the concrete benchmarks a program has to achieve if it is going to reach its goals and accomplish its mission. Objectives are typically very specific.

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Examples: 1) During the first year of the program, a minimum of 40 participants will receive at least six months of one-to-one mentoring services; 2) During the first year, we will recruit at least 50 mentors and retain at least 80 percent of those mentors for at least six months. Importantly, having goals and objectives also helps programs measure progress as the mentoring component is implemented. To what extent are you achieving your goals and objectives? What modifications in program practices, such as recruiting and supervision, are necessary for strengthening progress toward achieving your goals?

2. Define Eligibility Requirements for Mentors Listing the requirements for mentors serves several purposes. It provides information you can use in your recruitment presentations and materials, and it identifies criteria against which you will screen volunteer applicants (recruiting and screening are described more fully in Section V). While requirements will vary among programs, they might include: • •

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A minimum age for mentors, such as 21 years old. A time requirement, including both length and frequency. For example, programs might require that mentors have the ability to serve for one year and can commit to meeting with their mentee for an hour a week or two hours every other week. Safety requirements, including checks of criminal records and child abuse registries. Particularly if you are planning to recruit formerly incarcerated individuals to serve as mentors, programs will need to define a “last date” at which a mentor has been convicted of a felony. For example, you might require that mentors have not been convicted of a felony for the past five years.

Other eligibility requirements might include having a good driving record (for one-to-one mentoring, where the mentor may be driving the participant [12]), a history of following through with commitments and the ability to be nonjudgmental.

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3. Create a “Mentor Participation Agreement” This agreement, sometimes called a “mentor contract,” includes a list of items that outline the role and responsibilities of the mentor and key program requirements. Having a written agreement can help build commitment in the volunteer, and it also helps ensure that the volunteer and the program are on the same page. While the specific items will vary from program to program, the agreement should include: • •

The length of the volunteer’s commitment to the program and the frequency with which he or she is expected to meet with the mentee(s); A commitment to learning and embracing the role of a mentor (by attending trainings) and to carrying out that role; and

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An agreement to follow program policies and procedures, including confidentiality policies.

Each item in the agreement should be discussed with volunteers before they sign it. The discussion might take place during their screening interview or during an initial orientation or training session, depending upon the point at which your particular program expects to get a commitment from volunteers. It is important to have your board of directors or legal representatives review the agreement before you begin to use it. A sample agreement appears in Appendix B.

4. Develop a Confidentiality Policy for Mentors Maintaining confidentiality is an essential aspect of building trust. Thus, all mentoring programs must develop clear confidentiality policies that mentors understand and adhere to. Programs that provide mentoring for ex- prisoners face special challenges in developing and following confidentiality policies •

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Programs have a responsibility to understand laws in their jurisdiction that govern what participant actions or activities they are required to report to legal authorities. These legal requirements must be built into the confidentiality policy. One of the reasons some participants in reentry programs are reluctant to become involved in a mentoring relationship is their fear that they will say something to their mentor that could be reported to their parole officer and used in a way that could result in their being returned to prison. Thus, the confidentiality policy must be completely unambiguous, and participants should understand what it includes. Some participants in the program may suffer from addiction, depression or other mental illnesses and be at high risk of self-destructive behavior. The confidentiality policy should have clear guidelines for mentors about immediately contacting program staff ifthey see warning signs of self-destructive behavior, such as drug or alcohol use, not showing up for work, or reconnecting with peers who participate in negative lifestyles. Mentors also have to be trained to recognize these signs—see Section VI on training mentors.

The confidentiality policy thus has to be very clear about when and with whom mentors can discuss their mentees. Under what specific circumstances can they discuss their mentee with other mentors? Under what specific circumstances should they speak to program staff? Further, it is essential to let mentors know whether they should make reports only to program staff, not to parole officers or anyone else. The policy must be explicit about these circumstances, while balancing the needs of confidentiality, legal requirements and safety. A sample policy appears in Appendix B.

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5. Create Guidelines for Screening Potential Mentors There are two reasons to screen individuals who apply to be mentors: 1) to make sure they will be good mentors and 2) to ensure safety. You want to know that your mentors have a history of carrying through on their commitments and that they have the personal characteristics that will enable them to fulfill their role of supporting participants. You also need to know that they do not have a background that suggests they might pose risks to their mentees. It is important to have a procedure for screening potential mentors to know that they do, in fact, meet the eligibility requirements you have identified. Screening typically involves, at least, the following steps: • • • •

An in-person interview with each potential mentor; A questionnaire they complete about themselves and their interests; A check of two or three references; and A criminal background check.

Using this kind of structured approach, with layers of screens, increases your chances of identifying those volunteers who will be safe and successful mentors. In addition, organizations should choose mentors that best fit the environment and needs of their particular reentry programs.

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6. Develop Strategies and Procedures that Encourage Participants to become Involved in Mentoring As the experience of the Ready4Work sites demonstrates, recently incarcerated individuals can have both psychological and practical barriers that make it difficult to get them involved in mentoring. Despite ongoing efforts by staff at the sites, only about 50 percent of participants in the reentry programs met with a mentor, and only about a third of participants met with a mentor for two months or more. For those participants who did become involved, there was often a lag time between joining the program and being matched with a mentor—an average of 2.5 months from the time they began the reentry program to their first meeting with a mentor. Clearly, programs need to develop strategies and procedures that address participants’ resistance to becoming—and remaining—involved in mentoring. Section II of this manual discussed some of the ways programs can help overcome participants’ resistance from the beginning—whether that be the choice of mentoring model (one-to-one or group), starting mentoring pre-release or making careful decisions about terminology (what you call “mentors” and “mentees”). In addition, programs will need to develop specific approaches that address both psychological and practical barriers. These approaches might include: •

Introducing mentoring from the start as a key element of the support the reentry program is offering. In Ready4Work, for example, a case manager met with each new enrollee to assess needs and connect him or her with appropriate services. This

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is a key time to present mentoring (or “coaching,” if that is the term your program decides to use) as a support for participants that can enhance the other program services. Mentors might provide additional support for participants’ job search efforts and help them think through ways to address obstacles both at home and in the workplace. Mentors also serve as a positive alternative to the negative social networks that many participants engaged in prior to, and possibly during, incarceration. Have program participants who are involved in mentoring make a presentation to new program enrollees about their mentoring experiences. Review the written mentoring confidentiality policy with participants so they understand the confidentiality policy mentors are bound to uphold. Discuss any aspects of the policy that participants express uneasiness about. Address practical barriers to participation. For programs with group mentoring, for example, participants may have problems with transportation getting to the sessions, or the sessions might take place at a time that conflicts with their work schedules. To address these issues, programs should ensure that group mentoring takes place at a location accessible by public transportation; they should provide participants with transportation passes so attending does not cost them money; and, finally, they should hold the sessions at a time that takes into account other demands on participants’ schedules.

Once participants become involved in mentoring, it is also essential to check in regularly with them about their experiences—a key strategy for helping them stay involved. Supervision of mentors and support for both mentors and participants is discussed in Section VII.

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V. RECRUITING MENTORS Recruiting mentors is a difficult and often frustrating job, requiring patience, creativity, organization and persistence. It is an ongoing challenge for almost all programs. In most communities, there is stiff competition for volunteers—especially for people who possess both the available time and the personal characteristics that are essential to effective mentors. There are no easy solutions for the challenges of recruiting. However, a systematic recruitment plan, carefully developed and implemented, will increase your chances of recruiting committed and effective mentors. This section provides guidelines for developing a recruiting plan, including: • • • • • •

Set recruitment goals Target your recruitment efforts Get support from faith leaders (for programs that are recruiting through houses of worship) Develop your recruitment message and materials Keep track of every step—write it down! Provide good customer service.

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The guidelines are drawn from effective practices in the field of mentoring and from the specific experiences and lessons learned from the Ready4Work sites.

1. Set Recruitment Goals Setting recruitment goals requires answering a series of questions, including: How many participants do you plan to have in one-to-one matches? Are you going to have group mentoring? How large will the groups be? How many mentors do you plan to have in each group? Do your mentors represent a mix of varied life experiences? As you explore these questions and set your goals, also consider the following points: •

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•

Over-recruit: It is important to recruit more volunteers than your actual goal because a percentage of them will drop out at each step along the way—during the screening process, during training, and after training but before they begin mentoring. Still others may begin to mentor but not fulfill their one-year commitment. In fact, as many as 40 to 50 percent of mentor applicants may drop out at some point in the process. After your program’s first few months of implementation, staff will be better able to estimate the dropout rate and the number of volunteers the program needs to target for recruitment. Remember that recruitment is ongoing: As ex-prisoners enroll in the reentry program and as current mentors drop out, you will need to attract new mentors. In addition, particularly as you are starting a new mentoring initiative, you may want to take a gradual approach to bringing on mentors so you can gain experience in training and supervising them. Thus, if your first-year goal is to have 40 one-to-one matches, consider setting a sub-goal of making ten matches every three months, instead of aiming for 40 matches right away.

Do not recruit more mentors than you can successfully supervise: The number of matches that a program can successfully make and manage depends on staffing levels. Supervising matches (discussed in Section VII) is crucial to ensure trusting relationships develop between the mentor and participant so that mentoring can make a difference in the participant’s life. If the mentor coordinator has primary responsibility for supervision, how many matches can he or she handle? The Ready4Work experience suggests that a mentor coordinator should manage no more than 35 to 40 active matches at a time. If the number of matches exceeds this range, an addi tional part-time staff person should be hired if at all possible. Programs that rely primarily on group mentoring may have somewhat more flexibility in setting goals because they have some leeway in adjusting the size of the groups so that participants are not on a waiting list for a mentor.

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2. Target your Recruitment Efforts The more you can identify the characteristics of people you are trying to recruit as well as effective ways to find and attract them to your program, the more efficient and successful your recruitment efforts are likely to be.

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Who are you Trying to Recruit? Unless your reentry program is specifically focused on female ex-prisoners, you are likely to have far more male than female participants. The Bureau of Justice Statistics reports that nationwide about 80 percent of all prisoners are male. In many areas of the country, a large percentage of enrollees are also likely to be African American, Hispanic or, in some regions, members of other minority groups such as Native Americans. Programs would do well to target mentors that have common life experiences, who might have overcome similar challenges or barriers, and who could empathize with the mentees. Often times, these are typically the most difficult groups to recruit. In some cases, programs might also target formerly incarcerated individuals to recruit as mentors. Given the unique challenges faced by people returning from prison, some staff at the Ready4Work sites felt that individuals with similar experiences might be better able to support the participants and more likely to earn their trust. Reinforcing this notion, some participants resisted having a mentor because, they said, someone who has never “walked in their shoes” would not be able to understand the situations they were facing. Targeting your recruitment efforts does not mean that you will have only mentors who fit one demographic profile or who come from one kind of background. In identifying several “types” of people that should be targeted for recruitment, programs will likely build from their mentor eligibility requirements and from their understanding of the needs of the exprisoners enrolled in their particular reentry program. The eleven Ready4Work sites, for example, recruited a diverse group of more than 1,000 mentors. They ranged in age from 18 to 80, with an average age of 45. Just under 60 percent were male, and more than 85 percent were African American—both groups that are traditionally difficult to recruit. In addition, 30 percent of the mentors had previously been incarcerated. In addition, 30 percent of the mentors had previously been incarcerated. Where are you Going to Target your Recruitment Efforts? While the mentor coordinator takes the lead in recruitment efforts, one area where all program staff can contribute is in identifying groups, such as business associations or houses of worship, where targeted recruitment can take place. All programs should canvass their staff and boards to find out where they have connections that are potentially beneficial for recruiting. If a program’s participants are primarily male and/or minorities, special attention should be paid to targeting potential sources for mentors where large numbers of these populations are represented. Ready4Work had six faith-based lead agencies and many more partnerships with local faith-based groups. Thus, much of Ready4Work’s mentor recruiting was done through houses of worship. Other potential sources for mentors include service organizations, such as national fraternities and sororities with local chapters, and, possibly, community groups from the areas where the ex-prisoners and their families live. Of the more than 1,000 mentors recruited through Ready4Work sites, 54 percent learned of the program through their houses

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of worship, and 20 percent learned of it through other direct outreach, such as presentations to clubs or community fairs. Another 18 percent learned about the mentoring opportunity through a friend or acquaintance. It is important to note that general, untargeted recruitment efforts were rarely successful—only one percent of the mentors learned about the program from an advertisement. [13]

3. If Recruiting through Houses of Worship, Get Support from the Pastor or other Spiritual Leader One of the key lessons of Ready4Work was the importance of securing buy-in and support from the pastor, rabbi or imam when recruiting through houses of worship. Faith is a powerful motivator for people to become involved in mentoring, and when faith leaders stand behind the program and explain to their members how it contributes to fulfilling the mission of the house of worship, people will often step forward and volunteer to serve.

4. Develop your Recruitment Message and Materials As you develop your recruitment message for presentations to groups and for print materials, consider several key questions:

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• • •

What motivates people to volunteer as a mentor? What will motivate them to volunteer for your particular program? What are your target audiences’ obstacles to, and concerns about, becoming involved?

People may be motivated to mentor, for example, because of their spiritual beliefs, a personal commitment to help others overcome barriers or because they feel it is important to give back to the community (often recognizing the tremendous negative impact that crime, incarceration and recidivism have on the local community). They might be particularly motivated to volunteer for your program because they have had a relative or friend who is or has been in prison or because they feel this population needs strong role models. Further, they might be motivated because of benefits they may gain as a mentor. For example, by becoming part of a group and feeling like they are making a difference, they adopt a more positive outlook about themselves. At the same time, there are reasons why people might be reluctant to become involved in mentoring in general and in your program in particular. They might be uncomfortable with a program that has as its focus “building relationships.” They might be concerned that they will not be able to communicate effectively with people whose lives are very different from their own, or they might be worried about their safety. Some people will also feel reluctant because they do not think they have the time.

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The Recruitment Message Your message should appeal to the motivations and address the concerns of potential volunteers in a straightforward manner. You want to recruit people who are going to follow through on their commitment and who will be effective mentors. It is not the number of volunteers, in itself, that matters most—what is most important is the number of volunteers who will commit fully to becoming successful mentors. Thus, the recruitment message should include: •

• •

• • • • •

The mentoring component’s mission, including a very brief description of the issues of crime and recidivism locally and nationallyA brief description of the reentry program’s other elements, such as job preparation and job search and how the mentoring component fits in with them. The mentor’s role, including whether it is one-to-one or group mentoring or a combination of both. Benefits for the ex-prisoners who participate in mentoring. What successes has your program had to date that can convince people it is worth their contribution of time? Cite, or footnote in your written materials, credible data about promising correlations between mentoring and positive outcomes, such as job placement and/or reduced recidivism. If possible, include quotes from participants about positive experiences. Benefits for the mentors. As with participants, include quotes from mentors about positive experiences, if possible. Information about support, activities and events for mentors, including both the initial training and ongoing staff support. The required time commitment (length of commitment and frequency of meetings). Other mentor eligibility requirements and the screening process. Contact information, including the name, phone number and email address of a specific staff member who will respond promptly to inquiries.

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If your recruitment message is being delivered to faith-based organizations, either in a presentation or through written materials, it should also contain information on program restrictions governing discussions of religion by mentors and permissible activities.

Presenting the Message to Groups When making your recruitment presentation—delivering your message—to groups of potential volunteers, consider these additional points: •

•

•

Have a current mentor talk briefly about his or her experiences. If possible, select a mentor whose background is similar to that of the people in the group to which you are making the presentation. The mentor’s talk should be positive but realistic. Have a current participant talk about his or her experiences with a mentor, or have someone talk who has graduated from the reentry program with the support of a mentor. End your presentation with a call to action. Get phone numbers and email addresses of people who are interested in volunteering or want to learn more and make sure a

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•

staff member follows up with each of those people within a few days following the presentation. Allow time after the presentation to talk informally with the people who attended. Having refreshments available will encourage people to stay and talk.

And, finally, make sure materials are available for people to take home with them.

Preparing Print Materials Create brochures and one-page flyers that contain the key elements of your recruitment message. Program staff or board members for your organization may be able to connect you with a designer who will do the layout at a reasonable cost, and you may be able to find a local printing company that will absorb at least some of the cost of printing your recruitment materials. You might also want to print some posters to publicize your program. If you use photographs in any of these materials, select them carefully so they reflect the groups you are trying to reach, and make sure you have permission from anyone whose photo you are using—including a signed photo release form.

5. Keep Track of every Step—Write it Down!

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The process of recruitment includes a large number of tasks, many of which are ongoing, including: creating the message, developing and printing materials, meeting with pastors and other potential recruiting partners, identifying new places to make presentations, talking with mentors and participants who will be part of those presentations and taking care of details, such as ensuring there is food available for potential volunteers after a presentation to encourage them to stay around and talk. While one person—the mentor coordinator—should have oversight and ultimate responsibility for the recruitment efforts, other people should also be involved. To keep track of all the recruitment tasks and to ensure accountability, consider using a matrix, like the one shown below, or a similar tracking system to recall each task and to ensure follow-up on tasks as necessary. See Appendix B for a version of this matrix that can be customized to your program’s needs.

Activity Craft and refine the rectruiment message for the program Draft brochure language Meet with designer about recruitment brochure. Select a mentor and participant to talk at 100 Black Men presentation—help them prepare. Check with designer to make sure copies of brochure will be ready for presentation Make presentation to 100 Black Men organization Meet with Rev mith at Bright Hope Church to describe program and ask about recruiting from his congregation.

Person Responsible

Target Completion Date Date

Outcome

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6. Provide Good Customer Service Almost every organization has stories of volunteers who were lost because the organization failed to follow-up. This lack of follow-up can occur at many points, for example: 1) a potential volunteer calls to express interest and it is weeks before anyone from the organization calls her back; 2) a volunteer comes in for a screening interview, and a month passes before the organization calls about a scheduled training; 3) a volunteer completes the training and is eager to start, but nothing happens. With each delay, volunteers are lost. They get tired of waiting. Their interest fades. They wonder why they should offer their time and effort to an organization that seems not to care whether they come or not. So they move on to something else. Of course, organizations do not intend to squash potential volunteers’ interest and motivation. But they sometimes forget that in a program that relies on volunteers to deliver the services—as mentoring programs do—volunteers are a priority, not something you get around to dealing with between other tasks. Keep connected with potential volunteers. Keep them involved, interested and motivated and get them to work as soon as they have been screened and trained. More specifically, keep in touch with potential volunteers through the following steps: •

• • •

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•

•

•

Respond within 24 hours to all phone call and email inquiries from potential volunteers. Even if your program is not currently recruiting new mentors, you will be recruiting at some point in the near future. After responding to potential volunteer inquiries, enter information about these potential volunteers into a log or database, including the person’s name, phone numbers, email address, home address, and any other pertinent information, such as their interest level, concerns and how they heard about the program. Follow up by mailing, or emailing, a brochure and letter thanking them for the inquiry and informing them about next steps. Follow up with a phone call or email in another week. If they are interested in moving to the next step, schedule a face-to-face orientation and screening interview that takes place within a week. After the orientation and interview, if they seem like a good candidate, immediately inform them of next steps and get their permission to move forward with the screening process. If they do not meet your eligibility requirements, send them a letter thanking them for their interest. Begin the criminal background check immediately, as this is sometimes a slow process. Complete other areas of screening, such as reference checks. Keep in touch with the potential volunteer on a weekly basis and inform them about the status of the process so they stay interested. Tell them about the next training and follow up with a letter giving the training date(s). One week before the training, call or email to remind them of the date and emphasize the importance of attending. Your program might decide that potential volunteers can be trained while the screening process is still underway; however, they must not begin as mentors until the screening is complete.

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• •

Within a few days after the training, call or email to keep their interest up and let them know an approximate date when they will be matched with a participant or begin to be part of a mentoring group. For one-to-one mentoring, decide on a tentative match and then help set up an introductory meeting between the mentor and participant as soon as possible. At each point in the process, thank the potential volunteer for his or her patience and commitment.

Finally, purchase software that tracks potential volunteers or develop your own system so you know where each person is in the process—so no one gets lost

VI. TRAINING AND MATCHING MENTORS Serving as a mentor is both rewarding and challenging, and it can be particularly difficult to develop a positive, supportive relationship with an adult who has only recently been released from prison. Successful mentoring relationships may be a valuable force in helping participants make the transition to productive lives in the community. However, as research into mentoring programs has demonstrated, these kinds of relationships do not happen automatically. Mentors need training that helps them develop the skills and acquire the knowledge they need to be successful in their roles. Because the tone of a mentoring relationship can be set quickly during the first one-toone meeting or the first group session, it is important that training takes place before the mentor and participant begin to meet. This section provides guidelines for planning a training for new mentors and also includes a brief discussion about matching them with participants after they complete the training. The section discusses the following steps:

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• • • • •

Identifying the training goals and topic Addressing the practical issues Paying attention to details Creating a manual to give to mentors Developing an approach for matching mentors and participants.

The next section will discuss ongoing training for mentors, as well as other forms of program support.

1. Identify the Training Goals and Topics What do people need to know and be able to do in order to be effective mentors in general and what special considerations are there for mentoring adults who have recently been released from prison? While the details of the training will vary depending on the particular program, the overall goals are generally consistent across programs. Training should:

Mentoring Ex-Prisoners •

•

•

•

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Help the volunteers understand the scope and limits of their role as mentors. Specific topics could include: understanding their role in supporting participants and building a trusting relationship; suggested activities for one-to-one matches; the role of mentors during group mentoring sessions; setting boundaries; and understanding when to talk to program staff about possible problems their mentees are facing. Help them develop the skills and attitudes they need to perform effectively in their role. These skills and attitudes include active listening, being nonjudgmental and knowing how to guide participants into making good decisions, rather than telling them what decisions to make. This part of the training should include activities that give attendees a chance to practice communication and problem-solving skills. (Sample activities are included in Appendix C). Programs in which mentors will be facilitating group mentoring sessions will also need to provide training on group facilitation techniques. Provide information about relevant program policies and requirements. Examples include mentors’ time commitment, the importance of consistency and confidentiality policies. Faith-based programs and all programs that recruit mentors from faith-based organizations should also provide clear instruction on when it is and is not appropriate to discuss religion. For programs receiving federal grants, federal guidelines prohibit the use of that funding for proselytizing or for requiring participants to engage in any form of religious activities. Further, all programs should be attentive to the fact that discussions of religion may alienate some participants and result in their dropping out of their mentoring relationship. Text from a brochure created for Ready4Work sites on this topic is included in Appendix B. Provide information about the particular needs of the participants they will be mentoring. Topics could include: barriers ex-prisoners face, including difficulty getting jobs, substance abuse, depression and other forms of mental illness; family reunification issues, such as child custody and child support; and information about recognizing signs of crises in the mentees. Include some discussion about mentor expectations—given these barriers, it is not surprising that participants may have a high rate of not showing up for mentoring sessions or for dropping out entirely. Directly addressing this issue here can help alleviate mentors’ frustration if their mentees attend meetings irregularly or drop out, and it can make mentors more willing to be rematched with a new participant rather than dropping out themselves. Build confidence. Interactive exercises on skills like communicating effectively are an important way that volunteers can build confidence during the training. In addition, be sure they know that they are not going to be matched with a participant and then left on their own. Describe to mentors the supports your program will be providing, including regular check-ins with them, ongoing training and quick access to program staff whenever necessary. These supports are discussed in Section VII.

Among the forms included in Appendix B is a sample agenda for a training session.

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2. Address the Practical Issues When planning the training, consider the following: •

•

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•

•

Who will provide the training? One person—probably the mentor coordinator—will take the lead in the training, but the session will most likely be a combination of presentations and interactive exercises involving several different people. Some presentations—about the program, the role of mentors in the program and the supports the program provides to help mentors succeed—will be given by the mentor coordinator and other program staff. Other presentations—on, for example, recognizing signs of depression in participants or understanding the obstacles they are facing—might be given by outside experts on those topics or by knowledgeable program staff. The interactive exercises—including an icebreaker at the beginning of the training and the exercises focusing on the mentor’s role and mentoring skills, such as active listening—present a special challenge. If no one on the program staff is experienced in this type of training, the program might consider contracting with someone who is skilled in providing interactive training to new mentors. Be sure to meet with that person to discuss your program and the population of participants it serves and to plan the training so it addresses both skills that are necessary for all mentors to possess and the particular situations that mentors in your program are likely to encounter. How long will the initial training be? While length of the training will vary from program to program, there is a lot to cover. You do not want the training to be so long that it discourages people from attending and becoming mentors, but you need to ensure that volunteers have the information and skills they need to be adequately prepared before they begin mentoring. Thus, consider scheduling a minimum of five or six hours for the training. What are the best times for scheduling the training? As you are conducting screening interviews with potential mentors, ask them about their day and time preferences for attending trainings. Many programs find that trainings are well attended if they are provided on Saturdays, starting around 9:00 a.m. and going to 2:30 or 3:30 p.m., with a break for lunch. Some programs provide their trainings in at least two parts (for example, three hours in length on two different days), either on weekday evenings or weekend afternoons How large should the training be? Although there is no “right” number of attendees for a training, having too few people can make a session fall flat, while too many can make it difficult for everyone to participate actively, be heard and have their questions answered. Fifteen or 20 attendees is a good number toplan for. If your program has recruited a large number of new mentors, such as 40, consider splitting them into two groups and providing a separate training for each group. How will you keep attendees interested and involved? Use a variety of approaches during the training so attendees are actively engaged, not just sitting and listening to what program staff and other presenters have to say. Your combination of approaches could include, for example, small group discussions, problem-solving

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activities, questions and answers about mentoring, videos and guest speakers. Also, begin the training with an icebreaker activity so attendees have an opportunity to interact with and feel part of the group from the beginning. In planning the training, also be sure it is held at a time when other program staff members can attend. It is important for them to be there for at least part of the session so they can introduce themselves and talk very briefly about their role in the reentry program. This will help the new mentors see themselves as part of the larger goal of successful reentry and as a part of the organization as a whole.

3. Pay Attention to Details It is often the little things that give people the perception that the program is organized and professional and that program staff care about them. Thus, be sure to: • • • • •

Email or mail a reminder about the training two weeks ahead of time and call participants one week prior to the training. Hold the training in a clean, well-lit and comfortable space. Have everything prepared and in place before the training begins, including handouts, flip charts and all other materials and equipment you will be using. Try to set up a circular seating arrangement so people can see each others’ faces as they speak. Ask staff members to greet attendees at the door upon arrival and chat briefly with attendees as they are leaving.

And, of course, arrange to provide refreshments.

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4. Create a Handbook to Give to Mentors It will be very useful for mentors to have a handbook that includes: key program documents, such as the confidentiality policy; clearly written, easy-to-follow materials that define the mentor’s role and describe potential challenges; tips on fulfilling that role and dealing with challenges; and information on some of the key issues that ex-prisoners confront as they try to successfully reenter their communities. The handbook should also include an up-to-date list of program staff members, with their titles, phone numbers and email addresses so mentors can contact them as necessary. Use a three-ring binder for the handbook, so materials can be updated and added over time. Include handouts you will be using during the training and give the binder to attendees at the beginning of the training to allow them to reference the handouts during the training. The handbook will also serve as a reference and guide for them while they are serving in the program. The handbook serves another important purpose. While it would be ideal, in terms of training, if all volunteers were recruited in groups and could go through the training together,

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the reality is that, at times, mentors will enter the program one by one, and it might be months before there are enough new mentors to schedule a group training. You may need to get those new mentors matched with a participant or assigned to a mentoring group more quickly than that. In those cases, the mentor coordinator will have to give a shorter, one-to-one training to prepare the new mentors for their role. The handbook then becomes an essential document for the new mentor to review before meeting with the coordinator for the one-to-one training session. A sample table of contents for a mentor handbook appears in Appendix B.

5. Develop an Approach for Matching Mentors and Participants How will you decide which new mentor to match with which participant? Or, if the new volunteer will become part of a mentoring group, what criteria will you use to team up mentors within a group? You may wish to arrange matching mentees with mentors who have a similar life story and who could help the mentee work through the many hurdles they will face when they reenter society. Programs should also consider matching mentors and participants who share the same socioeconomic background, when possible. These and other factors are important for several reasons. Participants can feel more guarded and self-conscious with mentors that they feel they can not relate with. As a result, they may be less likely to communicate honestly and may feel less trusting than they would with mentors that share their background. Matching people of similar backgrounds can also foster a greater sense of trust because participants sometimes feel that these shared characteristics mean the mentors have a better understanding of them and their life circumstances. However, it is worth noting that this is not always the case. Trust issues can certainly exist regardless of these factors, and mentor coordinators should train mentors in how to help break down the trust and communication barriers that may exist in the mentor-participant relationship. Beyond these criteria, what is most important is to have an intentional approach to matching. While the mentor coordinator is likely to have the best sense of the qualities of a new mentor, program case managers are likely to have the most insight into participants; thus, it is helpful if the two make the matching decisions together.

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•

•

For one-to-one mentoring: Mentor coordinators will learn about new mentors during the screening process—through the interview and questionnaire—and can use this information to help make decisions about matching. Look for things the mentor and participant have in common, such as similar interests, hobbies and personality traits, as well as geographic proximity. Once matched, the mentor and participant should be introduced to each other either over the phone or at the program office by the mentor coordinator. For group mentoring: If you are using a model that incorporates at least two mentors per group, consider placing a new mentor in a group where the other mentors are more experienced and confident. Also try to team up mentors with different personalities. For example, place a new mentor who tends to be talkative in a group where the other mentors may be more low-key. In addition, try to match what you believe is the best mentoring team with the participant group that presents the most

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challengesIn matching, also be attentive to people’s times of availability. Although it is less likely to be a problem in oneto-matches, mentors’ schedules—the times when they are available versus the set times when specific groups meet—may limit your flexibility in matching them with specific groups.

VII. PROVIDING SUPERVISION AND SUPPORT

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Your program has recruited and screened volunteers, provided training that prepares them to become mentors and matched them with participants or placed them in mentoring groups. Now what? What is your ongoing role in helping to build and maintain the mentor-participant relationships? What is your program’s responsibility? Research on mentoring programs is clear about the critical importance of providing mentors with support in their efforts to build trust and develop a positive relationship with their mentee. More specifically, research has found that programs in which professional staff provide regular support to mentors are more likely to have matches that meet regularly and mentees who are satisfied with their relationships. Consequently, programs in which mentors are not contacted regularly by staff have the greatest percentage of failed matches—matches that do not meet consistently and, thus, never develop into relationships. This research was conducted on programs that match mentors with youth, and it is typically far more challenging for mentoring relationships to develop when the mentees are adult ex-prisoners. Clearly, programs cannot simply match mentors and participants and leave them without support and guidance. This section is intended to guide you in developing and implementing strategies that increase the likelihood that mentors and participants will meet regularly and develop a trusting relationship, which may in turn contribute to positive outcomes for the ex-prisoners enrolled in your program. The section includes the following steps: • • • • • • •

Set up a regular schedule of meetings between a staff member and the mentor Have mentors keep logs about their meetings with participants Develop a procedure for checking in regularly with participants Involve the case manager in supporting the relationships Make it easy for mentors to speak to program staff on short notice Provide ongoing trainings and other gatherings for mentors to exchange experiences, challenges and triumphs Develop a procedure for officially closing mentor-participant matches.

Finally, this section, and this manual, ends with suggestions for one more essential program task—recognizing and celebrating mentors’ and participants’ hard work and success.

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1. Set up a Regular Schedule of Meetings between a Staff Member and the Mentor Programs need to check in regularly with mentors to learn whether the match is meeting, how the relationship is developing and what problems may be surfacing that staff can help to address. These contacts can take place over the telephone or in face-to-face meetings, and it will likely be the mentor coordinator who has the primary role in providing this supervision and support. There are two key issues to explore in setting up this system of contacts: •

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•

How often should the program check in with mentors? For one-to-one matches, contact the mentor within the first two weeks of the match. Use this conversation to make sure the pair is meeting, to find out what activities they have done together and to assess how the mentor feels about the match thus far. During the next few months, continue to check in with the mentor every two weeks. These ongoing contacts will help ensure that the mentor and participant meet regularly. They are also important for uncovering any startup problems that require program staff’s immediate assistance. After this early stage, continue to check in once a month to learn whether the mentor or participant is losing interest in the match and to help address problems that may arise between the pair. It is important to be somewhat flexible about this schedule—as the matches develop, some mentors may need to be contacted more often than others. What should you ask mentors during the check-ins? Possible questions include:

a) How is your match going? How often have you and your mentee met since we last talked? How much time do you spend together at each meeting? b) What kinds of activities have you done together? How do you decide on the activities? Do you and your mentee have trouble thinking up things to do together? c) Do you spend much time talking together? Do you and your mentee enjoy spending time together? d) Does your mentee keep appointments with you? Does he or she show up on time? e) When was your last meeting? What did you do together? f) Do you talk to your mentee on the telephone? How often? g) Do you need help with anything? Is there anything interfering with your match? h) How would you describe your mentee’s behavior and attitudes? Does he or she exhibit any behavior or attitudes that trouble you or that you do not understand? i) Are you satisfied with how things are going? j) Is there any additional training you think would be helpful for you? k) Is there anything else we should be aware of? Is there anything else we can do to help? In programs that use group mentoring, the mentor coordinator can use the time before or after group meetings to talk with mentors about their experiences and any concerns they have. However, be attentive to the fact that the periods right before and after the group session are also the times when mentors and participants have the opportunity to talk one-to-one. Arrange

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to speak with mentors either well before or well after the group session so as not to interfere with this individual mentor-participant time. .

2. Have Mentors Keep Logs about their Meetings with Participants Mentor logs are an important way for mentors and program staff to keep track of the oneto-one matches and mentoring groups and to track the development of the mentor-participant relationships. They are also a useful tool for identifying problems and concerns that may reflect ineffective program implementation. Information in the logs can provide the basis for discussion between mentors and program staff during their regularly scheduled interactions. Each program should develop its own form—with different versions for one-to-one and group mentoring: •

•

For one-to-one mentoring, the form should include space for both in-person and phone contact, descriptions of activities during in-person meetings and comments about positive observations or areas of concern. The form should have enough space to cover a record of meetings and phone conversations that take place over the period of a month. Mentors should provide a completed form to the mentor coordinator each month For group mentoring, the form should include space for listing all members of the group, activities during the group session, challenges during the session, concerns and positive observations. One mentor from the group can complete the form immediately after each session and give it to the mentor coordinator.

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Sample mentor log forms are included in Appendix B. The mentor logs are not a substitute for one-to-one interactions between the mentor and mentor coordinator. It is not sufficient for mentors to just keep a record of their meetings and mail the information to the program. Active staff involvement—one-to-one discussions with mentors—is essential. In fact, regular interaction between mentors and program staff not only ensures that pairs are meeting, it also helps mentors feel supported, builds mentors’ commitment to the program, helps mentors be more effective in their role and contributes to mentor retention.

3. Develop a Procedure for Checking in Regularly with Participants Program staff should also meet with participants in one-to-one matches to make sure they are meeting with their mentor, to identify any problems that need to be addressed and to encourage the participants to stay involved in the mentoring. There should be an initial checkin about two weeks after the match is made, with ongoing check- ins taking place monthly. When participants are in group mentoring, the mentor coordinator can talk to them informally before or after the group sessions. And it is important to telephone participants when they miss a session to talk to them about why they were not there, encourage them to

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attend and deal with any practical problems—like transportation issues—that are making it difficult for them to get to the sessions.

4. Involve the Case Manager in Supporting the Relationships Case managers in the reentry program should also have a role in supervising and supporting the mentoring relationships. In fact, recent research on mentoring in high-risk populations has indicated that relationships last for a longer period of time and are more likely to result in positive outcomes when the case manager has an active role in them. The mentor coordinator is the person immediately responsible for making sure the relationships are developing, but the case manager has the deepest knowledge about each participant and is best positioned to address serious issues that may arise. Thus, part of the mentor coordinator’s role during the regular check-in with the mentor should be to identify problems and to contact the case manager if the participant appears to need additional help. In addition, it can be useful for the case manager to speak with the mentor about once a month so they can directly discuss any concerns the mentor may have. Because case managers talk to participants regularly—and, thus, can check in with them on an ongoing basis about the mentoring relationship—they are also in a position to give the mentor feedback about how the participant feels he or she is benefiting from the relationship. This can be important information for helping mentors remain motivated and committed.

5. Facilitate Access for Mentors to Speak to Program Staff on Short Notice Your program should also make sure that mentors know how to contact staff whenever necessary for advice and support. Mentors should have contact information (telephone numbers and email addresses) for the mentor coordinator and other staff who could help them on short notice. Program staff also have to understand the importance of responding quickly to any contact from mentors. They should return calls or answer email questions the same day they are received.

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6. Provide Ongoing Trainings Training is essential for volunteers before they begin mentoring. As the mentors get to work, the actual experience is likely to lead them to a deeper understanding of some of the challenges and frustrations—as well as the rewards—of mentoring ex-prisoners. To help address these emerging issues, programs should periodically bring the mentors together for additional training. These trainings can take two forms: •

Mentor roundtables, in which mentors meet for an hour or two and discuss their experiences. These sessions might begin with the mentor coordinator asking each mentor to describe one obstacle and one success with their match. Then mentors can

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provide suggestions for dealing with the obstacles and gain more information about successful approaches to the overcoming those obstacles. One- or two-hour sessions with a guest presenter on a special topic, such as substance abuse or mental health issues, that mentors would benefit from knowing more about and that the program might not have had time to cover fully in the initial training for new mentors. These sessions should also include some time for the mentors to share their experiences and ideas and help one another address challenges they are facing.

People tend to have crowded schedules, so it can be difficult to get mentors to attend these ongoing trainings. Schedule them only about four or five times a year, and hold them at a time when people are most likely to attend. In addition, consider providing incentives (i.e., coffee mugs or t-shirts with the program’s name on them) that encourage participation in the ongoing training programs.

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7. Develop a Procedure for Oficially Closing Mentor-participant Matches Mentoring relationships end. Sometimes they end prematurely because the mentor or mentee loses interest (or never develops interest) and drops out. Ex-prisoners involved in mentoring tend to drop out, or just stop showing up, at fairly high rates. A strong system of support and supervision can help control the number of dropouts, but it is unlikely to eliminate the problem. Mentors are likely to feel frustrated and discouraged when their mentee drops out or disappears. To help the mentor deal with these feelings—and to avoid having the mentor drop out as well—develop a procedure for formally closing the match. Meet with the mentor to discuss why the match ended and try to alleviate the mentor’s possible concern that he or she might have done something “wrong.” Encourage the mentor to be re-matched with a new participant. Similarly, if a mentor drops out of a match, meet with the participant to discuss the situation and encourage him or her to be matched with a new mentor. In other situations, the mentor and participant may have a strong relationship and regular meetings, but the participant is leaving the program because he or she has officially graduated or has found a steady job and feels ready to leave. When that occurs, meet together with the mentor and participant to recognize their accomplishments and formally close the match. It is also possible that the two may want to stay in touch outside of their now-ended “official” mentoring relationship. Each program will have to develop its own guidelines on whether it wishes to give consent to, or discourage, post-program mentoring meetings.

8. Recognize and Celebrate Mentors’ and Participants’ Hard Work and Success Develop a variety of ways to acknowledge mentors’ contributions and participants’ accomplishments. Examples include:

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•

• •

•

Provide ongoing positive reinforcement. Let your mentors know what they are achieving. When you hear positive comments about the mentor from the participant or case manager be sure to convey them to the mentor. Provide similar positive reinforcement to participants. Let them know about mentors’ positive comments about them. In addition, when you attend group mentoring sessions, let participants know, in informal conversations afterwards, about their important contributions to the group sessions. Send birthday, holiday and thank you cards to mentors and give them certificates of appreciation. Work with partners and local businesses to try to get donations of free tickets and discounts to sports events and other entertainment and cultural events that mentors and participants can attend together. Hold periodic celebrations that bring together all the mentors and participants. For example, have a party around the winter holidays, or, if the program is located in an area of the country with long, cold winters, consider a party to mark the beginning of spring. Use the party as an occasion to celebrate mentors’ and participants’ good work, persistence and success.

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Whatever specific strategies you develop, the goals are to let participants know that you recognize their efforts and successes and to have mentors see that they are an important, highly valued part of the reentry program.

Concluding Thoughts The Ready4Work program demonstrated that mentoring can be a very useful tool in a prisoner reentry program. However, establishing and implementing effective mentoring programs for formerly incarcerated people is not a simple task. From finding adequate numbers of qualified and committed mentors to convincing program participants to actively engage in mentoring (while simultaneously seeking to find and keep jobs, reunite with family, secure stable housing, stay sober and stay out of prison), to creating solid programs, to monitoring matches, obstacles exist at every turn. The potential value that mentoring can add to reentry programs merits investing the time, resources, planning and hard work required to overcome these obstacles. As noted at the beginning of this manual, Ready4Work saw very positive correlations between participants being mentored and their success in finding jobs, keeping those jobs and remaining in the Ready4Work program. Additionally, recidivism rates were lower for participants who were mentored. Other research has also established the importance of pro-social relationships in keeping people out of prison. In our work with numerous reentry programs around the country, we have heard from program participants and mentors alike about the power of these relationships. As federal, state and city governments, as well as communities, seek effective solutions to the reentry crisis, we hope that mentoring will be considered as a potential component of any effort and that the creation of tools, such as this manual, will be useful in supporting this work

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APPENDIX A: GUIDELINES FOR GROUP MENTORING Almost all of the Ready4Work sites used at least some group mentoring. To some extent, reliance on the model was a practical response to the challenges of recruiting mentors, particularly to the challenge of recruiting male mentors. However, there are potential advantages to group mentoring sessions, including peer interaction, support that develops among members of the group, and participants may feel like they are contributing to the group by sharing their own knowledge and experience. Because this approach to mentoring ex-prisoners is relatively new, there are not, as yet, “best practices” that research has identified. Thus, this appendix draws from the experiences of the Ready4Work sites to present guidelines and options for designing a group mentoring model.

How will the Groups be Organized? For programs that have not been able to recruit enough volunteers for one-to-one matches, using a group model makes it possible to involve more participants in mentoring. However, the groups still need to be small in size with a large enough proportion of mentors to foster strong relationships amongst the participants and amongst the participants and mentors. Key factors to consider include:

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•

•

The number of participants and mentors per group. An ideal number might be four to six participants and two to three mentors. Having fewer than four participants could result in static and uninteresting group discussions. Having more than six participants limits the time each participant will be able to talk. Programs should have a ratio of one mentor to every two or three participants. Programs should also consider having at least two mentors in each group—both so participants get the experience of two different mentors and so the mentors themselves have one another’s support in planning and carrying out the group sessions. As you begin to put groups together, consider that some participants might not show up very frequently. For example, if you want to have four participants at each group session, you may want to assign six to the group to ensure that, if two are absent from a session, you will still have enough participants present to foster good discussions. Selecting mentors and participants for groups. Just as you have criteria for matching mentors and participants for one-to-one matches, be attentive to which mentors and participants you place together in a group—a major goal, after all, is to have mentorparticipant relationships develop over time. If there are two or more mentors in the group, try to include mentors that complement one another. For example, pair the talkative mentors with the more reserved and the experienced mentors with the less experienced. Similarly, try to have a mix of participants in the group. For example, pair participants with more positive attitudes with those who have less positive attitudes and pair participants who are more self-confident with those who are less self-confident. In addition, if you have what you consider to be some particularly

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At the same time, however, this process of placing mentors and participants in particular groups has to be somewhat flexible because people’s schedules may dictate that they can only attend group sessions on certain days and at certain times.

When and where should the Groups Meet? The first challenge in group mentoring is simply to get participants to attend the sessions. The time, frequency and place of meetings can all affect attendance. In deciding when and where groups should meet, consider: •

•

•

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•

Session length. Two hours is an ideal length of time. It allows opportunities for oneto-one conversations between mentors and participants both before the formal session begins and after it takes place, while including about 90 minutes for the session itself. Frequency of meetings. To provide the continuity and frequency of meetings required to ensure that relationships develop between the mentors and participants, the group sessions should take place once a week or, at a minimum, once every two weeks. Weekly sessions are optimal; however, having groups meet at two- week intervals is less intrusive on participants’ and mentors’ time and, thus, might improve the regularity of attendance. However, if a participant misses a biweekly session, then he or she is essentially going a month without any involvement in mentoring—a large gap in an approach that depends on frequency and continuity to build relationships and to provide support. Scheduling of sessions. Survey both mentors and participants to see what times are best for them. Early evenings (around 6 p.m.) are usually the most amenable for most peoples’ schedules. Be sure to provide plenty of refreshments if the group is meeting around dinnertime. Location of sessions. The meeting space might be in the lead agency office, a church or a community center. Wherever it is, be sure it is clean, well-lit, comfortable and convenient for participants and mentors to get to, particularly for those who do not have cars and must rely on public transportation.

In addition, to increase the likelihood that participants will attend the sessions, provide them with public transportation passes or reimburse them for transportation costs.

How Structured will the Group Sessions be? While every group session needs to have some structure, there is no one “best” way to achieve this. Participants will only continue to attend the sessions if they find them valuable,

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and each program will need to decide how best to structure and focus its sessions to achieve this goal. Moving from the relatively less structured to the most structured group sessions, options include: •

•

•

At the beginning of each group session, have participants and mentors (and possibly the mentor coordinator) decide on the discussion topics. In this approach, participants can take the lead in deciding what is important for them to talk about. At the same time, running the group session may require more skilled facilitators because they have had less control in structuring the session. Preplan the session by having the mentor coordinator or other program staff determine discussion topics for the group ahead of time. This approach potentially provides more structure to the sessions, but program staff have to be sure they decide on topics that participants consider relevant and important. Further, the facilitator has to be flexible enough to incorporate other topics as participants bring them up. Use a curriculum. In this most structured approach, each session focuses on activities within one lesson or topic from a curriculum. For example, programs might use a life skills curriculum that includes sessions on overcoming obstacles, setting and achieving goals, communication skills, conflict resolution, demonstrating a positive attitude, handling finances and using the Internet. This approach requires a skilled facilitator who can deliver the curriculum while being sure that participants stay involved, understand the material in the context of their own experiences and challenges and benefit from the sessions.

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Even the least formally structured sessions should include at least some preplanned approaches for discussions. For example, instead of beginning the session by going around the table and asking each participant to say how his or her week went, the facilitator could ask a more focused question such as, “What was the best thing that happened on your job search (or at your job) this week?” In Ready4Work, some mentors who were involved in group mentoring sessions with little structure reported that it was difficult to know what to talk about. They also noted that there was a high dropout rate for participants in their programs.

What is the Role of Mentors and the Mentor Coordinator during Group Sessions? For every group session, someone has to take the role of facilitator—leading the meeting and moderating the discussions. In some programs, the mentors in the group may take turns filling this role while the mentor coordinator stays in the background. In other programs, the mentor coordinator may take on these responsibilities, and the mentors’ roles will primarily include contributing to discussions and supporting and providing feedback to participants. Even if the mentors take the lead, however, mentor coordinators generally attend the group sessions. If necessary, mentor coordinators can help resolve issues that arise during the session (i.e., if one of the participants is disruptive), and they can fill in for mentors who might have to miss a particular meeting. In addition, mentor coordinators can make

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announcements about upcoming opportunities for participants, such as a computer classes and job openings.

What Opportunities will be Provided to Help Mentors and Participants Form One-to-one Relationships within the Group Setting? Take steps that encourage one-to-one mentor-participant relationships to develop within the group context— these relationships may lead to additional benefits for participants and also might further motivate them to attend the group sessions. All programs should ensure that there is time before and after each group session for mentors and participants to have informal, one-to-one conversations. Having refreshments available before or after the session may encourage participants to come early or to stay late, and refreshments help establish a good environment for informal conversation. In addition, not all of the group sessions have to take place at a set location. Periodically, instead of the regular meeting, the group can use the time to participate in activities together, such as a group dinner, sporting event or a cultural event. In addition to being a break from the usual session—and being fun—these activities provide opportunities for mentors and participants to have one-to-one conversations and develop stronger relationships with each other. Allow the participants to decide how they want to spend this time and what would be most beneficial for them. They may want to go to a restaurant or museum, or they may want to do something entirely practical, such as refamiliarizing themselves with how to use the mass transit system after years in prison.

What Might a Group Session Look Like?

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Group sessions will differ from program to program. The following agenda, for a twohour session, is just one example. It moves from an informal activity to more structured discussions and then back to less structured time. Time

Activity

6:00-6:30 p.m.

Informal conversation: Participants and mentors talk together as they have dinner— pizza and salad provided by the program.

6:30-6:45 p.m.

Icebreaker activity: The group gathers around a table to begin the meeting. One of the mentors welcomes everyone and leads an icebreaker activity during which each participant briefly talks about how he or she is feeling and where they are on the road to work—or, if they have a job already, how things are going with their job.

Time

Activity

6:45-7:15 p.m.one

Sharing exercise: This provides an opportunity for participants and mentors to problem-solve together and also to celebrate success. It could be an exercise called “Hurdles and Successes,” in which each participant describes one problem he or she faced and success he or she experienced during the past week. The group can then help each participant develop a strategy for dealing with the problem and also can learn new strategies of their own from each participant’s success.

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7:45-8:00 p.m.

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Topic of the day: The group can then have a more structured discussion on one topic—the topic of the day. It could be something that comes out of the previous exercise. For example, if several participants have been dealing with conflicts on the job, the discussion could focus on why that tends to happen and larger strategies for avoiding it or coping with it when it does occur. Or, the mentor coordinator and mentors may have a pre-planned topic, such as what to do when you feel like giving up and quitting your job or when you feel like giving up on trying to find a job. Wrap up and time for informal conversation: Put out more refreshments, such as cookies or fruit.

As you develop your sessions, what is most important is that they are appealing, so participants want to attend. Make the meetings interesting and interactive; try to include everyone in the discussions; and make sure participant-initiated discussion topics are incorporated into every session.

What are some of the Particular Challenges that Group Mentors should be Prepared for? Whether in a one-to-one relationship or in a group setting, the mentor’s responsibility is to fulfill the role of being a trusted and supportive guide. However, group mentoring occurs in a different setting than traditional one-to-one mentoring, which brings with it some special challenges. These challenges include: •

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•

•

Developing a trusting relationship with each participant in the group. As with one-toone mentoring, the mentor’s attitude and approach are the most important elements in building a strong relationship. In addition, within the group setting, mentors have to take care to treat all participants equally and to not play favorites. They have to strive to consistently connect with each participant in their group. Listening and guiding, rather than sounding authoritative. Mentors who set themselves up as authority figures and who push too hard are usually unsuccessful and may even contribute to participants dropping out of the group. All mentors face the challenge of resisting the temptation to give advice, and it may be a particular challenge in a group context. Instead of giving advice when a participant is facing an obstacle or having a problem, consider saying, “Tell me more about the obstacle you are facing. What have you done to deal with itso far? How has that worked? Do you have any ideas about what to do next? What do you think you should do?” Mentors can also take advantage of the group setting by asking, “Has anyone experienced anything similar?” or “Does anyone have any suggestions for how he might deal with this problem?” Drawing out participants who tend to be quiet. For some participants, it may take time to open up and feel comfortable taking part in group discussions. Mentors need to learn how to help them overcome their initial hesitation and how to trust the group setting enough to feel comfortable sharing with the group. However, do not force participants to talk about something that they have indicated they do not want to talk about.

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Dealing with difficult participants. At times, some of the participants may become angry with one another or with a mentor. Mentors have to respond by speaking calmly to help the anger subside. Mentors also need to assess whether it is necessary to step back and let the mentor coordinator resolve the situation. Should frequent disruptions occur, have the group develop rules, such as “one person talks at a time,” “respect all group members,” “no put-downs” and “be supportive of others.”

Finally, it is essential for mentors to carry through consistently on their commitment. It is not unusual for some group mentors, when faced with a time crunch on their schedules, to think, “I don’t need to show up, because (my co-mentor) will be there.” Unless there is an emergency, mentors should attend every group mentoring session. When mentors fail to show, participants in the group wonder why they should bother showing up themselves, and this may result in a higher dropout rate from the group.

How can Mentor Coordinators Contribute to Successful Group Mentoring? As with one-to-one mentoring, the mentor coordinator and other program staff should see themselves as ready supports that are there to assist group mentors and participants should they encounter any problems. Provide staff phone numbers and email addresses and encourage group members to get in touch whenever necessary. Beyond that, mentor coordinators have other key responsibilities in connection with group mentoring. These include: •

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•

•

Provide training for mentors on being effective in a group mentoring setting. While each program will decide what specific training its group mentors need, it will generally include strategies for leading and managing groups and some focus on the particular challenges in fulfilling their roles as mentors in a group context. Help to plan and manage the group mentoring sessions. Before the sessions, the mentor coordinator can talk with mentors to plan the agenda and to troubleshoot any potential problems they think might arise. If the group is using a curriculum, the mentor coordinator has the additional responsibilities of making sure the agenda includes interesting exercises that will engage the participants and of arranging for any guest speakers who might be involved in presenting the curriculum topics. At the same time, the mentor coordinator should be open to mentors’ ideas about curriculum, guest speakers and exercises and about how to make other improvements in the program. During the group sessions, the mentor coordinator should be careful to stay in the background, but he or she must also be ready to step forward, if necessary, to deal with any disruptions. Hold participants accountable. If a participant misses a session, the mentor coordinator should ensure someone calls the next day to find out why that person did not attend. Whether it is the mentor coordinator, one of the mentors or the participant’s case manager, immediate contact is important. If someone does not call, the message to the participant is, “They didn’t miss me” or “They don’t care if I don’t show up.”

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Monitor the groups. Monitoring groups may be somewhat simpler than monitoring one-to-one matches because the mentor coordinator will attend group sessions to see how things are progressing. In addition, there is usually an opportunity before and after sessions to check in with mentors about their perceptions of how the group sessions are going and how the relationships are developing and to help the mentors develop strategies for dealing with challenging or frustrating situations within the group.

Finally, be prepared to periodically regroup. It is not an easy task to implement an exprisoner group mentoring component, and it can be especially difficult to keep the attendance level up. The moment attendance begins to fall, talk to staff and mentors to thoughtfully modify your approach to address the barriers making it difficult for participants to attend and to plan sessions participants will find valuable.

APPENDIX B: SAMPLE FORMS This appendix includes examples of forms and other written documents referred to in the manual. They include: • • • • • • • • •

Job Description: Mentor Coordinator Statement of Mission, Goals and Objectives Mentor Participation Agreement Confidentiality Policy Agenda: Training Session for New Mentors Mentoring Manual Table of Contents Training Evaluation Form Mentor Report Log for One-To-One Mentoring Mentor Report Log for Group Mentoring

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The resource list in Appendix D includes websites that offer templates for other forms that mentoring programs may need to develop.

1. Sample Job Description: Mentor Coordinator* The mentor coordinator will lead a mentoring program that was developed to provide long-term one-to-one and group mentoring to male and female ex-prisoners. Mentees will be between the ages of 18-34, and they will have been sentenced to and served time for nonviolent, nonsexual felony offenses (as their last presenting offense). Other services provided the mentees in the overall program will include job training and job placement.

The Mentoring Program Coordinator should have: •

Experience, confidence and a comfort level in working with ex-prisoners

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• • • •

Bachelor’s degree or equivalent experience Interpersonal skills, including an ability to get along with people of diverse backgrounds and the expertise to help mentors and mentees solve relationship and other problems, as they arise Public speaking experience and skills Excellent organizational skills Experience in counseling or social services preferred, but not required Experience as a mentor program coordinator or as a mentor in a structured mentoring program preferred, but not required.

Mentor Coordinator Duties Include: • • • •

• • • • •

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•

Take the lead on all aspects of the mentoring program, to include recruiting, orientation, screening, training, matching and monitoring volunteers. Work closely with and responding to directives from the lead agency executive director and reentry program director. Work closely with program case managers in order to facilitate the integration of exprisoners on their caseloads into the mentoring program. Attempt to develop supportive and positive relationships between mentees and mentors, to include working with other program staff to problem-solve relationship issues. Support program retention efforts by consistently contacting mentor candidates while they are on the waiting list, and by consistently monitoring the matches. Take the lead on the implementation of celebration ceremonies and other mentoring program-related events. Help to plan and facilitate pre-service mentor training and ongoing training sessions. Assist in marketing the program, to include speaking in front of groups in order to recruit volunteer mentors or to obtain additional program resources. Help the mentoring program fulfill its commitment to funding sources, to include the proper completion of evaluations and forms. Other miscellaneous duties as they arise.

*Adapted from the mentor coordinator job description developed by Operation New Hope in Jacksonville, Florida, a Ready4Work site

2. Sample Statement Of Mission, Goals AND Objectives Mission: The mentoring initiative provides consistent and caring mentors to guide, support and inspire ex- prisoners to develop the attitudes and skills that will help them to become successful in their personal lives, as members of their community and at work.

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Our Goals are to: • • •

Enhance the dignity of participants by encouraging them to make choices that will help them become successful. Provide participants with the interpersonal support from mentors and staff that will help them solve problems, gain hope and increase their confidence. Reduce the rate of recidivism for the program’s participants.

Our Objectives are: • • •

During the first year of the program, a minimum of 20 participants will receive at least six months of one-to-one mentoring services. During the first year of the program, a minimum of 45 participants will receive at least six months of group mentoring. During the first year, we will recruit at least 60 mentors, who will commit to the program for one year. We will retain at least 80 percent of these mentors for six months or more.

3. Sample Mentor Participation Agreement As a Mentor in the Ex-Prisoner Mentoring Program, I agree to: • •

•

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• •

• • • • • •

Cooperate with all requirements of the screening process. Complete the initial mentor training and attend any required ongoing trainings. If I miss a mandatory training, I will contact the mentor coordinator as soon as possible to make up the training. Meet with my mentee(s) at least once a week for a minimum of one hour, or once every other week for a minimum of two hours, over a one-year period. Support the mission and goals of the mentoring program. Try to develop a relationship of trust and respect with my mentee(s) by going slow, being flexible, and allowing them to make their own decisions—and by not presenting myself as an authority figure. Not push any “personal agenda” (i.e., faith, politics) during interactions with my mentee(s). Never come to mentoring sessions while under the influence of alcohol or other drugs. Notify my mentee(s) at least 24 hours in advance if I must miss a mentoring session or as soon as possible in the case of an emergency. Complete and hand in the monthly logging form. Abide by the program’s confidentiality procedures. Never talk about an individual’s race, national origin, religious beliefs or sexual orientation in a negative way.

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•

Follow all other program guidelines, including policies governing sexual harassment and other “boundary issues,” such as not to provide gifts or money to any mentee(s) or to his or her family or to receive gifts or money from my mentee(s). Contact the mentor coordinator if I experience any difficulties with my mentee(s) or with the program.

If I am unable to fulfill my duties as a mentor, I will inform the mentor coordinator immediately so that a replacement can be found. Signed__________________________ Date_____________________

4. Sample Confidentiality Policy In order to build trust, mentors are required to keep conversations with, and information about, their mentees in confidence. There are four exceptions to this rule:

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Confidentiality Exception 1: Speaking with the program staff. A mentor may talk to program staff at any time about any information or issues brought up in the mentoring sessions. Staff are there to help problem-solve and to assist individuals with the dynamics of the relationship. In addition, programs have a responsibility to understand the law in their jurisdiction that governs what participant actions or activities they are required to report to legal authorities. There may be instances in which mentors are expected to speak to program staff about particular actions and/or statements of their mentees. This information should be built into your confidentiality policy. Confidentiality Exception 2: Conversations with fellow mentors during staff-run mentor meetings. During mentor roundtables, mentors are allowed to discuss their respective mentees so that mentors can receive feedback and suggestions from fellow mentors and program staff. However, mentors must maintain a “group confidentiality”— that is, they are not allowed to discuss anything about other mentees to anyone outside of the program. Confidentiality Exception 3: Receiving permission from the mentee to contact others about a specific problem. The mentee may give the mentor permission to talk to others about him or her when a situation arises where the mentee is seeking outside assistance or support.

Mentors should also Make a Report to Program Staff when the Mentee: • • • • •

Reports child or elder abuse, neglect or endangerment by him/herself or others Discusses drug use or intended drug use Indicates a possible violation of the terms of his or her parole or probation Indicates an intention of hurting him/herself or others, or of putting him/herself in danger Reports that another person has an intention of hurting him/herself or others, or of putting the mentor in danger

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Demonstrates a marked change in functioning (i.e., appears depressed or manic or has noticeable changes in hygiene, sleeping and/or eating).

5. Sample Planning Matrix for Mentor Recruitment Activity

Person Responsible

Target Completion Date

Outcome

Next Steps

6. Guidelines Regarding the Role of Faith in Programs Directly Supported with Federal Funds Key Principles • •

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•

•

•

•

In general, public dollars cannot fund “inherently religious” activities, such as religious worship, instruction or proselytization. Faith-based groups who do sponsor religious activities should separate these events, by time or by location, from publicly funded activities. Program recipients may choose to take part in any privately funded religious activities, but their participation in these activities must be voluntary and not a program requirement. Faith partners must not discriminate against beneficiaries on the basis of religion; they must serve all returnees who agree to participate in the program, regardless of returnees’ own religious commitments. The integrity of faith groups is protected bylaw. This means partnering faith groups may, for example, continue to keep crucifixes, crescents, or Stars of David on facility walls, and they may maintain their religious identity. In instances where a more directly religious “partner” organization exists (such as a previously existing church or a larger community organization that supplies guidance or direction), establishing a 501(c)3 organization with a separate budget will make it easier to keep track of the public funds received and spent.

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In mentoring, all mentors should be trained to offer guidance in a manner that respects the religious freedom of returnees. This means that mentors can be available to answer questions, but they must never force their own religious viewpoint onto exoffenders or coerce participation in a religious activity

For more information, please visit www.dol.gov/cfbci.

7. Sample Agenda: Training Session for New Mentors 8:30 Continental breakfast 9:00 Welcome and staff introductions 9:15 Icebreaker (“warmer” exercise) 9:45 What is a mentor? (accompanying exercise) 10:15 Discussion of the ex-prisoner population and mentor expectations 10:45 Break 11:00 Mentoring skills and practices, including communication skills (accompanying exercise) 11:45 Recognizing signs of depression and other crises 12:15 Program rules and guidelines (including confidentiality and reporting) 12:45 Lunch 1:15 Beginning the match (including suggested activities for one-to-one meetings) 1:30 Problem-solving (role-playing vignette exercises) 2:15 Program supports for mentors and logging procedures 2:30 Comments, questions and training evaluations 3:00 Adjourn If your program model includes group mentoring, you will need at least an hour to deliver additional training on mentors’ roles in the group sessions and how to facilitate group mentoring. Appendix A has more information on these and other aspects of group mentoring

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8. Sample Handbook for Mentors Table of Contents Welcome from our Executive Director Section 1:

Section 2:

Section 3:

Introduction to Mentoring The.History.of.Mentoring. The.History.of.Mentoring. Background.on.Ex-Prisoner.Mentoring Overview of the Mentoring Component Description.and.Mission.of.Lead.Agency Description.of.Reentry.Program Description.of.Mentoring.Component:.Mission,.Goals.and.Objectives Eligibility.Requirements.for.Mentors Mentoring Concepts and Practices Build-a-Mentor.(Exercise).

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Section 4:

Section 5:.

Section 6:

Section 7:

Section 8:

Section 9:

Section 10:

Qualities.of.Good.Mentors Suggested.Activities.for.One-to-One.Mentoring.Meetings Program Rules Mentor.Participation.Agreement Confidentiality.and.Reporting.Rules Boundary.Issues When.to.Ask.for.Help Working with Ex-Prisoners Ex-Prisoners—Strengths.and.Obstacles Beginning.the.Match Building.Trusting.Relationships Communication Skills Active.Listening Non-Directive.Approach Open.Questions Paraphrasing Problem-Solving Good.Conversations/Bad.Conversations.(Exercise) Facilitating Group Mentoring Overview.of.the.Group.Mentoring.Process Benefits.of.Group.Mentoring Critical.Elements.for.Successful.Group.Mentoring Group.Mentoring.Curriculum.(if.the.program.uses.a.curriculum) Managing/Handling.the.Group Understanding Substance Abuse Issues Why.People.Become.Addicted.to.Substances The.Stages.of.Recovery Strategies.for.Working.with.Substance.Abusers Recognizing Signs of Depression and Other Mental Illness Understanding.Depression Working.with.Challenging.Situations Supports for Mentors List.of.Staff.Members.and.Contact.Information.

9. Sample Training Evaluation Form Date _________________ Name (optional)__________________________

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1. What information did you hope to gain from today’s workshop? _____________________________________________________________ _____________________________________________________________ 2. To what degree were your EXPECTATIONS MET? Low 1 2 3 4 5 High 3. What was MOST useful to you about this workshop? _____________________________________________________________ _____________________________________________________________ 4. Was there anything covered in this workshop that was NOT USEFUL? _____________________________________________________________ _____________________________________________________________

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5. Please rate the usefulness of the TRAINING MATERIALS. Low 1 2 3 4 5 High 6. Please rate your overall satisfaction with the TRAINER(S). Low 1 2 3 4 5 High 7. Please rate your overall satisfaction with the TRAINING FACILITY. Low 1 2 3 4 5 High 8. Please rate your OVERALL SATISFACTION with today’s workshop. Low 1 2 3 4 5 High Please share additional feedback below: ______________________________________________________________ ______________________________________________________________ ______________________________________________________________

10. Sample Mentor Report Log for One-to-one Mentoring It is a good practice to have mentors fill out a “mentor log” directly after each telephone conversation or meeting with their mentee and submit it to the mentor coordinator each month. The mentor coordinator can use the log to check for signs of potential problems, such as infrequent meetings between the mentor and participant. During each monthly check-in, the mentor and mentor coordinator can review the log together. There is no standard logging form—each program can develop its own. Here is one example. Mentor’s Name:_______________________________________________ Mentor’s Name:_______________________________________________

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Meeting and Telephone Contact Dates and Times

Activities (for meetings)

Comments and/or Areas of Concern

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11. Sample Mentor Report Log For Group Mentoring It is a good practice to have mentors fill out a “mentor log” directly after each group mentoring session. Have one mentor from each group take ten minutes after the session to fill out the log and then turn it in to the mentor coordinator. There is no standard logging form— each program can develop its own. Here is one example. Date______________________ Name of mentor completing log ______________________________________________________________ Name(s) of any other mentor(s) in group ______________________________________________________________ ______________________________________________________________ Names of mentees present ______________________________________________________________ ______________________________________________________________ Name(s) of mentee(s) missing and why (if reasons known) ______________________________________________________________ ______________________________________________________________ Describe activities the group participated in and how they went ______________________________________________________________ ______________________________________________________________

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Describe any noticeable changes (positive or negative) in any mentee(s) and apparent reasons ______________________________________________________________ ______________________________________________________________ Describe any disruptions or problems in the group and any general concerns _____________________________________________________________ _____________________________________________________________ Describe any ideas for activities and/or any ideas for improvements in the program ______________________________________________________________ ______________________________________________________________ Do you want the mentor coordinator to contact you? If so, provide contact information here ______________________________________________________________ ______________________________________________________________

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APPENDIX C: MENTOR TRAINING ACTIVITIES This appendix includes the following exercises and handouts that can be used during initial mentor training sessions: I.

Icebreakers or “Warmers”

• •

Introduction Exercise The Name Game

II. Mentoring Concepts and Practices • • • • •

Build an Ideal Mentor If You Want Easy Listening, Turn on the Radio Bad Conversations and Good Conversations Realistic and Unrealistic Mentor Expectations Vignettes

Appendix D includes links to resources that may help you develop other activities for training sessions

I. Icebreakers or “Warmers” These exercises can be a good way to get the training rolling.

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1. Introduction Exercise Write down the following questions on a flipchart or a dry-erase board, and then go around and have each person respond. • • • • • •

Name? Where do you live? Current or former occupation? How did the program find you? What is one thing you do well? Why do you want to be a mentor—now?

Discussing one thing each trainee does well allows the trainees to tell each other about their interests, hobbies or personal qualities and to feel good about themselves (i.e., “People say I am a good listener”). Discussing why each trainee wants to be a mentor focuses the trainees on why they are here—to guide and support this high-risk population by mentoring them. The depth and emotion of responses to this question are often surprising, including such responses as: “My son was incarcerated,” “An uncle of mine died in prison,” and “I would be in the same situation, but I didn’t get caught.”

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One option for conducting this exercise is to provide each person with a written copy of these questions. Then, break the group into pairs and have them interview each other. The pairs then report the information about the person he or she interviewed to the larger group. People are sometimes less apprehensive when they talk about someone other than themselves, and this approach also gives them a chance to connect more closely with another person. In addition, it gets the trainees to begin practicing listening skills, perhaps the most important skill a mentor can have. In a slightly different form, this small group approach also works well when the number of trainees is too large for everyone to get a chance to share with the whole group. In this situation, you could organize the trainees into groups of four, who take turns interviewing each other but do not report back to the whole group.

2. The Name Game This is another exercise that is an effective way for people to get to know each other very quickly, as answering these questions reveals a lot about one’s family and culture. First, write the talking points (listed below) on a flipchart or dry-erase board. As the facilitator, you will want to model the exercise by first sharing about yourself. Then, ask each trainee to share. • • • •

What is your full name: first, middle and last? What does your name mean? What is the origin of your name? Who named you and why this name? What is your nickname and where did it come from?

After everyone shares, the facilitator can bring up the fact that at our core we have many similarities. For example, many are proud of their name, while some are a little embarrassed by it. Some do not know where their name came from. Some may have been named after a sports star, a movie star or a deceased relative. Another point to make is that mentoring is about telling your story to another person, finding common ground and making a connection, as well as maintaining respect for each other.

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II. Mentoring Concepts and Practices These exercises and handouts can be used as trainees define the role of a mentor, practice communication skills and learn how to recognize and address potential problems that may arise as they work to develop relationships with their mentees.

1. Build an Ideal Mentor Materials Needed: Several sheets of flip-chart paper, a number of markers of various colors and tape (to put their finished product on the wall). Optional: an easel to display each group’s work when completed. Goal: To have trainees identify the traits that will help them to build relationships with the ex-prisoners and to be effective in their role as mentors. This interactive exercise should be conducted in small groups of five to eight people. It should take place fairly early in the training agenda, as it gives everyone a chance to stand up,

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move around and meet and have casual conversations with their peers, and, at the same time, it taps into each person’s creativity. Step 1: Begin instructions with: “This exercise is called Build an Ideal Mentor, and it will help everyone focus on the positive qualities and traits that a mentor needs. After we divide into groups, I want each group to choose a representative to draw an outline of a person, from head to toe, on the flip chart. Do not put in any details like eyes and so forth, just an outline, kind of like a ‘gingerbread man.’” “Then, one at a time, I want you to pick up a colored marker and draw a symbol that represents a quality of an ideal mentor. Draw the symbol on the part of the body where the trait originates. For example, if you think a good mentor is ‘well-traveled,’ then you might draw a pair of worn shoes; you do not have to write out ‘well-traveled’ because later there will be an opportunity to talk about what each symbol means. On the other hand, if you cannot think of a symbol, you can draw a line to the part of the body where the trait comes from and then write the name of the trait in the margin. “We would like everyone in each group to get a chance to draw as many traits as they can think of and use different colored markers. Do your own work and do not let other groups see your drawings. Also, when you are finished, choose one, two, or more people—it could be the entire group—to share your work with everyone who is here. You have approximately ten minutes to complete your drawings.” Step 2: As the groups work, walk around to ensure that everyone understands the exercise and that everyone is getting a chance to draw because sometimes one person will monopolize the exercise by drawing each symbol that others suggest and that is not as much fun or as effective as giving each person a chance to draw. Step 3: When the groups are finished, have them turn their drawings over. Then, ask for each group to come up one at a time to display and discuss their work. It is best if the facilitator asks presenters to hide their work until they get up in front of the larger group. Ask everyone for “drum rolls” (fingers or hands pounding on thighs or desktops), and then encourage over-dramatic “ohs and ahs” from the other trainees as each drawing is unveiled. This usually draws laughter and smiles from everyone. The facilitator should make brief validating comments as the drawings are explained (i.e., “good idea,” “excellent”). As each group finishes, tape up the drawings side-by-side, in clear view, so that everyone will be able to see them for the remainder of the day’s training. Step 4: Close the exercise by asking, “Looking at the many traits, what traits are common in most of the drawings?” Most groups draw the heart first and then the ears—for being a good listener—usually second or third Then, remind the trainees, “We all know the qualities and traits that are essential to be a good mentor, and this exercise just reminds us what they are. You do not need me to tell you because you just demonstrated that you already know.”

2. If you Want Easy Listening, Turn on the Radio* People tend to think of listening as something passive, or they tend not to think about it at all. But listening is actually a skill—a valuable skill that can be practiced and learned. Listening has been likened to the work of a catcher in baseball. Observers who do not know a lot about the game might believe that a catcher is doing nothing more than waiting for a pitcher to throw the ball. They think that all the responsibility rests with the pitcher, who is, after all, the one who is winding up and delivering the pitch. In the same way, some people believe that all the responsibility in communication rests with the person who is talking. In

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reality, though, a good catcher is not a passive target waiting to receive the pitch. He or she concentrates on a pitcher’s motions; tracks the path of the ball; and, if necessary, jumps, stretches or dives to make the catch. Similarly, a good listener actively tries to catch and understand the speaker’s words.

Here are some Tips for Active Listening: ACTIVE LISTENING IS THE MOST IMPORTANT SKILL OF A GOOD MENTOR. “You cannot truly listen to anyone and do anything else at the same time.” —M. Scott Peck

When you talk with your mentee, try to remember to: • • • • •

•

• • • •

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•

Clear your mind of unnecessary thoughts and distractions, so you can give her or him your undivided attention. Be aware of your body language. Pay attention to your mentee’s facial expressions, gestures and body language. Read between the lines for your mentee’s feelings. Learn to say, “How did that make you feel?” Ask open-ended questions. Ask, “What did you do during work today?” rather than asking, “How was work today?” Then, as appropriate, ask non-threatening follow-up questions. Paraphrase—restate in your own words—what you think your mentee has said. When paraphrasing is accurate, your mentee will feel understood. If it is off the mark, it invites her or him to clarify and also reminds you to listen more closely. Ask questions when you do not understand. Put yourself in your mentee’s “shoes” and try to understand the world from her or his perspective. Put aside preconceived ideas and refrain from passing judgment. Acknowledge that you are listening by occasionally nodding your head and saying things like, “I see.” Provide your mentee with the same level of respect that you desire for yourself when you are talking to someone

How to kill a conversation: 1. Tell the speaker that the way he or she feels is wrong. “It’s silly to feel that way.” 2. Fail to look at the person who is speaking to you. 3. Sit slouched over, look distracted, drum your fingers on the table or use some other body language to signal to the speaker that you are not really interested. 4. While the person is speaking, think about what you are going to say in reply. It is not possible to be forming your own words and concentrating on the speaker’s at the same time—so the response you are planning is unlikely to be very useful.

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Renata Cobbs Fletcher 5. Be judgmental and challenging. Ask questions that put your mentee on the spot, such as: “Why didn’t you do better on the job interview?”; “Why did you say that to him?”; or “How could you possibly think that?” 6. Interrupt the person who is talking or finish his or her sentences. Special ways to kill a conversation on the telephone: 1. Be totally silent for minutes at a time while your mentee is talking. Fail to say, “I see” or “OK” or to ask any questions. That way, your mentee will wonder if you are even there. 2. Do something else while the conversation is taking place, such as work at your computer, read your email, do dishes, fold laundry or pay bills.

1

Kavanaugh, J. Everyday Heroes: A Guidebook for Mentors. Santa Fe, NM: Wise Men and Women Mentorship Program, “Los Sabios,” and Injury Prevention and Emergency Medical Services Bureau, Public Health Division, New Mexico Department of Health. 1998. *Adapted from Jucovy, Linda. Training New Mentors. Public/Private Ventures and Northwest Regional Educational Laboratory. 2001. http:// www.ppv.org/ppv/ publications/assets/30_publication.pdf

3. Bad Conversations and Good Conversations Materials Needed: “Bad Conversations and Good Conversations” handout (see below). Goal: To help trainees think concretely about effective and ineffective communication skills. This exercise can be done in conjunction with training on communication skills, after five or ten minutes of introductory discussion about specific communication skills, such as active listening, open questions and paraphrasing. Step 1: Give each trainee a copy of this short handout. GOOD AND BAD CONVERSATIONS

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Someone I have Bad Conversations with is___________________________ The reasons why I have bad conversations with this person include: ______________________________________________________________ ______________________________________________________________ Someone I have Good Conversations with is__________________________ The reasons why I have good conversations with this person include: ______________________________________________________________ ______________________________________________________________ Continue your instructions by saying, “You will see there is a place to write someone’s name for both the bad and good conversations. If you wish, you can keep this person anonymous by writing down, for example, ‘a teacher that I had.’ In the bullet points

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underneath, write down why you have bad or good conversations with each individual. It could be, for example, that they do not let you finish your sentences. I will give you five minutes to fill this out, and then when we come back we will share out to the whole group.” Another option for running this exercise is to break the group up into pairs, have each person interview his or her partner and then have each person share what he or she learned about his or her partner with the larger group. Also, if there are too many people in the training to give everyone a chance to share, then you could divide the larger group into smaller groups of four or five people. Instruct them to discuss these points with each other and then ask them to come to a consensus about what makes for bad and good conversations, so that they can later share those ideas with the larger group. Step 2: After everyone reports to the whole group, the facilitator could point out that, in general, good communicators listen and focus on the person talking, whereas poor communicators appear to be somewhat self-centered, as the focus always comes back to them.

4. Realistic and Unrealistic Mentor Expectations The initial training should include some discussion of realistic and unrealistic expectations, and it is a topic that you will likely return to during individual support sessions with mentors and during ongoing training sessions. Below are some examples of unrealistic and realistic expectations for mentors. Program staff can brainstorm additional examples based on their experiences with matches in your program. Unrealistic My mentee will attend each and every meeting, be on time for every session and fulfill his/her entire time commitment to the program and to the match.

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Realistic I do not know if my mentee will show up on time or fulfill his or her commitment to the program. Still, I pledge to show up on time for all meetings, and I pledge to keep my commitment. If my mentee drops out of the program, I will not personalize it by thinking that I am a failure. Instead, I will fulfill my personal mission of service to this at-risk population by trying to be matched with a new mentee. Unrealistic As a result of spending time with me, my mentee will make immediate changes in his or her behaviors. My men- tee will stop using drugs, stop making other bad decisions and will maintain gainful employment. Realistic As I have no control over my mentee, I hope that he or she will make positive improvements; but even if not, I will continue offering my time and support. I understand that with ex-prisoners there are often setbacks, and that changes can come slowly. I also understand that mentoring is like planting seeds and that there is no set timeframe for when those seeds will come to fruition.

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Unrealistic My mentee will consistently thank me for my time and support. Realistic I realize that many ex-prisoner mentees do not have positive attitudes and that they may lack adequate social skills—so, my mentee may never thank me. This is okay, as I will not expect gratitude. Instead, I pledge to give mentoring as a gift. 5. Vignettes Vignettes, or scenarios, are an excellent way to get trainees actively involved; and, as they work together to come up with creative responses, they will also experience a sense of accomplishment. When creating vignettes, try to base them on real-life situations that have occurred within your program, but change the names and the details of those events to maintain confidentiality. Number the vignettes and print them; then, just prior to the exercise, hand them out to the trainees. It is helpful if they get copies of all the vignettes, even the ones that others are working on, so that they will be able to follow along during the larger group discussions. To begin the exercise, break the whole group into smaller groups of four to six people. Then, assign each group one or two vignettes. Or, as an alternative, assign the same vignette to two groups, so that you can discuss the different approaches they devise to deal with the presented situations. Have the trainees read the vignette aloud within their smaller groups and then brainstorm what they would do if they encountered this situation. Also, request that someone from the group take notes, so that they can later report to the larger group. Emphasize that there are rarely any absolute right or wrong answers when it comes to dealing with these and similar situations.

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Sample Vignettes: 1. Your mentee says she is trying to find work, and she tells you she has gone on six job interviews. The mentor coordinator tells you she has not been to any interviews. Q: What should you do? 2. Your mentee has made great strides in his life. Now employed, he is getting rave reviews from his boss. On top of that, he has also stopped all drug use, which was a huge problem for him. However, suddenly, he just disappears, and you cannot get in touch with him. You later find out that he is on drugs again and that he has lost his job. Q: How do you feel? What should you do? 3. Your mentee constantly sees only the negative in everything and everybody. He complains all the time, so much that he is hard to be around. Q: What might you do? 4. You are matched with your first mentee, and she meets with you once. Then you never see her again. The mentor coordinator matches you with another mentee; and, after two meetings, she stops showing up as well. Q: As a mentor, how might you feel? What should you do? 5. Your mentee cannot seem to solve the smallest of problems. Even though you have repeatedly talked him through several of his hurdles and he seems, during that time,

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to understand what he needs to do, he never takes the steps needed to change these situations. You are frustrated. Q: What do you do? 6. Your mentee is often late for your meetings together, usually by 20 to 30 minutes. He also does not show up for one out of about every four meetings. Q: What should you do? As people share their responses, even if they are somewhat off-target, it is essential to try to find something positive in each answer. When facilitators are critical or non-supportive, trainees get embarrassed, and they also shut down. An effective strategy is to point out the best part of the individual’s response, make a positive statement about it, and then ask the larger group, “And what else could be done in this situation?”

APPENDIX D: ADDITIONAL RESOURCES

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A. Additional information about Ready4work Farley, Chelsea and McClanahan, Wendy S. Ready4 Work In Brief: Update on Outcomes; Reentry May Be Critical for States, Cities. Philadelphia: Public/Private Ventures. March 2007. http://www.ppv.org/ppv/publications/ assets/216_ publication.pdf VanDeCarr, Paul. Call to Action: How Programs in Three Cities Responded to the Prisoner Reentry Crisis. Philadelphia: Public/Private Ventures. March 2007. http://www.ppv.org/ppv/publications/assets/211_publication.pdf Farley, Chelsea and Sandra Hackman. Ready4 Work In Brief. Philadelphia: Public/Private Ventures. September 2006. http://www.ppv.org/ppv/publications/ assets/205_publication.pdf. Good, Joshua and Pamela Sherrid. When the Gates Open: Ready4 Work—A National Response to the Prisoner Reentry Crisis. Philadelphia: Public/Private Ventures. October 2005. http://www.ppv.org/ppv/publications/assets/189_ publication.pdf. Jucovy, Linda. Just Out: Early Lessons from the Ready4 Work Prisoner Reentry Initiative. Philadelphia: Public/Private Ventures. February 2006. http://www.ppv. org/ppv/publications/assets/198_publication.pdf For other information, visit the Public/Private Ventures website at: http://www.ppv.org/ppv/community_faith/community_faith_initiatives.asp?section_id=3andi nitiative_id=2.

B. Internet Resources for Mentoring Ideas and Materials While these resources were developed specifically for programs that mentor youth or use volunteers in a range of direct service activities, the principles and guidelines can, in many cases, be adapted and applied in programs that mentor adult ex-prisoners. www.energizeinc.com

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Energize, Inc.—an online bookstore and resource center for volunteer organizations. It includes a reference library of articles and excerpts that can be downloaded on topics such as recruiting and screening volunteers. www.mentoring.org MENTOR/National Mentoring Partnership—includes a variety of materials. For elements of effective practice, go to the site’s page at http://www.mentoring.org/program_staff/design/elements_of_effective_practice.php. www.mentoring.ca.gov/best_practices.shtm The California Governor’s Mentoring Partnership—best practices for mentoring programs. www.nwrel.org/mentoring The National Mentoring Center at Northwest Regional Educational Laboratory—includes information and publications www.nwrel.org/mentoring/ nmc_pubs.php The Generic Mentoring Program Policy and Procedure Manual—a downloadable document that includes templates for many forms your mentoring program may need to develop. www.ppv.org/ppv/youth/youth_publications.asp?section_id=7 Public/Private Ventures—includes numerous reports on mentoring, and guides to effective mentoring practices. Inclusion of these resources is for informational purposes only and does not represent an official endorsement by the U.S. Department of Labor of these entities, their products or services

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ACKNOWLEDGMENTS BY AUTHOR The author would like to thank the following people and organizations for their contributions to this publication: Fred Davie, for his support of the initial idea for this project, which was instrumental in moving it forward; Jerry sherk, who tirelessly compiled the guide’s contents; Linda Jucovy, who provided expert editing and writing support that greatly enhanced the quality of the publication; chelsea Farley, for her superb editing and shepherding of the publication process; and wendy Mcclanahan, for her strong leadership of the research on Ready4work, especially her collaborative approach to examining its mentoring component. Thanks also to the us Department of Labor Employment and Training Administration, the us Department of Justice of~ce of Justice and Delinquency Prevention, and the casey and Ford foundations for their generous and ongoing support of Ready4work and prisoner reentry more broadly. Finally, we deeply appreciate the leaders and staff of each of the Ready4work sites. Their hard and persistent work as pioneers in this new area, mentoring ex-prisoners, delivered rich information to study and learn from while providing thousands of men, women and youth with a valuable service. And, thanks to all current and former P/PV program and research staff who contributed their strong skills and hard work to the Ready4work demonstration project over the past few years.

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REFERENCE

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[1]

“Serious and Violent Offender Re-Entry Initiative” website, Office of Justice Programs, US Department of Justice, www.ojp.usdoj.gov/reentry/learn.php. Cited in Report of the Re-entry Policy Council: Charting the Safe and Successful Return of Prisoners to the Community. The Council of State Governments. New York, 2004, xviii, http://www.reentrypolicy. org/reentry/Introduction.aspx#1-note. [2] The Bureau of Justice Statistics reports that 46 percent of incarcerated individuals have a high school diploma or its equivalent. C. W. Harlow, Education and Correctional Population, US Department of Justice, Bureau of Justice Statistics (Washington, DC: 2003), NCJ 195670. Cited in Report of the Re-entry Policy Council. [3] Christopher J. Mumola, Substance Abuse and Treatment, State and Federal Prisoners, 1997, US Department of Justice, Bureau of Justice Statistics (Washington, DC, 1999) NCJ 172871; C. W. Harlow, Profile of Jail Inmates, 1996, US Department of Justice, Bureau of Justice Statistics (Washington, DC: 1998), NCJ 164620. Cited in Report of the Re-entry Policy Council. [4] Patrick A. Langan and David J. Levin, Recidivism of Prisoners Released in 1994, US Department of Justice, Bureau of Justice Statistics (Washington, DC: 2002), NCJ 193427. Cited in Report of the Re-entry Policy Council. [5] Commission on Safety and Abuse in America’s Prisons, June2006, “Confronting Confinement.” (A Report of the Commission’s Findings and Recommendations) http://www.prisoncommission.org/pdfs/Confronting_Confinement.pdf. Cost calculations were made by the Bureau of Prisons and by the Administrative Office of the United States Courts. http://www.uscourts.gov/newsroom/ prisoncost.html. [6] Bureau of Justice Statistics, June 5,2006. http://www.ojp.usdoj.gov/bjs/ pub/pdf/pjim05.pdf; and “Confronting Confinement.” [7] Ready4Work also includes a juvenile component operating at six additional sites. [8] See, for example, Joseph P. Tierney and Jean Baldwin Grossman, with Nancy Resch. Making a Difference: An Impact Study of Big Brothers/Big Sisters. 2000 (reissue of 1995 study). Philadelphia: Public/Private Ventures; and Cynthia L. Sipe. Mentoring: A Synthesis of P/PV’s Research: 1988-1995. 1996. Philadelphia: Public/Private Ventures. Both available at www.ppv.org. [9] See McClanahan, Wendy. P/PV Preview: Mentoring Ex-Prisoners in the Ready4 Work Reentry Initiative. March 2007. Philadelphia: Public/ Private Ventures. Available at www.ppv.org. [10] See S. B. Rossman and C. G. Roman. “Case-Managed Reentry and Employment: Lessons from the Opportunity to Succeed Program.” In Justice Research and Policy. 5(2), 2003, 75–100; and Debbie A. Mukamal. “Confronting the Employment Barriers of Criminal Records: Effective Legal and Practical Strategies.” In Journal of Poverty Law and Policy. January-February, 2000, 597-606. [11] For discussions of research-based effective practices, see for example, Sipe, Mentoring: A Synthesis of P/PV’s Research; and “Elements of Effective Practice” on the Mentor website at http://www.mentoring.org/program_ staff/design/elements_of_effective_ practice.php.

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[12] Organizations should understand and clearly communicate liability issues for mentors related to transporting participants in private vehicles. [13] Information is from Ready4Work mentor intake data from October 2003 through July 2007

In: Criminal Reform: Prisoner Reentry into Community ISBN 978-1-60692-288-0 Editor: Quintan B. Mallenhoff, pp. © 2009 Nova Science Publishers, Inc.

Chapter 4

OFFENDER REENTRY: CORRECTIONAL STATISTICS, REINTEGRATION INTO THE COMMUNITY, AND RECIDIVISM∗ Blas Nuñez-Neto

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ABSTRACT The prison population in the United States has been growing steadily for more over 30 years. The Bureau of Justice Statistics reports that each year more than 65 0,000 offenders are released into the community and almost 5 million ex-offenders are under some form of community-based supervision. Offender reentry can include all the activities and programming conducted to prepare ex-convicts to return safely to the community and to live as law-abiding citizens. Some ex-offenders, however, eventually end up back in prison. The most recent national-level recidivism study is 10 years old; this study showed that two-thirds of ex-offenders released in 1994 came back into contact with the criminal justice system within three years of their release. Compared with the average American, ex-offenders are less educated, less likely to be gainfully employed, and more likely to have a history of mental illness or substance abuse — all of which have been shown to be risk factors. Three phases are associated with offender reentry programs: programs that take place during incarceration, which aim to prepare offenders for their eventual release; programs that take place during offenders’ release period, which seek to connect ex- offenders with the various services they may require; and long-term programs that take place as exoffenders permanently reintegrate into their communities, which attempt to provide offenders with support and supervision. There is a wide array of offender reentry program designs, and these programs can differ significantly in range, scope, and methodology. Researchers in the offender reentry field have suggested that the best programs begin during incarceration and extend throughout the release and reintegration process. Despite the relative lack of research in the field of offender reentry, an emerging “what works” ∗

Excerpted from CRS Report RL34287, dated December 17, 2007.

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Blas Nuñez-Neto literature has shown that programs focusing on work training and placement, drug and mental health treatment, and housing assistance have proven to be effective. The federal government’s involvement in offender reentry programs typically occurs through grant funding, which is available through a wide array of federal programs at the Departments of Justice, Labor, Education, and Health and Human Services. However, only a handful of grant programs in the federal government are designed explicitly for offender reentry purposes. The 1 10th Congress is considering a number of bills that include some form of offender reentry program within their purview. The Second Chance Act (S. 1060, S. 2237, and H.R. 1593) would expand the current offender reentry grant program at the Department of Justice and create a wide array of targeted grant-funded pilot programs. Other bills pertaining to offender reentry include S. 456, S. 1907, H.R. 623, HR. 3187, H.R. 3547, H.R. 3467, and H.R. 3409. Potential issues in the 1 10th Congress include the adequacy of the federal government’s existing grant programs, the lack of current national-level statistics on recidivism, whether other outcome measures should be considered, whether more funding should be allocated toward program evaluations, and whether enough coordination is taking place among the various federal agencies that manage programs used to fund offender reentry. This report will be updated as circumstances dictate.

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BACKGROUND Over 95% of the prison population today will be released at some point in the future, and each year in the United States almost 650,000 offenders are released from prison. [1] The Department of Justice’s (DOJ) Bureau of Justice Statistics (BJS) has estimated that two-thirds of all released prisoners will commit new offenses (recidivate) within three years of their release. [2] Many studies have indicated that reentry initiatives that combine work training and placement with counseling and housing assistance can reduce recidivism rates. [3] According to the BJS, the average per prisoner cost of incarceration in state prison in 2001 was $62 per day, or $22,650 per year; costs for those incarcerated in federal prison was similar. Overall, the states spent $38 billion on their correctional systems in 2001, the most recent year for which data are available. [4] Offender reentry includes all the activities and programming conducted to prepare exconvicts to return safely to the community and to live as law-abiding citizens. Reentry programs are typically divided into three phases: programs that prepare offenders to reenter society while they are in prison, programs that connect ex-offenders with services immediately after they are released from prison, and programs that provide long-term support and supervision for ex-offenders as they settle into communities permanently. Offender reentry programs vary widely in range, scope, and methodology. The best-designed programs, according to the research in the field, are those that span all three phases. [5] A Government Accountability Office (GAO) report also suggests that post- release planning should begin as early as possible, ideally as soon as an inmate is admitted into prison or even immediately after sentencing. Such planning could include helping the offender to develop the skills and knowledge base necessary to find a well-paying job and have access to education, such as General Equivalency Degree classes for those who have not completed high

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school, and either vocational training or college classes for those that have completed high school but have not settled on a career. [6] As offenders approach their release date, the research suggests that reentry planning focus on connecting offenders with the community and workplace resources they will need to get established. Again, a good job and access to education has been cited by many studies as two of the most important aspects contributing to the successful reintegration of ex-offenders into society. [7] Lastly, it is important for the reentry process to extend deep into the offenders’ reintegration into society. Indeed, for many offenders, the first few weeks of adjustment after release are actually less difficult than the longer period of community reintegration. [8] In many cases, this period of time can span the entire three to five years that offenders are sometimes supervised in the community. [9]

CORRECTIONAL SYSTEM STATISTICS To understand the issue of offender reentry, one must first understand the ways in which ex-offenders are released into the community. It is also worthwhile to analyze the population of individuals serving sentences in correctional facilities, because the number of offenders reentering the community is necessarily related to the number of offenders serving prison sentences. This section analyzes national data on the nation’s correctional system.

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Population in Correctional Facilities The correctional system includes two main forms of detention: jails and prisons. Jails, also known as local lockups, are facilities generally used to temporarily detain individuals who have been arrested or charged with a crime but not usually convicted. [10] The jail population is thus extremely fluid, with individuals usually staying for a matter of weeks, and includes individuals who may never be convicted of a crime. Prisons, on the other hand, typically house individuals who have been convicted of a crime and sentenced to a term of one year or longer. For this reason, the prison population is less fluid than the jail population. [11] Over 95% of offenders currently serving prison sentences will return to the community at some point. [12] The population serving time in correctional facilities has been steadily increasing for decades, reaching a peak of almost 2.2 million in 2005. Of the 2.2 million prison population, 93% were between the ages of 20 and 54. [13] From 1995 to 2005, the population of prisoners aged 20 to 54 increased by 35% — or three and a half times the average growth in the general population aged 20-54 during this period of 10%. [14] From 1995 to 2005, the number of people imprisoned in the United States increased by roughly 3% each year, compared with the overall population growth of roughly 1% each year. According to the United Kingdom’s Home Office, it appears that the United States incarcerates more of its citizens than any other nation in the world, at 701 per 100,000 of its population in 2002. More than 60% of countries in the British survey, including most European countries, imprisoned less than 150 per 100,000. [15] Figure 1 shows the annual population in state and federal correctional facilties in 1995 and 2000-2005.

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Figure 1. Annual Population in Federal and State Correctional Facilities.

Given the fact that 95% of all inmates will eventually return to the community, the prison population has a direct impact on offender reentry. As the prison population grows, increasing numbers of ex-offenders are being released from correctional facilities. Most of these exoffenders are required to undergo some form of community supervision as part of their release. The following section explores the mechanisms and statistics surrounding the release of prisoners into the community.

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Ex-offenders Under Community Supervision Ex-offenders can be released into the community through a variety of different mechanisms. Some offenders never serve prison sentences and instead serve their sentence on probation in their communities under supervision. Others serve most of their sentences in correctional facilities but are then released on parole to finish their sentences in their communities under supervision. Lastly, some offenders serve out their entire sentences in correctional facilities and are released unconditionally into the community. Probation. Individuals who are found guilty of committing a crime that is deemed not serious enough for imprisonment can be sentenced to serve their sentences under community supervision (probation). Offenders on probation typically must adhere to certain conditions and check in regularly with their probation officers. Violation of these conditions or failure to appear before their probation officers can lead to further criminal sanctions, including incarceration. In some instances, offenders can be sentenced to a mixed term of prison and probation. Parole. [16] Individuals who have served most of their sentences in a correctional facility are sometimes eligible to complete their sentences in the community under conditional supervision. The conditions associated with parole can vary from case to case, but typically include drug testing and regular contact with a parole officer. Violations of these conditions

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can result in the parolee returning to prison to serve out the remaining portion of his or her sentence. There are two different kinds of parole: discretionary and mandatory. Discretionary Parole. States that use parole boards to determine whether a prisoner should be released into the community have discretionary parole. The parole boards have the authority to conditionally release a prisoner into the community based on a statutory or an administrative determination that the prisoner is eligible. Mandatory Parole. States that have statutory language determining when offenders should be released into the community have mandatory parole. Jurisdictions that use determinate sentencing [17] often include provisions specifying when inmates should be conditionally released from prison after serving a specified portion of their original sentences.

Source: CRS analysis of Bureau of Justice Statistics data.

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Figure 2. Population Under Federal and State Community Supervision.

Source: CRS analysis of Bureau of Justice Statistics data. Figure 3. Annual State Parole Entries and Year-End Population.

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Figure 2 shows the number offenders being supervised in the community, either through probation or through parole. It is important to note that parolees account for, on average, 16% of the overall population under community supervision. The growing state prison population has resulted in a concomitant growth in the overall population of offenders under community supervision. Interestingly, however, the growth rate of individuals under community supervision has been lagging behind the growth rate of individuals in correctional facilities. This is likely due to the fact that a growing number of offenders are being released directly into the community without any form of supervision. Figure 2 shows that the average population of individuals under community supervision has increased by 32% from 1995 to 2005; this contrasts with the overall prison population, shown in Figure 1, which grew by 38% during this period. From 2000 to 2003, the overall population under supervision increased at a relatively steady rate of 2.5% per year, which corresponded with the annual growth in prison population over the same three-year period. However, for reasons that are not altogether clear, in 2004 and 2005, the growth in the population under community supervision slowed to 0.6% a year; this contrasts with the 3% average growth in the prison population over this period (see Figure 1). This recent disparity in the annual growth rate of the parole and prison populations suggests that the disconnect between the growth in the overall prison population and the growth in the overall population under community supervision may continue to widen in the short term. Figure 3 breaks out the annual state parole entries and the year-end [18] state parole population each year from 1980 through 2005. [19] The data show that the growth rate in the states’ parole populations has declined over the last 14 years for which data are available. From 1980 through 1992, the year-end parole population more than tripled to 618,689. From 1992 through 2005, however, the population of ex-offenders on parole has increased by only 12% to 693,197 — an average increase of about 0.9% each year. In addition, from 2000 to 2005, the number of entries into the parole population has slightly exceeded the number of exits from parole each year, although both entries and exits to parole have been increasing by about 1.7% annually. This could suggest that offenders are remaining on parole for longer periods of time, or that the parole population is growing relative to the number of people being released from prison. The relationship between the prison and parole populations is an important one for a number of reasons. Offenders serving their sentences in prison have committed more serious crimes than offenders who serve their sentences in jail or on probation; as previously noted, the prison population typically includes individuals sentenced to more than a year of time. Parolees, meanwhile, often return to the community after a prolonged period of incarceration and usually face a period of adjustment. Figure 4 shows the relationship between annual changes in the state prison population and the parole population. Figure 4 shows a differentiation between the period from 1981 to 1992, when the annual increase in the state parole population generally outstripped the annual increase in the prison population, and the period from 1993 to 2005, when the obverse has largely been true. This is interesting for a number of reasons. The population of offenders on parole is, by definition, a subset of the population of offenders in prison: to get parole, one has to pass through the prison system. The fact that the population in prison has been increasing at a faster rate than the population in parole over the past 13 years suggests that fewer prisoners are being released before the end of their sentences; this corresponds with the sentencing reform efforts implemented by many states in the 1980s and early 1990s and the

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growing use of truth-in-sentencing laws by states. Truth-in-sentencing laws require that offenders serve a substantial portion of their sentences (usually three quarters), thereby reducing discrepancies between the sentence imposed and the actual time served in prison. [20] The discrepancy between the annual growth of the parole and prison populations in the 1990s is also a result of the fact that prison sentences have been becoming longer, because of the enactment by most states of mandatory minimum sentencing laws. Taken together, these factors could suggest that the parole population may begin to grow faster than the prison population in coming years as the longer sentences that have been issued over the past two decades come closer to being completed.

Source: CRS analysis of Bureau of Justice Statistics data.

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Figure 4. Annual Increases in State Parole and Prison Populations.

Source: CRS adaptation of Bureau of Justice Statistics figure. Note: Other conditional releases include provisional releases, supervised work furloughs, releases to home arrest or boot camp programs, conditional pardons, conditional medical releases, or unspecified releases. Figure 5. Types of Releases from State Prisons.

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The data analyzed thus far have examined the relationship between the prison population and the population under community supervision, revealing that the population of offenders under some form of community supervision accounts for roughly 70% of the overall population of offenders. Only 30% of offenders are in jail or prison, leaving about 5 million offenders annually in the community under probation or parole. As seen here, the number of offenders under community supervision has been increasing steadily for decades but has not grown quite as fast as the incarcerated population. Many of these individuals will end up recidivating and entering the penal system again, either during their periods of supervision or once their sentences have been completed. Figure 5 below shows the types of releases from state prisons from 1980 to 2005. It shows the kinds of reentries that have been occurring historically and reveals that the vast majority of prisoners are released into some form of community supervision. The figure also reflects the structural change in state systems from the use of discretionary parole (e.g., parole boards) toward mandatory parole (e.g., statutorily mandated parole) over the past 25 years. The number of individuals being released into probation has been increasing over the past 25 years, from about 4% in 1980 to 10% in 2005, but nevertheless remains relatively small. In addition, Figure 5 shows that the number of individuals being released directly into the community as their sentences expire has been increasing, from roughly 11% in 1991 to an average of 20% over the past five years. This means that roughly 20% of all offenders are being released into the community without any form of supervision or structured reentry and could account for the lower growth rate in the population of ex-offenders being supervised in the community compared with the growth rate of the prison population. The figures presented above paint a picture of a correctional system that has been expanding in terms of population for over two decades. In turn, the number of individuals being released from prison into the community has been expanding as well. Figure 5 demonstrates some of the structural changes that have occurred in the reentry process over the past two and a half decades, namely the increasing use of mandatory parole and the decreasing use of discretionary parole as a result of the sentencing reforms that have occurred at the state level. Figure 5 also shows that the percentage of prisoners being released into the community with no form of direct supervision has been increasing until recently, averaging 20% of all releases over the past five years. Despite a slight downturn over the past three years, this trend has clear implications for offender reentry, given that ex-offenders released without any form of supervision may have difficulty connecting to the services and programs that exist in their communities and may be more prone to recidivating.

Recidivism Recidivism is often defined as the rearrest, reconviction, or reincarceration of an exoffender within a given time frame. As a result of this broad definition of recidivism, most studies include technical violations of an offender’s parole or probation (such as failing a drug test or not showing up for a meeting, for example) within their general recidivism statistics. Rearrest statistics also include individuals who are found innocent of the charges. For these reasons, some studies have focused on reincarceration with a new prison sentence as a more accurate recidivism statistic, arguing that technical violations are really an extension of an offender’s original prison term and not a newly committed crime. Essentially, there are two

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competing philosophies about what recidivism should mean. [21] On the one hand are those who argue that any new contact with the criminal justice system, no matter how minor, should be considered recidivism on the part of an ex-offender. [22] On the other hand are those who argue that recidivism should be more narrowly defined as the commission of a new crime, resulting in a new sentence, by an ex-offender. [23] What one includes in the definition of recidivism has a substantial impact on the rate of recidivism reported. Regardless of what definition is used, recidivism is a difficult subject to study. Tracking recidivism involves following the cases of individuals for a number of years and relying on state or national level data sets that contain inherent inaccuracies. For example, if an offender is released in California but commits a new crime in Maine, the researchers must be able to match those two records together to make a definitive statement about recidivism. This match is typically done by consulting the FBI’s master database of convictions; however, as we will see later, this database contains omissions that may affect the results of recidivism studies. A number of studies have been conducted on this issue, and most states have calculated their own recidivism rates. However, there is a dearth of current national-level statistics on recidivism by ex-offenders. The two main national level studies that have been conducted over the last 15 years are outlined below. Bureau of Justice Statistics 1994 Recidivism Study. The most comprehensive nationallevel recidivism study to date was conducted by the Bureau of Justice Statistics (BJS) and dates back to 1994. [24] The BJS study examined the rearrest, reconviction, and reincarceration of prisoners from 15 states three years after their release in 1 994. [25] The study tracked 272,111 prisoners, or almost two-thirds of all the prisoners released from state prisons in 1994.

Source: CRS Analysis of BJS data. Notes: Because of missing data, prisoners released in Ohio were excluded from the calculation of “Percent reconvicted.” The category “New prison sentence” includes sentences to state and federal penitentiaries but does not include sentences to local jails. Because of missing data, prisoners released in Ohio and Virginia were excluded from the calculation of “Percent returned to prison with a new prison sentence.” Figure 6. Bureau of Justice Statistics Recidivism Study.

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Figure 6 summarizes the main findings of the BJS recidivism study. After three years, the study found that over two-thirds (67.5%) of the prisoners released had been rearrested for a new offense. Almost half (46.9%) of the prisoners had been reconvicted of a new crime. Just over half (51.8%) of the prisoners released were back in prison either because they had been resentenced to prison for a new crime they had committed (25.4%) or because they had violated some technical provision of their release (26.4%). [26] The BJS study therefore showed that more than half of ex-offenders who return to prison do so because of technical violations of their parole or probation rather than the commission of a new crime. It is important to note that the BJS study did not include information on what percentage of exoffenders were serving time in local jails; however, as previously noted, local jails feature a fluid population of inmates who usually reside there for a brief period of time and may not be convicted of the crime they are being held for. United States Sentencing Commission Study. The United States Sentencing Commission (USSC) studied the recidivism rates of a random sample of 6,062 offenders who were sentenced under federal sentencing guidelines in FY1992. The recidivism information was derived from the “RAP” sheet criminal history repository maintained by the FBI’s Criminal Justice Information Services Division, which has certain limitations (discussed below). The USSC study examined the relationship between the offenders’ sentences and recidivism rates. The USSC developed the Criminal History Category (CHC) based on a review of prediction measures that were popularized in a National Academy of Sciences study in the 1980s. [27] Generally, an offender’s prior criminal record will determine which CHC they are placed in. There are six CHC levels; an offender’s placement within these levels is determined by a points system based on their prior contacts with the criminal justice system. Points are awarded for prior convictions, for violations of technical provisions of their judicial supervision (e.g., bail or parole), and for violent crimes. Juvenile and special court martial convictions are also counted. The higher the category, the more severe the offender’s criminal history is. [28] Figure 7 summarizes the USSC’s findings. Generally, the study showed that an offender’s criminal history was strongly associated with the likelihood of the offender recidivating after being released. The more prior convictions or the more serious the nature of the offender’s crimes, the more likely the offender was to recidivate. The study also showed that the definition of recidivism had a large impact on the resulting statistics. For example, for the most hardened ex-offenders, general recidivism, which includes any contact with the criminal justice system, was at 55% after two years. Over this same period, the re-conviction rate for the most hardened ex-offenders was only 15%. This discrepancy shows that the definition of recidivism is important; even for the most hardened ex-offenders, the reconviction rate was relatively low compared with the general recidivism. National Recidivism Study Limitations. The rearrest, reconvition, and resentencing data used in both the USSC and the BJS study come from official records maintained by the states’ and the Federal Bureau of Investigation’s (FBI) official criminal history repositories. These repositories understate the actual recidivism levels to some unknown extent because they rely on local police agencies and courts to supply them with notifying documents. These documents are not always filed by local police departments or courts, however. In addition, if the offender provided a different name or a fraudulent identity document to police, and this misinformation was not discovered, they would likely not be captured by the data. Lastly, even if the criminal is correctly identified and the document is sent to the repository, the

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repository may not be able to match the person identified in the document with their records. This could occur, for example, if the document that has been submitted is filled out incorrectly or is illegible.

Source: CRS Presentation of USSC Data.

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Figure 7. United States Sentencing Commission Recidivism Findings.

Moreover, as previously noted, there is some debate about what kind of outcome measure should be included when measuring recidivism. Should recidivism statistics include any contact with the criminal justice system by an ex-offender? Or should recidivism statistics be limited to the commission of crimes by ex-offenders that result in new convictions or new sentences? Both the BJS and the USSC studies showed wide differentials between general recidivism, which includes any contact with the criminal justice system, and re-conviction rates for new crimes. The length of the follow-up period will also play a role in the recidivism statistics that are generated. Because of the costs and difficulties associated with studying recidivism, most studies follow ex-offenders for two or three years. There is a dearth of information concerning what happens to ex-offenders beyond the three-year window that is typically studied. For all of these reasons, caution should be taken when attempting to draw conclusions about the efficacy of policy measures based solely on recidivism statistics. When using recidivism statistics to evaluate a program, it is important to understand exactly what is included in the definition of recidivism. For example, consider the following hypothetical scenario: a program is evaluated and shows significant decreases in the number of exoffenders that are convicted of new crimes and sentenced to new prison terms; however, the number of ex-offenders arrested for violating their parole actually increased. Was this program successful or not? Did it make society safer or not? This may well be an unlikely scenario, but it calls attention to the fact that recidivism may mean different things to different people. While recidivism statistics remain the best information available concerning whether ex-offenders come into contact with the criminal justice system after being released from prison and what the nature of that contact is, they are but one factor to be considered when evaluating the efficacy of a program, because of the concerns outlined above. Importance of Considering Other Outcome Measures. While recidivism has traditionally been the most widely used metric used to determine the effectiveness of correctional and reentry programs, it is important to note here that other outcome measures can help determine

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whether an offender’s reintegration into society is succeeding. Measures of attachment to social institutions, such as employment, involvement in community activities, church-going, and participation in support groups, can be important bellwethers of an offender’s transition to the community. [29] For example, one study of drug court [30] participants showed that drug courts reduce drug use among their participants and that children born to drug court participants are less likely to be born addicted to drugs. [31] Given the high societal costs associated with substance-dependent infants, for that particular program, recidivism was arguably not the most important outcome measure that could have been considered. To give policy makers a better idea of what happens to ex- offenders, program evaluations are best focused on the entire universe of activities that ex-offenders engage in.

OFFENDER REENTRY: A BRIEF LITERATURE REVIEW Virtually all prisoners currently being detained in secure facilities will, someday, be released into the community, and more offenders are transitioning into the community today than ever before. Offender reentry is a complex issue that touches on a wide range of social and governmental networks and programs. Offender reentry policies can vary significantly from state to state, and from community to community within particular states. The policies affecting prisoners and the kinds of programs available to them both in and out of prison depend on a variety of factors, including the availability of funding for social programs within states and communities and the number of private non-profit and religious organizations operating in a given community. The federal government plays a supporting role through the numerous grant funding opportunities (discussed below). Complicating factors affecting how offender reentry works in a given community can include

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• • • • • • •

the varying types of sentences handed down, the different kinds of release mechanisms available to judges, the types of programs provided in prisons by correctional systems, the intensity of supervision provided or required by the parole or releasing agency, the family and community support available to the offender, the kinds of social services available in the offender’s community, and the status of the local economy and the offender’s ability to obtain employment. [32]

Offender Reentry Defined Before we can discuss offender reentry programs, however, we must understand what constitutes offender reentry. Some observers note that offender reentry is the natural byproduct of incarceration, because all prisoners who are not sentenced to life in prison and who do not die in prison will reenter the community at some point. According to this school of thought, reentry is not a program or some kind of legal status but rather a process that almost all offenders will undergo. [33] A variant on this approach to reentry is the concept that offender reentry, “simply defined, includes all activities and programming conducted to prepare ex-convicts to return safely to the community and to live as law abiding citizens.”

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[34] The basic idea here is that every activity and process that a prisoner undergoes while in the judicial and correctional systems will have some nexus with their reentry into the community. Although this broad definition of reentry certainly encompasses all the activities that may impinge on or affect a prisoner’s reentry into society, it may be a cumbersome one for the purposes of crafting and evaluating government policies. For example, it is difficult, if not impossible, to measure the outcome of a reentry program if one includes in the definition of reentry every activity that a prisoner undergoes during his time in the criminal justice system. This has led many in the field to focus on a more narrow and thus more manageable definition of reentry. This more narrow definition is often stated in two parts: correctional programs that focus on the transition to the community (such as prerelease, work release, halfway houses, or other programs specifically aiming at reentry) and programs that have initiated some form of treatment (such as substance abuse, life skills, education, or mental health) in prison that is linked to community programs that will continue the treatment once the prisoner has been released. [35] Narrowing the definition of reentry thusly allows policy makers to focus on programs that expressly aim to manage the transition from detention to the community.

Program Effectiveness: The “What Works” Literature

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Compared with other social science fields, there has been a relative lack of rigorously designed studies on the issue of offender reentry. Nevertheless, in recent years, there has been increasing attention on this issue and a number of new studies have been published. This has allowed academics to undertake some of the first broad meta-analyses [36] of offender reentry studies. Some of these studies have hewn closely to the “what works” paradigm created by University of Maryland researchers for a National Institute of Justice report to Congress. [37] This concept was adapted to the field of offender reentry in a 2003 St. Louis University Study. [38] The “what works” literature attempts to identify programs that are effective by creating a scoring system to evaluate studies based on whether they can be proven to have an impact. Inherent to this approach is the need to identify program evaluations that provide evidence concerning the effect the program had on certain outcome measures. The “what works” paradigm essentially focuses on whether studies have accomplished the following things: •

•

•

controlled for variables in their analysis that may have been the underlying cause of any observed connection between the program being studied and the outcome measures being analyzed; determined whether there are measurement errors resulting from problems with the study, including such things as participants being lost over time or low response rates to interview requests; and calculated the statistical power of the analysis to detect the program’s effects on outcome measures. Included in this category are things such as sample size and the base rate of crime in the community. [39]

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The “what works” model uses these core criteria to place studies into five distinct categories, with category 5 being the most scientifically rigorous, and thus considered most effective, studies. The model then uses this criteria to identify programs that, based on the evidence considered, have been proven to work, programs that are promising, and programs that do not work. Following is a brief discussion of the types of offender reentry programs that have been found to be effective in the “what works” literature, as well as in other studies. It is important to note here that, just because a program has been proven to work in one location, or for a certain population, does not necessarily mean that it can be just as effective in other locations or among other populations. A number of factors can impinge on a program’s effectiveness in any given location. For example, while knowing that a program has worked in the past can provide a model or blueprint to guide policy practitioners in other locations, how a program is implemented is just as important to its ultimate success as the underlying model that it is based on. The most effective model program can be compromised if it is not implemented properly. In addition, geographic, demographic, and other differences between locations can affect whether a program that succeeded in one place succeeds in another. Nevertheless, knowing that a program has worked in the past is of use to policy makers as they consider where to allocate funding and other resources. Employment. There are a number of studies that demonstrate that employment is a fundamental component of the reentry process, and that ex- offenders who are able to find stable employment are much more likely to succeed in their rehabilitation than those who cannot find work. [40] Several vocational and work programs were found to effectively reduce recidivism and improve the job- readiness of ex-offenders by the “what works” review. [41] Drug Treatment. Drug rehabilitation and treatment have also been found to be effective by a number of different studies, including the “what works” literature. These studies showed that, for recidivism and drug-use relapse, drug treatment can significantly improve outcome measures. In general, programs that provide intensive treatment in prison, combined and integrated with aftercare programs, have been shown to be effective in reducing recidivism and substance abuse among their participants — especially for offenders with serious crime and substance abuse histories. [42] Halfway House Programs. A number of programs that provide transitional housing for ex-offenders as they begin their transition into the community have been found to be effective. Offenders participating in halfway house programs were found to commit fewer and less severe offenses than those who did not participate. Participants also performed better on a range of other outcome measures, such as finding and holding a job, being selfsupporting, and participating in self- improvement programs; however, these results were not statistically significant. [43] Other Kinds of Programs. The “what works” review concluded that other programs were either not effective or had not been studied enough for firm conclusions to be drawn. Education programs, for example, were found to raise educational achievement scores but not to reduce recidivism. Pre-release programs and programs focusing on violent offenders and sex offenders showed some evidence that they were effective in reducing recidivism, but few of these kinds of studies made it through the selection process. This precluded any firm conclusions from being drawn about these kinds of programs and pointed to the need for more evaluations. [44]

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Limitations with the “What Works” Literature. One of the main limitations associated with the “what works” literature is the dearth of studies that meet its rigorous requirements. For example, the offender reentry study cited above was only able to identify 32 studies that met their selection criteria. Only 19 of these program evaluations contained a comparison, or control, group, and of these, only two were randomized control trials. [45] This has led some to question whether the programs identified to work by this literature review are, in fact, effective. [46] Moreover, most of the studies identified by the “what works” literature evaluate program effectiveness based almost entirely on recidivism. As previously noted, some believe other outcome measures may be just as important in deciding whether a program has been effective in reintegrating ex-offenders into their communities. Lastly, evaluations that incorporate random assignment and provide statistically rigorous results are, by and large, expensive. This means that policy makers are often confronted with hard decisions concerning whether to fund additional services or evaluations of existing programs. Conclusions. After reviewing the available literature, some patterns appear to emerge. Many of the programs that have been proven to be effective share some of the same attributes, regardless of whether they focus on vocational training, substance abuse prevention, mental health services, or alternative housing. The attributes shared by most of these programs include the following: • • • •

they start during institutional placement, but take place mostly in the community; they are intensive in nature, lasting typically at least six months; they focus services on individuals determined to be at high-risk of recidivating through the use of risk-assessment classifications; and if they are treatment programs, they use cognitive-behavioral treatment techniques, matching particular therapists and programs to the specific learning characteristics of the offenders. [47]

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CURRENT LAW The federal government’s only grant program exclusively focused on offender reentry was authorized by the 2 1st Century Department of Justice Reauthorization Act of 2002. [48] The act authorizes the Attorney General (AG) to make grants of up to $1 million to states, territories, and Indian tribes to fund adult and juvenile offender reentry demonstration projects. Funding can be used to provide the following services for adults: • • • • • •

oversight and monitoring of offenders released into the community, substance abuse and mental health treatment and aftercare, vocational training and education, convening community and victim impact panels and educational classes, establishing and implementing graduated sanctions and incentives, and “other treatment to promote effective reintegration into the community.”

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Purpose areas eligible for funding for juvenile offender reentry are largely similar to those listed above, but also include providing offender reentry planning when the juvenile is initially incarcerated and coordinating the delivery of community-based services post-release. To be eligible for funding, applicants to these demonstration grants must describe their long-term strategy, including how the jurisdiction will pay for the program once federal funding ends, and identify the governmental and community agencies that will be coordinated by the project. Applicants must also describe the methodology and outcome measures that will be used to evaluate the program. The federal share of any grant issued may not exceed 75% of the costs of the project; however, the AG is authorized to waive this requirement. This program was last authorized through FY2005; this means that it is currently unauthorized. However, this grant program has continued to receive funding. In addition to the offender reentry demonstration grant program outlined above, purpose areas that can be used to fund offender reentry programs at the state and local level exist in a large number of federal grant programs. The following section provides an overview of the current programs that can include some funding for offender reentry purposes.

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FEDERAL OFFENDER REENTRY PROGRAMS A wide array of federal programs and grants can be used by states to support offender reentry. Many of these programs participated in the federal government- wide Serious and Violent Offender Reentry Initiative (SVORI), a four-year $300 million initiative that pooled the federal offender reentry resources of the Departments of Justice, Labor, Education, and Housing and Urban Development in order to reduce recidivism. [49] This program officially concluded in FY2005 and is currently being evaluated. More recently, the Office of Justice Programs (OJP) announced it had formed a partnership with the Department of Labor known as the Prisoner Reentry Initiative (PRI). The PRI program, like SVORI, is an interagency effort to coordinate the provision of federal funding for the reintegration of offenders into the community. While funding opportunities for offender reentry programs exist within the purpose areas of many broad grant programs, only one grant program is (PRI) specifically tailored for offender reentry within the federal government. Both the SVORI and the PRI utilized the authorization outlined above; however, as previously noted, the authorization expired in FY2005 but the program has continued to receive appropriations in FY2006 and FY2007. Following is a brief description of the main federal programs that have been used to help state and local entities to fund activities relating to the reintegration of ex-offenders into local communities. It is important to note that some of these programs may no longer be receiving funding; these programs are identified below. Other programs that are currently funded may not provide funding for offender reentry purposes every fiscal year. Nevertheless, these programs have been included to provide a comprehensive look at the universe of federal resources that could be used for offender reentry purposes.

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Offender Reentry Programs at the Department of Justice (DOJ) The Office of Justice Programs within DOJ oversees a wide array of grant programs that include support for offender reentry programs or activities among the purpose areas eligible for funding. Some of these programs may be more focused on offender reentry than others, but all of them can be used for offender reentry purposes. The Serious and Violent Offender Reentry Initiative. The Office of Justice Programs (OJP) coordinated a federal offender reentry pilot program for adult offenders, the Serious and Violent Offender Reentry Initiative (SVORI). This program focused on coordinating the way federal agencies distribute existing offender reentry funding. The main federal agencies involved were the Departments of Justice, Labor, Education, and Housing and Urban Development. As part of SVORI, their objective was to help state and local agencies navigate the wide array of existing state formula and block grants and to assist the states and communities to leverage those resources to create comprehensive offender reentry programs. The program distributed $110 million to 69 grantees and concluded in FY2005; it is currently being evaluated. [50] The Prisoner Reentry Initiative. The Prisoner Reentry Initiative (PRI) appears to have been instituted as a replacement for the SVORI program. According to OJP, the PRI provides funding for model offender reentry programs that focus on providing services and assistance during the three phases of offender reentry: at detention facilities, just prior to and after the offender’s release, and during an exoffender’s long-term transition to the community. Other DOJ Grant Programs. DOJ maintains formula grant programs outlined below that provide assistance to states or local units of government according to legislatively mandated formulas; this funding can be used for offender reentry purposes at the state or local unit of government’s discretion. In addition to these programs, the Edward Byrne Justice Assistance Grant program can also be used by states to support offender reentry activities and initiatives. [51] Community Oriented Policing Services (COPS). [52] The COPS program does not expressly authorize funding for offender reentry purposes; [53] nevertheless, under its broad community policing mandate, OJP has used this grant program on occasion to fund pilot offender reentry programs. The most recent of these was the Value-Based Reentry Initiative (VBRI). As part of this initiative, mentors were chosen from faith-based and community organizations to serve as liaisons between the released offender and the resources and services available in the community, including housing, employment, and health services. Five local organizations participated in the program in Missouri, Michigan, California, Washington DC, and Massachusetts. Funding for the VBRI program expired in FY2005. [54] The Weed and Seed Program. [55] The Weed and Seed program can also provide funding for state offender reentry programs. According to DOJ, the Weed and Seed program focuses on a two-pronged approach. On the one hand, local law enforcement agencies and prosecutors work together to “weed out” criminals who participate in violent crime and drug abuse. On the other hand, the program seeks to “seed” the community with services, encompassing prevention, intervention, treatment, and neighborhood revitalization. Offender reentry programs can fall under both of these parameters because funding can be used to provide supervision for ex- offenders in the community, as well as to develop support services. In addition to participating in the PRI program, Weed and Seed is currently collaborating with

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the Corporation for National and Community Service and the Local Initiatives Support Corporation to create volunteer-driven offender reentry initiatives in communities. [56] The Violent Offender Incarceration/Truth in Sentencing Program. Though the main focus of this program was to build or expand correctional facilities to increase the number of convicted violent offenders that can be housed, up to 10% of the award to any given facility could have been used to pay for the cost of offender drug testing and intervention programs for incarcerated offenders, as well as post- release supervision, including funding facilities for transitional housing that allow offenders to be monitored electronically as they reintegrate into their neighborhoods. [57] This program has not received funding since FY2001 [58] and has been unauthorized since FY2000. [59] Juvenile Justice Grant Programs. [60] The Office of Juvenile Justice and Delinquency Prevention (OJJDP) administers a number of grants that can be used by states and units of local government to provide aftercare services (i.e., offender reentry programs) for juvenile delinquents who are returning to their communities from residential placement (i.e., prison). These programs include the State Formula Grant program, which states can use to fund a variety of programs, including aftercare programs; the State Challenge Grant program, which is a discretionary grant program used to fund innovative approaches to juvenile justice (including the provision of aftercare services); and the Juvenile Mentoring Program, which connects juveniles returning from placement with mentors. The National Institute of Corrections (NIC). Within the Federal Bureau of Prisons, NIC provides assistance for state and local corrections agencies. NIC provides training, technical assistance, and information services to these agencies, and assists with policy and program development. NIC’s offender reentry-related support typically covers programs focused on preparing offenders for offender reentry while they are incarcerated. Specifically, the Office of Correctional Job Training and Placement works to advance the employability of offenders and exoffenders. [61]

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Offender Reentry Programs at Other Federal Agencies As previously mentioned, many federal departments provide funding through a wide array of programs and block grants, which can be used by states for offender reentry. The following list is not meant to be an exhaustive one, but it does capture many programs run by other departments that can be used to support state offender reentry initiatives. The Department of Labor (DOL). The Workforce Investment Act [62] (WIA) of 1998 (P.L.105-220) authorized a nationwide system of workforce development programs, America’s Workforce Network, that provides information and services to connect youths and adults with employers. [63] These programs, which can be used by ex-offenders, provide services such as skills-training and job-placement. DOL also instituted a Young Offender Reentry Demonstration Grant Program, which provides funds to communities for offender reentry programs for offenders aged 14 to 21 who are already in the criminal justice system or are considered high-risk. This program focuses on job-training, education, substance-abuse treatment, mental health care, housing assistance, and family support services. In addition, DOL maintains two programs that provide incentives for companies to hire ex-offenders. The Work Opportunity Tax Credits program [64] provides up to $2,400 in tax credits to companies for every former offender they hire, [65] and the Federal Bonding

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Program [66] allows companies who cannot obtain bonding or insurance from their own providers to bond ex-offenders for up to $25,000 for up to six months. [67] The Department of Education (DOE). Numerous DOE programs can be used by states to help fund or provide technical support for offender reentry programs that focus on education. The Office of Vocational and Adult Education provides several different programs for offender reentry. The Lifeskills for State and Local Inmates Program provides funding for demonstration projects to reduce recidivism through educational services before inmates are discharged into the community. [68] The Grants to States for Workplace and Community Transition Training for Incarcerated Youth Offenders funds postsecondary education and vocational training to people under the age of 25 from five years before their release to one year post- release. [69] Title II of the Workforce Investment Act, Adult Education and Family Literacy, also authorized funding to be appropriated for basic skills instruction; up to 10% of the funds can be used for institutionalized offenders or for ex-offenders in community programs. In addition, the Perkins State Grant Program allows states to use up to 1% of their funds to serve offenders in institutions. [70] The Department of Housing and Urban Development (HUD). HUD funds a variety of programs that help states and local governments to support housing programs. The Community Development Block Grant Program aims to assist states develop viable urban communities. Funds are allocated by formula to the states, and communities and grantees have significant discretion concerning how to allocate their federal funding — including using some funds to provide housing for exoffenders. [71] The Department of Health and Human Services (DHHS). DHHS provides funding for a multitude of programs that can be used to help offender reentry programs through the Substance Abuse and Mental Health Services Agency [72] (SAMHSA) and the Office of Community Services. These programs include the Recovery Community Support Program, which targets people and families recovering from drug abuse and addiction, and several block grant programs. SAMHSA also funds a program that specifically targets offender reentry known as the Young Offender Reentry Program (YORP). The YORP provides funding for state, tribal, and local governments, as well as community based non-profit organizations, to expand substance abuse treatment and supervision programs for juvenile and young adult offenders re-entering the community. [73] Funds for DHHS programs may be used to provide substance abuse or mental health services for offenders on parole or probation. However, DHHS funds may not used to provide services to incarcerated offenders. [74]

LEGISLATION IN THE 110TH CONGRESS A number of bills introduced in the 1 10th Congress touch on the issue of offender reentry. The only comprehensive offender reentry bills to have seen action thus far in the 1 10th Congress are H.R. 1593 and S. 1060, commonly known as the Second Chance Act. H.R. 1593 was reported out of the House Committee on the Judiciary on May 9, 2007, and was passed under a motion to suspend the rules by the House on November 13, 2007, by a vote of 347 to 62. S. 1060 was ordered to be reported out of the Senate Committee on the Judiciary on August 2, 2007. [75]

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The Second Chance Act A bill called The Second Chance Act has been introduced in each Congress since 2000. While these bills have differed from Congress to Congress, they would all have reformed the offender reentry process. In the 1 10th Congress, four separate bills have been introduced that include similar language. Two of them, H.R. 1593 and S. 1060, have seen action of some sort. The other two are S. 2237, a broader crime control bill that includes a section called the Enhanced Second Chance Act, and H.R. 623. Following is a brief discussion of each of these bills. H.R. 1593, as passed by the House, and S. 1060, as introduced in the Senate, would include broadly similar language that would expand the current offender reentry grant program at DOJ, replacing the four purpose areas currently eligible for funding with new purpose areas spanning every phase of the offender reentry process. [76] Applicants for these grants would be subjected to a number of requirements, including submitting a reentry strategic plan with their application, describing the long-term strategy, and providing a detailed implementation schedule, among other things. Both bills would require that states and localities match some of the federal funds provided; H.R. 1593 would require a 50% match, and S. 1060 would require a 25% match. Both bills would direct the Bureau of Prisons (BOP) to modify various components of its offender reentry planning process for federal exoffenders, would establish a prisoner reentry program at BOP, and would endow the agency with new authorities. The bills would also create a number of new demonstration grant programs, including •

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• •

grants for state and local reentry courts, offender reentry task forces, and drug treatment diversion programs; grants to expand drug treatment programs for prisoners and ex- offenders; and grants to expand the use of career training programs and mentoring programs.

However, S. 1060 includes some grant programs that are not included in H.R. 1593, including grants to study the use of drug treatment to reduce illegal drug demand and grants to ensure the availability of pharmacological drug treatment services in prison. S. 2237, the Crime Control and Prevention Act of 2007, includes Section III, the Enhanced Second Chance Act of 2007. In a number of respects, Section III of S. 2237 is similar to H.R. 1593 and S. 1060. S. 2237 would replace the current offender reentry grant program’s four purpose areas with 27 new purpose areas spanning every phase of the reentry process; these purpose areas and the requirements to be eligible for funding are broadly similar to those found in H.R. 1593 and S. 1060. S. 2237 would also direct the Bureau of Prisons (BOP) to establish pre-release planning procedures for ex-offenders, but unlike H.R. 1593 and S. 1060, the bill does not create a new offender reentry program for federal prisoners or provide new authorities to BOP. S. 2237 would create three new grant programs: • • •

grants to study the effects of revoking an ex-offender’s parole, grants to community based organizations to provide mentoring and other transitional services to ex-offenders, and grants to establish group homes for recovering substance abusers.

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Of these three new grant programs, only the group home grant program differs from those that would be established by H.R. 1593 and S. 1060. However, a number of grant programs that are included in H.R. 1593 and S. 1060 are not in S. 2237. In addition, S. 990 and H.R. 1692, the Fighting Gangs and Empowering Youth Act of 2007, include language similar to that found in H.R. 1593, S. 1060, and S. 2237 that would expand the current offender reentry grant program for ex-offenders and establish a National Adult and Juvenile Offender Reentry Resource Center. H.R. 623, the Second Chance for Ex-Offenders Act of 2007, has been introduced in each Congress since the 106th Congress. The bill would allow nonviolent offenders (defined as offenders who did not use weapons or violence in the course of committing their crimes) to petition to have their criminal records expunged. Eligibility would be restricted to individuals without prior convictions, and petitioners would have to remain free from substance dependency for a minimum of one year and complete at least a year of community service. Once a record is expunged, DOJ would be allowed to disclose the name of the offender and the agency that has custody over the record (but not information concerning the offense) only in certain cases, including criminal investigations, gun applications, and government employment applications. Expunged records would be restored if the individual was convicted for a new crime.

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Other Offender Reentry-Related Legislation S. 456, the Gang Abatement and Prevention Act, was passed by the Senate on September 21, 2007. The bill includes a provision (§ 302) that would establish a Gang Prevention Grant program administered by the Office of Justice Programs at DOJ. Among other purposes, this grant could be used to fund reintegration strategies for the reentry of gang-members into the community. The bill would also create a National Gang Research, Evaluation, and Policy Institute that would be charged, among other things, with facilitating the implementation of data-driven reentry programs for gang-offenders. Similar offender reentry-related language exists in H.R. 3547, the Gang Prevention, Intervention, and Suppression Act. H.R. 3467, the Second Chance for America’s Veterans Act, would direct the Secretary for Veterans Affairs to create a workforce offender reentry grant program for incarcerated veterans. The program would be established in at least 24 locations equitably distributed across the United States, and at least one of these locations would be in a penal institution administered by the Bureau of Prisons. The program would include referral and counseling services in order to assist incarcerated veterans with job training and placement, housing, health care, and other benefits. Grant funding for these purposes would be made available to state agencies, non-profit organizations, and state and local workforce investment boards, and each program funded by this grant would be directed to provide a detailed outcomes report, including recidivism data, to the Secretary of Veterans Affairs. The bill would authorize appropriations of $15 million each year from FY2008 through FY20 11. H.R. 3409, the Place to Call Home Act, would create a Youth Offender Reentry Grant program. Under this program, the Attorney General would be directed to create a program that would identify incarcerated young adults who would be eligible for release prior to their 25th birthday and provide targeted offender reentry services to these individuals. Pre-release services to be provided would include training in daily living skills, training in parenting

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skills, training in budgeting and financial management skills, substance abuse prevention, mental health counseling, and preventive health activities. The AG would also be directed to provide any further assistance needed at the pre- and post-release stages to connect offenders with employment, housing, mentors, and post-secondary education. To be eligible for funding, states would be required to submit a plan describing how they plan to meet the program’s goals, how funding would be used for both pre- and post-release planning and services, and how funding would be distributed among a diverse range of qualified non-profit and private organizations. States would also be required to make a series of certifications, including, among other things, that not more than 30% of the funds allotted to the state would be used for post-release room and board for eligible ex-offenders, and that public and private organizations have been consulted in developing the plan and given at least 30 days to submit comments on the plan. Funding would be distributed to states based in part on the ratio of the number of individuals in that state between the ages of 13 and 25 compared with the national average. States would be required to collaborate with DOJ in establishing evaluation procedures and data-driven outcome measures; 1.5% of the overall funding for this program would be used by the AG to fund evaluations of the state programs. The bill would authorize $200 million for this program S. 1907 and H.R. 3187, the Meth Mouth Correctional Costs and Reentry Support Acts, would establish a grant program to fund programs that would identify, eliminate, and report on the degree to which poor dental health undermines an exoffender’s transition to the community. Funding could be used, among other things, to provide dental treatment programs at correctional facilities, promoting oral hygiene among inmates, and assessing the oral condition of inmates at their release. S. 1907 would authorize annual appropriations of $100 thousand each year from FY2009 through FY20 11; H.R. 3187 would authorize $5 million each year over the same time period.

CURRENT LEGISLATIVE ISSUES

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There are a number of oversight issues relating to the administration of federal offender reentry grant funding that may be of concern to Congress. Following is a brief discussion of selected issues, including the adequacy of the federal government’s existing offender reentry grant programs, the lack of coordination between different federal agencies concerning offender reentry, and the lack of current recidivism statistics for ex-offenders.

Adequacy of Existing Offender Reentry Programs This report has demonstrated the breadth of funding opportunities available in the federal government for offender reentry purposes. As previously discussed, funding that can be used to support offender reentry programs exists in grant programs administered by the Departments of Justice, Labor, Education, Housing and Urban Development, and Health and Human Services. Among the number of federal grant programs that include purpose areas that can be used to fund offender reentry, a handful of programs government-wide were identified that are specifically tailored to offenders for reentry purposes: the Prisoner Reentry Initiative

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at the Departments of Justice and Labor, the Grants to States for Workplace and Community Transition Training for Incarcerated Youth Offenders and the Lifeskills for State and Local Inmates Program within the Department of Education, and the Young Offender Reentry Program within the Department Health and Human Services. The comparative lack of targeted offender reentry grant funding may be of issue for Congress because of the apparent need for a wide range of services for offenders both preand post-release. According to a report of the Reentry Policy Council, “[a]lthough approximately three of every four people released from incarceration have a history of substance abuse, only 10 percent in state prison and three percent in local jails receive formal treatment prior to release. Just one-third (35 percent) of those released from prison participated in educational programs while incarcerated; even fewer (27 percent) took part in vocational training.” [77] A potential issue for Congress may include whether the current grant programs within the federal government can adequately support state and local correctional systems as they confront the wide array of services that ex-offenders require to successfully transition back to the community. If federal programs are seen as adequate, then no action by Congress may be necessary. Otherwise, policy options could include expanding the purpose areas of existing grant programs that are being funded, either to broaden the types of offender reentry programs that could be funded or to add such programs to grant programs that do not currently include offender reentry among their purpose areas. Another policy option could include creating new grant programs specifically tailored to specific kinds of offender reentry programs, such as housing assistance, drug treatment, or job training programs, among others.

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Lack of Current Federal Recidivism Statistics As previously noted, the only national-level recidivism statistics concerning the reentry of prisoners into the community are more than a decade old. These studies showed that over two-thirds of ex-offenders had come into contact with the legal system, either through a new arrest, a violation of the terms of their release, or a new conviction, within three years of their release. However, there are no current national-level recidivism statistics, and the Bureau of Justice Statistics does not currently have plans to update their recidivism study because of funding constraints. [78] While a number of states have conducted studies of their prisoners’ recidivism, the lack of national-level statistics poses a challenge for policy makers as they consider the issue of offender reentry. Without a current, national-level analysis of which exoffenders are more likely to recidivate, it is difficult to target funding to offender reentry programs that address the at-risk population. Indeed, much of the offender reentry literature being published today continues to cite the Bureau of Justice Statistics study from the mid1990s when referring to recidivism. A potential issue of interest for Congress may include whether a new, national level recidivism study is needed to better understand the current trends in recidivism and to better target federal funding to the ex-offenders that are most likely to re-offend. Policy options could include providing funding to the Bureau of Justice Assistance to update their 1994 study or to undertake a new study, or funding an educational institution or nonprofit entity to undertake a national-level recidivism study.

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Focus on Recidivism While few would argue that recidivism is the most important measure of an offender reentry program’s impact, there is a growing consensus within the offender reentry field that other outcome measures need to be considered when determining whether a program has been effective. [79] Many practitioners believe that an individual’s reintegration into the community should be measured by a number of indicators concerning their attachment to social networks, and not just by whether they come into contact with the criminal justice system again. Possible measures of reintegration can include whether an ex-offender has found and maintained a job; whether the ex-offender has reconnected with his family and, if he has children, whether he is supporting them; whether the ex-offender has become involved in his community through participation in church events, neighborhood organizations, and support groups; and whether the ex-offender has attained sobriety or is participating in a treatment program. A potential issue for Congress could include whether these alternate measures of an offender reentry program’s effectiveness in fostering reintegration within the community should be considered when deciding how best to allocate grant funding and other government resources. A related issue could be whether reporting on these alternate outcome measures should be required of programs receiving federal grant funding.

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Coordination between Federal Agencies There are a number of entities that bring together offender reentry professionals from state and local governments, non-profit organizations, and academic institutions, including the Reentry Policy Council founded by the Council of State Governments and the Reentry Roundtable hosted by the Urban Institute. Both of these organizations attempt to bolster information sharing about best-practices and funding opportunities and coordination between the various state and local agencies and stake-holders within the offender reentry field. However, the extent to which the various federal agencies with grant programs that can be used for offender reentry purposes coordinate their efforts is currently unclear. While the Serious and Violent Offender Reentry Initiative, as previously noted, reportedly brought together stakeholders from the Departments of Justice, Labor, Education, and Health and Human Services, that pilot program ended in FY2005 and is currently being evaluated. Over the last two years, DOJ notes that it has coordinated the Prisoner Reentry Initiative with the Department of Labor. [80] Despite the collaborations noted above, it is unclear to what extent these various departments have been coordinating the reentry funding available through their various other grant programs. This raises a potential issue concerning the extent to which duplication of resources is currently occurring across the federal government. A number of the grant programs identified above share purpose areas or can be used to fund similar activities. This could create a certain measure of confusion among state and local entities applying for offender reentry grant funding. There is currently no federal entity currently legislatively charged with coordinating federal offender reentry programs and services across the federal government. A potential issue for Congress could include whether some form of coordinating council or federal offender reentry clearinghouse should be created to provide supervision and oversight to the federal government’s offender reentry efforts.

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Evaluations of Offender Reentry Programs As previously noted, there is a comparative lack of scientifically rigorous evaluations of offender reentry programs. The “what works” literature review cited earlier was able to identify only 32 evaluations undertaken over a 30-year span that met their selection criteria; of these, only 2 were randomized control trials. The lack of rigorous evaluations of offender reentry programs makes it difficult for policy makers at every level of government to make informed decisions concerning what programs to fund and what initiatives to support. This may be of issue to Congress during both the appropriations and authorization processes. During the appropriations process, Congress faces decisions about what kinds of grant programs should be funded that are likely to be complicated by the lack of available data concerning what kinds of programs are effective. During the authorization process, as Congress considers whether to modify existing grant programs or create new grant programs, the lack of evidence makes ensuring that effective programs are being created more challenging. Potential issues for Congress to consider could thus include whether more evaluations should be funded through the federal grant process and whether scientific evaluations should be required of existing programs.

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CONCLUSION This report has shown that over the past two and a half decades, the prison population and the number of ex-offenders being released into the community have been increasing. The increasing number of ex-offenders entering the community has put pressure on public policy makers to provide treatments and services that will smooth the reintegration process while reducing recidivism. When deciding what programs to fund, policy makers often focus on reducing recidivism. The focus on reducing recidivism, however, is complicated by the fact that there are different definitions of recidivism. For example, the last major national-level study showed that two-thirds of ex-offenders came into contact with the legal system and that about half were back in prison within three years of their release. However, only a quarter of the ex-offenders ended up in prison for having committed new crimes; another quarter were back in prison for technical violations of their release (such as failing a drug test). Whether technical violations should be considered a measure of recidivism or whether recidivism should be confined to the commission of new crimes has engendered much debate within the criminal justice field. While the emphasis on reducing recidivism is important, programs should also be evaluated based on other outcome measures such as their ability to connect ex- offenders with jobs, services, and institutions in their communities. The best available research has shown that there are a number of services that can help ex- offenders reconnect with their communities and lower recidivism, including programs focusing on providing vocational training, substance abuse prevention, mental health services, and alternative housing. The most successful programs focus on high-risk offenders, are intensive in nature, begin during institutional placement, and take place mostly in the community. However, a relative lack of scientifically rigorous research has made it difficult to draw definitive conclusions about which programs are most effective.

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As Congress debates this issue, a number of policy issues may be considered, including whether the current federal grant programs are adequate or whether new programs should be created, whether there is a need for more current national-level recidivism data, whether enough coordination of the many programs that may be used to help ex-offenders is occurring within the federal government, and whether more evaluations of offender reentry programs are needed.

REFERENCES [1]

[2]

[3]

[4]

[5] [6]

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[7] [8]

[9] [10]

[11] [12] [13] [14] [15]

U.S. Department of Justice, Office of Justice Programs, “Learn About Reentry,” available at [http://www.reentry.gov/learn.html], last visited December 11, 2007. Hereafter referred to as “Learn About Reentry.” U.S. Department of Justice, Bureau of Justice Statistics, “Reentry Trends in the United States: Recidivism,” available at [http://www.ojp.usdoj .gov/bj s/reentry/recidivism.htm], last visited December 11, 2007. Hereafter referred to as “Reentry Trends.” Wilkinson, Reginald A, Director of the Ohio Department of Rehabilitation and Correction; “Offender Reentry: A Storm Overdue,” Paper Prepared for Third National Forum on Restorative Justice, March 2002, available at [http://www.drc.state.oh.us/web/ Articles/article98.htm], last visited December 11, 2007. Hereafter cited as “A Storm Overdue.” U.S. Department of Justice, Bureau of Justice Statistics, “State Prison Expenditures 2001,” NCJ202949, June 2004, available at [http://www. ojp.usdoj .gov/bj s/pub/pdf/spe0 1 .pdf], last visited December 11, 2007 Learn About Reentry. U.S. Government Accountability Office, “Prisoner Release: Trends and Information on Reintegration Programs,” GAO-01-483, June 2001, pp. 19-25. Hereafter referred to as “GAO Prisoner Release Report.” A Storm Overdue. Taxman, Faye et al., “Targeting for Reentry: Matching Needs and Services to Maximize Public Safety,” National Criminal Justice Reference Service, March 25, 2002. GAO Prisoner Release Report, p. 5 While this is generally the case, jails on occasion can also include individuals sentenced to prison terms lasting less than one year (misdemeanors) and convicted felons in jurisdictions where the prisons are overpopulated. From a CRS interview with the Bureau of Justice Statistics, May 17, 2007. Reentry Trends. CRS analysis of Bureau of Justice Statistics data. CRS analysis of Bureau of Justice Statistics and Census Data. United Kingdom Home Office, Research, Development, and Statistics Directorate, “World Prison Population List,” available at [http://www. csdp.org/research/r234.pdf].

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[16] While some states have a parole system in place, Congress abolished parole at the federal level effective in 1986. However, there is a small percentage of federal offenders who were sentenced prior to 1986 who are still eligible for parole. [17] A determinate sentence is a fixed sentence, while an indeterminate sentence is typically expressed as a range (i.e., 5 to 10 years). For additional information on sentencing guidelines, please refer to CRS Report RL32766, Federal Sentencing Guidelines: Background, Legal Analysis, and Policy Options, by Lisa Seghetti and Alison Smith [18] Year-end populations are calculated on December 31 of each year [19] 19 The figure does not include federal parole entries and exits [20] U.S. Department of Justice, Bureau of Justice Statistics, Truth in Sentencing in State Prisons, NCJ170032, January 1999. [21] For an expanded discussion of the varying definitions of recidivism, refer to Allen Beck, Recidivism: A Fruit Salad Concept in the Criminal Justice World, Justice Concepts, available at [http://www.justiceconcepts.com/ recidivism.pdf ], last visited December 11, 2007. [22] See Colorado Department of Corrections, Recidivism and Cumulative Return Rates: Calendar Year Releases from 1999 through 2005, available at [http://www.doc.state.co.us/Statistics/pdfs/Recidivism/2007RecidBulletin.pdf], last visited December 11, 2007. [23] See Florida Department of Corrections, Recidivism Report: Inmates Released from Florida Prisons, May 2001, available at [http://www.dc. state.fl.us/pub/recidivism/2001/full.pdf], last visited December 11, 2007. [24] Patrick A. Langan, and David J. Levin, United States Department of Justice, Bureau of Justice Statistics, Recidivism of Prisoners Released in 1994, Report NCJ193427, June 2002. Hereafter referred to as “1994 Recidivism Study.” [25] The states included in the study were Arizona, California, Delaware, Florida, Illinois, Maryland, Michigan, Minnesota, New Jersey, New York, North Carolina, Ohio, Oregon, Texas, and Virginia. [26] 1994 Recidivism Study, p. 7 [27] United States Sentencing Commission, A Comparison of the Federal Sentencing Guidelines Criminal History Category and the U.S. Parole Commission Salient Factor Score. [28] For examples of how the CHC system works within the federal sentencing guidelines please refer to CRS Report RL32846, How the Federal Sentencing Guidelines Work: Two Examples, by Charles Doyle. [29] Joan Petersilla, “What Works in Prisoner Reentry? Reviewing and Questioning the Evidence,” Federal Probation, vol. 68, no. 2, 2004, pp. 4-8. Hereafter referred to as “Questioning the Evidence.” [30] Drug court programs typically divert non-violent offenders arrested for drug-related crimes to treatment centers as opposed to prison. [31] Questioning the Evidence, p. 7 [32] Richard P. Seiter and Karen R. Kadela, “Prisoner Reentry: What Works, What Does Not, and What Is Promising,” Crime and Delinquency, vol. 49, no. 3, 2003, pp. 360388. Hereafter referred to as “Prisoner Reentry: What Works.” [33] Questioning the Evidence, 4-5. [34] Questioning the Evidence, p. 5.

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[35] Prisoner Reentry: What Works, p. 370. [36] Meta-analyses are a type of systematic review of studies that allow researchers to draw conclusions across a wide range of studies by using statistical methods to derive quantitative results from the analysis of multiple sources of quantitative evidence. [37] Lawrence W. Sherman, Denise Gottfredson, Doris MacKenzie, John Eck, Peter Reuter, and Shawn Bushway, Preventing Crime: What Works, What Doesn’t, What’s Promising, National Institute of Justice, 1997. [38] Offender Reentry: What Works. [39] Offender Reentry: What Works, pp. 370-373. [40] See, for example, Shawn Bushway and Peter Reuter, “Labor Markets and Crime Risk Factors,” in Preventing Crime: What Works, What Doesn’t, What’s Promising. A Report to the United States Congress, the National Institute of Justice, 1997, Chapter 6. Jeremy Travis, But They All Come Back: Facing the Challenges of Prisoner Reentry, The Urban Institute Press, 2005. [41] Prisoner Reentry: What Works, pp. 373-374. [42] Prisoner Reentry: What Works, p. 374. [43] Prisoner Reentry: What Works, p. 378. A study’s statistical significance is typically interpreted as a level of confidence (usually expressed as a probability, e.g., 95%) that an estimated impact is not merely the result of random variation, indicating that at least some of the measured impact may, with substantial confidence (e.g., 95% confidence), be attributed to the treatment as a cause. [44] Prisoner Reentry: What Works, pp. 376-379. [45] For more information about the use of randomized control trials to evaluate government programs, refer to CRS Report RL33301, Congress and Program Evaluation: An Overview of Randomized Controlled Trials (RCTs) and Related Issues, by Clinton Brass, coordinator. [46] Questioning the Evidence, p. 7. [47] Questioning the Evidence, pp. 6-7. [48] P.L. 107-273, Title II, Division B, § 2421(a). Codified at 42 U.S.C. 3797w. [49] U.S. Department of Justice, Office of Justice Programs, 2005 Congressional Budget Justifications, p. 37. [50] The Urban Institute and RTI International, National Portrait of the Serious and Violent Offender Reentry Initiative, available at [http://www.urban.org/ UploadedPDF/1000692_SVORINationalPortrait.pdf], last visited November 20, 2007. [51] For more information about the Justice Assistance Grant program, please refer to CRS Report RS224 16, Edward Byrne Memorial Justice Assistance Grant Program: Legislative and Funding History, by Nathan James. [52] For more information about the COPS program, please refer to CRS Report RL33 308, Community Oriented Policing Services (COPS): Background, Legislation, and Issues, by Nathan James. [53] See 42 U.S.C. 3796dd. [54] U.S. Department of Justice, “Value-Based Initiative and Value-Based Reentry Initiative,” COPS Fact Sheet, April 10, 2006. [55] For more information about this program, please refer to CRS Report RL33489, An Overview and Funding History of Select Department of Justice (DOJ) Grant Programs, by Nathan James.

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[56] Office of Justice Programs, Community Capacity Development Office, “Reentry,” available at [http://www.ojp.usdoj .gov/ccdo/programs/reentry. html], last visited October 4, 2007. [57] See Office of Justice Programs, “Violent Offender Incarceration/Truth-in-Sentencing Incentive Grant Program,” available at [http://www.ojp.usdoj .gov/BJA/grant/ VOITISpurp.pdf], last visited October 4, 2007, and U.S. Department of Labor, Employment and Training Administration, “Serious and Violent Offender Reentry Initiative Appendices,” available at [http://www.doleta.gov/sga/sga/reentry_app.cfm], last visited October 4, 2007. [58] Bureau of Justice Assistance, “Violent Offender Incarceration and Truth-in-Sentencing (VOI/TIS) Incentive Program,” available at [http://www.ojp. usdoj.gov/BJA/grant/voitis.html], last visited October 4, 2007. [59] See 42 U.S.C. 13701 et seq. [60] For more information about juvenile justice grant programs, please refer to CRS Report RL33947, Juvenile Justice: Legislative History and Current Legislative Issues, by Blas Nuñez-Neto. [61] U.S. Department of Labor, Employment and Training Administration, “Serious and Violent Offender Reentry Initiative Appendices,” available at [http://www.doleta.gov/sga/sga/ reentry_app.cfm], last visited October 4, 2007. [62] U.S. Department of Labor, Employment and Training Administration, “Serious and Violent Offender Reentry Initiative Appendices,” available at [http://www.doleta.gov/sga/sga/ reentry_app.cfm], last visited October 4, 2007. [63] For more information about the Workforce Investment Act, please refer to CRS Report RL33687, The Workforce Investment Act (WIA): Program-by-Program Overview and Funding of Title I Training Programs, by Blake Naughton. [64] For more information about the Work Opportunity Tax Credits Program, please refer to CRS Report RL30089, The Work Opportunity Tax Credit (WOTC), by Linda Levine. [65] U.S. Department of Labor, Employment and Training Administration, “Work Opportunity Tax Credit” available at [http://www.doleta.gov/ business/Incentives/opptax/], last visited October 4, 2007. [66] For more information about the Federal Bonding Program, please refer to CRS Report RL30248, The Employment Service: The Federal-State Public Labor Exchange System, by Alison Pasternak and Ann Lordeman. [67] U.S. Department of Labor, Employment and Training Administration, “Federal Bonding Program,” available at http://www.bonds4jobs.com/ programbackground.html], last visited October 4, 2007. [68] U.S. Department of Education, “Life Skills for State and Local Prisoners Program,” available at [http://www.ed.gov/programs/lifeskills/index.html], last visited October 4, 2007. [69] U.S. Department of Education, “Guide to U.S. Department of Education Programs, FY2007,” p. 38, available at [http://www.ed.gov/programs/ gtep/gtep.pdf]. [70] U.S. Department of Labor, Employment and Training Administration, “Serious and Violent Offender Reentry Initiative Appendices,” available at [http://www.doleta.gov/sga/sga/ reentry_app.cfm], last visited October 4, 2007.

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[71] U.S. Department of Labor, Employment and Training Administration, “Serious and Violent Offender Reentry Initiative Appendices,” available at [http://www.doleta.gov/sga/sga/r eentry_app.cfm], last visited October 4, 2007. [72] For more information about SAMHSA, please refer to CRS Report RL33997, Substance Abuse and Mental Health Services Administration (SAMHSA): Reauthorization Issues, by Ramya Sundararaman. [73] Testimony of Senior Policy Advisor to the Administrator Cheri Nolan, Substance Abuse and Mental Health Services Administration, U.S. Department of Health and Human Services, before the Committee on the Judiciary, Subcommittee on Corrections and Rehabilitation, Thursday, September 21, 2006. [74] U.S. Department of Labor, Employment and Training Administration, “Serious and Violent Offender Reentry Initiative Appendices,” available at [http://www.doleta.gov/sga/sga/ reentry_app.cfm], last visited October 4, 2007. [75] As of December 11, 2007, the text of S. 1060, as ordered reported, has not been made available. [76] H.R. 1593 includes 7 broadly written purpose areas, whereas S. 1060 includes 21 more specific purpose areas. Despite this difference, the grant program in both bills would fund the same kinds of activities. [77] Council of State Governments, Re-Entry Policy Council, Report of the Re-Entry Policy Council: Charting the Safe and Successful Return of Prisoners to the Community, January 2005, p. 3. [78] From a telephone conversation with the Bureau of Justice, August 8, 2007. [79] See, for example, Jeremy Travis, “In Thinking About ‘What Works,’ What Works Best?” Margaret Mead Address at the National Conference of the International Community Corrections Association held in Indianapolis, Indiana, on November 10, 2003, Urban Institute Justice Policy Center; James Lynch, “Prisoner Reentry: Beyond Program Evaluation,” Criminology and Public Policy, vol. 5, no. 2, May 2006; and Questioning the Evidence. [80] Department of Justice, Office of Justice Programs, “Learn About Reentry,” available at [http://www.reentry.gov/learn.html], last visited October 11, 2007

In: Criminal Reform: Prisoner Reentry into Community ISBN 978-1-60692-288-0 Editor: Quintan B. Mallenhoff, pp. © 2009 Nova Science Publishers, Inc.

Chapter 5

KEY COMPONENTS OF EFFECTIVE PRISONER REENTRY PROGRAMS: A GUIDE TO MATCHING NATIONAL SERVICE PROGRAMS WITH WEED AND SEED AND OTHER CITYWIDE INITIATIVES ON PRISONER REENTRY INTRODUCTION

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This publication is designed as a reference for organizations and communities interested in developing or enhancing prisoner reentry programs. This information is geared toward community-based organizations and Weed and Seed sites using national service resources, specifically AmeriCorps*VISTA (Volunteers in Service to America) members. The purpose of this document is to provide an introduction, helpful tools, and informative resources for projects seeking to improve the chances of success for ex-offenders. It provides an overview of prisoner reentry, community planning, the Weed and Seed strategy, and how AmeriCorps*VISTA members and other national service members can help. Readers of this document will learn the following: ¾ The key components recommended in developing or enhancing reentry strategies ¾ How to find helpful resources on reentry, mentoring, and volunteerism ¾ How to find local resources including Weed and Seed sites and national service programs

BACKGROUND Each year more than 600,000 adult inmates are released from state and federal prisons, while an estimated 100,000 juveniles and youthful offenders are released from secure and residential detention facilities. The return of ex-offenders can threaten the fragile cohesion of many of the nation’s most troubled neighborhoods. Ex-offenders often return to their community the way they went into prison: lacking adequate education, with little or no access to labor markets, and with few or no connections to positive social support networks. They are likely to experience addiction, mental illness,

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domestic violence, and a myriad of other challenges that can contribute to an increased likelihood of return to criminal activity, arrest, and reincarceration. Ex-offenders may have difficulty reuniting with family members, and family members may not be adequately prepared to accept the ex-offender back into the household. Children of incarcerated parents often face their own challenges. Studies suggest that an overwhelming number of violent criminals in the United States are males who grew up without a father. Some communities focus attention and resources on working with high-risk youth in order to break the cycle of criminal activity that leads to arrest, incarceration, and a breakdown of the family unit. This preventive measure can be a key component of a sound reentry strategy. Communities and programs can seek support through the Administration for Children and Families, U.S. Department of Health and Human Services, for resources such as the Healthy Marriage Initiative and the Fatherhood Initiative. Whether a community is targeting high-risk violent offenders, nonviolent offenders, adults, or juvenile or youthful offenders, a plan of action is necessary. Weed and Seed sites offer a comprehensive community planning approach to develop a five-year plan to “weed out” crime and “seed in” prevention, treatment, and community restoration. National service participants, including AmeriCorps*VISTA members, can be an important part of an effective reentry strategy. While AmeriCorps*VISTA members do not provide direct service, they are instrumental in areas that strengthen a program’s infrastructure, capacity and sustainability. See Appendix A for information about the Corporation for National and Community Service (CNCS) and Appendix B for resources on AmeriCorps* VISTA and Prisoner Reentry. See Appendix D for information on Weed and Seed.

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GETTING STARTED Reentry strategies vary from city to city and from community to community. Each city has some combination of federal, state, and local reentry efforts in progress, and this document is designed to link and enhance those efforts, as well as create new ones. Specifically, it will help develop a city’s reentry capacity by linking the resources of the U.S. Department of Justice’s Weed and Seed and Serious and Violent Offender Reentry Initiative sites with reentry efforts of the state correctional authority and city, faith- and communitybased organizations, and national service programs. Some communities may be only beginning to formulate a reentry strategy, while others may have an established, tried-andtrue strategy in place. Below are 10 key components, resources, and activities that can offer assistance to any community interested in planning a new strategy or enhancing an existing one.

Key Component 1: Form a Reentry Committee A Reentry Committee can provide support, resources, and sustainability to an AmeriCorps*VISTA reentry initiative. With the increased emphasis being placed on reentry,

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most states have formed community reentry planning committees. These planning committees are coordinated through the state department of corrections. It is advisable to check with your local representative of the state corrections department to assess the status of reentry efforts in your community and to determine how your efforts could complement current reentry strategies. If there is no current reentry planning and implementation committee, then creating one would be an effective way to proceed. City stakeholders could be the core of a Reentry Committee that could then expand its membership as needed. Some cities also have existing Advisory Councils or other organizations that could serve this function. Consider adding essential agencies and organizations from those listed in Key Component 6, as well as potential representatives from the Weed and Seed Steering Committee. Resources and Activities: The AmeriCorps*VISTA member could identify those who would be interested in serving on the Reentry Committee. Each committee will determine its own policies and procedures.

Key Component 2: Determine the Needs To Be Addressed Using relevant crime patterns, recidivism studies, and other key information, communities can begin to determine the specific needs within their cities and neighborhoods. When developing an AmeriCorps* VISTA project, organizations should consider conducting a needs assessment of the target community. This assessment might include crime mapping to support the decision on where to focus the services. Another part of the assessment could involve taking an inventory of existing reentry resources and surveying citizens (including ex-offenders and their families) and criminal justice professionals (parole officers, etc). See Appendix C for tips on conducting a needs assessment.

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Community Assessment—Part I A community assessment focuses on identifying both assets and needs. Examples of community assets range from strong resident-led organizations to quality housing stock that can be marketed to attract new homeowners. Other assets are strong social service programs, an active small business community, and government satellite offices in the community. An asset can be any resource that is making or has the potential to make a positive impact on the community. Community Assessmen— Part II The assessment information includes areas that need increased focus such as where resources are nonexistent or lacking. Areas with a strong base of resources are examined to see how they can be reallocated throughout the community to address deficiencies. The assessment is conducted to examine neighborhood conditions in greater detail, identify specific assets and opportunities that can be leveraged, inventory resources in the neighborhood that can be used to develop and execute key strategies, identify resource gaps that must be filled, and ensure that Steering Committee members are operating from a common base of information about the conditions of and activities in the area.

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Resources and Activities: Weed and Seed sites work closely with law enforcement, and most have mapped crime trends in their area. Since Weed and Seed sites are the highest crime areas in the city, they will be significantly impacted by the numbers of returning exoffenders. The state department of corrections may also have reentry mapping capabilities, as well as some city planning offices. AmeriCorps*VISTA members and the Reentry Committee could gather and assess this information in order to determine where and how to target the reentry resources. Crime mapping is also a powerful way to educate a community and city and state agencies about the nature and degree of the problem. See Appendix D for Weed and Seed contact information and Appendix E for information about crime mapping.

Key Component 3: Determine the Project’s Goals and Objectives The goals and objectives of a reentry strategy should address the problems, needs, resources, and capabilities of the community. They should be measurable and attainable. Resources and Activities: Every Weed and Seed site has prepared a five-year strategic plan to “weed out” crime and “seed in” prevention, treatment, and community restoration. Each goal and objective in the plan has a timetable and measurable outcomes. That Weed and Seed strategy may have goals related to reentry that could complement a new reentry plan. Also the Weed and Seed site has the valuable experience of having formed a communitybased strategic plan designed to make the neighborhood safer and better. AmeriCorps*VISTA members could learn about this strategic planning process and identify community resources and areas of cooperation. See Appendix D for a Weed and Seed strategy example.

Key Component 4: Select Target Populations

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Utilizing the information found in the needs assessment, communities should select the population (or populations) they want or need to target. It is important to detail the characteristics of the target population and to be able to demonstrate how the interventions proposed will adequately address the risks posed to the community. There are two questions the community should consider when selecting a target population: ¾ What are the characteristics of the ex-offender population chosen? The ex-offender population has been incarcerated in prisons, jails, or juvenile detention centers and can represent any of the following age groups: The mix of youth and/or adult ex-offender participation is determined by the locality and the local planning team. CNCS is providing a special emphasis in the area of adjudicated youth service in concert with the First Lady’s Helping America’s Youth Initiative. Juvenile: In the United States, definitions and age limits of juveniles vary, the maximum age being set at 14 years in some states and as high as 21 in others. Youthful offender: A young person (age 18 to 24) who commits a crime but is granted special status entitling him or her to a more age-appropriate punishment. Young people who are no longer juveniles may be categorized as youthful offenders. Youthful offender treatment

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is generally designed to free a young person from the negative consequences of being convicted and punished as an adult in the hope that he or she will be rehabilitated. Factors in the determination of youthful offender status include the crime and the criminal history of the individual. Adult: A person 25 or older who commits a crime ¾ What offenses are potentially eligible? Any or all of the following offenses may have been committed by the ex-offender: Nonviolent and serious offenses: Include drug offenses (possession and trafficking), property offenses (burglary, larceny-theft, auto theft, and arson), civil disorder offenses (gambling, DWI, commercial vice) Violent offenses: Include criminal homicide, sexual assault, robbery, and aggravated assault The locality and its representative local planning team should set the parameters for participants’ eligibility, which may include either nonviolent or serious and more violent exoffenders, subject to local determination and the background check process. When selecting the target population, programs will want to consider conducting background checks for all volunteers working with that target population. Review state and local polices as well as Appendix H for tips on hiring staff, including information on performing background checks. Resources and Activities: Many of the Serious and Violent Offender Reentry Initiative (SVORI) sites have this information on the returning ex-offender. Also, most Department of Corrections agencies are doing prerelease assessments that would include information on the characteristics of reentering offenders. AmeriCorps*VISTA members can check with these resources. If such information is not presently available in your community, identify agencies or organizations that may be of assistance in having these assessments made. See Appendix F for S VORI contact information.

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Key Component 5: Select a Target Area Geographic target areas may be broad or can be narrowed to specific communities. The area may be citywide or may be one neighborhood of a city. Determining a target area should depend largely on where the greatest need is and on the ground capacity and demonstration of interest necessary to bring success. The analyses of historical and current quantifiable data, such as demographics, crime patterns and mapping, release mapping, release mechanisms, prior remedial efforts and failure rates, and other measurable data, can help a community select an area that would most benefit from a reentry strategy. AmeriCorps*VISTA members can support this process by gathering and analyzing this information for the project. Resources and Activities: Communities are encouraged to consider partnering with targeted Weed and Seed neighborhoods when they are implementing their reentry strategy. As previously noted, Weed and Seed communities will absorb a large number of ex-offenders transitioning from incarceration to home. Like a reentry strategy, a Weed and Seed strategy is a community-based, innovative, and comprehensive multi-agency approach to law enforcement, crime prevention, and neighborhood restoration.

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Key Component 6: Identify Key Decision Makers A community beginning a reentry program will need to involve decision makers in the various agencies who have the authority, responsibility, and control of resources to support the program. Key decision makers also include leaders of organizations and congregations that can provide important resources to the reentry strategy. Identifying and establishing a partnership with key decision makers is critical to the comprehensive development of a successful reentry strategy. Influential and committed individuals who are able to leverage resources and dedicate time to the effort are essential. Key decision makers include state and local officials and community leaders. These decision makers could be asked to join the Reentry Committee. Federal officials may include the following: ¾ ¾ ¾ ¾ ¾

U.S. Attorney’s Offices, Law Enforcement Community Coordinator U.S. Department of Labor (DOL) representative U.S. Housing and Urban Development (HUD) U.S. Health and Human Services (HHS) representative U.S. Drug Enforcement Administration (DEA) representative www.ojp.usdoj.gov/ccdo/fbguide.htm Weed and Seed Site Faith-Based Implementation Guide: Task Force for Faith Based/Community-Based Initiatives: www.ojp.usdoj.gov/fbci/

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State officials and leaders may include the following: ¾ ¾ ¾ ¾ ¾ ¾ ¾ ¾ ¾ ¾ ¾

Head of the state adult or juvenile correctional agency Heads of community and faith-based organizations Head of the state parole board Head of the state substance abuse treatment agency Head of the state mental health agency Head of the state education agency Head of the state agency or department charged with criminal justice system evaluations or anappropriate evaluator Head of the state Workforce Investment Board Head of the state police If available, the state’s director of Faith-based and Community Initiatives (see www.fbci.gov to determine if your state has such an office) State service commission on volunteerism

Local officials may include the following:

Key Components of Effective Prisoner Reentry Programs ¾ ¾ ¾ ¾ ¾ ¾ ¾ ¾ ¾ ¾ ¾ ¾ ¾ ¾

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Mayor’s office Chief judge of local community judiciary Heads of local community and faith-based organizations Head of local community corrections agency Head of local parole agency Chief law enforcement officer(s) representing the community Chair of the local Workforce Investment Board If appointed, mayor’s contact for prisoner reentry and/or Faith-based and Community Initiatives Director of the local Weed and Seed site if is one nearby Head of local/private business enterprise Head of the local mental health agency Head of the local education agency Head of local mediation center School superintendent and/or official of a local college, as appropriate to the target population Head of local evaluation agency or an appropriate evaluator Heads of community volunteer centers

Reentry volunteer initiatives should be developed in strong coordination with existing state and local reentry initiative processes and coordinating groups. Consultation with mayors and county executive officers is strongly recommended for each site to ensure that this initiative will be framed to lend strong support and add momentum to local reentry initiatives and law enforcement priorities as well as to ensure sustainability. It is not enough to say that a particular individual is the employment person on the Reentry Committee; it is also important to know what that person brings to the effort, what the rules of his or her organization are, and how each key decision maker involved works to meet the goal of assisting the ex- offender through the transition process. Agencies not normally accustomed to communicating with one another will now have to share records, discuss an inmate’s progress while he or she is still incarcerated, establish community linkages, and discuss a myriad of other issues related to the ex-offender’s reentry plan. Resources and Activities: Developing cross-system protocols and memorandums of understandings will aid in the process of allowing one key agency to communicate with another key agency with issues of confidentiality and requirements related to the Health Insurance Portability and Accountability Act already addressed. See Appendix G for tips on effective partnerships/ collaboration building. Weed and Seed Steering Committees have many of the above-mentioned representatives and may be a good source of experienced and committed leadership. These Steering Committees have representation of the U.S. Attorney’s Office (and other federal law enforcement agencies), locally involved law enforcement and community policing, and active community organizations and neighborhood residents. Since a major hurdle of returning exoffenders is community acceptance, involving community groups and individuals in the committee is key to community investment in reentry efforts. See Appendix D for a description of the Weed and Seed Steering Committee.

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The AmeriCorps*VISTA members and the Reentry Committee could assist the building of the partnerships by establishing regular communication methods and supporting the possibility of joint or shared representation on the Weed and Seed Steering Committee or Subcommittees. Regular exchange of information regarding reentry-related activities will enhance the efforts of both.

Key Component 7: Design Service Delivery Systems for each Phase of the Reentry Process When developing a reentry strategy, programs and communities may benefit from looking at the transition process in three distinct but critically linked phases. To meet the requirements of each phase, communities should review the membership of the Reentry Committee to determine if decision makers from appropriate organizations and agencies are involved. For instance, if a Reentry Committee is unable to obtain buy-in from the state or local corrections official, gaining access to jails and prisons in Phase I will be difficult, if not impossible.

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Phase I—Institutionally Based Programs Six months to one year prior to release, an offender found eligible to participate in a reentry program will go through a risk and needs assessment process to determine what is necessary for a successful community reintegration. The work must begin “behind the walls” while the offender remains incarcerated, by providing him or her with a wide range of services that include education, substance abuse and/or mental health treatment, job training and placement, parenting training, batterer intervention, family counseling, and mentoring. The remaining period of incarceration presents a compelling opportunity for participation in programs that are instrumental to the development of fundamental educational and life skills and the attainment of critical credentials, such as a GED certificate. Establishment of mentoring relationships with local community and faith-based organizations will be effective in assisting offenders during this preparation period. Phase II: Community-Based Transition Programs The period between release and transition back to the community is a vulnerable time for the ex-offender. Programs in this phase should target resources that will address the exoffender’s family, housing, employment, education, mentoring support, treatment, and other identified areas that typically impact the probability of recidivism. Forging community reentry mentoring hubs and support teams will be integral to this process. Congregations are one example of a mentoring hub and can be engaged by the AmeriCorps*VISTA members to recruit volunteers who may constitute an ex-offender’s reentry, community-based support system. See Appendix J for examples of these models. Communities will need to research and identify which agency currently has statutorial reentry authority. The reentry authority has the power to order and monitor the ex-offender’s participation in and cooperation with supervision expectations, treatment programs, job skills, work readiness opportunities, education, and victim or community restitution efforts. In a situation of noncompliance with any of the agreed-upon conditions, the authority should have

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the ability to impose graduated sanctions or to revoke the ex-offender’s release, probation, or parole status. Reentry authority can be provided through a judge-centered court approach or through a local agency or organization that has the power to enforce the conditions of release. The authority works in conjunction with the service providers and is an integral component of the strategy. In some states, such as Ohio, the state Department of Parole and Rehabilitation has developed a Citizen Circle process that functions in harmony with the reentry authority by monitoring the reentry plan, which has been developed in collaboration with the ex-offender, supporting agencies, community organizations, and family members. Similar processes, such as Family and Community Conferences, provide services and supports to cover all phases of the ex-offender’s reentry. Local mediation centers may be able to provide such facilitation services.

Phase III: Community-Based Long-term Support The programs in this phase must target resources that establish networks of support for ex-offenders that will be sustained in the absence of criminal justice supervision and after the reentry plan has been successfully implemented. Activities should include aftercare treatment services, continuation of community and faith-based mentoring programs, and linkages to education and community resources that can be accessible as needs arise.

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Designing Service Delivery Systems The delivery of services and supervision should be nearly seamless from institution to community. If substance abuse treatment is warranted during commitment, then it should be linked to substance abuse treatment in the community; job training and placement should be linked to work outside; and so forth. In other words, mirror support systems should be established so that the participating ex-offender can continue seamlessly in treatment after release. Key to designing a comprehensive delivery of service systems may include the following: ¾ Developing a system of assessing risk and needs of ex-offenders: An assessment of the ex-offender’s needs for housing, employment-related services, substance abuse treatment, and mental healthcare must be conducted well before his or her release date. An individualized risk assessment should be completed to determine an exoffender’s likelihood of recidivism and level of risk to the community. The risk assessment results will also establish the appropriate level of community surveillance and monitoring. Assessments should be conducted regularly to measure progress and determine whether services are working or the ex-offender’s needs have changed. ¾ Developing a system for ex-offender reentry plans: Reentry planning ideally should begin at the time of commitment or as soon after confinement as practical to ensure that offenders receive the programs and services necessary for a smooth transition. At a minimum, reentry planning and programming should begin one year prior to an offender’s release. Case managers in the facilities must work with community-based service providers, faith-based community congregation mentoring hubs, and the offender to develop a reentry plan that ensures that critical support services are provided during and after confinement. In addition to ensuring that core selfsufficiency issues such as employment, housing, education, and healthcare are

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Key Components of Effective Prisoner Reentry Programs addressed, case managers should work with ex-offenders to discuss family reunification, parenting, and other fundamental life-maintenance issues. ¾ Organizing a transition team: A transition team comprising treatment providers, corrections staff, law enforcement, employment trainers, and community and faithbased mentors should be assigned to the offender prior to his or her release to assist with the development, monitoring, and enforcement of the reentry plan that will be employed the moment the offender leaves jail or prison. After the ex-offender’s release from commitment, the transition team should regularly update the reentry plan. The ex-offender should be actively involved in all aspects of the plan and should share accountability for its success with the team. Team professionals should provide appropriate supervision and services in a timely fashion, and the ex-offender is responsible for complying with all terms of the plan. The plan will remain in effect as long as the ex-offender participates in the program. Citizen Circles are an example of how reentry plans are developed and implemented.

An individualized reentry plan depends on the results of full diagnostic and risk assessments, but a reentry program must make all of the following services available for participants: ¾ ¾ ¾ ¾ ¾ ¾

¾

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¾ ¾ ¾ ¾

Substance abuse treatment/drug testing > Mental health treatment Housing Educational services Batterer intervention programs Training to improve job skills, as well as assistance in finding and maintaining employment or other means of support Restitution mechanism for the community at large, such as a restorative justice plan that may include community service and responding to victims’ concerns, when appropriate Aftercare programs, including peer support groups following initial treatment, e.g., 12- step programs, community- and faith-based mentoring programs Counseling for family reunification issues and parenting skills Counseling for avoidance of criminal behavior and behavior triggers Consequences of noncompliance with the terms of the plan, i.e., graduated sanctions Life skills training such as conflict resolution, problem solving, and anger management

¾ Plan for a continuum of supervision: When coordinated properly through case management, supervision will become synergistic, increasing the chances of positive outcomes for ex- offenders. Effective coordination means that supervision is continuous, when needed, and is provided in the quantity and type necessary. Graduated levels of supervision should begin with intensive methods and highly structured and monitored activities, then step down through less intensive supervision levels as the ex-offender progresses in his or her reentry plan and maintains compliance with conditions of release.

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The following are examples of supervision practices that can be effective: ¾ Surveillance ¾ Monitoring ¾ Sanctions Possible supervision strategies include enhanced community supervision partnerships in which police, probation and parole officers, and other case managers working in the targeted neighborhood have access to information about the ex-offender’s reentry status, including the case management plan and related information on his or her community adjustment. Supervision is then intensified or reduced based on the person’s behavior. The reentry authority must be kept informed by the team in order to impose safetyspecific conditions of release, such as curfews, drug testing, restraining orders, and civil protection orders. The reentry authority should have an established relationship and open communication with law enforcement and the community so that illegal behavior is reported and graduated sanctions are appropriately employed. The U.S. Attorney in these communities can oversee the process of a reentry authority for those cases involving federal ex-offenders and ensure that the authority is accountable to the larger reentry committee and the community.

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¾ Plan for Continuity of Services: As with supervision, the continuum of services should be coordinated by the case management team and be as seamless as possible from commitment to reentry into the community. The team, institution, reentry authority, and community supervision providers must work jointly to ensure the access and delivery of services. Communities interested in developing a reentry strategy need to determine how these services will be coordinated, how they can be enhanced if necessary, and what gaps exist in the provision process. Once the reentry plan is complete, including plans for supervision and continuity of services, the ex-offender should appear before the reentry authority for formalization or ordering of a clearly articulated plan. At this time, the reentry authority, in conjunction with the team, will develop a schedule for the ex-offender to report regularly to the reentry authority to ensure that he or she is in compliance with the plan.

Key Component 8: Organize Project Management It is essential for a community to assess if management resources and communication systems are adequate to meet the requirements of a reentry strategy. It is often necessary to have at least one full- time person, such as a designated reentry coordinator, to bring the entities and components together. To ensure effective project management, key areas to assess include the following: ¾ What staff resources are available? ¾ What community resources are available?

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Key Components of Effective Prisoner Reentry Programs ¾ Is there an effective management plan in place that details how the program will address common coordination difficulties found in designing, implementing, and operating a multisystem program? ¾ Is there a communication plan in place? ¾ Is there an effective integrated management information system available to facilitate the identification, referral, assessment, supervision, treatment, and tracking of exoffenders? AmeriCorps*VISTA members can help by facilitating project communication, building an information management system and process to facilitate information sharing, and coordinating the efforts across entities and components.

Key Component 9: Determine Available Resources A community that is considering the development, operation, or enhancement of a reentry strategy should first assess resources that are currently available from the federal, state, and local level. Is it possible to use existing resources? Or would reorganization of the existing resources provide what is needed to plan, implement, or enhance a reentry strategy? AmeriCorps*VISTA members can play an integral role by identifying and linking the resources available for the prisoner reentry program.

Community Resources Other organizations or groups in a community may have a resource that is just what a reentry program needs. One organization or program does not have to provide every part of the reentry program. What is most important is establishing a cooperative network of effective services for returning ex-offenders. Exploring the community for potential partners and resources can yield tremendous benefit for the reentry program and, ultimately, for the ex-offenders. Examples of community resources include the following:

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¾ ¾ ¾ ¾

Meeting space for community partners’ bimonthly meeting Computers donated by local schools Internet access donated by a local cable company Classroom space for job skills training

See Appendix E on conducting an environmental scan for community resources.

Volunteer Resources Community volunteers are important resources for a reentry program. Volunteers can be recruited to plan a variety of roles at varying degrees of intensity. Some of the activities in which they may be engaged include the following: ¾ Mentoring ex-offenders through the three phases of reentry ¾ Mentoring or tutoring children of prisoners or ex-offenders ¾ Entering data for program evaluation

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¾ Collecting and assembling care packages for the returning ex-offender’s first night out (clothes, toothbrush, soap, towels) ¾ Organizing a job fair for ex-offenders ¾ Locating donated services and supplies for returning ex-offenders ¾ Analyzing data for program evaluation (e.g., volunteers from the local university or college) Reentry programs will need to determine early on the role volunteers will play. If the volunteers will be working directly with prisoners or ex-offenders, it is important that they be thoroughly trained on the stages of prisoner reentry and other critical topics. Community groups that are good sources for volunteers include the following: ¾ Community colleges and universities ¾ Businesses ¾ Congregations ¾ Civic groups (Kiwanis, etc.) ¾ Senior Corps programs AmeriCorps*VISTA members are an effective resource in the establishment of a volunteer management system for community volunteers. By helping the program build a sustainable volunteer hub, AmeriCorps*VISTA members can help ensure the long-term sustainability of the reentry effort. See Appendix H for tips for effective volunteer recruitment and retention for reentry programs.

Other Resources After an exhaustive review of existing resources, communities may want to research the following options for new funding opportunities. AmeriCorps* VISTA members can help with grant writing and fund development.

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¾ ¾ ¾ ¾ ¾

Federal grants State grants Block grants (Byrne, other) State agencies (alcohol and drugs) State’s service commission on volunteerism (for planning grants and implementation grants for larger AmeriCorps projects in which former offender service could be proposed) ¾ Community agencies ¾ Nonprofit foundations (local, national) ¾ Corporate grants Determining funding sources and evaluation data needed to meet funding criteria is critical to the longterm success and sustainability of a reentry strategy.

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Key Component 10: Develop and Implement an Evaluation Tool Evaluation is the process of gathering and analyzing data to measure the accomplishment of the program’s long-term goals. A process evaluation appraises progress in meeting operational and administrative goals. An outcome evaluation assesses the extent to which the program is reaching its intended long-term goals. Communities developing reentry strategies will want to define performance measures that are fundamental to the operation and success of their program. Once performance measures are defined, coordinated management, monitoring, and data collection systems can be established to measure success. When deciding what to measure, AmeriCorps*VISTA programs might want to consider using performance indictors from city, state, and national initiatives. The Serious and Violent Offender Reentry Initiative, for instance, has measurements defined to track certain elements of the program. Other elements to consider tracking are volunteer recruitment goals, number of ex-offenders, mentored, etc. See Appendix I for a description of the SVORI performance measures. Information for management, monitoring, and evaluation purposes may already exist within the corrections agency or the service provider realm. Local colleges or universities often have the resources to assist reentry programs with the design, development, and implementation of process and outcome evaluations. The results of an effective process and outcome evaluation of the reentry strategy can help secure future funding and resources. Reentry programs should also consider the use of cost-benefit analysis to examine the economic impact to the community. AmeriCorps*VISTA members can help by establishing the systems and procedures for gathering and tracking information for effective program evaluation. See Appendix I for information on the Corporation’s performance measures. A note on cost-benefit analysis for prisoner reentry programs: The national reentry initiative represents one of the largest mobilizations ever of resources for the corrections population. The federal partners collaborating on this initiative have a keen interest in determining the cost-benefit of this significant undertaking. Local committees should seek out a local source of expertise on cost-benefit analysis. The Office of Juvenile Justice and Delinquency, U.S. Department of Justice, has an excellent cost-benefit model in its Blueprints for the Prevention of Violence Project. In this project the nation’s leading criminal justice experts calculated the actual savings generated by carefully implementing proven prevention program models. See Appendix I for a copy of the briefing on this project.

APPENDICES A. Corporation for National and Community Service (CNCS) and a National Service Overview a) CNCS Fact Sheet b) AmeriCorps*VISTA and Family Strengthening c) The CNCS Faith-based and Community Initiative Fact Sheet d) AmeriCorps State Telephone Directory

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B. AmeriCorps*VISTA and Prisoner Reentry a) Ex-Offender Reentry and AmeriCorps*VISTA Roles b) Coming Soon: AmeriCorps*VISTA and Prisoner Reentry Online Learning Tool C. Tips on Conducting a Needs Assessment D. Weed and Seed Strategy: Overview, Steering Committee, and Contact Information E. Crime Mapping and Environmental Scans: Using a Community Needs Assessment for Crime Mapping: Example: Oakland, CA F. Serious and Violent Offender Reentry Initiative (SVORI) a) SVORI Background Information b) Contact Information G. Partnership and Collaboration Building With Faith-based and Community Organizations a) Guidelines for Effective Partnerships b) Benefits and Challenges of Working With Faith-Based Organizations c) Guidance to Faith-Based and Community Organizations on Partnering With the Federal Government d) National and Community Service and Faith-Based Organizations Answers to FAQ e) CNCS Civil Rights Statement f) Engaging and Supporting Community Organizations in National Service Resource Sheet

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H. Techniques for Effective Volunteer and Staff Recruitment and Retention a) Volunteer Recruitment: Things To Remember b) Available trainings c) Member and Volunteer Recruitment d) Member and Volunteer Development and Retention e) Staff Screening Tool Kit: Building a Strong Foundation Through Careful Staffing I.

Measuring Success and Project evaluation a) CNCS AmeriCorps Program Applicant Performance Measurement Toolkit b) Measuring Impact: The Next and Necessary Step c) SVORI Performance Measures d) Cost-benefit Analysis for Juvenile Justice Programs

J.

Case Studies of Faith-based Prisoner Reentry Models a) Bethel New Life, Incorporated b) Exodus Faith-Based Reentry: Working Together To Restore Lives! c) Family Life Center Executive Summary d) Mount Moriah Baptist Church e) Fort Wayne, Allen County, Indiana

K. Additional Resources on Reentry a) “Executive Summary of Returning Home: Understand the Challenges of Prisoner Reentry, Maryland Pilot Study: Findings from Baltimore.” Urban Institute, 2004. b) National Resources for Reentry

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L. Stakeholder list a) By State b) By Name

In: Criminal Reform: Prisoner Reentry into Community ISBN 978-1-60692-288-0 Editor: Quintan B. Mallenhoff, pp. © 2009 Nova Science Publishers, Inc.

Chapter 6

EX-OFFENDER REENTRY AND AMERICORPS*VISTA ROLES This document contains selected excerpts from the National Crime Prevention Council publication National Service and Public Safety: Partnerships for Safer Communities. It is intended to help AmeriCorps*VISTA members create programs that will support prisoner reentry initiatives in the communities the members serve. These programs involve a variety of host agencies and a wide array of activities, and emphasize the importance of building partnerships among different agencies and organizations. This document also lists possible community partners for these initiatives. These examples are just a start. They illustrate the kind of work that’s possible, but aren’t meant to be prescriptive or limiting. They are designed to show how different agencies and organizations can blend public safety and national service, demonstrate how communities can benefit in a variety of ways from this service, and display the flexibility of national service programs in meeting local public safety needs. They are examples of how service gets things done, making significant impacts on the most pressing community problems.

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COMMMUNITY ANTICRIME OUTREACH MEMBER A team of AmeriCorps*VISTA members helps empower residents to identify crimegenerating problems and work toward solving them. Corps members build the community’s capacity to solve problems and thus increase its cohesion and sense of competence.

Setting This program is based in a community or neighborhood organization, working with local residents.

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Major Activities AmeriCorps*VISTA members help to start up and sustain grassroots organizations, block associations, tenants’ associations, anticrime coalitions, etc., to develop local leadership that can create or sustain stronger, safer neighborhoods. Corps members will carry out the tasks listed below. •

• • • • • • •

• • •

Focus on outreach to neighborhood residents by going door-to-door to encourage residents to attend meetings, discuss their concerns, and make follow-up calls and distribute fliers to encourage participation Draft agendas, coordinate speaking engagements and other events, and, if necessary, facilitate meetings Help the community conduct a needs assessment by surveying residents and local businesses, and then help prioritize issues and develop an action plan Help community groups create partnerships with other organizations that share their goals or with whom partnership may be beneficial Research crime statistics for the neighborhood Investigate resources to meet plan goals Help organize and maintain Neighborhood Watch groups, resident patrols, or escort services Help residents produce a newsletter that identifies community concerns, shares techniques for resolving such concerns, celebrates successes, and encourages communication among community residents and groups Work with law enforcement to design and present educational forums on crime prevention Facilitate partnerships among neighborhood groups Help to achieve long-term visions for the community, such as keeping schools open early and late or starting recreation programs

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Special Considerations Outreach members must encourage residents to develop the capacity to maintain their organization. The members must, rather quickly, earn a high level of trust with the community and empathize with its concerns. These members may, in hard-to organize neighborhoods, have to endure considerable initial mistrust and rejection. Some mediation skills will be helpful. AmeriCorps*VISTA members need the ability to absorb, digest, and explain criminal justice terminology. In-service training will be necessary to provide a working knowledge of the history of the community, its demographics, and other characteristics. Because members may have to organize adults, outreach members may need to meet minimum age requirements.

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Expected Impacts The community is better able to mobilize and address problems. Residents know and are willing to practice personal and community prevention strategies, leading to reduced fear and crime. The work strengthens the neighborhood’s social fabric, improves physical conditions, increases residents’ confidence, increases use of public spaces such as parks, encourages neighborhood stability, promotes targeted anticrime efforts, and increases public awareness. AmeriCorps*VISTA members will gain excellent organizing skills and learn concrete “real life” lessons about neighborhood dynamics, as well as the value of community-based prevention strategies.

COMMUNITY CORRECTIONS EDUCATOR/COORDINATOR This program has two goals: to inform the community about local correctional institutions and facilities (including security, programs, procedures, and the range of alternatives) and to help inmates being released find the services and resources that will help them rejoin the community as productive members. The combination of community education and liaison with returning ex- offenders allows the AmeriCorps*VISTA member to build understanding between the two and help reduce recidivism.This program could be based in a community or within a correctional facility.

Major Activities AmeriCorps*VISTA members, working under the supervision of a corrections professional, will carry out the tasks listed below. •

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•

• • • • •

•

Help develop or strengthen support systems in the community to aid ex- offenders with reintegration (e.g., employment, counseling, mentoring, or family assistance) Help professionals develop educational forums to explain to community residents, groups, and businesses safety procedures, programs, and goals of the correctional institution and the benefits of alternatives to incarceration Help monitor court-ordered restitution or community service Monitor progress of offenders returning and act as a liaison between the ex-offender and the community Work with inmates’ families to ease reintegration Develop an inventory of community resources Help to customize educational programs, schedule teaching such subjects as basic math, computer literacy, life skills, job training, employability skills, and healthcare, including drug abuse prevention Recruit, supervise, and train volunteers to tutor inmates in literacy programs

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Special Considerations The inherent risk of working with inmates requires that adequate training on correction facility procedures, including those of halfway house, be provided. Members should work primarily with low-risk, less- threatening, and uncomplicated cases. Intensive supervision of members and offenders may be necessary. Members may need to develop or strengthen their own positive image of work in the corrections field in order to overcome negative community attitudes and stereotypes. Members must have good interpersonal skills and the ability to establish rapport with, and gain the trust of, offenders, corrections officers, and community residents. Training about facility policies and goals is essential. Some specialized training is necessary for members who administer educational programs.

Expected Impacts Outreach and educational forums create more positive relationships between the community and the correctional institution. Ex-offenders are more successfully reintegrated and are less likely to commit crimes in the community because they have literacy, job skills, and higher levels of education. Corrections professionals can devote more attention to highrisk offenders and more complicated cases. Members gain an appreciation and understanding of the corrections field and develop skills in facilitating relationships and providing direct services.

JUVENILE COMMUNITY CORRECTIONS AIDE

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The program focuses on chronic juvenile delinquents who would otherwise be sentenced to a juvenile facility. The key concept is that these youth can offer something positive to their communities instead of being incarcerated. Using close support and supervision, the program seeks to promote constructive behavior, build a sense of competence, strengthen or create positive ties to the community, and enable youth to become more productive members of the community with a stake and role in the civic structure and a willingness to abide by the community’s laws.

Setting This program is based in a community organization.

Major Activities AmeriCorps*VISTA members will:

Ex-Offender Reentry and Americorps*Vista Roles • • • • •

• • •

• • • • •

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Identify or be directed to chronic juvenile delinquents who have cases pending and are likely to be incarcerated Write a case history after interviewing the youth and family members Identify the youth’s needs and appropriate resources within the community to address these needs Request the court, if appropriate, to order the juvenile into the community-based program as an alternative to juvenile detention. Identity sites (e.g., a homeless shelter, an institution for the mentally ill, or a soup kitchen), based on a survey of the community’s needs, within the community where youth can perform community work projects Develop a training curriculum for juveniles on how to be effective volunteers and on specific skills needed for particular projects Assist corrections professionals in recruiting, training and supervising volunteers to help with supervising juveniles on site. Help develop a service learning curriculum (in conjunction with the community work projects) on policy issues related to the project, resources available to alleviate these problems, and strategies for addressing the problems Help youth recognize career opportunities arising from each project Contact each youth at least two or three times a week Recruit, train, and supervise community mentors to be available to youth 24 hours a day to respond to crises and provide appropriate support Recruit, train and supervise community mentors to provide positive peer mentoring Involve parents in the program and provide them with information on appropriate community resources

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Special Considerations Members should feel comfortable working in a variety of community settings doing “street work.” They must be dependable and comfortable as role models and be able to guide and monitor without being judgmental. Commitment to this type of service is more important than a specific educational background. A careful orientation to community needs and court system requirements is essential. Additional training will be required if members carry out any type of needs assessment or write case histories. Training could be acquired through local social service agencies.

Expected Impacts The AmeriCorps*VISTA members would increase the number of youth who can be reached, while preserving the integrity and quality of the program, thus generating reductions in juvenile delinquency. By strengthening positive youth-community bonds, the members will also help reduce the level of fear in the community. Youth learn specific skills that can be applied to future employment. They receive positive feedback and are treated with respect. Youth recognize that they have the ability to make a positive impact on their communities.

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AmeriCorps*VISTA members develop an excellent sense of the nature of the work in this field and gain invaluable policy information on crime, criminal justice, and alternatives to incarceration. Corps members will leave the program with an increased awareness of community resources, and gain interview and interpersonal skills.

NEIGHBORHOOD JUSTICE CENTER LIAISON Members help neighbors settle disputes peacefully, building a more cohesive community environment in which neighbors feel more connected to each other. The program strengthens communication among residents, youth, formal and informal groups, organizations, and businesses and maximizes existing resources for meeting identified community needs. It enforces the message that crime has consequences and holds offenders accountable to their victims.

Setting The center would be located at a convenient site within the targeted neighborhood.

Major Activities The AmeriCorps*VISTA team will carry out the tasks listed below. • • • • •

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•

• • • • •

Help operate one or more neighborhood justice and resource centers Assess primary public safety needs of the community through interviews, surveys, and forums Identify key leaders, individuals, and groups in the community Identify resources that can be used to address problems Help develop resources for referrals, dispute resolution, and mediation services to help neighbors resolve problems more effectively, peacefully, and efficiently Help professionals develop appropriate sanctions (community work projects, drug treatment, education, and healthcare) for low- level crimes (e.g., theft, vandalism, and aberrant public behavior) Ensure that offenders immediately comply with sentences to perform community work projects or participate in treatment programs Demonstrate to victims of crime and community residents that the offender is held accountable Help members of the community use the court system by training volunteers to conduct training in pro se litigation and small claims court procedures Educate community residents on the criminal and civil justice system, law enforcement procedures, and citizens’ rights

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Special Considerations AmeriCorps*VISTA members will need training in legal proceedings, mediation, applications for services, and effective working relationships with the community. They must develop, early in their service, effective relationships with key criminal justice staff and community leaders. In addition, they must ensure that the center remains credible among all key groups.

Expected Impacts Community disputes will not escalate to assaults or other crimes. More neighborhood crimes will be addressed in neighborhood settings, helping to reduce fear and affirm the community’s sense of control. The mediation component will provide residents with conflict resolution skills and resources while freeing up the courts and law enforcement to deal with more complex and violent crimes. AmeriCorps*VISTA members will gain knowledge of the criminal justice system and learn counseling, negotiation, and interpersonal skills. Justice will become more visible to the community.

CORRECTIONS PROGRAM COORDINATOR AmeriCorps*VISTA members assist corrections professionals in the development and delivery of programs for inmates. The content of such programs might include literacy, life skills, GED, job training, work empowerment, employability skills, and healthcare. AmeriCorps*VISTA members work with offenders to raise their awareness of the plight of victims and the consequences of their behavior. The AmeriCorps*VISTA members develop and maintain a comprehensive resource center within the corrections facility, obtaining through community donations such items as computers, books, and a current guide to community resources.

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NEIGHBORHOOD PUBLIC SAFETY SERVICES COORDINATOR Located in a neighborhood setting (e.g., a community center), AmeriCorps*VISTA members help area residents identify and gain access to resources and information to meet their needs and concerns about preventing crime and enhancing their neighborhood’s safety. The AmeriCorps*VISTA members work with a variety of service providers—law enforcement and criminal justice officials, social services (including child abuse prevention), and others—to develop both problem-solving and preventive approaches that help residents address immediate problems and learn skills for the longer run. A key responsibility is coordinating and serving as liaison with neighborhood organizations and helping them to identify and address emerging needs and concerns. This service results in a stronger neighborhood organization, safer local setting, and creative focus and use of resources.

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COMMUNITY CRIME PREVENTION COUNCIL COORDINATOR The AmeriCorps*VISTA members facilitate the creation of a formal community coalition among identified leaders, businesses, religious organizations, criminal justice offices, government, schools, law enforcement, community residents, and youth. They facilitate meetings to address local crime control issues, and assist the community crime prevention council in developing interagency responses. Such a partnership would open the lines of communication among all members to develop solutions and coordinate multi-agency efforts for the implementation of recommended strategies. The AmericaCorps*VISTA members may develop and recruit, train, and supervise volunteers to staff a resource center of crime, violence, and drug abuse prevention materials and information. They may also help raise funds and assist in grant writing to help start up or sustain such programs.

POSSIBLE PARTNERS

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AmeriCorps*VISTA can help build and sustain collaborative community partnerships and will be essential to the success of many of these programs. They are also at the heart of community safety. Partners bring skills, resources, experience, fresh perspectives, and support to their work. Effective partnerships strengthen not just a specific program, but the entire community. A list of groups that AmeriCorps*VISTA volunteers might want to contact appears below. • • • • • • • • • • • • • • • • • • • • •

Police departments Sheriff’s departments State police Police athletic leagues Community residents—adults, youth, and children Community centers Neighborhood associations Community-based organizations Judicial systems (adult and juvenile) Prosecutor’s office Public defender’s office Mediation centers Probation and parole agencies Corrections facilities (adult and juvenile) Social service agencies Counseling services Health services Agencies serving the elderly Boards of education Parent-teacher associations Teachers

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School principals Housing authorities Businesses Local Untied Ways YMCA/YWCAs Civic clubs and associations (e.g., Jaycees, Kiwanis, and Lions) Social and fraternal clubs Boys and Girls Clubs Child and youth services Big Brothers Big Sisters Youth membership groups (e.g. Boy Scouts, Girls Scouts, Camp Fire, and 4-H) Women’s and men’s clubs and other like organizations Victim service agencies Public libraries Mayor or county executive (or local equivalent) City or county council Chamber of commerce Local utility and transit companies Local national service programs (SeniorCorps, AmeriCorps, Learn and Serve)

ENGAGING YOUTH IN SERVICE AND PUBLIC SAFETY In addition to capacity-building activities, AmeriCorps*VISTA can develop some exciting opportunities to enlist young people of school age in community service projects, both as part of their schoolwork and as partners in community-based organizations. By helping create service opportunities in public safety, AmeriCorps*VISTA members can achieve the results noted below.

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• • • • •

Build positive relationships with the young people involved Provide hands-on education in crime prevention that will be shared with parents, siblings, and fellow students Strengthen bonds with the school faculty and staff Help prevent crimes against—and by—youth Help youth make their schools and neighborhoods safer

Samples of the kinds of programs that youth might undertake as part of a public safety initiative appear below. •

Junior high and high school students could teach elementary school children about violence prevention, substance abuse prevention, vandalism prevention, self-esteem, and peer pressure. The older students could research issues and design presentations, developing their research, organizational, and public speaking skills.

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Children of all ages could design and coordinate a crime prevention or public safety fair with exhibits and workshops. Students could use art and vocational skills and improve their organizational and communication skills through presentations. They would build self-confidence and awareness of the community’s resources through soliciting community groups and businesses for their support. Students with an interest in civics, math, or statistics could research a crime or fear issue. They could design, administer, and evaluate pre- and post- community crime prevention surveys and needs assessments. AmeriCorps*VISTA members could develop and implement programs to address these issues. The students would analyze the results and impact of the projects on the community and its residents. Junior high and high school students could show younger children how to turn negative peer pressure into a positive experience by recreating real-life situations and teaching them survival and helping skills. This project would encourage students to be creative as they develop their presentations. Students could write and organize plays, skits, dances, songs, and puppet shows with crime, violence, drug prevention, or self-protection themes to present to kindergarten, first-, and second-grade children. This project would require students to use writing skills and creativity that would increase their knowledge of substantive issues. This would be an excellent project for students interested in the arts. Teams of students could be assigned to one square mile of their community. Each team would be responsible for coming up with and implementing ideas for beautifying their assigned neighborhood (through trash pick-up, removal of graffiti, etc.), identifying safety hazards, and delivering public safety messages to community residents (e.g., by going door-to-door to distribute literature). This project could be designed as a competition, ending with a prize for the winning team and a community fair or some other event that celebrates the success of the project. Students would gain valuable interpersonal skills through interactions with community residents. Seeing their positive impact on the community would increase students’ confidence in their ability to make meaningful contributions. Students could design a forum on personal and home safety, which could be delivered to different groups of people on an impromptu basis, such as during lunch hour in a crowded park or at an office “brown bag” seminar. Students could also develop and distribute appropriate literature to reinforce their messages. This project would provide a great opportunity for students to work together as a team and improve public speaking skills. Students could organize to eliminate graffiti in their community by painting in its place a mural that delivers a positive antidrug, antiviolence, or other crime prevention message. Students would be proud of tangible neighborhood improvements resulting from their talents and efforts. A school crime watch could be operated by students who observe school property before and after school, reporting on criminal and violent activities. They could also discuss crime reporting techniques with other students. An additional component of this program might be organizing safety patrol teams that provide escorts to younger children before and after school. Students would learn valuable safety techniques and feel safer in their schools and community.

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Students could organize sports teams where eligibility to play in games depends on attendance at discussion sessions and presentations on drugs, violence, other crime prevention issues, safety, and community security. Teams would gain extra points for spreading anticrime, antidrug, and antiviolence messages throughout the community. Students would develop teamwork and learn valuable prevention techniques and strategies that they would then be encouraged to use. Students could organize crime prevention clubs in their schools. Clubs would design and put up posters and displays and provide training to other students on safety tips, how to conduct home safety surveys, what to do in emergencies, and how to be active in community watch. Students would gain valuable leadership and teamwork skills while learning important messages about crime and safety. Students could organize a Junior Neighborhood Watch where they observe the school and neighborhood and report suspicious activity. They could also go door-todoor to get community residents involved in their efforts and to provide information on security and safety techniques. Students would feel empowered through their work in the community and gain organizing skills through interactions with community residents. Students could participate in neighborhood outreach, in collaboration with local law enforcement, by going door-to-door and by making telephone contacts with community residents to develop home security surveys and mark residents’ personal property with identification numbers. Students would also distribute crime prevention materials. This project would provide students with positive role models through their work with police officers. Students would also learn important information about personal and home safety. Students could tackle the issue of substance abuse in their schools by conducting surveys of their peers, analyzing the responses, and developing strategies for combating identified problems. They could organize drug and alcohol-free activities and events. This project would incorporate peer counseling and peer involvement that would lead to improved interpersonal skills. Students could act as aides for senior citizens, providing escort services and periodic phone contacts to ensure that all is well. An additional component of this project would be to deliver positive messages about personal safety to the elderly. Youth and seniors would gain valuable insights from intergenerational relationships. Students could develop buddy systems to check on seniors on a daily basis or work with existing organizations that do so, such as Postal Watch. High school athletes, as positive role models, could work with elementary and middle school children, making presentations through role play on the physical and legal effects of alcohol and drug abuse. High school students would recognize their ability to have a positive impact on younger children. A student court, supervised by the local criminal justice system, could enlist students to serve as judges, lawyers, jurors, bailiffs, and court clerks. Students would hear and try cases involving fellow students, make real judgments and pass real sentences, within the limits established by the convening authority. Students would learn how the legal system works, gain excellent analytical and communication skills, and develop an understanding of the impact of crime on their peers and the community.

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•

Students could staff a “warm line,” a telephone support service provided after school to give children who are home alone a place where they can call to talk to someone. Staffers could give safety advice and provide positive support. Students might even help with homework. Students would gain important counseling skills. Students could survey their community to identify public safety concerns—broken street lights, overgrown bushes that provide criminals with a place to hide, or rundown parks and other areas in need of clean-up, for example. They could organize other students and community residents to address and eliminate the problems.

INDEX # 9/11, 43

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A abatement, 25 abstinence, 27 academic, 120, 202 academics, 2, 191 access, 9, 17, 22, 23, 29, 31, 34, 35, 45, 61, 67, 71, 79, 85, 100, 143, 180, 181, 209, 216, 219, 220, 231 accessibility, 122 accommodation, 27 accountability, 15, 19, 20, 29, 31, 60, 84, 85, 110, 140, 218 accounting, 72 accuracy, 18 achievement, 192 achievement scores, 192 adaptation, 185 addiction, 69, 84, 133, 197, 209 adjustment, 181, 184, 219 administration, 66, 200 administrative, 70, 79, 183, 222 administrators, 46 adult, 4, 27, 30, 35, 46, 54, 57, 61, 62, 66, 67, 70, 79, 86, 101, 110, 112, 113, 114, 120, 123, 142, 147, 175, 193, 195, 197, 209, 212, 213, 214, 232 adult education, 30 adult literacy, 66 adult population, 101 adults, 24, 34, 49, 121, 122, 123, 130, 142, 193, 196, 199, 210, 226, 232 advertisement, 82, 138 advertisements, 62, 80 advisory body, 71

advocacy, 84 African American, 56, 137 African-American, 66, 111, 120 age, 69, 72, 73, 74, 75, 112, 116, 120, 132, 137, 197, 212, 226, 233 agent, 70 agents, 13, 30, 33 aid, 43, 58, 215, 227 air, 234 alcohol, 2, 4, 26, 31, 62, 64, 97, 122, 133, 161, 221, 235 alcohol use, 133 ALL, 108 alternative, 30, 100, 135, 174, 193, 203, 229 alternatives, 125, 128, 227, 230 ambivalence, 123 amendments, 74 analysts, 34 anger, 14, 21, 40, 76, 158, 218 anger management, 14, 76, 218 appendix, 153, 159, 168 application, 100, 198 appropriations, 194, 199, 200, 203 arbitration, 77 argument, 8 Arizona, 205 arrest, 8, 36, 185, 201, 210 arson, 213 assault, 17, 40, 213 assaults, 231 assessment, 10, 12, 19, 20, 22, 23, 27, 34, 35, 44, 62, 84, 85, 97, 98, 193, 211, 212, 216, 217, 220, 226, 229 assessment tools, 12, 35 assets, 15, 16, 121, 172, 175, 211 assignment, 55 athletes, 235 Atlantic, 42 atmosphere, 85

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Index

attachment, 54, 59, 100, 190, 202 attacks, ix attitudes, 44, 131, 143, 148, 153, 160, 228 Attorney General, 35, 193, 199 authority, 11, 30, 43, 157, 161, 183, 210, 214, 216, 217, 219, 235 auto theft, 213 availability, 128, 147, 190, 198 average costs, 55 averaging, 186 avoidance, 218 awareness, 15, 45, 130, 227, 230, 231, 234

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B bail, 28, 188 barrier, 67, 92, 93, 129 barriers, 13, 21, 37, 39, 40, 42, 43, 44, 54, 69, 84, 86, 97, 122, 128, 131, 134, 135, 137, 138, 143, 146, 159 base rate, 191 BED, 82 behavior, 12, 15, 16, 25, 36, 42, 121, 133, 148, 218, 219, 228, 230, 231 behavior modification, 36 beliefs, 42, 123, 138 benchmark, 55, 56, 121 benchmarks, 131 benefits, 3, 8, 14, 27, 30, 32, 37, 43, 44, 64, 72, 98, 105, 113, 120, 124, 138, 156, 199, 227 Best Practice, 35 binding, 12, 41 bipartisan, 44, 46 birth, 100 block grants, 195, 196 board members, 140 body language, 171 bonding, 197 bonds, 119, 127, 229, 233 BOP, 198 Boston, 18, 20, 21, 45, 65 breakdown, 210 breakfast, 164 building blocks, 57 Bureau of Alcohol, Tobacco, Firearms and Explosives, 29 burglary, 27, 40, 213 burn, 113 bushes, 236

C candidates, 23, 73, 74, 160 capacity, 7, 13, 21, 30, 31, 34, 38, 59, 70, 98, 101, 120, 210, 213, 225, 226, 233 Capacity, 207 capacity building, 70 career counseling, 65 career development, 100 category a, 191 Catholic, 66 CCC, 107 CDC, 30 Census, 204 centralized, 35 CEO, 76 certificate, 66, 93, 100, 216 certification, 75, 77 certifications, 78, 200 CHILD, 88 child abuse, 132, 231 childcare, 62, 97 children, 61, 70, 97, 190, 202, 220, 232, 233, 234, 235, 236 citizens, ix, x, 7, 8, 13, 42, 112, 179, 180, 181, 190, 211 civil disorder, 213 Civil Rights, 74, 223 classes, 31, 68, 74, 122, 156, 180, 193 classification, 20, 74 classroom, 100 classrooms, 99 clients, 25, 30, 33, 34, 63, 64, 65, 67, 68, 79, 80, 85, 86, 98, 100, 104, 105, 111, 112 coaches, 112 coalitions, 226 codes, 106 coffee, 151 cognitive, 193 cohesion, 209, 225 collaboration, 8, 19, 22, 23, 42, 43, 65, 215, 217, 235 Collaboration, 223 collateral, 43 colleges, 66, 221, 222 Colorado, 50, 205 colors, 169 Columbia, 61, 66, 97 commerce, 233 Committee on the Judiciary, 197, 208 communication, 12, 18, 28, 33, 34, 43, 63, 87, 101, 106, 123, 143, 146, 155, 164, 169, 170, 172, 216, 219, 220, 226, 230, 232, 234, 235

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Index communication skills, 63, 87, 101, 106, 155, 164, 169, 172, 234, 235 communication systems, 219 communities, ix, x, 1, 3, 4, 5, 6, 7, 17, 18, 21, 24, 40, 44, 45, 53, 59, 60, 61, 62, 67, 69, 73, 79, 87, 102, 106, 115, 116, 119, 121, 128, 130, 135, 145, 152, 179, 180, 182, 186, 190, 193, 194, 195, 196, 197, 203, 209, 210, 211, 212, 213, 216, 219, 221, 225, 228, 229 community cooperation, 62 Community Development Block Grant, 197 Community Oriented Policing Services, 2, 10, 45, 46, 50, 51, 195, 206 Community Oriented Policing Services (COPS), 46, 195, 206 community relations, 8, 39 community service, 94, 98, 199, 218, 227, 233 community support, 190 community-based services, 194 compassion, 53 compatibility, 104 compensation, 77 competence, 225, 228 competency, 14 competition, 135, 234 complement, 68, 122, 153, 211, 212 compliance, 12, 15, 19, 26, 28, 29, 30, 34, 35, 74, 106, 218, 219 components, 8, 18, 22, 42, 54, 62, 67, 69, 70, 73, 85, 129, 198, 209, 210, 219, 220 computer labs, 99 computer skills, 62, 124 concentrates, 171 concentration, 16, 30 concrete, 17, 66, 94, 95, 131, 227 confidence, 14, 40, 41, 43, 126, 131, 143, 159, 161, 162, 206, 227, 234 confidentiality, 39, 42, 77, 123, 131, 133, 135, 143, 145, 161, 162, 164, 174, 215 confinement, 69, 80, 217 conflict, 60, 67, 77, 78, 155, 218, 231 conflict of interest, 77 conflict resolution, 60, 67, 155, 218, 231 confusion, 38, 202 Congress, v, 65, 98, 180, 191, 197, 198, 199, 200, 201, 202, 203, 204, 205, 206 Connecticut, 18, 28, 29 consensus, 67, 173, 202 consent, 27, 31, 71, 151 Constitution, 58 constraints, 201 construction, 66, 99, 100, 101 construction sites, 99

239

consulting, 77, 187 consumers, 105 contact time, 86 continuity, 154, 219 contractors, 105 control, 55, 85, 97, 112, 121, 151, 155, 173, 193, 198, 203, 206, 214, 231, 232 control group, 55, 121 conviction, 188, 189, 201 COPS, 2, 11, 17, 42, 44, 45, 47, 195, 206 correlations, 139 cost-benefit analysis, 222 cost-effective, 34 costs, 44, 55, 70, 119, 154, 180, 189, 190, 194 counseling, 19, 37, 76, 101, 116, 122, 130, 160, 180, 199, 200, 216, 227, 231, 235, 236 courts, 188, 190, 198, 231 coverage, 13, 78 creativity, 8, 135, 170, 234 credentials, 66, 216 crime, x, 1, 2, 3, 4, 6, 7, 8, 9, 10, 12, 14, 16, 18, 19, 21, 24, 25, 26, 27, 28, 29, 30, 33, 35, 36, 40, 43, 44, 46, 53, 61, 64, 65, 70, 107, 114, 119, 138, 139, 181, 182, 186, 187, 188, 191, 192, 198, 199, 210, 211, 212, 213, 225, 226, 227, 230, 231, 232, 233, 234, 235 crimes, 4, 6, 7, 8, 10, 13, 14, 15, 19, 20, 24, 25, 31, 40, 53, 184, 188, 189, 199, 203, 205, 228, 230, 231, 233 criminal activity, 12, 15, 29, 31, 32, 34, 53, 210 criminal behavior, 14, 121, 218 criminal justice, ix, x, 8, 13, 17, 20, 27, 28, 30, 37, 54, 63, 64, 67, 87, 102, 106, 122, 179, 187, 188, 189, 191, 196, 202, 203, 211, 214, 217, 222, 226, 230, 231, 232, 235 criminal justice system, ix, x, 8, 17, 28, 63, 87, 102, 106, 122, 179, 187, 188, 189, 191, 196, 202, 214, 231, 235 criminals, 28, 195, 210, 236 criticism, 114 CRS, 179, 183, 185, 187, 189, 204, 205, 206, 207, 208 culture, 37, 42, 169 curriculum, 33, 42, 57, 60, 64, 101, 102, 113, 126, 155, 158, 165, 229

D daily living, 199 dances, 234 danger, 162 data collection, 116, 222 data distribution, 39

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240 data set, 187 database, 25, 26, 35, 66, 106, 141, 187 decentralization, 31 decision makers, 214, 216 decision making, 42 decisions, 12, 21, 23, 35, 36, 41, 42, 134, 143, 146, 161, 173, 193, 203 deficits, 44 definition, 8, 10, 38, 129, 184, 186, 187, 188, 189, 191 delinquents, 196, 228, 229 delivery, 8, 54, 70, 80, 194, 217, 219, 231 demand, 54, 104, 105, 198 demographic characteristics, 112 demographics, 116, 213, 226 Department of Corrections, 19, 22, 23, 24, 25, 26, 30, 31, 32, 33, 34, 35, 36, 37, 80, 205, 213 Department of Education, 25, 197, 201, 207 Department of Health and Human Services, 197, 208, 210 Department of Housing and Urban Development, 197 Department of Housing and Urban Development (HUD), 197 Department of Justice, 2, 10, 44, 46, 47, 48, 49, 50, 51, 54, 176, 177, 180, 193, 195, 204, 205, 206, 208, 210, 222 Department of Justice (DOJ), 195, 206 depressed, 163 depression, 133, 143, 144, 164 desire, 59, 60, 114, 171 detection, 14, 40 detention, 34, 181, 191, 195, 209, 212, 229 deterrence, 18, 20, 24, 30, 35, 36, 43 differentiation, 184 dignity, 161 direct mail, 106 directives, 160 disability, x, 72, 74, 119 disclosure, 77 discounts, 152 discretionary, 183, 186, 196 discrimination, 72, 74 disorder, 10, 15, 18 displacement, 14 disputes, 230, 231 distribution, 39 District of Columbia, 61, 66, 97 domestic violence, 16, 210 donations, 152, 231 donors, 116 draft, 42 driver’s license, 66

Index dropouts, 151 drug abuse, 195, 197, 227, 232, 235 drug addict, 2, 33, 64 drug addiction, 2, 33, 64 Drug Enforcement Administration, 25, 29, 214 Drug Enforcement Administration (DEA), 214 drug offense, 213 drug screenings, 36 drug treatment, 26, 27, 28, 64, 97, 120, 192, 198, 201, 230 drug use, 27, 35, 44, 162, 174, 190 drug-related, 40, 205 drugs, 4, 161, 173, 174, 190, 221, 235 duplication, 202 duration, 96 duties, 58, 63, 75, 86, 160, 162 DWI, 213

E ears, 9, 40, 170 eating, 163 Education, 25, 46, 47, 48, 85, 93, 95, 101, 177, 180, 192, 194, 195, 197, 200, 202, 207 educational background, 229 educational institutions, 99 educational programs, 201, 227, 228 educational services, 26, 91, 197 elderly, 232, 235 elementary school, 233 eligibility criteria, 23 email, 63, 87, 95, 101, 106, 139, 141, 142, 145, 150, 158, 172 Emergency Medical Services, 172 emerging issues, 150 emotion, 168 emotional, 120 emotions, 17 employability, 196, 227, 231 employees, 41, 58, 61, 64, 77, 103, 105 employers, 13, 16, 32, 33, 54, 62, 64, 67, 80, 99, 101, 103, 104, 105, 106, 196 employment, 9, 23, 27, 28, 29, 30, 31, 32, 35, 36, 37, 38, 44, 53, 54, 55, 58, 59, 62, 65, 66, 68, 69, 71, 73, 74, 79, 84, 85, 86, 91, 93, 94, 97, 98, 99, 100, 103, 104, 105, 106, 116, 120, 121, 122, 173, 190, 192, 195, 199, 200, 215, 216, 217, 218, 227, 229 employment status, 116 empowered, 42, 235 empowerment, 113, 231 encouragement, 98 endorsements, 78 energy, 37, 113

Index engagement, 10, 32, 42, 70 England, 27 enhanced service, 6 enrollment, 79, 98, 116, 120 enterprise, 215 entertainment, 152 environment, 2, 8, 10, 21, 42, 134, 156, 230 ethics, 76 ethnicity, 116 examinations, 101 execution, 75 exercise, 156, 157, 164, 169, 170, 172, 173, 174 expenditures, 71, 72 expert, v, 176 expertise, 2, 11, 60, 124, 130, 160, 222 eyes, 9, 40, 170

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F facial expression, 171 facilitators, 155, 175 failure, 85, 173, 182, 213 faith, x, 8, 16, 20, 21, 25, 26, 29, 30, 32, 33, 42, 43, 44, 45, 53, 54, 59, 60, 61, 62, 64, 65, 66, 67, 68, 71, 73, 77, 80, 81, 94, 110, 112, 114, 115, 120, 123, 135, 137, 138, 139, 143, 161, 163, 175, 195, 210, 214, 215, 216, 217, 218 family, 7, 12, 16, 21, 32, 33, 34, 46, 54, 67, 69, 73, 80, 85, 94, 97, 98, 112, 122, 123, 126, 143, 152, 162, 169, 190, 196, 202, 210, 216, 217, 218, 227, 229 family life, 94 family members, 7, 80, 85, 112, 210, 217, 229 family relationships, 16 family support, 32, 69, 98, 196 fax, 70 FBI, 47, 188 fear, 6, 7, 8, 13, 40, 133, 227, 229, 231, 234 fears, 41 February, 71, 175, 177 Federal Bureau of Investigation, 25, 29, 188 federal funds, 198 federal government, 180, 190, 193, 194, 200, 201, 202, 204 federal grants, 143 federal law, 28, 59, 74, 106, 215 feedback, 46, 108, 150, 155, 162, 166, 229 feelings, 21, 122, 127, 151, 171 felony, 69, 84, 120, 132, 159 FICA, 77 films, 127 financial support, 44, 46 fines, 98

241

firearm, 31 first responders, 41 flexibility, 8, 136, 147, 225 flow, 27, 39, 40 fluid, 181, 188 focus group, 33, 42, 49, 71 focus groups, 33, 49, 71 focusing, ix, 14, 33, 105, 144, 180, 192, 203 food, 33, 100, 105, 112, 114, 140 Ford, 120, 176 Fox, 22 freedom, 5, 164 Friday, 96 friendship, 110 frustration, 143 fugitive, 25 funding, 44, 46, 69, 70, 71, 75, 112, 123, 143, 160, 180, 190, 192, 194, 195, 196, 197, 198, 199, 200, 201, 202, 221, 222 fundraising, 38 funds, 63, 69, 72, 112, 163, 196, 197, 200, 232 furniture, 70 futures, 131

G gambling, 213 games, 33, 127, 235 gang crimes, 31 gangs, 12, 28 gender, 72, 74, 112, 116 Georgia, 18, 35, 36, 45 gestures, 171 gift, 174 gifts, 162 goals, 8, 18, 38, 42, 44, 70, 78, 84, 85, 93, 94, 106, 110, 113, 116, 122, 125, 131, 132, 135, 136, 142, 152, 155, 161, 200, 212, 222, 226, 227, 228 goal-setting, 126 God, 55, 60, 66, 94 good faith, 77 government, 8, 45, 63, 67, 75, 116, 152, 180, 190, 191, 194, 195, 196, 197, 199, 200, 201, 202, 203, 204, 206, 211, 232 Government Accountability Office, 180, 204 Government Accountability Office (GAO), 180 governors, 45 graffiti, 234 grants, 67, 143, 193, 194, 195, 196, 198, 221 grassroots, 226 group activities, 130 groups, 33, 34, 42, 60, 65, 67, 111, 112, 126, 127, 130, 136, 137, 138, 139, 140, 144, 145, 147, 149,

242

Index

153, 154, 158, 159, 160, 163, 169, 170, 173, 174, 190, 202, 212, 215, 218, 220, 221, 226, 227, 230, 231, 232, 233, 234 growth, 99, 104, 121, 181, 184, 185, 186 growth rate, 184, 186 guidance, 42, 71, 114, 120, 124, 127, 129, 147, 163, 164 guidelines, 70, 77, 114, 122, 123, 124, 129, 131, 133, 135, 136, 142, 143, 151, 153, 162, 164, 175, 188, 205 guilty, 182

119, 120, 122, 125, 152, 180, 192, 193, 195, 196, 197, 199, 200, 201, 203, 211, 216, 217 Housing and Urban Development, 46, 194, 195, 200, 214 Housing and Urban Development (HUD), 214 HR, 180 hub, 216, 221 HUD, 197 human, 38, 84 hygiene, 163, 200

I

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H handling, 155 hands, 85, 170, 233 harm, 2, 14, 217 harmony, 217 hazards, 234 health, 15, 19, 29, 44, 46, 94, 116, 120, 122, 195, 199, 200, 218 Health and Human Services, 46, 180, 197, 200, 202, 208, 210, 214 Health and Human Services (HHS), 214 health care, 98, 120, 122, 196, 199 Health Insurance Portability and Accountability Act, 215 health services, 19, 97, 193, 195, 197, 203 healthcare, 80, 97, 105, 217, 227, 230, 231 heart, 170, 232 HHS, 197 high risk, 133 high school, x, 92, 93, 99, 104, 119, 177, 181, 233, 234 high-risk, 23, 24, 26, 28, 29, 31, 34, 35, 36, 101, 121, 130, 150, 168, 193, 196, 203, 210, 228 high-risk populations, 130, 150 hips, 39 hiring, 58, 105, 124, 129, 213 Hispanic, 137 holistic, 21, 84, 112 holistic approach, 21 homeless, 16, 59, 60, 66, 229 homelessness, 84 homeowners, 211 homework, 236 homicide, 25, 35, 213 host, 225 House, 20, 21, 24, 97, 192, 197, 198 household, 210 housing, ix, x, 2, 9, 13, 19, 22, 26, 28, 31, 38, 44, 46, 54, 60, 62, 64, 66, 69, 76, 80, 83, 84, 85, 92, 97,

id, 50, 175, 176 Idaho, 45 identification, 19, 26, 97, 100, 220, 235 identity, 39, 163, 188 Illinois, 6, 47, 49, 59, 100, 205 images, 83 IMF, 100 implementation, 5, 67, 131, 136, 149, 160, 198, 199, 211, 221, 222, 232 imprisonment, 182 in situ, 14, 15 incarceration, ix, 20, 22, 33, 55, 69, 73, 84, 95, 103, 119, 120, 121, 127, 135, 138, 179, 180, 182, 184, 190, 201, 210, 213, 216, 227, 230 incentive, 7, 30, 86 incentives, 12, 104, 151, 193, 196 income, 60 independence, 60, 79 Indian, 193 Indiana, 18, 24, 25, 46, 49, 208, 223 indicators, 27, 202 industry, 66, 76 infants, 190 informal groups, 230 information exchange, 39 information sharing, 15, 18, 24, 31, 43, 202, 220 Information System, 116 information systems, 35 infrastructure, 210 injury, v inmates, 20, 23, 33, 53, 54, 56, 67, 80, 122, 182, 183, 188, 197, 200, 209, 227, 228, 231 insight, 12, 62, 146 institutions, 6, 13, 53, 55, 65, 66, 79, 80, 81, 99, 197, 202, 203, 227 instruction, 66, 99, 112, 143, 163, 197 insurance, 78, 197 integration, 53, 85, 160 integrity, 38, 39, 76, 77, 163, 229 intelligence, 17, 20, 23, 24, 26, 27, 28, 29, 34, 39

Index intelligence gathering, 34 intensity, 190, 220 interaction, 26, 149, 153 interactions, 8, 16, 21, 30, 41, 70, 125, 149, 161, 234, 235 interagency relationships, 40 intergenerational, 235 intermediaries, 10 internet, 63, 87, 101, 106 Internet, 155, 175, 220 internship, 77 interpersonal communication, 63, 87, 101, 106 interpersonal skills, 228, 230, 231, 234, 235 interpersonal support, 161 intervention, 14, 15, 38, 44, 195, 196, 216, 218 interview, 32, 92, 99, 100, 101, 125, 133, 134, 141, 146, 169, 172, 173, 191, 204, 230 interviews, 71, 95, 98, 99, 100, 105, 106, 112, 113, 144, 174, 230 investigative, 39 investment, 123, 199, 215 IS, 116, 171 ISS, 24

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J jails, 4, 119, 181, 187, 188, 201, 204, 212, 216 January, 47, 48, 49, 50, 51, 177, 205, 208 job preparation, 64, 100, 139 job skills, 105, 216, 218, 220, 228 job training, 13, 32, 38, 54, 57, 71, 84, 91, 93, 97, 98, 100, 101, 104, 130, 159, 199, 201, 216, 217, 227, 231 jobs, x, 8, 13, 14, 39, 40, 55, 60, 64, 74, 99, 101, 119, 121, 122, 125, 143, 152, 203 joint ventures, 97 judge, 215, 217 judges, 190, 235 judgment, 171 judiciary, 215 Judiciary, 197 jurisdiction, 41, 133, 162, 194 jurisdictions, 27, 41, 204 jurors, 235 justice, 8, 10, 13, 14, 20, 21, 22, 27, 30, 37, 41, 54, 64, 67, 189, 196, 203, 207, 211, 217, 218, 222, 226, 230, 231, 232 Justice Assistance Grant, 195, 206 juvenile delinquency, 229 juvenile delinquents, 196, 228, 229 juvenile justice, 196, 207 juveniles, 21, 34, 196, 209, 212, 229

243

K Kentucky, 49 kindergarten, 234 King, 35, 66

L labor, 54, 59, 121, 209 labor force, 54 labor markets, 209 land, 97 language, 140, 171, 183, 198, 199 laughter, 170 laundry, 172 law, ix, x, 1, 2, 3, 5, 7, 8, 10, 12, 13, 14, 15, 16, 17, 18, 20, 24, 25, 26, 28, 31, 39, 41, 43, 44, 45, 46, 59, 65, 74, 112, 162, 179, 180, 190, 195, 212, 213, 215, 218, 219, 226, 230, 231, 232, 235 law enforcement, ix, 1, 3, 5, 8, 10, 12, 14, 15, 16, 17, 18, 20, 24, 25, 26, 31, 39, 41, 43, 44, 45, 46, 65, 195, 212, 213, 215, 218, 219, 226, 230, 231, 232, 235 laws, 39, 74, 77, 78, 106, 133, 185, 228 lawyers, 235 lead, 12, 18, 24, 37, 38, 41, 44, 59, 60, 61, 69, 120, 123, 124, 128, 130, 131, 137, 144, 150, 154, 155, 156, 159, 160, 182, 235 leadership, 33, 44, 71, 176, 215, 226, 235 learning, 42, 71, 132, 193, 229, 235 licenses, 76 life experiences, 110, 112, 136, 137 lifestyle, 27, 114 lifestyles, 133 likelihood, 20, 23, 40, 56, 123, 147, 154, 188, 210, 217 limitations, 38, 188, 193 Lincoln, 31 links, 2, 4, 14, 16, 32, 37, 66, 168 listening, 104, 143, 144, 169, 170, 171, 172 literacy, 63, 66, 87, 101, 106, 227, 228, 231 litigation, 230 local community, 138, 215, 216 local government, 196, 197, 202 location, 65, 135, 156, 163, 192 lockups, 181 logging, 161, 164, 166, 167 London, 48, 50 long-term, ix, 8, 42, 43, 64, 70, 100, 104, 121, 159, 179, 180, 194, 195, 198, 221, 222, 226 Los Angeles, 55, 58, 60, 112 low-income, 60

244

Index

LSI, 23

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M magnetic, v Maine, 187 maintenance, 70, 218 males, 120, 210 management, 14, 19, 26, 28, 36, 54, 55, 57, 58, 60, 62, 67, 69, 71, 73, 74, 76, 78, 80, 84, 85, 86, 87, 91, 97, 103, 110, 112, 113, 114, 116, 120, 122, 126, 200, 218, 219, 220, 221, 222 manic, 163 manufacturing, 99, 100, 105 mapping, 34, 41, 45, 211, 212, 213 market, 54, 59, 104, 106, 121 marketing, 79, 80, 82, 106, 160 markets, 6, 25 Maryland, 18, 19, 47, 49, 51, 191, 205, 223 Massachusetts, 18, 20, 21, 23, 24, 45, 195 matrix, 140 measurement, 191 measures, 4, 14, 44, 74, 116, 180, 188, 189, 191, 192, 193, 194, 200, 202, 203, 222 media, 13, 45, 71 mediation, 215, 217, 226, 230, 231 Medicaid, 98 medical care, 98 membership, 44, 67, 211, 216, 233 memorandum of understanding, 39 memorandum of understanding (MOU), 39 men, 53, 61, 66, 75, 79, 119, 173, 176 mental health, ix, 15, 19, 22, 23, 26, 30, 64, 69, 97, 98, 151, 180, 191, 193, 196, 197, 200, 203, 214, 215, 216, 217 mental illness, x, 16, 133, 143, 179, 209 mentor, 21, 56, 57, 62, 66, 70, 71, 72, 80, 110, 111, 112, 113, 114, 120, 121, 122, 123, 124, 125, 126, 127, 128, 129, 130, 131, 132, 133, 134, 136, 137, 138, 139, 140, 142, 143, 144, 146, 147, 148, 149, 150, 151, 152, 153, 155, 156, 157, 158, 159, 160, 161, 162, 164, 166, 167, 168, 169, 170, 174, 175, 178 mentor program, 160 mentoring, 16, 31, 33, 54, 55, 56, 57, 62, 66, 67, 68, 69, 70, 71, 73, 80, 110, 111, 112, 113, 116, 120, 121, 122, 123, 124, 125, 126, 127, 128, 129, 130, 131, 132, 133, 134, 135, 136, 138, 139, 141, 142, 143, 144, 145, 146, 147, 148, 149, 150, 151, 152, 153, 154, 155, 157, 158, 159, 160, 161, 162, 164, 167, 168, 169, 173, 174, 176, 177, 198, 209, 216, 217, 218, 227, 229

mentoring program, 70, 112, 113, 120, 122, 123, 124, 130, 133, 141, 142, 147, 152, 159, 160, 161, 176, 198, 217, 218 mentorship, 25, 84 messages, 130, 234, 235 MET, 165 metric, 189 metropolitan area, 5, 63 Mexico, 172 Minnesota, 205 minorities, 137 minority, 40, 65, 137 minority groups, 137 mirror, 43, 217 missions, 38, 62 Missouri, 45, 46, 195 models, 14, 43, 44, 80, 112, 124, 125, 127, 138, 216, 222, 229, 235 modules, 42, 100 momentum, 44, 215 money, 125, 135, 162 monograph, 46 moral judgment, 123 morning, 95 MOS, 165, 171 motion, 197 motivation, 104, 141 motives, 123 motor vehicle theft, 40 MOU, 65, 73, 74, 75 mouth, 79 MPA, 63 MPP, 63 MS, 63 MSW, 63, 87 multidisciplinary, 26 murder, 40 music, 33

N NA, 23, 81, 82, 87, 89, 90 nation, 45, 46, 54, 181 national, ix, x, 5, 45, 46, 55, 72, 74, 104, 137, 161, 179, 180, 181, 187, 200, 201, 203, 204, 209, 210, 221, 222, 225, 233 National Academy of Sciences, 188 national origin, 72, 74, 161 Native American, 137 Native Americans, 137 natural, 8, 190 NC, 37 negative attitudes, 4

Index negative consequences, 20, 119, 213 negative experiences, 40 negative outcomes, 16 neglect, 162 negotiation, 231 network, 61, 64, 65, 96, 103, 104, 105, 135, 220 networking, 80 New Jersey, 45, 205 New Mexico, 172 New York, iii, v, 47, 48, 49, 50, 51, 55, 59, 177, 205 NIC, 46, 196 NO, 81, 87, 88, 89, 90, 91, 107 non-profit, 54, 80, 115, 190, 197, 199, 200, 202 non-violent, 69, 84, 114, 205 North Carolina, 18, 36, 37, 112, 205

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O obligations, 12, 78, 98, 122 observations, 149 offenders, ix, x, 8, 10, 13, 14, 15, 16, 18, 19, 21, 22, 23, 25, 26, 27, 28, 29, 30, 31, 34, 35, 38, 42, 45, 54, 66, 69, 73, 164, 179, 180, 181, 182, 183, 184, 186, 187, 188, 189, 190, 192, 193, 194, 195, 196, 197, 198, 199, 200, 201, 203, 204, 205, 209, 210, 211, 212, 213, 215, 216, 217, 218, 219, 220, 221, 222, 227, 228, 230, 231 Office for Victims of Crime, 51 Office of Justice Programs, 44, 177, 194, 195, 199, 204, 206, 207, 208 Office of Justice Programs (OJP), 194, 195 Office of Juvenile Justice and Delinquency Prevention, 196 Office of Juvenile Justice and Delinquency Prevention (OJJDP), 196 Office of Vocational and Adult Education, 197 Ohio, 49, 187, 204, 205, 217 OJP, 195 online, 176 on-line, 57 OR, 88, 91 oral, 200 oral hygiene, 200 Oregon, 46, 205 organization, 20, 37, 53, 58, 59, 60, 61, 62, 63, 64, 65, 66, 67, 68, 69, 73, 79, 80, 81, 84, 86, 87, 91, 97, 98, 100, 101, 103, 106, 108, 110, 111, 112, 114, 116, 124, 135, 140, 141, 145, 163, 215, 217, 220, 225, 226, 228, 231 organizational culture, 42, 60 organizational development, 32 organizations, x, 8, 16, 17, 20, 21, 24, 25, 26, 30, 31, 32, 37, 42, 43, 45, 46, 53, 54, 59, 60, 61, 62, 64,

245

65, 67, 68, 79, 80, 81, 97, 98, 101, 105, 110, 113, 114, 116, 120, 123, 134, 137, 139, 141, 143, 176, 190, 195, 197, 198, 199, 200, 202, 209, 210, 211, 213, 214, 215, 216, 217, 220, 225, 226, 230, 231, 232, 233, 235 orientation, 19, 36, 62, 74, 80, 86, 99, 100, 101, 114, 133, 141, 160, 229 oversight, 140, 193, 200, 202 ownership, 13

P packaging, 99 paper, 39, 48, 169 Paper, 47, 48, 49, 50, 204 pardons, 185 parenting, 199, 216, 218 parents, 41, 61, 210, 229, 233 parole, 12, 15, 16, 17, 20, 24, 25, 26, 28, 29, 30, 31, 33, 34, 35, 36, 40, 41, 42, 43, 80, 81, 119, 122, 123, 133, 162, 182, 183, 184, 186, 188, 189, 190, 197, 198, 205, 211, 214, 215, 217, 219, 232 parole board, 183, 186, 214 partnership, 2, 5, 10, 13, 15, 19, 21, 24, 26, 28, 29, 31, 33, 35, 41, 42, 43, 45, 55, 62, 64, 65, 67, 68, 72, 73, 75, 104, 128, 194, 214, 226, 232 partnerships, 8, 9, 10, 11, 13, 18, 26, 38, 39, 40, 42, 43, 44, 45, 57, 63, 64, 66, 67, 68, 79, 97, 99, 103, 104, 111, 137, 215, 216, 219, 225, 226, 232 passive, 170, 171 PE, 108 peer, 16, 21, 127, 153, 218, 229, 233, 234, 235 peer support, 127, 218 peers, 12, 133, 170, 235 perception, 41, 145 perceptions, 3, 6, 7, 8, 32, 42, 159 performance, 7, 74, 106, 108, 110, 116, 222 performance ratings, 108 periodic, 152, 235 personal, 27, 112, 123, 129, 130, 131, 134, 135, 138, 160, 161, 168, 173, 227, 234, 235 personal qualities, 168 personality, 130, 146 personality traits, 146 petitioners, 199 pharmacological, 198 Philadelphia, 54, 55, 67, 68, 175, 177 philosophy, 38, 43, 84 phone, 70, 71, 127, 128, 130, 139, 141, 145, 146, 149, 158, 235 photographs, 83, 140 pilot programs, 180 pitch, 105, 170

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246

Index

planning, 20, 21, 23, 26, 29, 33, 36, 39, 43, 44, 46, 70, 85, 114, 130, 132, 142, 144, 145, 152, 153, 171, 180, 181, 194, 198, 200, 209, 210, 211, 212, 213, 217, 221 play, 13, 17, 22, 29, 116, 121, 157, 189, 220, 221, 235 police, 2, 4, 7, 8, 9, 10, 11, 12, 13, 14, 15, 16, 17, 18, 19, 20, 21, 22, 23, 24, 25, 26, 27, 28, 29, 30, 31, 32, 33, 34, 35, 36, 37, 38, 39, 40, 41, 42, 43, 44, 65, 80, 188, 214, 219, 232, 235 policy initiative, 11 policy makers, 45, 190, 191, 192, 193, 201, 203 policymakers, ix, 1, 2, 8 politics, 126, 161 pools, 114 poor, 53, 173, 200 population, ix, x, 7, 8, 14, 18, 27, 30, 36, 38, 44, 56, 60, 61, 63, 64, 68, 101, 120, 121, 124, 130, 138, 144, 164, 168, 173, 179, 180, 181, 182, 184, 186, 188, 192, 201, 203, 212, 213, 215, 222 population growth, 181 positive attitudes, 128, 153, 174 positive correlation, 152 positive feedback, 229 positive interactions, 30, 70 positive reinforcement, 19, 152 positive relation, 14, 147, 160, 228, 233 positive relationship, 14, 147, 160, 228, 233 postsecondary education, 197 power, 20, 152, 191, 216, 217 powers, 8, 31 PPD, 67 PPS, 67 prediction, 188 president, 46 pressure, 203, 233, 234 prevention, 8, 10, 14, 15, 40, 193, 195, 200, 203, 210, 212, 213, 222, 226, 227, 231, 232, 233, 234, 235 preventive, 200, 210, 231 preventive approach, 231 PRI, 194, 195 printing, 140 priorities, 215 prisoners, ix, x, 1, 2, 4, 5, 6, 7, 8, 9, 10, 11, 12, 13, 14, 15, 16, 17, 19, 20, 21, 22, 24, 28, 29, 31, 32, 38, 40, 41, 42, 43, 44, 45, 53, 54, 59, 60, 61, 63, 64, 67, 68, 79, 80, 83, 85, 86, 87, 97, 98, 100, 101, 102, 103, 105, 106, 110, 111, 112, 113, 114, 116, 119, 120, 121, 122, 123, 124, 125, 126, 127, 128, 130, 133, 136, 137, 139, 143, 145, 147, 150, 151, 153, 159, 160, 169, 173, 175, 176, 180, 181, 182, 184, 186, 187, 188, 190, 198, 201, 220, 221

prisons, ix, x, 1, 15, 62, 80, 119, 181, 186, 187, 190, 204, 209, 212, 216 privacy, 71 private, 19, 32, 54, 63, 65, 67, 98, 116, 178, 190, 200, 215 private-sector, 32 proactive, 8, 10 probability, 206, 216 probation, 12, 20, 24, 25, 26, 28, 29, 30, 31, 34, 35, 36, 42, 80, 81, 119, 122, 162, 182, 184, 186, 188, 197, 217, 219 probation officers, 25, 28, 42, 81, 122, 182 problem solving, 3, 10, 11, 44, 218 problem-solving, 8, 10, 13, 27, 143, 144, 231 problem-solving skills, 143 procedural justice, 41 profit, 54, 55, 60, 61, 80, 100, 115, 120, 190, 197, 199, 200, 202 program, ix, x, 2, 13, 17, 18, 19, 20, 22, 23, 24, 25, 26, 27, 28, 29, 30, 31, 32, 33, 34, 35, 36, 37, 38, 42, 53, 54, 55, 56, 57, 58, 59, 60, 61, 62, 63, 64, 66, 67, 69, 70, 71, 73, 74, 75, 76, 77, 78, 79, 80, 81, 83, 84, 85, 86, 93, 96, 97, 98, 99, 100, 101, 103, 105, 106, 110, 111, 112, 113, 114, 115, 116, 120, 121, 122, 123, 124, 126, 127, 128, 129, 130, 131, 132, 133, 134, 135, 136, 137, 138, 139, 140, 141, 142, 143, 144, 145, 146, 147, 148, 149, 150, 151, 152, 155, 156, 158, 159, 160, 161, 162, 163, 164, 165, 166, 167, 168, 173, 174, 176, 177, 179, 180, 189, 190, 191, 192, 193, 194, 195, 196, 197, 198, 199, 200, 202, 206, 207, 208, 214, 216, 218, 220, 221, 222, 225, 227, 228, 229, 230, 232, 234 programming, ix, x, 1, 21, 179, 180, 190, 217 promote, 15, 20, 42, 127, 193, 228 property, v, 14, 213, 234, 235 prosocial behavior, 13 protection, 17, 219, 234 protocols, 16, 20, 39, 215 public, ix, 1, 2, 4, 5, 7, 8, 13, 14, 15, 17, 19, 21, 28, 33, 37, 38, 39, 41, 42, 43, 45, 46, 63, 65, 67, 87, 98, 106, 107, 130, 135, 154, 163, 200, 203, 225, 227, 230, 233, 234, 236 public awareness, 45, 130, 227 public funds, 163 public housing, 28 public opinion, 13 public policy, 203 public resources, 15 public safety, 2, 4, 5, 7, 8, 14, 17, 38, 41, 43, 46, 225, 230, 233, 234, 236 public schools, 21 punishment, 212

Index

Q quality of service, 58, 63 questionnaire, 23, 134, 146

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R race, 72, 74, 111, 161 radio, 80 rail, 98 random, 12, 30, 34, 55, 76, 97, 188, 193, 206 random assignment, 193 range, ix, 6, 10, 12, 16, 17, 65, 106, 136, 175, 179, 180, 190, 192, 200, 201, 205, 206, 211, 216, 227 rape, 40 real estate, 66 reality, 146, 171 rearrest, 4, 9, 186, 187, 188 recall, 140 recidivate, 4, 20, 121, 180, 188, 201 recidivism, ix, x, 4, 8, 19, 20, 27, 29, 31, 36, 45, 55, 56, 84, 106, 116, 119, 131, 138, 139, 152, 161, 179, 180, 186, 187, 188, 189, 192, 193, 194, 197, 199, 200, 201, 202, 203, 204, 205, 211, 216, 217, 227 recidivism rate, 4, 55, 56, 116, 119, 152, 180, 187, 188 reconcile, 106 reconviction, 186, 187, 188 recovery, 64, 113 recreation, 19, 33, 226 recruiting, 57, 61, 70, 79, 80, 81, 111, 123, 124, 130, 131, 132, 135, 137, 138, 140, 141, 153, 160, 176, 229 reduction, 8, 36, 43 reflection, 127 reforms, 186 regional, 66 registries, 132 regular, 12, 19, 30, 34, 86, 101, 106, 113, 114, 125, 143, 147, 149, 150, 151, 156, 182, 216 regulations, 74, 106 rehabilitation, 84, 192 reinforcement, 19, 152 rejection, 226 relapse, 192 relationship, 41, 64, 65, 67, 68, 70, 72, 75, 77, 78, 79, 97, 103, 105, 110, 112, 113, 114, 120, 125, 128, 133, 142, 143, 146, 147, 148, 150, 151, 157, 160, 161, 162, 184, 186, 188, 219 relationships, 14, 16, 17, 39, 40, 41, 42, 64, 65, 67, 81, 103, 104, 105, 106, 111, 112, 113, 122, 123,

247

126, 127, 128, 129, 130, 136, 138, 142, 147, 149, 150, 151, 152, 153, 154, 156, 159, 160, 169, 216, 228, 231, 233, 235 relatives, 19 religion, 72, 74, 139, 143, 163 religious belief, 114, 123, 161 religious beliefs, 114, 123, 161 rent, 77 reputation, 60, 80, 103 research, ix, 4, 8, 16, 39, 45, 54, 71, 120, 124, 126, 127, 142, 147, 150, 152, 153, 176, 177, 179, 180, 181, 203, 204, 216, 221, 233, 234 researchers, 187, 191, 206 residential, 23, 26, 75, 97, 196, 209 resistance, 128, 134 resolution, 60, 67, 78, 155, 218, 230, 231 resources, x, 12, 13, 14, 15, 16, 19, 20, 23, 37, 38, 42, 43, 44, 45, 46, 60, 64, 65, 67, 71, 80, 84, 106, 111, 121, 124, 130, 152, 160, 168, 175, 176, 181, 192, 194, 195, 202, 209, 210, 211, 212, 213, 214, 216, 217, 219, 220, 221, 222, 226, 227, 229, 230, 231, 232, 234 responsibilities, 42, 43, 58, 69, 72, 101, 129, 132, 155, 158 restaurant, 156 restaurants, 105 restitution, 21, 98, 216, 227 Restorative Justice, 47, 48, 49, 204 retention, 64, 70, 71, 85, 100, 104, 106, 116, 120, 121, 122, 130, 149, 160, 221 returns, 15, 79, 100 reunification, 126, 143, 218 rewards, 150 Rhode Island, 45, 46 risk, ix, x, 4, 5, 10, 12, 14, 16, 20, 23, 24, 25, 26, 27, 28, 29, 30, 31, 34, 35, 36, 38, 56, 101, 120, 121, 130, 133, 168, 173, 179, 193, 196, 201, 203, 210, 216, 217, 218, 228 risk assessment, 20, 217, 218 risk factors, ix, x, 5, 10, 14, 27, 179 risks, 4, 6, 7, 8, 15, 16, 17, 37, 38, 134, 212 robberies, 27 robbery, 40, 213 role-playing, 164 rolling, 168 RTI, 206 RTI International, 206

S safety, 3, 4, 7, 8, 12, 16, 21, 22, 43, 46, 53, 84, 133, 134, 138, 219, 225, 227, 231, 232, 234, 235, 236 sales, 105, 106

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248

Index

sample, 57, 58, 68, 73, 75, 95, 124, 129, 131, 133, 143, 146, 188, 191 sanctions, 12, 15, 24, 41, 182, 193, 217, 218, 219, 230 SARA, 10, 44 satellite, 211 satisfaction, 166 Saturday, 96 savannah, 36 savings, 222 scarce resources, 12 scheduling, 144 school, x, 21, 92, 93, 99, 101, 104, 114, 119, 177, 181, 190, 220, 226, 232, 233, 234, 235, 236 scores, 192 SDH, 24 search, 17, 31, 65, 92, 135, 139, 155 secondary education, 200 secular, 61, 120 security, 23, 24, 39, 70, 227, 235 seed, 195, 210, 212 seeds, 173 segregation, 23 selecting, 212, 213 Self, 85 self-assessment, 23 self-confidence, 234 self-destructive behavior, 133 self-esteem, 33, 112, 233 semicircle, 20 Senate, 197, 198, 199 senior citizens, 235 sensitive data, 39 sensitivity, 37, 42 sentences, 172, 173, 181, 182, 183, 184, 186, 187, 188, 189, 190, 230, 235 sentencing, 21, 180, 183, 184, 186, 188, 205 Sentencing Guidelines, 205 separation, 65, 123 series, 10, 33, 45, 136, 200 service provider, ix, 1, 2, 20, 21, 22, 26, 28, 33, 42, 60, 64, 65, 98, 217, 222, 231 services, v, ix, x, 1, 2, 6, 8, 9, 12, 13, 14, 16, 17, 19, 21, 22, 23, 26, 29, 32, 33, 35, 36, 37, 38, 42, 45, 53, 54, 55, 56, 57, 58, 59, 60, 61, 62, 63, 64, 65, 66, 67, 68, 69, 70, 71, 74, 76, 78, 80, 83, 84, 85, 86, 87, 91, 93, 97, 98, 100, 103, 104, 110, 111, 112, 113, 116, 119, 120, 122, 128, 130, 132, 134, 141, 159, 160, 161, 176, 179, 180, 186, 190, 193, 194, 195, 196, 197, 198, 199, 201, 202, 203, 211, 216, 217, 218, 219, 220, 221, 226, 227, 228, 230, 231, 232, 233, 235 sex, 15, 70, 84, 111, 113, 114, 192

sex offenders, 15, 192 sexual assault, 17, 213 sexual harassment, 162 sexual orientation, 161 shares, 169, 226 sharing, 15, 17, 20, 23, 24, 28, 31, 34, 38, 39, 42, 43, 98, 127, 153, 157, 169, 202, 220 shelter, 60, 229 short-term, 21 shoulders, 12 siblings, 233 sign, 27, 133 signs, 133, 143, 144, 164, 166 sites, x, 45, 46, 54, 55, 57, 58, 61, 62, 66, 79, 81, 85, 86, 98, 99, 103, 110, 111, 114, 116, 120, 122, 123, 124, 127, 128, 129, 134, 136, 137, 143, 153, 176, 177, 209, 210, 212, 213, 229 skills, 2, 14, 16, 22, 27, 35, 36, 54, 62, 63, 66, 73, 84, 87, 92, 99, 100, 101, 105, 106, 111, 114, 116, 122, 124, 126, 129, 130, 131, 142, 143, 144, 155, 160, 164, 169, 172, 174, 176, 180, 191, 196, 197, 199, 216, 218, 220, 226, 227, 228, 229, 231, 232, 233, 234, 235, 236 skills training, 35, 36, 66, 73, 99, 100, 101, 122, 218 skits, 234 smiles, 170 sobriety, 202 social control, 13 social environment, 25 social fabric, 227 social influence, 19 social influences, 19 social institutions, 190 social network, 106, 135, 202 social relations, 152 social relationships, 152 Social Security, 46, 98, 100 social services, 16, 19, 32, 35, 37, 60, 61, 63, 80, 160, 190, 231 Social Services, 16, 78 social skills, 84, 174 social support, 20, 25, 29, 54, 209 social support network, 209 social work, 42, 110, 130 social workers, 42, 110 socioeconomic, 146 socioeconomic background, 146 software, 39, 63, 87, 101, 106, 142 solutions, 44, 98, 135, 152, 232 spin, 60 spiritual, 138 spirituality, 94 sponsor, 163

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Index sports, 126, 128, 129, 152, 169, 235 St. Louis, 191 stability, 15, 121, 227 staffing, 12, 60, 124, 136 stages, 20, 44, 65, 200, 221 stakeholders, 8, 10, 13, 19, 21, 37, 67, 202, 211 standards, 108 State Department, 35 statistics, 5, 24, 55, 56, 180, 182, 186, 187, 188, 189, 200, 201, 226, 234 statutes, 39 statutory, 183 stereotypes, 39, 40, 228 stock, 83, 211 strategic, 6, 10, 26, 33, 64, 69, 198, 212 strategic planning, 33, 212 strategies, 3, 4, 10, 14, 15, 16, 17, 18, 36, 38, 45, 46, 59, 81, 84, 86, 98, 105, 110, 113, 121, 126, 131, 134, 147, 152, 156, 157, 158, 159, 199, 209, 210, 211, 219, 222, 227, 229, 232, 235 strength, 24, 28 stress, 125, 126 structural changes, 186 structuring, 155 students, 233, 234, 235, 236 substance abuse, ix, x, 2, 12, 19, 20, 22, 30, 35, 36, 38, 54, 64, 84, 97, 119, 143, 151, 179, 191, 192, 193, 197, 198, 200, 201, 203, 214, 216, 217, 233, 235 substance use, 23, 35 success rate, 33 suicide, 15 suicide attempts, 15 summaries, 17, 18, 58 Sunday, 96 supervised release, 34 supervision, ix, x, 6, 10, 12, 15, 19, 21, 22, 23, 24, 25, 26, 27, 28, 29, 30, 31, 34, 35, 36, 42, 43, 66, 77, 124, 128, 132, 136, 148, 151, 179, 180, 182, 184, 186, 188, 190, 195, 196, 197, 202, 216, 217, 218, 219, 220, 227, 228 supervisor, 64, 110 supplemental, 67, 98 supply, 60, 66, 101, 188 support services, 21, 35, 36, 37, 62, 64, 83, 195, 217 surveillance, 8, 9, 10, 12, 18, 20, 27, 28, 34, 43, 217 survival, 234 sustainability, 44, 210, 215, 221 symbols, 42 synergistic, 218 systems, x, 1, 23, 35, 180, 186, 190, 191, 201, 217, 222, 227, 232, 235

249

T tactics, 14, 24, 28 tangible, 234 target population, 27, 44, 61, 212, 213, 215 targets, 14, 40, 106, 197 task force, 198 tax credit, 196 tax credits, 196 taxes, 77 taxpayers, 119 teachers, 94 teaching, 101, 227, 234 technical assistance, 44, 46, 67, 70, 196 technology, 23, 24 telemarketing, 105 telephone, 18, 44, 106, 112, 126, 148, 149, 150, 166, 172, 208, 235, 236 temperament, 16 Temporary Assistance for Needy Families, 98 Tennessee, 18, 26, 61 territorial, 43 testimony, 80 Texas, 60, 205 theft, 40, 213, 230 therapists, 193 thinking, 2, 148, 173 third party, 55 Thomson, 1, 8, 40, 49 threat, 2, 8, 9, 40 threatening, 171, 228 threats, 5 time, 4, 16, 20, 22, 26, 27, 35, 36, 37, 41, 42, 43, 44, 56, 62, 69, 70, 71, 72, 80, 86, 95, 104, 106, 110, 113, 114, 120, 121, 122, 123, 125, 126, 127, 132, 134, 135, 136, 138, 139, 140, 141, 143, 144, 145, 148, 150, 151, 152, 153, 154, 155, 156, 157, 158, 159, 162, 163, 170, 171, 172, 173, 174, 181, 184, 185, 186, 188, 191, 200, 214, 216, 217, 219 time commitment, 139, 143, 173 time frame, 186 time preferences, 144 timetable, 212 tolerance, 25, 85 tracking, 26, 86, 140, 220, 222 trade, 66 tradition, 114 traffic, 34 trainees, 73, 74, 168, 169, 170, 172, 174, 175 training, ix, 2, 13, 19, 23, 30, 32, 33, 35, 36, 37, 38, 42, 54, 57, 62, 65, 66, 69, 70, 71, 73, 74, 77, 81, 83, 84, 86, 91, 93, 97, 98, 99, 100, 101, 103, 104, 105, 106, 111, 114, 116, 120, 122, 124, 130, 131,

250

Index

133, 136, 139, 141, 142, 143, 144, 145, 147, 148, 150, 151, 158, 159, 160, 161, 164, 168, 169, 170, 172, 173, 180, 181, 193, 196, 197, 198, 199, 201, 203, 216, 217, 218, 220, 226, 227, 228, 229, 230, 231, 235 training programs, 100, 151, 198 traits, 169, 170 transition, 2, 19, 20, 35, 36, 46, 62, 121, 128, 129, 142, 190, 191, 192, 195, 200, 201, 215, 216, 217, 218 transitions, 19, 23, 26, 30 transmission, 39 transparency, 111 transportation, 97, 98, 107, 122, 126, 135, 150, 154 travel, 63, 87, 98, 102, 106, 112, 114 treatment programs, 12, 19, 21, 193, 198, 200, 216, 230 trend, 186 tribal, 197 tribes, 193 triggers, 218 trust, 42, 85, 125, 133, 137, 146, 147, 157, 161, 162, 226, 228 tutoring, 220

U

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unemployment, 85, 116 Uniform Crime Reports, 40 United Kingdom, 18, 27, 28, 50, 181, 204 United States, ix, x, 2, 21, 25, 47, 48, 53, 59, 61, 177, 179, 180, 181, 188, 189, 199, 204, 205, 206, 210, 212 United Way, 32 universe, 190, 194 universities, 221, 222 Utah, 18, 30, 31

V values, 42 vandalism, 230, 233 variables, 191 variation, 126, 206 vehicles, 178 venue, 19, 78 Vermont, 18, 21, 22, 48 veterans, ix, 1, 199 Vice President, 66, 76 victimization, 6, 8, 14, 16, 40 victims, 10, 14, 16, 17, 21, 40, 41, 43, 44, 230, 231 videoconferencing, 22, 128

vignette, 164, 174 violence, 15, 23, 25, 36, 199, 232, 233, 234, 235 violent, 20, 21, 24, 28, 31, 35, 46, 54, 70, 188, 192, 195, 196, 210, 213, 231, 234 violent crime, 28, 31, 35, 188, 195, 231 violent crimes, 28, 31, 188, 231 violent offenders, 20, 21, 24, 192, 196, 205, 210 visible, 231 vision, 59, 84, 95, 131 vocational, 19, 22, 26, 66, 84, 181, 192, 193, 197, 201, 203, 234 vocational training, 19, 66, 84, 181, 193, 197, 201, 203 voice, 16, 41, 65 volunteerism, 209, 214, 221 Volunteers, x, 63, 79, 81, 209, 220 voting, 14 vulnerability, 21

W walking, 127 warrants, 25, 78 weakness, 122 weapons, 30, 31, 34, 199 web, 25, 100, 204 web-based, 100 websites, 159 welfare, 60, 68, 100 well-being, 45 White House, 44 wilderness, 97 winning, 234 winter, 152 Wisconsin, 18, 31, 32, 60, 80, 99 women, 53, 61, 75, 79, 119, 176 work projects, 229, 230 workers, 54, 83, 104 workforce, 32, 44, 46, 58, 60, 84, 85, 97, 100, 196, 199 Workforce Investment Act, 65, 196, 197, 207 workplace, 54, 100, 131, 135, 181 worry, 123 writing, 62, 72, 74, 77, 78, 99, 101, 128, 172, 176, 221, 232, 234

Y yield, 8, 39, 43, 220 young adults, 24, 199 young men, 79 younger children, 234, 235

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