A Guid E Boo K Fo R Co Mm Unity -Based O Rg Aniz Ati Ons
Partnering withJails to ImproveReentryA Guidebook forCommunity-Based OrganizationsAUGUST 2010JOHN JAY COLLEGE OF CRIMINAL JUSTICEAnna CraytonLiz ResslerDebbie A. MukamalTHE URBAN INSTITUTEJesse JannettaALTERNATIVE SOLUTIONS ASSOCIATESKevin Warwick
Partnering withJails to ImproveReentryA Guidebook forCommunity-Based OrganizationsAUGUST 2010JOHN JAY COLLEGE OF CRIMINAL JUSTICEAnna CraytonLiz ResslerDebbie A. MukamalTHE URBAN INSTITUTEJesse JannettaALTERNATIVE SOLUTIONS ASSOCIATESKevin Warwick
This report was prepared under grant 2005-RE-CX-K148, awarded by the Bureau of Justice Assistance.TheBureau of Justice Assistance is a component of the Office of Justice Programs, which also includes the Bureauof Justice Statistics, the National Institute of Justice, the Office of Juvenile Justice and Delinquency Prevention, and the Office for Victims of Crime. Points of view or opinions in this document are those of the authorsand do not necessarily represent the official position or policies of the U.S. Department of Justice.The Urban Institute is a nonprofit, nonpartisan policy research and educational organization that examinesthe social, economic, and governance problems facing the nation.The views expressed are those of the authorsand should not be attributed to the Urban Institute, its trustees, or its funders.
ContentsAbout the AuthorsvAcknowledgmentsviiIntroduction11 Understanding the Big Picture: Incarceration and Jail ReentryJails in the Context of the Criminal Justice System332 Developing and Sustaining a Partnership with the Local JailWhat’s in It for YouSteps for Building an Effective PartnershipWorking Together to Improve Client Outcomes999163 Working with the Jail Population and in the Jail EnvironmentChallenges Facing Jail PopulationsChallenges to Providing Services in a JailUnderstanding Jail Culture212123244 Examples of Strong Partnerships between CBOs and JailsRikers Island Discharge EnhancementHampden County Public Health Model for CorrectionsResolve to Stop the Violence ProjectMontgomery County Department of Corrections and Rehabilitation:Pre-Release and Reentry ServicesBoston Reentry Initiative2727272829295 Resources for the FieldOrganizations and Initiatives Focusing on ReentryReports and Publications on Reentry313133Conclusion35Appendix 1: Sample DocumentsMemorandum of Understanding: Sullivan County, NHMemorandum of Understanding: Santa Barbara, CARelease of Information: Douglas County, KS, JailRelease of Information: Bert Nash Community Mental Health Center,Douglas County, KS3738394547Appendix 2: Partnership Profiles51References57iii
About the AuthorsAnna Crayton is the deputy director of researchwith the Prisoner Reentry Institute at John Jay College of Criminal Justice. Ms. Crayton has worked ona number of projects pertaining to sentencing, corrections, and reentry, including the development of anational resource guide to assist individuals in planning for their education upon release from prisonand a quantitative analysis of the effects of long-termincarceration on reentry. Additionally, she is a doctoral student in criminal justice at the City University of New York Graduate Center.Liz Ressler is a research assistant at the PrisonerReentry Institute at John Jay College of CriminalJustice. Ms. Ressler has worked on a variety of projects related to prisoner reentry and juvenile justice.Prior to joining the Prisoner Reentry Institute,she worked as a resident supervisor for the PreRelease Center at Montgomery County Department of Corrections and Rehabilitation. Ms. Ressleris currently pursuing a master’s degree in social workfrom NewYork University.Debbie A. Mukamal is the founding director ofthe Prisoner Reentry Institute at John Jay College ofCriminal Justice. She is responsible for overseeing allof the Institute’s projects, including the design andimplementation of an innovative neighborhoodbased reentry service initiative and the developmentof research and effective tools in the areas of entrepreneurship,correctional education,long-term incarceration, and reentry from local jails. Before joiningJohn Jay College, Ms. Mukamal served as the found-ing director of the National H.I.R.E. Network anda staff attorney at the Legal Action Center, where herwork focused on the collateral consequences of criminal records. Ms. Mukamal holds a Juris Doctoratefrom New York University School of Law.Jesse Jannetta is a research associate in the UrbanInstitute’s Justice Policy Center. He directs projectsrelating to community supervision and reentry fromboth prison and jail.Before coming to the Urban Institute, Mr. Jannetta was a research specialist at the Center for Evidence-Based Corrections at the Universityof California,Irvine,where his work included projectson GPS monitoring of sex offender parolees, policieson parole discharge and violation response, and assessment of the California Department of Correctionsand Rehabilitation’s programs according to the principles of evidence-based design. He holds a master’sdegree in public policy from the John F. KennedySchool of Government at Harvard University.Kevin Warwick is the president of Alternative Solutions Associates, Inc., and assists jurisdictions aroundthe country with the development of jail overcrowding, mental health, and jail reentry programs.As assistant superintendent of community corrections at theHampden County (Massachusetts) Sheriff ’s Office,Mr. Warwick designed and directed the first dayreporting center in the country. He has publishednumerous articles on community corrections, jailtreatment, and reentry programs. Mr.Warwick has amaster’s degree in social work from the University ofConnecticut.v
AcknowledgmentsThe authors wish to thank Amy Solomon, seniorresearch associate at the Urban Institute, and JeffMellow, associate professor at John Jay College ofCriminal Justice, City University of New York, fortheir invaluable input and assistance in developingthis guidebook.We also wish to thank the many individuals whoseefforts contributed significantly to the content of thisguidebook. They include True-See Allah, BostonReentry Initiative (Massachusetts); Mary Jo Braaten,Spokane Housing Authority (Washington); NickCasamassimo,Drug Abuse Foundation of Palm BeachCounty (Florida); Mike Colbert, Hampden CountySheriff ’s Department (Massachusetts);Denise DarbyHaynes, DCCCA (Kansas); Christopher Dawley,Norfolk County Sheriff ’s Department (Massachusetts); Captain Randy Demory, Kent County Sheriff ’s Office (Michigan); Suellen Griffin,West CentralBehavioral Health (New Hampshire); LoringHenderson, Lawrence Community Shelter (Kansas);Patrick Hughes, Bergen County Sheriff ’s Department (New Jersey); Ken Hunt, BEST ReintegrationProgram (Hawaii); Barbara Huppee, LawrenceDouglas County Housing Authority (Kansas);StephenKaplan, San Mateo County Behavioral Health andRecovery Services (California); Nadine Kerstetter,Denver Works (Colorado);Captain Phazaria Koonce,Denver Sheriff Department (Colorado); Carol Lease,Empowerment Program (Colorado);Lieutenant MarkMahurin, Santa Barbara County Sheriff ’s Department(California); Richard McCarthy, Hampden CountySheriff ’s Department (Massachusetts);Tina Michaels,Montgomery County Department of Correctionsand Rehabilitation (Maryland); Innael Miranda,Community Reentry Project (Colorado); LorraineMontalto, Criminal Justice Partners for Community,Corporation for Justice Management (Massachusetts);Tom Mugavin, Prodigal Ministries, Inc. (Kentucky);Paul Mulloy, Davidson County Sheriff ’s Office(Tennessee); Shannon Murphy, Douglas CountySheriff ’s Office (Kansas); Rick Neimiller, AmericanJail Association; Hillel Raskas, Montgomery CountyDepartment of Corrections and Rehabilitation(Maryland); Jacqueline Robarge, Power Inside (Maryland); Fred Smith, St. Francis House (Massachusetts);Gwyn Smith-Ingley, American Jail Association;Jen Sordi, Hampden County Sheriff ’s Department(Massachusetts); Faye Taxman, George Mason University (Virginia); and Sharon Zehr, Bert NashCommunity Mental Health Center (Kansas).We would like to offer a special thank you to Mae,Michael,Thomas, Lamisha, and Chrissy for contributing their personal experience to this guidebook.Finally, we thank our funder, the U.S. Department ofJustice, Office of Justice Programs’ Bureau of JusticeAssistance. Its leadership in the area of jail reentry ismoving the field forward by providing guidance andsupport to jurisdictions across the country.vii
IntroductionAS A COMMUNITY-BASED ORGANIZAtion (CBO), you see individuals and communitiesevery day struggling with such issues as addiction,homelessness, mental illness, criminal involvement,and unemployment. Through your work, you arealso likely to come into contact with individuals whohave been held in one of the more than 3,000 localjail facilities across the country. If you have experience with that population, then you probably knowthat partnering with your local jail is an opportunityto make positive changes in the lives of those individuals who walk through your respective front doors.If you do not know the extent to which the population you serve overlaps with the jail population,exploring a partnership with the jail is a chance to findout and potentially to enhance your work based onwhat you learn. The number of men and women whoreturn from jails to communities, a process known asjail reentry, is astounding—9 million each year. Ineffect, jails and CBOs have 9 million opportunities tocollaborate to improve services and outcomes for theindividuals, families, and communities most affectedby incarceration.Your organization can build on the indispensiblework you are already doing and play three important roles in the jail reentry process:n First, you can provide services to incarceratedclients who do not currently receive services inthe jail.n Second, your organization may work withindividuals who have returned from jail to thecommunity.n The third and most valuable role involves combining the first two points and working withpeople both before and after release. Continuityof care is integral to successful reentry.The progress individuals make through programs inthe jail—where they exist—can be lost after releaseunless these individuals are connected to services inthe community. By continuing services in the community, individuals build on and further develop skillsacquired in programs during incarceration, reducingthe likelihood that they will return to jail. CBOs arevital partners in jail reentry initiatives because theycan provide services both inside the jail and in thecommunity; they are the connection to communityservices for individuals in jail.Many challenges are associated with jail reentry.Men and women returning from jail are often undereducated, have few employable skills, and frequentlysuffer from addiction and other physical or mentalhealth concerns. Unfortunately, very few receiveadequate services to address these needs during theirtime in jail. A small number of disadvantaged neighborhoods often absorb the great majority of individuals returning from jail, stressing already overburdenedcommunity resources. Reentry efforts respond tothese challenges by helping individuals access services designed to help them change their behavior,address their needs, and avoid another incarceration.This guidebook has been developed to providecommunity-based organizations with an overview ofjail reentry work and to help them develop and sustain a partnership with their local jail. The intendedaudience is CBOs, whether large or small, that areconsidering such a partnership. A wide variety oforganizations have the skills, resources, and motivation needed to address the challenges of jail reentry,Introduction 1
including substance abuse treatment providers,homeless shelters, workforce development centers,neighborhood clinics, community colleges, and manyothers. Through building collaborative relationshipsand developing an increased sensitivity to and focuson issues of jail reentry, CBOs can join with jailsto tackle the challenges of reentry.The guidebook begins with a brief overview ofthe criminal justice system, with a focus on jails inthe United States. It discusses how to build a partnership with the local jail and includes concrete stepsto develop and sustain this partnership. Next, it discusses common challenges confronted by the jailpopulation, as well as issues you might face workingin and with a jail. The fourth section provides examples of strong partnerships between CBOs and jailsthat serve as models. At the end of the guidebook, alist of reentry resources and examples of useful documents, such as memoranda of understanding, arepresented.Throughout this guidebook are profiles of individuals who have successfully transitioned from jailto the community with the help of a partnershipbetween a CBO and a local jail.1 These individuals’ experiences are testimonies to the importanceand benefits of partnerships between local correctional agencies and CBOs in addressing the needsof people affected by incarceration.Client profile: Maintaining connections in the communityName: MaeLength of stay in jail: 4 daysProgram name: Lawrence Community Shelter (LCS)—Lawrence County, KansasHow I learned about it: I found out about LCS through my case manager at the jail along with word of mouthfrom friends.Services currently receiving: LCS provides me with shelter during the evenings along with food and showers. The caseworkers at LCS were also able to help me receive services from the Kansas Department ofSocial and Rehabilitation Services (SRS). At SRS I have been able to access many services, such as theFood Stamp program.The most important thing I learned: This experience has taught me that it is important to maintain myconnections to the community. This helps me to stay focused and not lose sight of my goals.1The individuals profiled in this guidebook were identifiedwith the assistance of staff working with the partnershipslisted in appendix 2. The staff nominated clients who hadbeen successful, and consenting clients completed a questionnaire on their reentry experiences and contact with thejail/CBO partnership. The questionnaire responses were thebasis of the client profiles.2PARTNERINGWITHJAILSTOIMPROVEREENTRY
1Understandingthe Big Picture:Incarceration andJail ReentryYOUR ORGANIZATION’S ROLE IN IMproving the chances of success for individuals returning home from jail contributes to a larger nationaleffort to address the issues of incarceration and reentry. This section is designed to provide readers witha broad understanding of where jails fit within thecriminal justice system.The United States incarcerates more people thanany other country. Since the 1970s, the incarceratedpopulation has grown tremendously. In the early1970s, just over 330,000 people were incarcerated ina state or federal prison or in a local jail. Today, theincarcerated population is over 2.4 million. Theaverage daily jail population has nearly doubled overthe past two decades, from 408,075 to 776,573 (seefigure 1.1) (Beck and Karberg 2001; Minton andSabol 2009).Due to constant turnover in the jail population,however, the average daily population greatly understates the degree to which jails contribute to the volume of those incarcerated in the United States. Jailpopulations turn over at a rate of 66.5 percent perweek (Minton and Sabol 2009),2 and there are anestimated 13.5 million jail admissions annually. Boththe fiscal costs and the public safety issues associatedwith growth in the incarcerated population are great:n In 2003, local governments spent over 18 billion on corrections (institutional and community) (Hughes 2006).2The Bureau of Justice Statistics calculates the weekly turnover rate by adding jail admissions and releases, dividing bythe average daily population, and multiplying by 100.n Over the course of one year, an estimated9 million individuals will cycle in and out oflocal jails (Beck 2006).n More than 80 percent of individuals are in jailfor less than one month (Beck 2006).n The offense profile of jail inmates is evenly distributed among property (24 percent), violent(25 percent), drug (25 percent), and publicorder (25 percent) offenses ( James 2004).Jails in the Context of the CriminalJustice SystemAn individual enters the criminal justice system assoon as he or she is arrested. While jail detaineeshave been arrested for a crime, not all have been convicted of a crime (see box 1.1). If convicted, whetherthrough a plea agreement or a court trial, the individual is sentenced, resulting in a number of possible sanctions. Figure 1.2 depicts the various roles thejail plays within the criminal justice system.Roles of the Jailn Jails hold individuals in pretrial status until theycan post bond or are adjudicated. Sixty-two percent of jail inmates are in pretrial status (Saboland Minton 2007).n Some individuals leave the jail after a very shortperiod of time, but if involved in a lengthy legal proceeding, they may be in the jail much longer thanmost sentenced inmates.n Jails serve a punitive and/or rehabilitative function forindividuals sentenced to a short period of incarceration.Understanding the Big Picture: Incarceration and Jail Reentry 3
FIGURE 1.1Average Daily U.S. Jail Population, 90199219941996199820002002200420062008Sources: Gilliard (1999); Beck and Karberg (2001); and Minton and Sabol (2009).BOX 1.1Jail and Prison: What Is the Difference?People often use the terms jail and prison interchangeably. However, jails and prisons have different purposes, authority, and populations. A prison is operated by a state or the federal government, while a jail isthe responsibility of a county or city. There are 3,300 jails in the United States and 1,800 state and federalprisons (Stephan 2001, 2008). Because jails are locally operated, individuals housed in jails are usuallymuch closer to home than individuals housed in prisons.Prisons house people who have been convicted of a crime and have been sentenced. Jails also housepeople who have been convicted and sentenced, as well as those who are being held for violating releaseterms and those who are awaiting trial.Jails typically house people for a much shorter time than do prisons. In fact, only 19 percent of thoseadmitted to jail stay more than one month (Beck 2006). Of that 19 percent, only 4 percent stay longer thansix months. In contrast, the average time served for first releases from state prison in 1999 was 34 months(Hughes, Wilson, and Beck 2001).4PARTNERINGWITHJAILSTOIMPROVEREENTRY
FIGURE 1.2Criminal Justice System FlowchartArrest andArraignmentAwaitAdjudicationin JailAwaitAdjudicationin CommunityGuilty Plea orCase Goes to TrialNot Guiltyand ReleasedGuilty andSentencedParole/ProbationViolationAlternative SanctionsFederal or StatePrisonRelease toCommunityParoleCounty or City se toCommunity Probation/intensivesupervision probation Fines and restitution Community service Day reporting/house arrest Alternative to incarcerationprogramsSource: Adapted from Lindahl and Mukamal (2007).Note: This flowchart is a simplified and generalized depiction of criminal justice processes. There is considerable variation by jurisdiction in how these processes and entities interrelate.Understanding the Big Picture: Incarceration and Jail Reentry 5
BOX 1.2Criminal Justice LanguageIf you or others in your organization have not previously worked with individuals involved with the criminaljustice system or criminal justice agencies, familiarizing yourself with these terms may be helpful when working with your local jail.an Community Corrections: Elements of the criminal justice system that take place in the community,including bail monitoring, sanctions in lieu of incarceration, and post-incarceration supervision.n Alternative Sanctions: Individuals who commit misdemeanors and certain
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