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TITLE Vocational Education in : An Investment for Yesterday's At-Risk Youth. Evaluation Report. INSTITUTION State Council on Vocational Education, Austin. PUB DATE 92 NOTE 38p. PUB TYPE Reports Evaluative/Feasibility (142)

EDRS PRICE MF01/PCO2 Plus Postage. DESCRIPTORS Access to Education; *Adult Vocational Education; *At Risk Persons; Coordination; *Correctional Education; *Educational Needs; Educational Opportunities; Needs Assessment; Policy Formation; *Prisoners; Program Costs; Public Policy; Secondary Education; State Programs; *Statewide Planning IDENTIFIERS *Texas

ABSTRACT The provision of secondary vocational education to adult offenders in the Texas state system was assessed. Discussions held with inmates established that most adult inmatesare former at-risk youths who eventually dropped out of high school and who have low self-esteem and poor morale because of their frustrating educational experiences. The educational needs of the study population were assessed within.the framework of existing educational programs within Texas' prison system, access to vocational education in prisons, and coordination of vocational education policy inthe state's correctional school districts. Eight recommendationswere as follows: (1) develop a comprehensive long-range plan;(2) expand existing lab space;(3) establish regional education centers toserve the prison system;(4) design and implement a follow-up system to track employment and recidivism rates of vocational education certificate holders; (5) develop a more systematicprocess for placing inmates in vocational education; (6) establisha system for integrating vocational education and prison iobs;(7) allow Foundation School Fund allocations for vocational education for inmates who graduated from high school; and (8) shift authority for exceptions to the one-vocational-course rule to principals and regional supervisors. (Appendixes contain topics for futurestudy, funding categories, estimated costs fora correctional vocational-technical center, and a description of the services offered by the New Vision Chemical Dependency Treatment Facilityin Kyle, Texas.) (MN)

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INN ST E T FOR I STERD Y'S AT-RIS YO T

V S DEPAKTMENT OF EDUCATION Othce of Educational Research and frrfprocernenf EDUCATIONAL RESOURCES INFORMATION CENTER (ERIC. Q/Krsdocument has been reproduced as recerued from the ererSO. Or orgarization originating .1 C Minor changes have been made to mpro.e rpreguction quality

Points of ...es., or opinions stated .T11 Ns (SOC. ment do not neCessanly represent official 0E111 pos,tion or pohcy

PERMISSION TO REPRODUCE THIS MATERIAL HAS BEEN GRANTED BY TES COUNCIL ON 00-e VOCATION EDUCATION EV UATION REPORT TO THE EDUCATIONAL RESOURCES INFORMATION CENTER (ERIC) Fall 1992

BEST COPY AVAILABLE Ann Hodge Theodore A. Talbot Agency Mission Waco Representing the Private Representing the Private Sector The Texas Council on Vocational Sector Chair Educationwillprovideproactive Vice Chair leadership to define the role of vocational education, and advise state and federal policymakers on ways to strengthen and Mike Bickley Steve McSpadden Lufkin reform vocational-technical education, as Quanah Representing Labor well as build a climate for the acceptance Representing of outstandingvocational-technical Agriculture education programs, in order to make all Texans more competitive and productive Sylvia Talavera Blain in the world economy. Jack C. Pennington Odessa Garland Representing Representing Labor Postsecondary Education Agency Philosophy The Council's recommendations and issue papers will infuse the views of business, Shirlene S. Cook Raul Ramirez, Ph.D. Beaumount industry, agriculture, labor, learning El Paso Representing Secondary institutions and the general public into the Representing Education Postsecondary policymaking process. Education The Council's evaluation and assessment of vocational-technical education and Paul Ellis training programs will be based on the Henry R. So tiers Austin needs of students, employers, and Cotulla Representing the Private Representing Secondary Sector taxpayers. Education The Council will provide and encourage a climate of cooperation and coordination Edna I. Garza-Escobedo, among vocational-technical education and Lillian J. Suchoff Ph.D. job training stakeholders. Corpus Christi Harlingen Representing Secondary Representing Education-Special Postsecondary Education The Council will be open and responsive Populations to policymakers, agency personnel and citizens in regard to the questions and concerns about vocational education. Martha Hinojosa-Nadler Staff: Austin Lynda S. Rife Representing the Private The Councilwillapproachtheir Robert L. Williams Sector Valeria Blaschke responsibilities with a deep sense of Anne M. Dorsey commitment and caring about all citizen's Michael Gutiérrez of Texas and the economic welfare of the state. Texas Council on Vocational Education P. 0. Box 1886, Austin, Texas 78767 Phone: (512) 463-5490; Fax: (512) 475-3575

CHAIR Ann Hodge Houston December 20, 1992

VICE CHAIR Theodore A.Talbot Waco Dear Fellow Citizens: MEMBERS On behalf of the Texas Council on Vocational Education, I am pleased to Mike Bickley present our report entitled "Vocational Education in Prisons: An Investment for Lufkin Yesterday's At-Risk Youth." My colleagues and I represent all sectors of society Sylvia Talavera Blain concerned with quality vocational education:business, industry, labor, and Odessa agriculture, as well as the general public.

Shirlene S. Cook In the course of this study, the Council had the opportunity to tour several Beaumont prison units. We discovered that many inmates were dropouts or graduated from high school without being vocationally or academically prepared for the Paul H. Ellis real world. Austin Our recommendations are designed to increase the opportunity of all inmates to Edna Garza-Escobedo, Ph.D. receive comprehensive vocational training so they can reform their lives. Once Harlingen inmates return to the free world, their degree of success in the marketplace will Martha E. Hinojosa-Nadler help determine whether they remain a tax burden or become a taxpayer. Austin The Council believes this report adds an important perspective to the current Steve L. McSpadden criminal justice debate in Texas. We hope our recommendations will provide Quanah an alternative solution to the terrible waste of human capital in our prisons and a long-term look at increasing costs. Jack C. Pennington Garland Sincerely,

Raul Ramirez, Ph.D. El Paso (1/n1)V Henry R. So Hers Ann F. Hodge Cotulla Chair

Lillian J. Suchoff Corpus Christi

EXECUTIVE DIRECTOR Lynda S. Rife 4 Synopsis of "Vocational Education in Prisons: An Investment for Yesterday's At-Risk Youth"

The Texas Council on Vocational Education, a 13-member lay citizen advisorygroup, had the opportunity to assess vocational education in the Texas prison systems. Sincemany prison inmates lack adequate academic preparation and basic skills, vocational educationcan play a large part in determining whether they will commit another crime and return to prisonor become a productive member of society. Educational programs in the Texas prisons are designed to meet the unique learning needs of inmates. However, less than 25 percent ever enroll in a regular vocational educationcourse, with less than one percent successfully completing 600 hours of training. Even those few inmates who successfully complete training are not followed into the labor marketto deter- mine the success of the programs. The citizens of Texas are concerned about escalating crime rates, the costs for housinginmates, and the problem of recidivism in the prison system. A recent study reveals that inmates who receive academic and vocational education are more likely to be employed and less likelyto return to prison. Moreover, the State saves $22,000 when an offender does not return to prison. The state could save $6.6 billion with a 1 percent reduction in recidivism rates. Since academic and vocational education can reduce the recidivism rate, themoney spent on comprehensive programming is an investment in lowered crime and incarceration costs. Conclusions and Recommendations The Texas Council on Vocational Education concludes that allmen and women in the Texas prisons should have access and be encouraged to participate in vocational education. The following recommendations are designed to improve educational service deliveryin Texas prisons. 1. Implement a comprehensive, long-range plan identifying the needfor vocational training, developing training strategies and methodsto create a learning environment, and identifying strategies for inmatesto secure employment upon release. 2. Expand lab space to be able to offer more vocationalcourses to meet demands. 3. Establish Regional Education Centers toserve the prison system. 4. Design and implement a follow-up system to track the employmentand recidivism rates of vocational education certificate holders. 5. Develop a more systematic process for placing inmatesin vocational educa- tion. 6. Establish a system for integrating vocational education and,prison jobs. 7. Allow Foundation School Fund allocations to provide vocationaleducation to inmates who have graduated from high school. 8. Shift the authority to make exceptions to the "one-vocationalcourse" rule downward to the level of principal and regional supervisor. 4 TABLE OF CONTENTS

Agency Mission and Philosophy Inside Front Cover Letter to the Citizens of Texas by the Chair Introduction Page 1 Yesterday's At-Risk Youth Page 1 Education in the Prison System Page 5 Access Page 11 Policy Coordination Page 19 Conclusions and Recommendations Page 22 Appendices Page 27

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INTRODUCTION

The Texas Council on Vocational Edu- first-time and repeat offenders. Their testi- cation, refered to in this report as the Coun- monies added a valuable client-centered per- cil, was created by federal and state laws as spective to the review. an impartial body, composed of volunteers, to provide an objective, informed lay per- Scope of the Report spective to the evaluation of vocational edu- The Council had limited time, re- cation. The members of the Council are not sources, and staff with which to conduct experts. They are citizens of Texas, repre- this study. Consequently, this report is lim- senting all sectors of society having an in- ited in scope.Instead of addressing the terest in vocational education:business, multiple dimensions of corrections educa- labor, education and agriculture, as well as tion in a cursory way, the Council chose to the general public.Their purpose is to focus on the provision of secondary voca- speak for the average taxpayer.Council tional education to adult offenders in the members are nominated by the Governor of state prison system. Although postsecondary Texas and appointed by the State Board of vocational courses are also offered in Texas Education and confirmed by the Senate. prisons, most inmates who receive voca- The federal Carl D. Perkins Voca- tional education are enrolled in secondary tional and Applied Technology Education courses because they are not high school Act defines the purpose of vocational educa- graduates.Several topics, such as tion broadly; "to make the more postsecondary education, which merit at- competitive in the world economy by devel- tention but were not systematically evalu- oping more fully the academic and occupa- ated for this report, are listed in Appendix A, tional skilla of all segments of the popula- "Topics for Future Study." tion." One of the Council's mandates under (Note:Since females composed only four the Act is to analyze and review correction's percent of the inmate population in FY 1991, vocational education programs.In the the Council will, for convenience, be using Spring of 1992, the Counci: initiated an the masculine pronoun to refer to inmates analysis of the vocational education pro- throughout this report. However, the com- grams in the Texas prison system. ments made here apply generally to women The Council developed the conclu- in prison also.) sions and recommendations in this report by interviewing criminal justice experts, YESTERDAY'S AT-RISK YOUTH correctional administrators, principals, teachers, and counselors; reviewing back- The Council's discussions with in- ground literature and annual reports of both mates in the course of this review revealed the Windham School System and the Texas a portrait of a population lacking the most Department of Criminal Justice (TDC1); pe- basic academic preparation for productive rusing other agencies' and consultants' pro- careers.Most of the inmates were high gram evaluations; and investigating other schopl dropouts who expressed low self-es- states' programs. The Council held discus- teem and poor morale from a history of sions with male and female inmates, both frustrating educational experiences. Their

7 portrayals of their failures in school as chil- prisons in 1991 confirms these educational dren resembled the portraits of many of and employment disadvantages: today's "at risk" youth in the Texas' public More than three out of four were high school system. school dropouts; The inmates gave various reasons for 45 percent functioned below a sixth- steering off course. Some came from bro- grade level; ken homes, were emotionally troubled, or In 1989-90, the unemployment rate for had alcoholic parents. Others had learning offenders when arrested was 47 percent disabilities, fell behind in school and just compared with 6.7 percent for the gen- gaye up. Most of them lacked a basic sense of eral population in Texas. belonging and turned to drugs. One inmate described his experience Limited Opportunities for Employment with school while growing up in this way: "I A male first-time offender com- had stability in school up till the sixth grade mented, "Right now there are a lot of people and from the seventh grade on, it was just unemployed. I don't know whose fault that one school after the other .... I was always is, but I think that inmates will probably be the new kid in school, and it was hard to find the last ones to get jobs." a feeling of belonging.The kids I hung The likelihood of offenders obtain- around with were the other kids that felt ing viable employment when they are re- like they didn't fit in. We were the ones that leased into the "free world" will largely were out in the parking lot smoking dope, determine whether they become produc- disrupting class, that type of stuff." tive, taxpaying members of the work force Another offender had a slightly dif- or whether they will return to prison and ferent experience, but with the same re- remain tax burdens. High school dropouts sults: "Up until the fourth grade, I managed will be able to fill only 14 percent of all new to complete and actually be above where I jobs, according to the State Occupational should be.In the fifth Information Coordinating grade, I moved and in- "Right now there are Committee (SOICC). Thus, for stantly fell so far behind a lot of people those who en:er prison with that I never caught up little or no occupational again. By the end of junior unemployed. I don't skills, their ability to com- high, I had already started know whose fault thatpete in the labor market will experimenting with drugs is, but I think that depend on the quality and and alcohol because I knew inmates will probablyextent of the academic and I didn't fit into school. Bybe the last ones to getvocational preparation they my freshman year in high jobs." receive while in prison. school, they finally real- 1st Time Offender Convicted felons face ized I had dyslexia and put an added barrier to employ- me in resource. That was worse. You know menttheir criminal records. A study by that you are not as good as everyone else, so the U.S. Department of Labor attributed 5 to that took me farther away from school." 10 percent of all unemployment problems A statistical profile of the more than among ex-offenders to their past criminal 49,000 felons incarcerated in Texas state history.This makes the need for strong

2 qualifications and effective job search skills criminal behavior and the recidivism rate. for this group all the more important. Education and Employment Prevents Returns Return to Prison Recent studies have shown that both Eventually, 95 percent of all offend- education and employment lower the re- ers will return to society. Morethan 37,000 cidivism rate. In Texas, the Criminal Justice inmates were released from Texas state pris- Policy Council found that employed offend- ons in 1991 alone. In Texas, 43 percentof ers and those with a high schooldiploma had them will be back in prison again within lower recidivism rates than the unemployed three years of release. This recidivism rate or high school dropouts.Forty-eight per- has increased from 3s percent to 43 percent cent of unemployed offenders were since 1984, according to a study conducted reincarcerated compared with 33 percent of by the University of Texas.(See Chart 1 employed offenders. Nearly half of all of- below.) fenders with less than a high school educa- Criminal justice scholars have iden- tion returned to prison compared with 37 tified academic and vocational education as percent of those with a 12th-grade educa- essential components in any effort to reha- tion. bilitate offenders. Rehabilitation calls for In the State of Illinois, prison offi- addressing the conditions which contribute cials tracked their inmates for one year to criminal activity, such as unemployment, after release from prison. They found that lack of basic education, and substance abuse, those who had received both academic and in order to reduce thereoccurrence of vocational education while in prison had higher employment rates and were less Chart 1 likely to commit a crime than those who had Recidivism Rate in Texas not received any training. The employment rate of offenders who were enrolled in both For 1987 Parolees academic and vocatiltial education was more than 50 percent higher than the rate for 100 Inmates T'aroled inmates who received no education. Also, 32 * percent of inmates who received no train- H Year I I Year 2 I Year 3 ing returned to criminal activity after they 43 Back were released compared with 23 percentof Recidivism Rate in Prison 49% vocational/academic students. (See Chart 2 42% on page 4.) 35% 35% Cost Savings 28% Because of the enormous costs of in- 21% carcerating each individual inmate, even a 14% modest change in the recidivism rate will 7% lead to substantial cost savings. In its August 1990 report, the State Auditor's Office esti- 1984 1987 Mated that for every offender who does Source: Criminal Justice Policy Council not return to prison, the state saves

3 Chart 2: $22,000 per stay.Furthermore, for Academic and Vocational Education every one percent reduction in re- vs. Control Group cidivism, 300 fewer offenders return to prison, resulting in the state avoid- ing incarceration costs of $6.6 mil- 50% lion. 45% 40% 35% 30% 25% 20% 15% 10)6 5%

Employment Criminal Rate Activity C3 Completed Academic & Voc. Ed. WEIDid Not Participate in Education Programs

Note:12 months after release Source: Illinois Council on Vocational Education, "Correctional Edu- cation: A Way to Stay Out"

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4 EDUCATION IN THE PRISON SYSTEM

Several levels of education are of- administer academic and vocational educa- fered to eligible inmates in Texas prisons, tion to prisoners. The Windham School from basic literacy instruction and prepa- System was created in 1969 and is operated ration for a GED, to advanced degrees. Voca- by the Texas Department of Criminal Justice tional education is provided at the second- (TDCJ), Institutional Division. The Windham ary and community college levels. School System is a separate school district Given the inadequate academic prepa- for the 43 correctional institutions that exist ration and high unemployment rate of the in the state prison system or will come on inmate population, education for inmates line in 1992-93. Currently, a school district focuses primarily on basic remediation, GED within the prison system appears to have preparation, and vocational training "to been accepted nationwide by corrections enhance the probability of an inmate be- educators as the most effective structure for coming gainfully employed upon release delivering education to inmates. from prison." In fact, inmates must receive The primary advantages of deliver- basic literacy instruction while in prison if ing corrections education through a school they cannot read and perform math on at district are that it ensures the same Texas least the sixth-grade level. Participation in Education Agency standards required of all vocational education is voluntary. public education and provides an ongoing Inmates typically go to school six funding source. The Windham School Sys- hours per day and usually hold a job.In tem is accountable to the State Board of Edu- 1990-91, of the 101,391 inmates who were cation for program quality and education incarcerated sometime during the year, 39 standards, and its programs are accredited percent participated in some type of educa- and reviewed regularly by the Texas Educa- tional program. Of those students, 13 per- tion Agency.Its teachers must hold the cent were enrolled in secondary vocational appropriate state credentials. education. In addition to teaching academic skills Funding and vocational competencies, the educa- The Windham School System receives tional curriculum in Texas prisons includes the bulk of its funding through the Founda- an added dimension, that of instilling in- tion School Program. A small allocation mates with "social skills that will provide from the federal Perkins Act is used to buy them with self-confidence and the ability to equipment, and vocational labs are financed interact successfully with their fellow man." through TDCJ's budget. In 1990-91, the state The vocational curriculum includes sessions spent $32.9 million on the Windham School on job search strategies, self-employment, System, which was slightly over two per- getting along with others, a; La substance cent of the $1.55 billion budget to operate abuse treatment and employment. the prison system in Texas, including con- struction costs (See Chart 3 on page 6.) Pioneering School Administration Texas pioneered the establishment of Governance a statewide correctional school district to The Board of Criminal Justice gov-

5 erns the Windham School System,and also TDCJ's three-fold mission. In its enabling serves as the policymaking bodyfor TDCJ. legislation, TDCJ is charged with: The Superintendent of Windham Schools Confinement of offenders as punishment reports to the Board through the Executive for their crimes; Director of TDCJ (See Chart 4 on page 7.) Rehabilitation of offenders to prevent The provision of academic and voca- them from returning to prison; tional education in Texas' correctional sys- Reintegration of offenders for a suc- tem is part of the rehabilitation functionof cessful transition into society.

Chart 3 Institutional Division Appropriations for the Year Ending 8/31/92

Education* 2.2% Support Services 8%

Administration 1%

Renovations & Construction** 43% Security 31%

Me

Ain mm

MM.

=WM 11 map. =wpm. 11.. Health ServiceF Private Prisons Industrial 8% 5% Programs 3%

*Does not include construction costs for vocational education labs. "Incudes funding for vocational education labs. Note: See Appendix B for explanation of funding categories. Source: 72nd Legislature, General Appropriations for 1991-92. 12 6 4 Chart 4 Organizational Chart

Governor

Board of Criminal Justice

Executive Director, 'Mg

Pardons and Director, Community Justice Paroles Division Institutional Division Assistance Division

Health Services Operations Finance

Superintendent of Windham Schools

Source:Texas Department of Criminal Justice, 1991 Annual Report.

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Success Stories right direction.I think I want to start a Correctional instructors face one of Mexican food restaurant." the biggest educational challenges today. "You know when I got out of high Their students are primarily the at-risk stu- school, I had nothing... It is like I was with- dents:high school dropouts lacking the out hope. Just the little education that I have most basic reading and math skills, who received here has helped me put away some have not responded well to traditional teach- things that have been bothering me over ing methods in public schools. They have the years, like, that I can't learn." poor morale and low self-esteem from a history of frustrating educational experi- Customized Curriculum ences.This educationally disadvantaged To address the challenge, the population must obtain the skills to be pre- Windham School System has designed a vo- pared to compete in today's workforce. How- cational education program tailored to the ever, Windham has a very limited time frame unique learning needs of its clientele and to improve the inmate's the short prison stays of skills. "I dropped out of many of the inmates.In The Council heard nu- high school in the particular, the Council merous testimonies from in- 9th grade. I found the following suc- mates about the difference received my GED... cessful components in corrections education made place in the Windham in their motivation totook a small business School System: change. Some of them indi- entrepreneurship Individually-based, cated that their educational course, and passed self-paced instruction; achievements in prison my test for college Competency-based, seg- were the first successes they entrance in niented vocational had ever experienced in Huntsville..I want to courses; school. The new-found de- start a mexican food Dedicated,well-quali- termination of three inmates fied teachers; restaurant." Curricular inclusion of with whom the Council spoke Inmate is expressed in their com- social skills, proper ments below: work habits and job search skills, and "Well I know that I am going to run other survival skills into the vocational into doors that are not going to be open to education program; me, and what I have learned here is going to Project RIO: a separate, active job search enable me to bounce off that door and go to program to help inmates reintegrate into the ones that will be opened to me and not let society. the one that is closed get me in a position to Both academic and vocational courses where I am ready to give up again." are taught on a non-graded, individual basis "I dropped out of high school in the to accommodate differences in students' ninth grade. I received my GED while here preparation and capabilities, and allow each in Huntsville.I received a small business student to proceed at his own pace.The entrepreneurship course. I passed my test competency-based, achievement-oriented for college entrance... I am going in the curriculum enables students to build confi-

8 14 dence by experiencing success within short ers in the Winhdam School system are cer- periods of time. tified by the State of Texas and hold the appropriate teaching credentials. Most of Course Selection the vocational teachers have industry expe- Vocational education courses should rience. be offered on the basis of viable career The Windham School System provides opportunities, relevance to a comprehensive training industries in Texas, and oc- "I live on the main program for its vocational cupational prospects. run...guys playing teachers, which includes Educational adminis- dominoes..right in innovative learning meth- trators select vocational front of my house ods specifically tailored to education program offer- the unique challenges of ings based on the following while I am trying to teaching school dropouts. information: current prison study." Inmate However, teachers with industries; Texas Employ- whom the Council met ex- ment Commission publications; Texas Busi- pressed thedesire for more "free world" ness Today; Texas Work Force 2000; the Texas professional development and for more con- Education Agency's list of priority occupa- tact with other vocational education teach- tions; and by consulting with an advisory ers. council composed of educators and repre- sentatives of business and industry.The Learning Environment Windham School System submits new course The Council heard many inmates ex- offerings through the Texas Education press the need for a quiet study space. Their Agency approval process as do other school cells are not conducive places for studying, districts. as this inmate explains: "I live on the main Windham uses the prison industries run which is adjacent to the day room area as possible training priorities.Although and have guys playing dominoes and chess some prision industries provide a good choice and everything else right in front of my for training, others such as computer key- house while I am trying to study." punching would not be appropriate for Most inmates who go to school also course selection standards due to available hold a job, so their study time is limited, positions outside the prison system. which complicates matters."There are so many people that aren't trying to do any- Dedicated, Caring Teachers thing, and they sit in the day room slam- The success of any educational pro- ming the dominoes and hollering. Really gram is dependent upon the commitment the only time to study usually is after work. and quality of the teaching staff.This is We work from 7:45 a.m. to 4:45 p.m. We have especially true when working with students to go eat and shower. If you have school, you who have experienced learning difficulties have to be there by 6:00 p.m. When you get with traditional teaching methods.All of out of class and study in your cell, well with the teachers with whom the Council met all the noise it is really hard." were dedicated to helping inmates raise their Another hindrance to effective study- self-esteem and succeed in school. All teach- ing is that for some courses, inthates do not 9 15 have access to textbooks outside of class. the Texas Department of Criminal Justice, Also, access to libraries can be very limited and the Texas Employment Commission to depending on the unit. Some inmates only help newly released inmates from prison have a few hours of assigned library time find work. Its purpose is to provide a link for per week. The need for a condusive learn- inmates between training and services while ing environment was apparent throughout incarcerated to training and job placement the prison system. in the local community upon release.In prison, the inmate develops an employment Reintegration of Offenders plan one year before release. Project RIO Transition services to help inmates services for ex-offenders upon release in- successfully reintegrate into society are clude orientation, a 20-hour job search work- offered through Project RIO (Re-Integra- shop, employment counseling, and employer tion of Offenders). Project RIO is a combined referrals. Participation in the program is effort between the Windham School System, voluntary.

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10 1. ACCESS

The Council found that, of the ap- Chart 5 proximately 37,000 inmates released from Impact of Vocational Education on Texas state prisons in 1991, only 8,588, or 23 the Prison Population percent, were ever enrolled in a regular secondary vocational education course while lfitt(lt in prison, regardless of how many times Out of they had been incarcerated. Only 5,482, or ft t t it it t25 Inmates 15 percent, received a certificate of partici- t tRtttl Released pation, which means that they acquired at least one occupational skill in a vocational tttt training program.For example, the air conditioning and refrigeration course is divided into four segments: tubing opera- tions, fundamentals of electricity, domestic refrigeration fundamentals, and fundamen- tals of window air conditioning. An inmate who achieves competency in at least one of 6 Enrolled in Second- those segments receives a certificate of par- ary Vocational Edu- ticipation. However, only 2,926, or 8 per- cation Courses cent, of those released completed all seg- ments of a 600 hour or six-month vocational education program.(See Chart 5.) The Council tried to determine why so 4 Received a Certifi- few inmates receive any vocational educa- cate for Learning One tion while in prison. Since vocational edu- Skill Area cation is voluntary for inmates, the low participation rate could be due to several factors, including short prison stays, lit- eracy skills, lack of vocational courses, se- 2 Passed All Segments curity, and motivation. of Vocational Educa- t ion Program(6 months of vocational Short Prison Stays education) Half of all state inmates in Texas now serve approximately 11 months behind bars, short tenure creates severe time constraints which includes the time they spend in county for vocational educators. jail awaiting transfer to prison. Jail back- Windham addresses the short time logs have led to some inmates spending as constraints through the use of segments or much as seven months of their sentences in clusters. For example, the six-month build- jail where vocational training is not avail- ing maintenance course is taught in four able.Since the regular secondary voca- segments: electrical, plumbing, painting/ tional courses are six months in length, this drywall; and window repair. These courses

11 17 were developed to meet theneeds of the in separate courses. Although studieshave majority of inmates who serve less than a not been done on the speed oflearning, it year. These six-month courses arefor 30 can be assumed thatincreased motivation hours per week. If an inmate completes all would speed up the learning process. segments a a course, he will receive600 hours of training. Lack of Lab Space The six-month course schedule will A male repeat offender said, "Well, I not meet the needs of those inmateswho signed up for a class and waited for almost a serve multiple years. Theycould be pre- year before I decided I wastired of waiting pared for more than entry-level positions, and so I went ahead and took a computer if they were allowed to take more in-depth class because parole said I had to take a training. vocational class before I could leave." The Windham School System does not Lack of Basic Literacy appear to have enough lab space to accom- The lack of basic literacy of many of modate the demand for vocational education the inmates entering prison exacerbates courses. Vocational classrooms aresched- the time constraint.Students must be able uled full-time, year round. For example, at a to function at a minimum academic level in unit which offers a welding program, two order to have a reasonable chance of suc- classes are scheduled in the shop every day. ceeding in a vocational program. An inmate In total, 260 secondary vocational courses who reads at a third-grade level, for ex- are offered in 50 occupationaltrade areas. ample, will soon fall behind in an auto me- With approximately 20 students attending chanics class if he cannot read the manual. each course, this gives Windham the capac- The prerequisite grade level that stu- ity to serve approximately 4,700 students, or dents must achieve varies with the pro- 10 percent of the prison population. gram, from a low of 5.5 for welding to ahigh It appears that many more students of 7.0 for drafting and electronics. Since 45 would like to take courses than Windham percent of inmates function below the sixth- can accommodate. Althoughthe Windham grade level, many inmates must complete School System no longer tallies the total remediation before they can waitinglistnumbers even enroll in a vocational ..."I signed up for a systemwide, reports by the course.This lack of aca-course and waitedforTexas Sunset Commis- demic preparation, com-almost a year before Ision and the State Audi- bined with the short prisondecided I was tired oftor found waiting lists stays, makes it difficult for waiting..." of 1,269 inmates in 1986 many inmates to receive Repeat Offender and 2,044 inmates in both academic and voca- 1990. tional education while in prison. Since lab space is not adequate to Many public schools are integrating accommodate everyone who wants to take a academic and vocational education to en- vocational course, Windham School System rich the learning process. They have found policy restricts eligibility for vocational edu- that combining these classes encourages cation to one secondary vocational course students to learn much more than they would and one post-secondary vocational course

12 3 per inmate. This is an understandable at- initially assign each incoming offender to a tempt to allocate training fairly by allowing unit. TDCJ receives 120 new offenders every everyone a chance to take one course before day at its diagnostic center.A series of others can take a second one. However, some interviews and tests are conducted to de- inmates may need an additional vocational velop a profile of each inmate, which is used course if there is a large gap between when to determine his custody level, or security they first received training and their date status. Neither academic nor vocational edu- of release. Repeat offenders who completed cation needs are considered in this process. a vocational course in a pre- No comprehensive vious prison stay may alsoAn inmate who tests aptitude/interest inventory need additional training. If at a 5th grade level is conducted to assess an they cannot update their oc- could be inmate's suitability for vari- cupational skills or practice placed...where only ous vocational programs. them on the job, those skills drafting is offered. Thus, vocational training will likely lapse by the time ...he can participate needs are not considered in they are released.Inmates the placement of inmates. who want to take additionalin remedial education When an inmate courses must request an ex- until he raises his reaches his unit, he is in- ception from the Superin-educational achieve-structed about the various tendent of Windham Schools. ment to a 7th grade vocational education pro- It is difficult to determine level to qualify for grams at that unit. He may how often these are granted. the course. also discuss his options with Waivers can only be granted academic and vocational to the extent capacity is available. guidance counselors who are assigned to the prison units.At some units, the Limited Choice of Courses ratio of guidance counselors to in- The Windham School System offers mates is 1,100 to one. At the , vocational education programs in 50 differ- the two counselors specialize, one in aca- ent trade areas, from welding and small demic and one in vocational education. In engine repair to drafting and electronics. essence, each counselor is in charge of the (See Chart 6 on page 14.)These vocational academic or vocational needs of 2,500 in- programs are available at 43 different prison mates. units throughout Texas. (See Texas Depart- An inmate may request a transfer ment of Criminal Justice Units of Institu- to a unit which offers a vocational program tional Division on page 16.)Because he would like to take. However, educators Windham cannot build 50 labs at each unit, and counselors indicated that transfers can some programs are offered at only one unit, be problematic. Inmates living on a unit like dental laboratory aide, while others are have first priority for courses offered at provided at more than one site. Welding, for their unit. The most popular courses, like example, can be taken at 10 different units. dental laboratory aide, are never filled from This system restricts an inmate's vocational other units because there are always in- education options. mates already living on the unit who are Classification is the process used to waiting to attend. In addition, such requests

13 Chart 6 Windham School System VocationalCourses

a.

§.b 0 0a0 .0 CO CO CO CO CCI 0 Air Conditioning & Refrigeration Auto Collision Repair & Refining Technician Automotive Specialization Automotive Specialization (Automatic Transmission) Automotive Specialization (Radiator Repair) Auto Specialization (Automotive Electronics) Barbering Bricklaying/Stonemason Building Trades Business Computer Applications Commercial and Industrial Wiring ,Comprehensive Home Economics* Construction Ca !pantry Culinary Arts CVAE Business Office Services* CVAE Cooperative Training CVAE Institutional Maintenance Dental Laboratory Aide Diesel Mechanics Drafting Electrical Trades Floriculture* Graphic Arts Horticulture Hydraulics & Pneumatics (Controls Technology) Industrial Electronics Circuit Board Repair) Industrial Equipment Repair Introduction to Construction Careers Machine Sho Machine Shop (Machine Tool Oper. CAD/CAM) Maintenance Mechanics Building (Facility Care) Major Appliance Repair Meat Cutting Microcomputer Applications Mill & Cabinetmaking Office Support Systems Outdoor Power Equipment & Landscape Mgmt. Painting & Decorating (Wall & Floor Trades) Piping Trades/Plumbing

Principles of Technology .d Remodeling - Interior & Exterior Retail Merchandising Sheet Metal Small Engine Repair Small Engine Repair/Motorcycle Truck Driving VEH General Construction Trades VEH Horticulture Related Vocational Electronics Welding 1 TOTAL 6 6 4 3 3 413 8 1 4 3 4 5 3 8 10, 5 3 4 3 6 2 5 2 3 3: 7 6 5

*For women only 14 20 Vocational Courses Continued

c >,,..e g -..-0e0>_c.e0 =the CD"CZa. T..,0EEEtIo.05.,-=--ttc,5 CO CO CO OS 0000..VhZ'mo>.o a.a.cCccccCCCCCCcocnco1I31 Air Conditioning & Refrigeration 6 Auto Collision Repair & Refining Technician 1 Automotive Specialization 12 Automotive Specialization (Automatic Transmission) 5 Automotive Specialization (Radiator Repair) 1 Auto Specialization (Automotive Electronics) 3

Barbering 1 Bricklaying/Stonemason 5

Building Trades 1 Business Computer Applications 6 Commercial and Industrial Wiring Comprehensive Homemaking Education* 1 Construction Carpentry 4

Culinary Arts 1

CVAE Business Office Services* 1 CVAE Cooperative Training 8 CVAE Institutional Maintenance 4

Dental Laboratory Aide 1 Diesel Mechanics 2 Drafting 6 Electrical Trades 10

Floriculture* 1 Graphic Arts 2 Horticulture 9 Hydraulics & Pneumatics (Controls Technology) 4

Industrial Electronics (Circuit Board Repair) 1

Industrial Equipment Repair ; 1 Introduction to Construction Careers 11

Machine Shop 1 Machine Shop (Machine Tool Oper. CAD/CAM) 2 Maintenance Mechanics Building (Facility Care) 9 Major Appliance Repair 7

Meat Cutting 1 Microcomputer Applications Mill & Cabinetmaking 5 Office Support Systems 2 Outdoor Power Equipment & Landscape Mgmt. 3 Painting & Decorating (Wall & Floor Trades) 4 Piping Trades/Plumbing 6

Principles of Technology 1 Remodeling - Interior & Exterior 2 Retail Merchandising 3 Sheet Metal 1 Small Engine Repair 3 Small Engine Repair/Motorcycle 2

Truck Driving 1

VEH General Construction Trades 1

VEH Horticulture Related 1 Vocational Electronics 4 Welding 10 T O T A L 2533423 33663 6183 4 Texas Department of Criminal Justice Units of Institutional Division

Amarillo

C;Ildresa

Lamesa Snyder

Abilene Fairfield / Tear: Rusk Wao Palatine Marlin Catrwilk Woodville Huntsvillelivingsj° Beaumont Nswots

S ;gar Land Galveston Hondo Angleto: Dilley

Abilene Area Beeville Robertson Unit Galveston Area Amarillo Area Hospital Unit* Catesville Area Angleton Area Catessille Unit Pampa Area Jordan Unit Ramsey 1, II, Ill Units Hughes Unit Retrieve Unit Polk County Area Hondo Area (Livingston) Beeville Area Torres Unit McConnell Unit Lamesa Arra Huntsville Area Smith Unit Rusk Area Childress Area Administration Building Roach Unit Eastharn Unit Marlin Area Ellis 1, II Units Hobby Unit Snyder Area Dayton Arra FerguAon Unit Daniel Unit Hightower Unit Come Unit* Navasota Area Pack I. 11 Units Sugar Land Area Dilley Area Wynne Unit Cent:al Unit Briscoe Unit Palestine Area Jester I, II, Ill Units Jefferson County Area Beto 1, II Units Fairfield/Teague Area (Beaumont) Woodville Area Boyd Unit Stiles Unit Michael Unit Lewis Unit

"'These units do not have vocational programs. Source: Annual Report for the Texas Department of Criminal Justice, 1991 22 16 must be approved by the classification com- Most units schedule classes in several shifts mittee, which take lower priority than trans- throughout the day. Work and school sched- fers for security reasons. ules were identified as a problem in discus- Some inmates also expressed reluc- sions with inmates and teachers. tance to transfer once they get settled into a According to policy, work assign- unit and have adjusted well there.If they ments will not interfere with training; how- feel secure with their living arrangements, ever, the Council heard conflicting reports including cellmate, and job assignment, they from inmates and instructors. are less likely to want to move for the uncertainty of a new "I am not going to Motivation environment. One inmate de- take the chance of The motivation levels scribed it this way:"I havebeing transferred toof inmates differ.In most been locked up for four years another unit for a units, school comes in addi- vnd have been in absolutelyvocational school nottion to their jobs and the ad- no trouble whatsoever. I am knowing what the ditional work does not seem not going to take the chancebosses are going to beworth the effort. The Coun- of being transferred to an- cil believes that it would other unit for a vocational like.I know I can strengthen the learning en- school not knowing what thesurvive right here..."vironment if every inmate Repeat Offender bosses are going to be like. I with an identified need for know I can survive righthere out of vocational education were encouraged to trouble." participate in vocational training. Inmates could be motivated by showing them the Security advantages of particular trades: salary level, The need of TDCJ to maintain security employment outlook, occupational setting, means that some inmates will be prohibited and the alternative life style promised with from participating in vocational education. work competence. Only inmates who maintain a minimum cus- The Council was pleased to find that tody level, or security status are eligible to parole officer& are beginning to require participate.Approximately 86 percent of that inmates with little or no occupational the inmate population at any given time skills gain some training as a condition of meets this criteria and thus is eligible to parole. However, demand cannot be stimu- participate, according to TDCJ officials. lated until Windham can serve all the in- mates who need and want vocational train- Work and Class Conflicts ing. The Legislature has mandated that TDCJ should be as self-sustaining as possible High School Graduates Lack Options through the operation of prison industries. A female repeat offender commented, Since nearly all inmates also hold jobs, work "If you have a high school diploma, you are schedules can conflict with classes.Also, unable to take certain vocational classes. some employment supervisors may not ap- Graphic Arts, I think, is a great class and I prove of school or inmates may not want to have been trying to get in.That is like give up a valued job in order to attend classes. discriminating against people who... well, ?3 17 it's like saying, you've got that education, postsecondary courses. Most inmates do not we don't want you to getthis one here." have the time to do the remediationneeded TDC,J and Windham Schools report that to attain college-level proficiency.Second- approximately 15 to 20 percent of inmates ary vocational courses, onthe other hand, are high school graduates.These inmates only require an inmate to attain aminimum 1 are not eligible -.() takeWindham secondary of a 5th grade academic level. This situation vocational education courses because creates a sizable obstacle forinmates who Windhamisfinanced "I took the college need to develop occupational through Foundation School skills in a short period of funds which are set aside for entrance exam, and time. secondary education only.failed the math. I put Many of these in- Therefore, state law prohib-school totally on the mates who need and want its the use of public school back burner." vocational training are thus funding for inmates who Inmate discouraged from receiving have already received a high school educa- it, as this inmate explains: "I wanted totake tion. Thus, high school graduates who are the small business course but couldn'ttake interested in vocational education can only it because I have a high school diploma.I take community college vocational courses. barely scraped through high school,and I The problem is that many of the in- took the college entrance exam, and Ifailed mates who are high school graduates are the math. I put school totally on theback functioning below a 12th-grade level and burner for awhile." thus are not qualified to take college-level Allowing all inmates to take avail- courses. If inmates cannot read at acollege able vocational courses would increase ac- level, they will not be successful in the cess to a wider range ofvocational courses.

24

18 POLICY COORDINATION

A correctional school district, such as tional training, as part of TDCJ's mission to the Windham School System, allows control rehabilitate, must be coordinated with its over instructional programs to beplaced in mission to be as financially self-sustaining the hands of educators, and not the correc- as possible through the operationof prison tions staff.This arrangement results in industries. To maximize access to vocational adherence to minimum educational stan- education, classes must be coordinated with dards, stateivide teacher certification and inmates' schedules for working, sleeping, preparation requirements, an ongoing eating, medical services, and substance- funding source for instructional programs, abuse treatment programs. and systemwide policies established by a school board.In other Job Assignments words, it gives the quality "Correctional school Inmates may not have of education to inmates that districts should not the opportunity to immedi- is provided toother stu- be viewed as a ately apply the skills they dents. panacea. They are have learned in class to jobs However, because only as good as they in the "free" world. Comple- correctional school dis- are permitted to be."tion of vocational education tricts operate within prison Dr. Osa Coffeydoes not necessarily coincide walls, they do not have com- with an inmate's release date. plete control over all aspects of service de- Thus, coordination of prison job assignments livery, such as access or independent sources with vocational training received while in of revenue, like regular public school dis- prison is an essential component of an ef- tricts. As Dr. Osa Coffey, a leading expert in fective vocational education program for the corrections education fieldhas said: inmates. "Correctional school districts.., should not The Council found no systematic at- be viewed as a panacea. They are only as tempt to coordinate prison job assignments good as they are permitted to be by the with inmates' vocational training or em- Department of Corrections, the State Educa- ployment histories. Although __mates said tion Agency, the state legislature and the they were asked about their work back- Governor's Office." grounds when they first arrived at the re- ception center, there appeared to be little Reliance on Coordination connection between the jobs they eventu- In the State of Texas, the Windham ally received and their previous work expe- School System must rely on policymakers rience or vocational education. It appears for effective service delivery: the Legisla- that the assignment of jobs is driven at least ture for funding its vocational labs through in part by logistical consideratior,In- TDCJ's budget; the Governor for appoint- mates are placed in jobs after they arrive at ments to its school board; the Board of Crimi- their unit, where they have been sent based nal Justice and TDCJ for coordination of its on their custody level. educational program with TDCJ's other op- Many inmates expressed discourage- erations and mandates. For example, voca- ment with the lack of coordination between

19 25 their vocational education trainingand dinate them with vocational training. prison job assignments. They were con- cerned that they would lose the skillsthey Long Range Plan learned in class by the time they got outof In the coordination of vocationaledu- prison, especially for those who had abig cation between TDCJ and the WindhamSchool time gap between training andrelease. In System, the Council found there waslack of the words of one inmate:"If you take a a comprehensive,long-range plan regard- course, and you graduate, youdon't get any ing vocational education for inmates. gratification for it. You go through a trade First, there is no measurement of the school and you learn the trade and they stick magnitude of need for vocational education you washing someoneelse's underwear. among inmates. Althoughit appears that Well, two years later when you get out, you most inmates can useoccupational skills don't remember anything." development, there is no documentationof Another inmate said getting the edu- that need. Standardized achievement tests cation without applying it on thejob is are adm*nistered to all inmatesto determine futile: "I could take a course, but you know, their level of educational attainment,but no after I finished the course it was like,I similar systematic assessment ofinmates' might get out four years later... Well, I occupational skills is undertaken. couldn't remember what happened... There Secondly, although Windham keeps ain't no sense taking a course track of the number of par- and getting out five years "If you take a ticipants in vocational edu- later...You need some kind course ... youdon't cation in a given year, nei- of job-related thing. If I amget any gratification ther Windham nor TDCJ going to take a course, let me for it. You learn looks at the inmate popula- work at it.Otherwise, don't a trade ... andthey tion as a whole to deter- even offer the course." mine how many offenders Tying jobs in the stick you washing receive training before prison system to vocational someone else's they leave prison. underwear." Finally, there is no training can motivate in- Inmate mates to receive training and systemwide analysis of rea- could allow them to gain mastery in the sons why inmates are notreceiving train- occupational area.Some of the vocational ing. Thus, it is hard to get a comprehensive programs do have direct accessinto indus- picture of who needs vocational training, try areas. For example, weldersfrom the who receives it and who does not, and how to Beto units go directly to class and begin best serve their needs. making dump trucks. The Council found far Without a more concrete assessment too little of this coordination. of the vocational needs of the inmates, the The Council understands that TDCJ Windham School System must determine maintains a data base of inmates' past jobs funding requests and course selections in- and vocational training histories. Windham crementally instead of based on inmate School officials said this "Inmate Job Man- needs. In addition, TDCJ cannot justify fund- agement System" is not being used to track ing requests for vocational labs based on its inmates' placements in jobs or used to coor- mandate for rehabilitation.

20 Accountability and Follow-up prepares students to get jobs in the field in Coordination between the Windham which they are trained. School System and TDCJ will be strength- The Perkins Act requires states to ened when effective evalu- meamre employment and ation of academic and vo- Vocational graduatescompetency gainsof their cational education for in- are not followed aftervocational education mates is in place. There are they are released to completers and to set stan- two essential components determine whether dards which they must strive to F uch an evaluationem- the training was toreach. Presently, ployment and recidivism. sufficient to obtain aWindham does not have a First, employment job. mechanism to measure "real outcome measures of voca- world" employment out- tional education participants can help the comes. They do not follow their vocational Windham School System evaluate the qual- training graduates after they are released to ity of vocational education programs. The determine whether the training received is Windham School System, as a school district, sufficient to obtain a job. currently defines its goals and measures Second, recidivism rate measure- performance objectives in educational ments of vocational education participants terms: numbers of students enrolled in would enable TDCJ management to evaluate academic and vocational courses, the aver- whether vocational education is contribut- age hours of participation, grade-level gains ing to its overall mandate to rehabilitate on standard achievement tests, literacy test offenders. Determining the impact voca- scores of participants, pass rates for the GED, tional education participation has on re- and the number of vocational certificates cidivism can be an important tool to justify issued. While all of these measures are vocational education funding levels. Costs useful, ultimately, the best evaluation of a could be easily compared to the savings from vocational education program is whether it reductions in recidivism. "WM=

CONCLUSIONS AND RECOMMENDATIONS

Governor Ann Richards acknowl- to you. It tends to make you toocomfortable, edged the importance of vocational educa- without responsibility, and this is uncon- tion in reducing the recidivism rate in her sciously. When you get out of the peniten- 1992 statewide vision and plan for the State tiary, a lot of times responsibilities will be a of Texas. One of her objectives is to "reduce shock to you." recidyism through substance-abuse pro- The Council supports proponents of gra&s, education, and vocational training." the argument that vocational training has a The Council agrees with Governor direct impact on recidivism.It is vital that Richards. Offenders should accept the con- all men and women in Texas prisons who sequences of their crimes, and at the same have little or no occupational skills receive time, they should take responsibility for sufficient vocational education while they reforming their lives.Investing in pro- are incarcerated so that they can have a grams that address the issues thatcontrib- viable option to pursue a productive life. ute to criminal activity They should have access to such as illiteracy, unem- A goal for Texas is to vocational education and ployment, lack of market- "reduce recidivism should be encouraged to able job skills, and sub- through substance- take advantage of the op- stance abuse, can teach in- abuse programs, edu- portunity. Offenders who mates the responsibility cation, and vocational cannot compete in the la- they need to become law- training." bor market when they re- abiding, taxpaying citi- Governor Ann Richards turn to society and remain zens; and thus, prevent unemployed are more some ex-offenders from returning to crime. likely to resort to crime and consequently For management to provide a learn- return to prison. ing environment for inmates in prison is The Council and the public are con- not easy. In fact, the inmate finds it a lot cerned about high crime rates and such harder to pursue an education and occupa- fundamental concepts as the need to make tional skills than just "doing time." One of our streets safer.Since 95 percent of in- the inmates with whom the Council spoke, a mates eventually return to society, the pub- repeat offender, described-the prison envi- lic pays a high price when there is con- ronment in this way: "Being incarcerated tinual recycling of offenders through conditions you to be irresponsible. Before I prison.In fact, because it is so costly to came to the penitentiary, I had a home, a car, house one individual for a year, a small a family, a wife, and a job. I had to cutthe reduction in the recidivism rate can result grass and wash my clothes and do different in substantial savings. tasks around the house.Well, when you Many factors make the task of pro- come to the penitentiary, you don't have to viding vocational education to inmates par- wash your clothes, you don't have to pre- ticularly difficult. The constraints of the pare your meals, and really you don't have corrections setting, the nature of the prison to do too much. You don't have to worry clientele, the explosive prison growth, and about maintaining a job because they give it requirements of the Ruiz court decision 9 22 which have created enormous budgetary and more money on building and operating and management challenges, all limit the prisons, the Council members can under- effectiveness of service delivery of correc- stand, as taxpayers themselves, the reluc- tions education.These hurdles make the tance to fund any additional expenditures. efforts and successes of the Windham School Ine escalating prison population and the System especially commendable. However, succession of bond proposals approved by the Council seeks to address the need fora the voters to build new prisons attests to the compatible learning environment to sup- willingness of Texas citizens to address the port vocational education objectives. But it problem.Since academic and vocational will require different thinking about the education can reduce the recidivism rate, role of prisons and an alteration of the the money spent on comprehensive pro- structure of the prison system. The recom- gramming is an investmentin lowered crime mendations proposed in this report are an and incarceration costs. attempt to make improvements to this situa- As former Chief Justice Warren tion that affects all taxpayers. Burger has said, "We must accept the reality One of the chief constraints in being that to confine offenders behind walls with- able to provide the quality and level of cor- out trying to change them is an expensive rections education recommended in this folly with short-term benefitsa 'winning report is funding. As the state spends more of battles while losing the war.'"

23 29 Recommendations Rationale The Department of Criminal Justice 1. Implement a comprehensive, long-range plan that will identify does not have a sZrategic plan that identifies the need for vocational training, de- vocational education needs or how those velop training strategies for inmates needs will be met. Without this type of plan, serving both short and long sen- the organization cannot meet its missionof tences, identify strategies toenable rehabilitation. inmates to obtain employment upon The Texas Education Agency should release, and develop methods to cre- assist in the development of the planby for in- providing information on priority occupa- ate a learning environment tions, career guidance, and the integration mates. of academic and vocational education. The planning process should include Made To: Texas Department of Criminal Justice the entire criminal justice management Windham School System team. Texas Education Agency Inmates are currently waiting to be 2. Expand lab space to be able to offer more vocational courses to meet admitted to vocational courses, by some re- the demands. ports, as many as 2000.

Made To: Legislature Texas Department of Criminal Justice Windham School System Vocational labs are placed across the 3. Establish a system of Regional Education Centers at designated units 47 prison units in the State. Labs are dupli- where clusters of vocational training cated throughout the system. Some inmates programs would be located andwhere have access to several courses while others students may be transferred, with have only one choice. Education is usually priority given to offenders who are a low priority at the institutions.The prison within one year of release. These can environment is not conducive to learning. begin as pilot projects The Florida Correctional Education School Authority prepared a cost estimate of establishing a vocational education center Decision Maker Responsible: housing 16 vocational disciplines. The cost was approximately $3.7 million in1988 ( See Legislature Appendix C for Florida cost estimates.) Texas Department of Criminal Justice TDCJ has already set up a center with Windham School System a therapeutic focus at the privateprison in Kyle, Texas, which could bemsed as a model. (See Appendix D.) 24 Recomendations Rationale

There is no data to prove or disprove 4. Design and implement a follow- that the Texas Department of Criminal Jus- up system to track the employment tice is accomplishing its mission of reha- and recidivism rates of vocational bilitation.In general, we know that educa- education certificate holders and com- tion has proven beneficial in increasing pare them to a control group or all of employment and reducing recidivism. Plan- the non-participants. ning and coordination could be greatly in- creased with the information provided by a Made To: follow-up system. Windham Schools The Texas Department of Criminal Texas Department of Criminal Justice Justice should work with the Windham Texas Education Agency School System and the Pardons and Paroles Division to implement this system. The Texas Education Agency should work with Windham as they begin to explore the Un- employment Wage Record Data System.

Inmates do not receive a comprehen- 5. Develop a more systematic pro- sive list of the vocational education courses cess for placing inmates in voca- offered, including:a description of the tional education, including interest/ course, the work setting that an inmate could aptitude inventories and labor mar- apply the training to, current wage levels, ket information. and employment outlook. Their decision making is based on their own knowledge of Made To: the work force and not on current labor Texas Department of Criminal Justice market data. There is no systematic proce- Windham School System dure for matching inmate interests and ap- titudes with vocational programs.

Placing inmates in jobs which corre- 6. Provide a more systematic pro- spond with their vocational training and cess to better integrate vocational skills would enable inmates to use the voca- education and prison jobs. tional skills they learn or practiced in the "free world." The coordination of training Made To: and jobs can act as both a motivation for Texas Department of Criminal Justice receiving education and a place to develop mastery of a set of occupational competen- cies. TDC,j should consider bringing in prison industries that correspond with vo- cational education programs possibly through contracts with the private sector.

25 3i Recommendations Rationale Windham School System Inmates who have not attained a 12th 7. Allow Foundation School Fund grade functioning level but did graduate allocations to be made to Windham to from high school have very limited options provide vocational education to in- for training in the prison system. Most do mates who have graduated from high not have time to receive extensive school. remediation needed to successfully compete in a community college course. They do Made To: need vocational training.The Windham Legislature School System receives funding from the Foundation School Program which can only be used for individuals who have not re- ceived a high school diploma. This policy limits access to available vocational pro- grams.

All exceptions to the restrictions on 8. Shift the authority to make ex- additional vocational courses are made at ceptions to the "one-vocational the superintendent's level. Educational ad- course" rule downward to the level of ministrators who are closer to the students principal and regional supervisor. and more familiar with their needs, educa- tional backgrounds, and course enrollments, Made To: are more qualified to make judgments re- Windham School System garding capacity to serve inmates.

3r

26 Appendix A Topics for Future Study

Post-secondary vocational programs, which are administered through contracts with community colleges;

Educational service delivery and effectiveness in the private prisons, which are operated by corporations through contracts with the state;

Vocational education for youth in juvenile detention facilities;

Educational programming for the specific needs of women in correctional institutions;

Parole education component;

Apprenticeship programs in the prison system. Appendix B Funding Categories

The funding categories Division Administration, LegalExpenses, and Payments to County Prosecutors are grouped together as one in Chart 3;

The funding categories Contracted Capacity andOperation of Additional Capacity are grouped together as one in Chart 3;

The funding categories Renovation, Repairs, and MinorConstruction and Construction of Additional Capacity are grouped together as one in Chart3;

Industrial Programs entail prison industries;

Most of the funds under Contracted Capacity are forcontracted private prisons;

Construction of Additional Capacity entails new prison construction.

34 28 Appendix C Estimated Costs for Correction Vocational Technical Center

The following are estimated costs in creating a facility dedicated to vocational technical education for the Correctional Education School Authority. These costs indude building construction at $50.00 per square foot, classroom furniture and laboratory equipment, administration office furnishings and personnel salaries: VOCATIONAL CLASSROOMS AND LABORATORIES 40,300 square feet @ $50.00 per square foot $2,015,000.00 Administration Offices 3,800 square feet $190,000.00 TOTAL $2,205,000.00 CLASSROOM AND LABORATORY EQUIPMENT Student desks, chairs, carrels, file cabinets teacher desks, storage cabinets, etc. - 8 @ $9,500.00 per classroom $ 76,000.00 Laboratory 16 @ $50,000.00 per laboratory $800,000.00 Ten station Individual Manpower Training Stations1 @ $8,000.00 $ 8,000.00 Library1 @ $15,000.00 $ 15,000.00 Testing laboratory - 1 @ $12,000.00 $ 12,000.00 Life Skills classroom 1 @ $12,000.00 $ 12,000.00 TOTAL $ 923,000.00 ADMINISTRATION OFFICE FURNISHINGS Education Program Manager $ 2,000.00 Vocational Counselor $ 1,800.00 Librarian $ 2,500.00 Secretary $ 2,500.00 Conference room $ 6,000.00 TOTAL $ 14,800.00 PERSONNEL SALARIES INCLUDING FRINGE BENEFITS Educational Program Manager (1) $ 30,000.00 Vocational Counselor (1) $ 24,000.00 Librarian (1) $ 25,000.00 Vocational Instructors - 16 @ 25,000.00 $ 400,000.00 IMTS Instructor (1) $ 25,000.00 Life Skills Instructor (1) $ 25,000.00 TOTAL $529,000.00 Vocational Classrooms and Laboratories Construction $2,205,000.00 Classroom and Laboratory Equipment $ 923,000.00 Administration Office Furnishings $ 14,800.00 Personnel Salaries $529,000.00 GRAND TOTAL $3,671,800.00

29 35 Appendix D Therapeutic Community: New VisionChemical Dependency Treatment Facility During the Council's tours of the state prison system,several Council members had the privilege of visiting the New Vision Chemical DependencyTreatment Facility in Kyle, Texas. The Council did not visit Kyle to make any comparisonsbetween public and private prisons, but was interested in the programs atthe because they focus on the rehabilitation and reintegration missions of the Texas Department ofCriminal Justice. The Kyle unit serves inmates with chemical dependency problems. Texasdiscovered, like many other states, that drugs are an integral part of criminal behavior. The DrugUse Forecasting (DUF) studies conducted in 20 major cities in 1988 found that the percentage ofmale arrestees testing positive for any drug ranged from 54 percent to 83 percent (NationalInstitute of Justice, 1990). Texas decided to combat this problem by establishing a chemicaldependency treatment facility. The Wackenhut Corrections Corporation, a private prison system, bid onthe proposal and received the contract. The New Vision Facility opened June 28, 1989. New Vision takes a holistic approach to chemicaldependency treatment. Inmate problems that lead to drug abuse may include thinking process, values,occupational and/or educational functioning, and interpersonal skills as well as spiritual issues.Recovery encompasses learning how to live comfortably and contentedly as responsibleand productive members of the community. The facility concentrates on thehabilitation of residents by stressing basic educational, vocational and pre-employment training, lifeskills training and chemical dependency treatment. "Habilitation" means intervening with treatment sothat inmates can leave in better shape than when they arrived, where rehabilitation meansto "restore to a former state." The New Vision facility houses a small population, only one-fourth toone-fifth the size of the units in TDCJ, which makes institutional maintenance requirementsless onerous. Neverthe- less, the inmates and staff with whom the Council spoke indicated manyother aspects that make the habilitation function work. Warden John Bonner is stronglycommitted to this philosophy and has promoted it throughout the staff.All employees must attend an orientation and ongoing workshops. Inmates too, who are called residents, mustshare this vision. Only people who volunteer to participate in the drug treatment program can stay atthe facility. They must sign a contract agreeing to treatment. Any resident who lacks thiscommitment is transferred. The residents reported that one of the most gratifying aspectsof being on the unit was being treated with respect. The facility is not "soft" on criminals, as Warden Bonneris quick to point out. He emphasized that treatment is harder than just"doing time." The Kyle unit offers adult basic education, GED courses, acomputerized learning systems network, life skills, decision-making skills, street law, college coursesand five vocational programs. Vocational offerings include ComputerSystem Configuration Technician, Spread- sheet Technology, Basic Office Automation Technology, DesktopPublishing and Word Process- ing, and Horticulture/Landscaping. Vocational courses areprovided by the Microcomputer Technology Institute, a private vocational school. Funding is provided byPell Grants and the funds provided to the Wackenhut Corporation for education. Inmates areallowed to take as many vocational courses as they can fit into theirschedule. Most inmates receive four hours of academic and/or vocational programs daily.All teachers are certified. An Employment Advisory Board, consisting of leaders from businessand industry, assists and offers input into the design and development of vocational skills and courses.Kyle held an Employment Fair in October 1992 to allow corporations, companies and agencies tomeet

o t)r. 30 prospective employees within the institutional setting. Inmates learn Joh acquisition skills to assist them in the transition from incarceration to free-world placement. The Council was pleased to see the programs at the Kyle unit because they believe a regional education center, with a holistic focus, could be very successful at habilitating and reintegrat- ing inmates. TDCJ already has experience with this type of method, with fewer vocational offerings.

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Texas Council on Vocational Education P.O. Box 1886 Ausin, TX 78767 (512) 4635490

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