Rebuilding Lives. Strengthening Communities

Rebuilding Lives. Restoring Hope. Strengthening Communities.

BREAKING THE CYCLE O F IN CARCERATIO N AND BUILDING BRIGHTER FUTURES IN CHICAGO

FINAL REPO RT O F THE MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY

JAN UARY 2006

CITY OF CHICAGO • RICHARD M.DALEY,MAYO R Table of Contents

Message from the Mayor 1

Introduction 3

Chapter 1: Employment 14

Chapter 2: Health 44

Chapter 3: Family 66

Chapter 4: Community Safety 84

A Note of Thanks 107

List of Participants 108

List of Special Guests 110

Endnotes 112 Message from the Mayor

The issue of prisoner reentry has taken on new urgency in recent years, as tens of thousands of These individuals have formerly incarcerated individuals have returned paid their debt to to our city seeking a fresh start. For too long, society and are the challenges facing these individuals were looking forward to largely ignored. But recently, the City of contributing to their Chicago convened the Mayoral Policy Caucus on families and neighbor- Prisoner Reentry, a groundbreaking effort to hoods as law-abiding, bring together government and community hard-working, tax- leaders, business owners and executives, paying citizens. They are entitled to be treated foundations, social service professionals, policy fairly in issues of employment, education, health advocates and people with criminal records to care, housing and all other areas of daily life, and discuss better ways to prepare and assist we should not hesitate to make sure that they formerly incarcerated individuals as they try to have the necessary tools to succeed. lead positive and productive lives. This report is the result of those discussions. The fact is that when people with criminal records succeed, we all succeed. O ur families, The dimensions of the problem are clear. This our neighborhoods and our city’s economy all year alone, more than 21,000 people will return benefit when formerly incarcerated individuals to Chicago after their release from prison. Many achieve their independence and lead healthy, will return to their same neighborhoods, often responsible, crime-free lives. W ith more and jobless, without a place to live and lacking the more men and women coming to our city after basic skills they need. Few receive any help in their release from the criminal justice system, turning their lives around. W e need to promote we must all do a better job at recognizing their and develop concrete, pragmatic measures that special challenges. The recommendations in this will address the challenges they face every day. report are a critical first step in that process.

W hen we talk about lending a hand to these I commend all the members and participants in

individuals, we do so always with the under- the Mayoral Policy Caucus on Prisoner Reentry M standing that some have committed serious for their hard work and tireless effort on this AYO RAL crimes. Their problems often are not high on important issue. Thank you for making a lasting P most lists of priorities. And there are certainly contribution and for making Chicago a better, LICY O citizens who believe that these former criminals safer place to live for all its citizens. do not deserve our attention or concern. C UU N O AUCUS

But the approach we have been taking has not worked. If we expect the 14-year drop in our P city’s crime rate to continue, if we expect to ER RISO N keep our city strong and growing,we must make a renewed commitment to successfully reinte- Richard M. Daley R EEN TRY grate the formerly incarcerated into our com- Mayor munities. 1 “It’s“It’s beenbeen saidsaid thatthat aa personperson cancan livelive aboutabout 4040 daysdays withoutwithout food,food, threethree daysdays withoutwithout water,water, eighteight minutesminutes withoutwithout airair ...... butbut onlyonly oneone secondsecond withoutwithout hope.”hope.” –Anonymous–Anonymous MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 3 15 t. s in s n in from more ole— ransi- ber of prison 2003, iduals) s loadss an 500an to the mploys e e state’s as well. as gned for est city in est ison popu- If they were they all If To keepTo up with 11 Yet Illinois prisons Yet 19 12 recently pointedrecently out,is that Based on current estimates, moreon Based estimates, current 16 18 14 Chicago Tribune Chicago Illinois currently has 27 has Illinois currently correctional facilities, 20 As the the As 13 17 this growth, the state built an average of one built average an growth, this new state the between every year 1980 and 2000. placed in one location, would it be secondthe larg state. the lation soar in the last 301970 Between in soar lation last years. the and Following pr seen its Illinois trends, has national Illinois the prison population byincreased more th seven work camps, two boot camps, andt adult eight andoperating centers tional e throughout state the percent, from 7,326 to 43,418 prisoners. 14,000 to oversee secure ofthe detainment staff th convicted prisoners. Add up peoplethe all under correctional supervisio Illinois— those behind onbars, probation, or on par and would figure the 244,000. surpass Meanwhile, Illinois has seen its prison Meanwhile,seen its rise Illinois exits has Withinfromfew a years, just 2000 to 2003, numthe people prisons fromjumped released Illinois state 28,876 to 35,372— of increase an more 22 than percen released from Illinois prisons released all in 2001 returned City of Chicago alone. Approximately 53 percent of prisoners (15,488 indiv enough “to about United the Center, fill 10 city bu rolling in each week.” 2005. than 21,000than within city the will limitsettled have are more are overcrowded today were they in than 1980; 44,000than housed prisoners desiare in facilities 32,000. 8 on cs, als for The deral uring e e and 1 1980, crease erms. ericans ly ly three ds— one or feder- confine- lion indi- ple. attention This This year, ndividuals, 6 itutions has itutions At least 95 least percent At of This This number does not 5 7

4 10

If this current rate remains unchanged, remains nearly rate current this If 3

The use of probation and explodedparole has to According to the federal Bureau of Justice AccordingStatisti of Justice toBureau federal the 2 9

Introduction even include millionsthe who will upfinish t jail one in 15 persons born in 2001 will be imprisoned d orhis her lifetime. 650,000our nearly prisonscountry’s will release i from increase an 170,000 in 1980. correspond more 4.1 than statistics; milwith these And go all they in and come most than Am out faster years. were viduals on probation and another 765,000 were endthe parole at of 2004— percent in three almost a inone just year. realize; the average felony sentence approximateaverage the is realize; prisons; in 2003, 1.4 were nearly there million peo Most Americans are quite familiar with our quite penchantfamiliar Most are Americans we talk aboutwe andtalk one we don’t. putting people into prison. The number of individu over were just there 300,000 people and fe in state Every year, the United States sets two sets prison recor United the States year, Every incarcerated in state and federal correctionaland federal inst in state incarcerated decades.exponentially risen three in past the In al prison.al about 5.6 million served have time in state adults all state prisoners will be released at someprisoners will at be point. released state all But mostor typically paid have Americans no But little to people coming back from prison. federal prisonsfederal with andlocal other types jails of ment.

total nowtotal exceeds 2.2 million when you combine stat The Reality of Reentry So What? For many Chicago citizens, one initial response to these statistics may be total shock. Another possible response may be “so what?” These individuals broke laws. They bought drugs, sold drugs, stole, cheated, beat, raped, robbed, murdered, assaulted, vandalized, embezzled. The thinking may be, they did the crime, they do their time, they get out. That’s the price they pay. But there is an emerging sense that there also is a price being borne by society.

Money with a few dollars and the clothes on their backs. Many landlords will not take them. Many employers will not Incarceration carries a huge price tag for taxpayers. In hire them. Many probation officers and parole agents can- Illinois, it costs approximately $22,000 per year per adult not help them. Families, friends, and neighbors may not prisoner and $60,000 per year per youth welcome them home. Health care, treatment, counseling, prisoner.21 By comparison, the state’s poorest school and job training programs are limited. With no money, no districts spent just $4,964 per pupil in 2004.22 The total job, no housing, and little support, their futures seem amount spent by Illinois on the state prison system has bleak. Against such odds, chances are they will return to risen by more than 300 percent from just over $377 a life of crime. Of course, some with exceptional desire, million in 1980 to $1.3 billion in 2000.23 Today, one of skills, or support systems may reenter society with a will every 20 dollars in the Illinois general revenue budget is to do the right thing, surmount all obstacles, and succeed. spent on corrections.24 However, these figures only Unfortunately, most will be unprepared, make bad scratch the surface. Many other costs are attached to decisions, succumb to old behaviors, commit a new crime incarceration, like the personal and financial costs of the or violate the terms of their release, and return to prison. crime itself, the costs of investigation, arrest and prosecution, the cost to the victim and the victim’s family, and the potential costs for the welfare and foster care systems.

Outcomes

It is not clear what impact spending this enormous amount of money has had. There has been a marked drop in the crime rate over the last several decades, and indeed, some crimes may be prevented simply by keeping people who break the law off the street. However, it is difficult to measure the correlation between higher lockup rates and lower crime rates.25 Furthermore, time spent in a correctional institution, by itself, does not necessarily deter former prisoners from getting into trouble again. Two-thirds of those released from prison are rearrested within three years of their release, a percentage that has

E TRY EEN not improved in the past 30 years.26 More than half are R reincarcerated.27 Still, resources are continually spent on the current system without adequately demonstrated RISON ER

P returns on the investment.

Safety AUCUSON

C One of the most troubling aspects of incarceration is that far too many individuals leave prison or jail worse off than OLICY

P when they went in. A criminal justice system that has not prepared incarcerated individuals for life outside of prison has failed not only them, but also the public at large. Y RAL AYO

M In Illinois, men and women who are released from the 4 state correctional system leave their cells for the last time Communities Race

Too many communities are devastated by prisoner reentry. It is impossible to discuss prisoner reentry without men- A large number of prisoners return to a small number of tioning race. Simply put, most of the people sentenced to neighborhoods. Communities in Chicago bear the brunt prison are black.34 The disparity of incarceration rates by of this situation. More than half of all prisoners released race is stark: black men are about seven times more like- from Illinois prisons in 2001 returned to Chicago, and 34 ly to be incarcerated than white men, and black women percent of these individuals returned to only six of are about four times more likely to be incarcerated than Chicago’s 77 communities.28 Many of these communities white women.35 On any given day in 1995, the Sentencing are already strained by crime, drugs, gangs, poverty, Project in Washington, D.C., discovered that nearly illiteracy, homelessness, and unemployment. People in one-third of black men in their twenties across the these communities may want to help steer formerly incar- country were under the supervision of the criminal justice cerated individuals onto a more positive course, but they system— either behind bars, on probation or on parole.36 often do not have the resources to do so. Communities are If current incarceration rates remain unchanged, the not insulated. When one community experiences lack of Bureau of Justice Statistics reports that nearly one in three opportunity or hope, neighboring communities are black males are expected to enter the prison system at impacted and the entire city may feel the effects. some point in their lives compared to one in 17 white males, and one in 19 black females compared to one in Families 118 white females.37 In Illinois, where 15 percent of the state’s population is black, 61 percent of the state’s prison- 38 Rising incarceration rates for men and women impact par- ers are black. The state’s incarceration rate for blacks was 39 ent-child relationships, networks of familial support, and 1,550, compared to 127 for whites, per 100,000. the emotional, psychological, developmental, and finan- A stream of African-Americans are filling our prisons . . . cial well-being of millions of children across the country. and then coming back home. Between 1991 and 1999, the number of children with a parent in a state or federal prison increased by more than Invisible Punishments 50 percent, from approximately 900,000 to 1.5 million.29 In 1999, 10 percent of all minor children across Punishment is not over when individuals fulfill the the country— a total of 7.3 million children— had a parent obligations of their prison term or mandatory supervision. in prison or jail, or on probation or parole.30 In 2001, There are many “invisible punishments” that continue to more than half of the 1.4 million adults incarcerated in plague prisoners long after. Both the federal and state state and federal prisons were parents of minor children,31 governments have enacted a number of laws that create with mothers more likely to have been the primary care- practical barriers for individuals with criminal back- giver to children than fathers. After states across the grounds to access public benefits, housing and education, nation began implementing mandatory sentences for drug and make it more likely that these individuals will return offenses in the early 1980s, the number of incarcerated to a life of crime.40 Licensing and employment restrictions women grew from 410,300 in 1986 to 852,800 in 1996— also may hinder these individuals in their attempts to an increase of more than 100 percent in just 10 years.32 obtain legitimate, better-paying jobs. So the very avenues M

Children of incarcerated parents are six times more likely that many released prisoners could use to straighten out AYO RAL than other children to become involved with the criminal their lives are stripped away. Plus, general and pervasive justice system.33 societal stigma may simply envelop them as they strive to P become productive, law-abiding members of LICY O communities. Today, a criminal record functions like a C

“modern-day scarlet letter,” ensuring that formerly incar- N O AUCUS cerated individuals are saddled with what The Economist once called “The Stigma That Never Fades.”41 P IONER RISO N R EEN TRY

5 The Evolution of U.S. Criminal Justice Policies Over the Past 30 Years

1974 After studying rehabilitation programs across the country, sociologist Richard Martinson concludes that “nothing works”— prisoners can’t be rehabilitated.

1976 Sixteen states, including Illinois, vote to end discretionary parole, making it more difficult for prisoners to receive sentence reductions.

1 9 8 0 s The use of crack cocaine skyrockets, and the war on drugs begins.

1984 The Federal Sentencing Reform Act imposes mandatory sentences for specific crimes, ensuring that prisoners will serve longer prison terms and taking away the ability of federal parole boards to release prisoners early.

1986 The Anti-Drug Abuse Act appropriates $1.7 billion to fight drug crimes by building new prisons, educating the populace about drug use, and treating drug users. The bill also sets minimum sentences for drug offenses.

1993 The State of Washington passes the first “three strikes and you’re out” law; by 2004, 26 states and the federal government have laws mandating life sentences after three felony convictions.

1994 The Violent Offender Incarceration Act/Truth-in-Sentencing Act authorizes increases in federal funding for states that adopt laws requiring individuals convicted of violent crimes to serve at least 85 percent of their prison sentences. Since 1996, the Justice Department has spent over $1.3 billion on this incentives program.

1995 Illinois passes truth-in-sentencing legislation that requires prisoners to serve a specified percentage of their sentences for committing certain crimes. By the end of 1998, 27 states and the District of Columbia require individuals convicted of violent crimes to serve at least 85 percent of their prison sentences, up from five states in 1993. Another 13 states have adopted truth-in-

E TRY EEN sentencing laws requiring these prisoners to serve a substantial portion of their R sentence before being eligible for release. RISON ER

P 2000 Over 1.3 million people are incarcerated in state or federal prisons, up from 218,000 in 1974. Over the same time period, the number of state-run confinement facilities has risen 70 percent, from slightly fewer than 600 to over 1,000. AUCUSON C OLICY P Sources: Frontline,“Thirty Years of America’s Drug W ar:A Chronology,” Online resource; H uppke, Rex, “Rethinking America’s Prisons: Record numbers of ex-cons return to Illinois Streets,” Chicago Tribune, June 19, 2005; Lawrence, Sarah and Jeremy Travis, “The N ew Landscape of Imprisonment: M apping America’s Prison Expansion” (W ashington D.C.: Urban Institute, 2004); U.S. Department of Justice, Bureau of Justice Y RAL AYO Statistics,“State Sentencing Law Changes Linked to Increasing Time Served in State Prisons,” January 10,1999. M 6 A National Movement, A Nonpartisan Issue

Remarkably, in a relatively short span of time, an impressive array of efforts have been launched at all levels of government— by Republicans and Democrats alike— to build more effective and innovative responses to the myriad of challenges presented by prisoner reentry.

Over the last five years, the Urban Institute of Washington, D.C., has built a robust portfolio of projects and publications around the issue of prisoner reentry.42 The organization has hosted a series of Reentry Roundtables to gather leaders in the field and examine special dimensions of this topic. The Urban Institute also organized the Reentry Mapping Network to stimulate community-based change through the mapping and analysis of neighbor- The Council of State Governments partnered with ten hood-level data related to reentry and community other national organizations to coordinate the Re-Entry stability. Policy Council. It released a landmark report in January 2005 that offered a comprehensive set of bipartisan, The National Institute of Corrections (NIC), a division of consensus-based policy recommendations related to the U.S. Department of Justice, launched the “Transition employment, public safety, housing, health, families, faith- from Prison to Community Initiative” to offer technical based initiatives, and victims for policymakers and assistance to a number of states to transform their systems practitioners to consider in their local jurisdictions.47 governing reentry.43

The Second Chance Act of 2005 was introduced in In 2001, the U.S. Department of Justice and other federal Congress to reduce recidivism, increase public safety, and agencies forged a partnership known as the “Serious and address the growing population of prisoners returning to Violent Offender Reentry Initiative” to allocate communities.48 Both the House and Senate versions $100 million in grant funding across all fifty states to include provisions to fund reentry demonstration projects address reentry planning and programming for individuals over two years with a particular focus on jobs, housing, convicted of serious, violent, felony crimes.44 substance abuse, mental health, and children and families; establish a grant program for mentoring and transitional The National Governor’s Association formed the Prisoner services; establish a national reentry resource center to Reentry Policy Academy in 2003 to facilitate the formation collect and disseminate best practices; create a federal of a high-level interdisciplinary work team (e.g., public interagency reentry taskforce; authorize the National safety, workforce, health and human services) under Institute of Justice and the Bureau of Justice Statistics to gubernatorial leadership in selected states to develop a conduct reentry-related research; and modify the ban on vision, strategy, and work plan regarding reentry.45 federal financial aid for individuals with drug convictions.

President George W. Bush in his 2004 State of the Union M This coming year, the U.S. Conference of Mayors will AYO RAL address urged Congress to allocate $300 million over four launch a Reentry Resource Network to create a forum for years to support the reentry of prisoners. He called for job

peer-learning among 13 selected cities. The U.S. P training and placement services, transitional housing, LICY O Conference of Mayors, together with the U.S. Department community and faith-based programs, and mentoring of Justice and the U.S. Department of Labor, will provide programs. “America is the land of second chances,” he C expert training and technical assistance to the cities N O AUCUS said, “and when the gates of prison open, the path ahead participating in the Network to help jurisdictions access should lead to a better life.”46 resources and program funding. The City of Chicago has

been asked to serve as a mentor city to develop this effort. P IONER RISO N R EEN TRY

7 8 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY Chicago TakestheLead assessmentcasemanagement. and r training on agents parole improved with providing parolees with contacts increasingminimum mandatory c reducing 740, to 370 from a four-yearperiod over parole of thenumber doubling calls for reform This thefundamentallystate’s overhaul to plan s parole Spotl Operation supervision. parole heightened and extensivecase manag through their communities into their in reen them setting follows and correctional preparati job and education vocational development, treatment,intensive with drug prisoners cognitive It provides therapeutic community. dedicated fully a 2004 in Centerwas reopened Sheridan Correctional substantialinitiati centerpiece investments two in Reentry made alsoManagement. of He first Office createdBlagojevichthesta Rod Governor Meanwhile, areThesedevel recentCenters. just aof sampling availableparoleesat servicesfor Chicago thefive about them agentsclasses inform parole to held for Boar Workforce incarceratedChicago residents. The their formerly for center employment and education a new build Nearhelp West Sideto organization hasalsoCity aawardedThe capital gratribution. sale and processing food nessskills beekeeping, in develo records criminal with people help and prise, start social agricultureamovement, honey-farming thegrowing on build Lawndale to organization North a to money seed has provided Development Workforce Mayor’s The incarcerated Off formerly individuals. servicetraining placement and job and instruction, us computer supports, healthcounseling screenings, East in hospital local and Garfield Park church to a with neighborhood closely CAPS,working has been AlternativeChicago’s Strategy alsPolicing office, backgrounds. criminal with train hirepeople or who empl to consideration special give to modified been training theirof employe defray the cost companies which TIFWorks, called instance,aprogram For city gramsinitiatives and incarcerated formerly ind for Twoyearsa variety later,was supporting o Chicago issue. exclusively havecreated a to position thecountry Justice, Departmentof Daleywas Mayor the first ma Assistant a Deputy Nolan, GeneralAttorney at theU t feasible meaningful, measures. According develop spearhead thecity’sto reentryhisstaff e 2003 in thisissue locally, establishedthe Mayor a special addr reentry.to Demonstratinga strongcommitment significantstepsof tackling thetowards challenge thefirst take of cities to one has been Chicago Daley, Richard Mayor M. theleadershipof the Under position on position o known as known o Workforce ffortsand s and dis- sand opments. opments. prisoner aseloads, ividuals. tryback ightisa o Cheri o for this for City of City p busi- p nt to a ntto agents on in a in on es, hases, urban ystem. ement yor in yor helps f pro- f enter- ice of ice d has d oyers skills , and , offer s to sto ves. age sa ess te’s isk .S.

The Mayoral Policy Caucus on Prisoner Reentry

Mayor Daley convened the Mayoral Policy Caucus on Prisoner Reentry in May 2004. Serving in an advisory capacity, the Caucus included leaders from government, business, civic associations, community and faith organizations, foundations, universities, social service agencies, and advocacy groups, as well as formerly incarcerated individuals and their relatives. Their charge was to assess and recommend reforms and innovations to facilitate successful reentry for Chicagoans with criminal records. During the year they met, they tapped local and national resources and experts, as well as their collective knowledge, judgment and insight, to identify priorities and develop recommendations. The Caucus process was inclusive and designed to foster participation of people Finally, the Caucus focused primarily on “reentry.” from across the city with a breadth and depth of experi- Reentry is, of course, the last phase of a complicated ence in the field. The process also was driven entirely by continuum of issues that includes crime prevention, sen- the members. tencing, and “entry” into the system. While the Caucus recognized the need to appreciate these connections and From the outset, the Caucus made some choices to narrow their implications, it was impractical and strategically the scope of discussion. First, members chose to concen- unwise to take on all of these issues at once. Revisiting the trate on four specific priority areas: Employment, Health, workings of the entire criminal justice system, from begin- Family and Community Safety. Many subjects, including ning to end, was beyond the capacity of the Caucus. the particular challenges facing youth or women and the overall importance of stable housing, deserve more As a committee convened by Mayor Daley, the Caucus exploration. But the Caucus did not, and could not, fully paid concerted attention to what the City of Chicago could address every topic related to reentry. do to improve reentry outcomes. However, the Caucus agreed that discussions should not be limited only to those Second, the Caucus focused primarily on individuals who reforms which fell under the jurisdiction and control of have been incarcerated in state correctional facilities, the Mayor. If the core mission was to really rethink and though the members raised concerns pertinent to county revamp the reentry process, the Caucus needed to consider jail where appropriate. The Caucus recognized that every all aspects of the process, from pre-release well past person convicted of a crime might not be sent to prison. post-release. Thousands of individuals return to our communities from Cook County Jail (and some people may have a criminal Serving as “ambassadors” to their own communities, the record without serving any time in prison or jail). Caucus members also hosted informal dialogue groups Although the range of problems facing individuals with Chicago residents. During two months, 35 dialogue returning from the county jail facility and a state groups were conducted with individuals with criminal correctional facility are similar, the issues may not be quite records, probation officers, police officers, foundation M AYO RAL as aggravated for jail returnees, given the shorter amount officers, church members, block club members, victims’ of time in custody and other methods of supervision advocates, employers, attorneys, doctors, public housing P utilized at the county level. residents, city employees, corrections staff, and social LICY O service providers. C UU N O AUCUS In early 2005, Governor Blagojevich launched a statewide Community Safety and Reentry Commission and Working Group to make recommendations targeting the state’s top P

10 regions that contain 84 percent of the state’s reentering ER RISO N parole populations, including the Chicago region. Though the process established for the City’s Caucus and R

the State’s Commission and Working Group were distinct, EEN TRY the substance naturally overlapped. It was a pivotal moment in history to have two eminent public leaders in Illinois focused on this critical issue. 9 Organization of the Final Report

This final report follows the order of the Caucus sessions. Obviously, not all of these recommendations will be Chapters One through Four concentrate on the four implemented at once. In fact, some of them may not be specific areas of Employment, Health, Family and implemented at all if there is not enough public will, Community Safety. Within each chapter, the recommen- desire and commitment. This work is not free or easy. dations are divided into two categories— Reforms with Some of these recommendations will be implemented with- Statewide Impact and Reforms with Citywide Impact. in a year; some of them will require more planning and Reforms with Statewide Impact are presented first time to put into practice. And some may be refined as because, on the whole, they address issues that chronolog- they are rolled out when practical issues and lessons are ically occur first as a person moves through the criminal factored into the equation. It is important to recognize justice and penal systems. These recommendations will that not every recommendation may be right for every affect all incarcerated individuals, not just those coming Chicago community and that not every individual coming back to Chicago. Reforms with Citywide Impact typically back from prison will need each and every recommenda- encompass issues that individuals may tackle as they are tion. These recommendations were developed to galvanize transitioning out of prison, or after they have already advocacy and action to advance change in Chicago and returned home. These recommendations will mostly Illinois. They are intended to serve as a suggested benefit those individuals within our city limits. roadmap, shaped by evidence and focused on outcomes, to guide the City as it strives to plan, design and execute Included at the beginning of each chapter are stories of strategies to tackle the challenge of prisoner reentry. formerly incarcerated individuals. They are the real experiences of real people. These snapshots are meant to Many of these recommendations build off relationships highlight the daily challenges that men and women with already formed. And many of them will require collabo- criminal records face as they try to restart and rebuild their ration, coordination and sustained linkages. Collaboration lives. They are also intended to provide context for the may need to occur between government agencies and recommendations proposed in each chapter. community organizations involved in the reentry process, sometimes involving money, sometimes involving open All assembled, this report sets forth concrete, pragmatic dialogue. Coordination may need to occur among measures. The recommendations presented are numerous, recommendations to leverage existing resources and avoid complex and meant to provide solutions that will endure. duplication. These are not temporary fixes, because we cannot look to short-term answers for such a long-term problem. They Ultimately, the Mayoral Policy Caucus on Prisoner try to attack the root causes of the problem itself. And, for Reentry— and this final report— is about providing a some issues, the recommendations completely overhaul a second chance to individuals who have been incarcerated, discrete part of the existing reentry process. and the children and families that depend on them. It is about reducing crime, rebuilding lives, strengthening communities and restoring hope. It is also about accepting responsibility for our shared future. It is a task for all of us. E TRY EEN R RISON ER P AUCUSON C OLICY P Y RAL AYO M 10 Theresa W. Theresa W. is a 25-year-old Caucasian woman.

Theresa grew up in Joliet, At 17 years old, she began living (Fox Valley). Theresa spent two Illinois, with her father, who was with a man in his van. years at Fox Valley, and was abusive and a drug addict, her According to Theresa, “his hus- employed at a fast food restau- mother and four siblings. “My tle was burglary.” O ne evening, rant during this time. “I just mother was never around Theresa knew a specific home- went with the flow and did my because of my father,” Theresa owner was out of town, so work. I had it in my mind that

Real Life explains. “She stayed away together they broke into his drugs were not going to be a because my dad would beat house and robbed him. After part of me when I got out,” she her.” Theresa was arrested for resi- recalls. After her release, she dential burglary, she was taken found an apartment in Aurora, Theresa reflects back on her to W ill County Jail and was which she describes as a “new younger days. “I attended brought before a judge in W ill environment for me.” school when I felt like it. And County’s newly opened “drug by the time I was thirteen, I court.” “I was given the oppor- N ot even two months later,“the started partying and drinking, tunity to be one of the first ones bills started to come in. I never following in my father’s foot- participating in the drug court had to pay bills before. I had no steps. Then my father intro- program,” she explains. She was social life. I just gave up. I went duced me to cocaine. He put on probation and sent to a looking for the wrong crowd.” assumed I had already tried it, community-based treatment She was 23 years old. She but I hadn’t. I got addicted program. Although she went quickly started doing crack immediately.” Theresa had a son through community-based treat- again. “I lost everything—my when she was 15 years old. Her ment twice, her addiction job, my car, my apartment. I was parents divorced soon there- remained. “I didn’t want to quit. living in the streets with the after, and she began living at a I was doing it for everyone else. same addiction that I just left.” friend’s house in a nearby town. I wasn’t dealing with some of However, in Aurora, miles away the underlying issues from when from her friends and family,“no At 16 years old,Theresa moved I was younger.” After a stint in a one knew anything about me, so back in with her mother and halfway house and a “three- no one could help me,” she “started hanging around with quarters” house, her situation explains. “My mom was there the wrong crowd.” She gave up hadn’t improved. “I couldn’t find for me— ‘she had my back.’ But custody of her son and sent him a job. I got frustrated with it, none of my family or friends to live with his grandmother and I messed up.” She relapsed. [back in Joliet] knew how deep I when he was two. “I didn’t Because she violated her proba- was into my addiction.” want to deal with him any- tion, she was incarcerated at

more,” she admits. “I just kind Decatur Correctional Center She started moving from crack M of left him.” for four years. house to crack house, and met a AYO RAL man whose “hustle” was writing

From this point, Theresa got O nce in prison, she resolved to stolen checks and using stolen P “deeper and deeper into the do something productive with credit cards. “He hooked me up LICY O wrong crowd.” She dropped her time. Because she had on how to do it, and taught me out of school and as she completed her GED while she everything I knew,” Theresa C UU N O AUCUS remembers, “I was just running was detained at the W ill County describes. “He would steal the the streets. I was drinking and Jail, she decided to get involved checks and credit cards. I would doing cocaine. Eventually I was with school, to “keep her mind buy the merchandise and sell it, P

introduced to crack and then focused on something else.” She or get cash back.” This financed ER RISO N my life just fell apart.” She was received her Business Manage- their intense drug habit. But as living in alleys, crack houses and ment certificate, and as her Theresa tells it, this man was

abandoned buildings. “Basically,” release date approached, she extremely controlling, and with- R EEN TRY she recalls,“anywhere I could lay was transferred to the Fox out drugs, was also very violent. my head down.” Valley Adult Transition Center “He would keep me hostage

11 ally who I re ght me This tau hic “ work et what my am and k hard.” e to wor is. I lik

with him, and was nearly killing At 24 years old, she spent one Theresa currently is employed me. He nearly drove me insane. more year at Decatur at a Chicago museum perform- O ne day, I put a knife to his Correctional Center. She ing maintenance work. “I like my throat.” At that point, Theresa received her sanitation license job, but it is not the job I really says,she called her mother, who and took additional college want. I could do better. But got her out of Aurora and took classes in culinary arts, but was with my background, I don’t her to a state mental hospital not able to complete them have much choice. Many for an evaluation. There she because her “time was up.” employers just turn their cheek received counseling and group W hen planning for her release, and give me an excuse about therapy for about one week. she chose to go to a recovery why they can’t hire me when home, and then she later moved they see an ‘X ’ on my back,” she W hen she was released from to a supportive housing resi- describes. the state mental hospital, she dence for formerly incarcerated wasn’t welcome in her step- women. “My life did a 360,” she Theresa moved into her own father’s home. So Theresa recalls. “I knew that the life I rent-subsidized apartment three returned to Aurora to her “new was living wasn’t me. I didn’t months ago through a referral crack family.” “I had no other want to run the streets any- from her caseworker, where she choice but to go back to the more. I wanted a relationship pays 30 percent of her monthly streets,” she explains. “I went with my son. I didn’t want to be income. She is hoping to get back to the same situation with who I used to be.” During her into school to pursue an the same man,who had the right time in the supportive housing Associate’s Degree in a busi- kind of money at the right time.” residence,she took advantage of ness-related field, when she can treatment, outpatient therapy save enough money. She also A few months later she was and job training programs. She speaks about her background caught at a grocery store with a also attended a job readiness upon requests from advocacy stolen check. “I was sick and preparation course at another organizations. tired. I saw the cashier go to the community-based social service M phone, I knew she was calling agency and participated in their “My biggest obstacle right now,” AYO RAL the police, but I just gave up. I social enterprise program. “This she says, “is finances and time. was done. I didn’t want to do it taught me who I really am and I’m just not used to all of life’s

P anymore.” what my work ethic is. I like to responsibilities. But I sit back LICY O work hard.” and look at my apartment, and I feel good. I feel good about how C

UU N O AUCUS I earned it. I’m going for that number one spot, and I’m not going to stop before I get there. I want to have my own business, P

IONER RISO N be happy and stay clean.” R EEN TRY

12 Ramon C. is a 51-year-old Ramon grew up in Puerto Rico. After his release, Ramon contin- supportive housing residence in His parents separated when he ued working at the meat Chicago. “I could start over was a young boy. He dropped packing plant. W ith this salary here. I kept myself busy,” out of school in the tenth grade, and his savings from Fox Valley, Ramon explains. “I took advan- worked for a while, and then he was able to rent his own tage of various programs—job moved to Aurora, Illinois to live apartment. But shortly there- readiness, anger management, with his father when he was 20 after, he remembers, “I started support groups, drug treatment. years old. O nce he got settled, drinking again, getting high, and They showed me how to fix my he sent for his mother to join resumed the lifestyle that I life. I was doing day labor jobs him. knew— selling drugs. I was miss- to earn a little income, and the ing days at work and coming in staff worked with me to find sta- In spite of his language barriers, late. It was hard to keep a job ble employment.” Ramon was able to find employ- when you are living this way. I ment relatively easily after his was tired, and I didn’t take care Ramon has been clean for four move to the United States. He of myself.” He quit. years now. He recently found a landed a good position at a steel position at a plastics factory, Real Life manufacturing company with a In 1996, he was incarcerated for although it is in the suburbs,and variety of responsibilities, narcotics distribution and spent is low-paying, with no overtime although primarily as a forklift two years at Jacksonville or benefits. “I have a two-hour operator, and he spent 13 years Correctional Center (Jackson- commute to the factory. I leave there. During this time, Ramon ville). W hen he was discharged, my apartment at 5:30 a.m. and got married, had two daughters, he hopped on a bus back to make three different transitions and bought a house. However, Aurora and cashed his paycheck. — I catch a bus, then a train, he also got involved, as he Since he had not earned much then another bus to arrive on recounts,with “drugs and drink- money in prison, he couldn’t time at 8:00 a.m.,” he describes. ing and partying with his afford his own place. He stayed friends.” He quickly began using at a mission for a few months. “I According to Ramon, the and selling drugs all the time. needed to work,” he explains, biggest challenge for former His wife divorced him. “but the rules of the mission did- prisoners like him is “finding n’t allow me to have a job. I soon places that will give us a chance. moved in with a friend.”

W e need more opportunities. Ramon C. Although there are good jobs out there, they are hard to find, In 1991, Ramon was convicted Ramon’s job search became especially for someone with a of delivery of controlled sub- more difficult at this point. He record.” But he says, just as stances, and sentenced to relied on “temp agencies” for important, “you must work to

Hispanic male. Vandalia Correctional Center assistance. Although he was no stay clean and, to succeed, you for three years. W hile in prison, longer selling drugs, he was still have to want to help yourself M

he completed a GED course using them. Because of his stay out of trouble.” AYO RAL and received his certificate. addiction, he kept “jumping from Then he was transferred to the job to job” as employers would P

Fox Valley Adult Transition fire him or he would quit. “I LICY O Center (Fox Valley) in Aurora. kept doing the same thing that I

“My time there allowed me to was doing,” he says. “It led me “You must work C do what I needed to do to right back to prison.” N O AUCUS improve my life,” Ramon recalls. to stay clean At Fox Valley, he got his state In 2001, he was arrested again identification card, and ultimate- and sent to Jacksonville for and, to succeed, P ly secured employment in ship- another three-and-a-half years. ER RISO N ping and receiving at a local Before his release, he talked to you have to meat packing plant. his prison counselor. “I had no

want to help R

place to go and I knew I had to EEN TRY change this time for real.” His yourself stay counselor referred him to a out of trouble.” 13 Recommendations Reforms with Statewide Impact • Expand access to in-prison education programming by increasing capacity and removing barriers and restrictions to participation.

• Ensure pre-release vocational training corresponds to post-release employment opportunities, and expand access to vocational programs by removing barriers and restrictions to participation.

• Restructure and expand Illinois Correctional Industries.

• Review occupational licensing restrictions on formerly incarcerated individuals that do not promote tangible public safety goals.

• Improve basic pre-release preparation by enhancing Pre-Start services.

Reforms with Citywide Impact • Adopt internal guidelines for the City of Chicago’s personnel policies regarding criminal background checks, and advocate for fair employment standards.

• Develop more community-based employment centers that use a comprehensive approach and provide long-term support.

• Expand curriculum for work readiness “soft skills” training.

• Encourage more “demand-side” approaches to job training designed in partnership with employers and customized to meet their needs.

• Engage employers to devise effective hiring incentives and retention strategies.

• Promote and support transitional jobs programs.

• Promote and support social enterprise initiatives.

• Foster more opportunities for entrepreneurial ventures.

• Offer professional development to existing education and employment agencies to better serve individuals with criminal records.

• Expand access to and availability of legal resources to formerly incarcerated individuals Chapterfor assistance in expunging and sealing their criminal records. 1

14 Employment Chapter 1: Employment

Formerly incarcerated individuals face many barriers to stable employment provides— are three times less likely to obtaining and maintaining employment. They often enter return to prison than those without jobs.3 Unfortunately, prison with limited education and employment histories, 60 percent of former prisoners are still unemployed one and lack the qualifications needed to compete in a tight year after their release from prison.4 labor market. During the time they spend in prison, they may see their skills deteriorate, miss the opportunity to The barriers to securing employment are significantly gain work experience, and lose interpersonal relationships higher for formerly incarcerated individuals, more so than that could provide connections to jobs. After release, any other vulnerable, job-seeking population.5 With few finding a job is just one of the many challenges facing exceptions, job applications typically ask about prior con- most formerly incarcerated individuals. The additional victions. By law, individuals with criminal records are stigma of their criminal record makes a job search even specifically barred from a number of occupations. more difficult. They may not have a safe, stable place to Moreover, employers generally express a reluctance to hire live, and family relations may be strained. Addiction and individuals who were formerly incarcerated, either out of mental illness plague many. And almost all are returning fear they may commit another crime against their business to the environment that contributed to their hopelessness or other employees, or simply because they think they are and criminal behaviors in the first place. less desirable job candidates. Today, research shows that more than 60 percent of employers would not knowingly The link between unemployment and crime is undisput- hire someone who had been incarcerated.6 By compari- ed. In 1997, 31 percent of state prisoners nationally were son, eight percent of those employers would not hire a unemployed during the month prior to their arrest.1 By current or former welfare recipient, and 17 percent would comparison, that year, the overall unemployment rate for not hire someone who had been unemployed for a year.7 the general population was 4.9 percent.2 Clearly, employment is an important first step in the reen- Finding and keeping a job can have a significant impact try process. Though the concerns and needs of formerly on whether formerly incarcerated individuals remain incarcerated individuals are complex, gainful employment crime-free. In fact, those with jobs— and with the associ- can become the single most critical factor in determining ated economic resources, structure and self-esteem that what direction an individual’s reentry process will take. M AYO RAL P LICY O C UU N O AUCUS P IONER RISO N R EEN TRY

15 16 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY Reforms withStatewideImpact impact on recidivism rates. recidivism on impact incarceration has during anappreciable achievement Researchhas furtherthat demonstrated educational programs monthly. programs prisoners serves11,000 approximately District428 population. theprison for designated specifically programs, educational advanced and specialadult, has established primary, which secondary,voca 428, Dis School ascurrentlyCorrections operate part of its within facilities.programs educational Th ing pro began (IDOC) Corrections DepartmentIllinois of th 1972, in theaverage thegeneral for population, b was well prisoners levelof Becausetheeducation accomplishment. self-wo a sense of develop markethelps and thejob skills basic with to individuals provides Education programs. participate such in not did who those reincarceration in rates reduction percent a 29 had state in program anyparticipatededucational pr in that wh prisoners nationalfound study fact,one in progr participating merely existeducational in for significant prison, a in classfull while complete is associated with higher incidence of criminal act criminal of incidence ishigherassociated with d school a that high Studiesof thelack haveshown eleventhgrades. a ninth levelbetween aneducational had percent 29 graeighth levelbelow aneducational had prisoners s of percent 14 Statisticsthat 1997, in found also percent of thegeneral population. of percent compared its 1997, equivalentor in diploma school a received jails not local had and federalprisons stat in individuals of Statistics, percent 41 about theBureau Justicto of According need. educational credentials are their most school High prisoners. attainment educational man issueLow is afor major Issue capacity and removing barriers and restrictions to to restrictions and barriers removing and capacity by programming education in-prison to access Expand 9 11 Even for those who do not do who those Evenfor 8 The Bureau The Justice of common amming; benefits School rthand iploma de and de enter e and and e ivity. tional from to 18 to in its in elow high ison trict vid- tate ese nd 12 10 o o y y e e attend a 90-day Adult Basic Adult (ABE) class.Education attend a 90-day Basic Adult (TABE) Education isat required intake— Classification and Unit after Reception taking the IDOC’s by determined a sixth-gradelevel— below Bystate fa achievement statute, whose anyprisoner 90 days. 90 a sixth-gradelev above achieve not theydo if even theABE do to classes,required are but beyond not their stu continue to skills.Prisoners choose may classesmathematicwriting reading,and teach basic incarceration. during programming anyparticipatededucational in IDOC by released surveyed prisoners of percent participate. fact,Ino to prisoners of proportion a sma restrictions enrollment only enable slots and l training. However, vocational to coursework from ran programs haveeducational prisons Illinois Most 14 participation. increasing Recommendation el afterel nly 42 nly Testof imited 15 15 their ging ABE dies so, lls to ll s The current need for IDOC’s educational programs far exceeds its capacity. School District 428 estimated that approximately 38 percent of prisoners tested at intake scored below the sixth-grade level, and thus needed ABE classes.16 Because of the limited number of teachers at each correctional facility and the mandate for all prisoners scoring below a sixth-grade level to take ABE classes, there is a large waiting list. In 2003, 2,846 prisoners were on a waiting list for ABE classes.17

GED (General Educational Development) classes to prepare for the GED test also are in high demand.18 The percentage of prisoners who need to obtain a GED is harder to determine, according to School District 428, because prisoners self-report this academic need.19 The Solution Literacy Council, however, indicates that 75 percent of all prisoners in Illinois have not completed high school, and Educational classes are among the most basic rehabilita- 36 percent have not even completed ninth grade.20 In tive programs that prison can offer. Appreciating the role 2003, 1,801 prisoners were on a waiting list for GED that education can play in reducing recidivism, Governor classes.21 Blagojevich increased School District 428’s budget to nearly $32 million in 2005 and promised to undertake a Access to and participation in all these educational classes major initiative to eliminate waiting lists for GED classes.24 is limited for several reasons. The lack of teachers has Since the governor’s directive, GED waiting lists have been restricted educational programming, the state’s Early reduced by nearly 50 percent. This is progress. However, Retirement Initiative doubled the number of personnel the state should commit to eliminating waiting lists for vacancies, and budget cuts have made replacing these ABE classes as well, and should aim to increase the individuals difficult.22 The frequent transfer of prisoners number of prisoners receiving GEDs annually to over between facilities, short length of some prisoners’ 10 percent of the total prison population by 2010. sentences, and conflicts with other activities also may result in low enrollment. Additional funding to increase capacity is only part of the solution. Prisoners must understand the importance of But prisoners reentering society without significantly education as a fundamental tool to become prepared for a improving their education level likely will only find competitive labor market upon release. To this end, IDOC employment in entry-level, low-paying, high-turnover should develop institutional incentives for program partic- jobs.23 This situation, in turn, increases the likelihood that ipation. One such incentive is “good conduct” credit; that these individuals will return to prison. is, a reduction in prisoners’ sentences for good behavior or participation in certain programs. Under good conduct rules, prisoners can earn credit (e.g., their sentence

reduced by one half day) for every day they participate in M educational programming.25 AYO RAL

However, currently, any person who has served more than P LICY O one prior sentence for a felony in an adult correctional facility is ineligible to receive good conduct credit,26 C

effectively preventing more than 25 percent of the prison N O AUCUS population from utilizing this incentive.27 To better promote educational opportunities within a correctional

setting, good conduct credit should be revised or P IONER RISO N expanded, either legislatively or administratively, to include more of the prison population. R EEN TRY

17 This past year, Mayor Daley proposed legislation in the Illinois legislature, which was signed by the Governor in July 2005, that charged IDOC to double the percentage of prisoners who enroll in GED classes and simultaneously created an incentive for prisoners to pursue their educa- “I have seen what an education can tion by offering 60 additional days of good conduct credit for earning a GED in prison.28 Passage of this bill was a do for inmates. It opens their significant step forward, but the eligibility restrictions of this credit must be eliminated for maximum impact. minds to opportunities. It gives

Finally, IDOC should consider innovative ways to expand them hope for a better life for educational options without significantly expanding themselves and their loved ones. School District 428’s staff. For example, City Colleges of Chicago has considerable experience providing GED Society benefits because they 29 E TRY EEN preparation to prisoners in Cook County Jail, and is a R large provider of distance learning worldwide.30 become taxpayers and not Combining these two resources (with the teachers union’s

RISON ER consent), City Colleges could broadcast GED courses over tax burdens.” P the correctional institutions’ existing closed circuit television network or through a web-based stream, increasing Dr. Michael Elliott the number of prisoners who would have the opportunity Executive Director of the Department of Human and AUCUSON

C to obtain their GED. City Colleges could provide the Community Renewal, Roosevelt University teachers; IDOC would simply need to provide facilitators

OLICY in prison classrooms. IDOC’s existing teaching staff could, P then, devote resources to prisoners who need more personalized instruction to successfully complete a GED Y RAL AYO

M course. 18 Ensure pre-release vocational training corresponds to post-release employment opportunities, and expand access to vocational programs by removing barriers and restrictions to participation. Recommendation

Issue

Job training, prison industries, and placement programs connect former prisoners to work, thereby reducing their likelihood of rearrest and reincarceration. In fact, individuals who have participated in vocational training in prison have better reentry outcomes. A study conducted by the Illinois Council on Vocational Education found a recidivism rate of 13.8 percent for those prisoners who had earned a vocational degree and a rate of 6.2 percent for those prisoners who had earned more than one vocational degree or certificate.31

In partnership with local community colleges, the Illinois Department of Corrections (IDOC) offers 50 different vocational programs within its correctional institutions.32 There also is a mismatch between the vocational training Each facility varies slightly in the focus of the vocational opportunities inside prison and good employment oppor- programming it offers due to the community college with tunities outside prison. IDOC’s vocational programs which it collaborates, as well as financial and staffing usually correspond to what community colleges near a resources that are available. Approximately 10,000 given correctional facility are able to provide, rather than prisoners participate annually in IDOC vocational pro- what job opportunities exist in high-demand industries or grams leading to either vocational certificates or degrees.33 in the communities to which prisoners will return. In 2004, however, only 2,062 prisoners completed college Through a collaborative effort by the Illinois Governor’s vocational programs and only 203 completed School 428 Office and the Illinois Department of Commerce and vocational programs.34 Economic Opportunity, the Critical Skill Shortages Initiative (CSSI) was designed to align regional workforce Many factors hinder greater participation in vocational strategies with economic development to provide qualified training throughout correctional facilities. Enrollment in workers for critical skill shortage occupations. Under the an accredited vocational program has historically required CSSI, the workforce boards of the northeast region of a high school diploma or GED and TABE score of 8.0 or

Illinois found that health care, manufacturing, transporta- M higher.35 Only a small percentage of the prison population tion, warehousing and logistics were the industry sectors AYO RAL meets both of those requirements and is therefore eligible expected to have the greatest need for workers in the for vocational education. Further, although 50 different 36

coming years. However, computer technology, business P vocational courses exist throughout IDOC, prisoners LICY O management, commercial custodian, construction and usually have access only to the ones available at their food service were the most commonly offered courses specific institution— giving prisoners little flexibility to C 37 throughout IDOC facilities. N O AUCUS choose training in an area of interest to them. Similar to educational programming, much vocational training Without linking vocational programs to high-demand exceeds the length of prisoners’ sentences, and prisoners’

industries, employment outcomes from participating in P frequent transfers between institutions often impede ER RISO N and completing such programs can vary significantly.38 continuity of training. R EEN TRY

19 IN SPIRATION FROM TH E FIELD: CO RRECTIO N S CLEARINGHOUSE IN WASHINGTON

The Corrections Clearinghouse (CCH), a unit of the W ashington State Employment Security Department, provides a continuum of services to prisoners that begins with an employability assessment during incarceration and ends with job placement and ongoing assistance after release. O ne of CCH’s initiatives is the Trades-Related Apprenticeship Coaching Program. CCH persuaded three unions—carpenters, laborers and ironworkers—to fund and staff a pre-apprenticeship program for prisoners in the women’s correctional center. W omen who successfully complete the in-prison program are guaranteed membership in one of the three unions, greatly improving their chances of being hired after they are discharged.

Source: Finn, Peter,“W ashington State’s Corrections Clearinghouse: A Comprehensive Approach to Offender Employment,” (W ashington, D.C.: N ational Institute of Justice, 1999), 10-11, http://www.ncjrs.org/pdffiles1/174441.pdf.

Solution With the 2004 reopening of the Sheridan Correctional Center, IDOC adopted a new administrative directive— Given the low levels of educational attainment among the GED waiver— that allows certain prisoners who do not prisoners, academic and vocational programs are greatly have their GED to qualify for available and accredited needed. Increasing the applicability of and enrollment in vocational programs. IDOC should consider expanding these programs will improve the employability of the use of this waiver to all IDOC facilities to prisoners upon release. substantially increase the percentage of prisoners who are eligible for, and could benefit greatly from, vocational IDOC should complete a comprehensive review of its training. vocational offerings on a regular basis to determine which programs provide useful credentials for post-release job opportunities. The Illinois Department of Employment “Our vocational programs at Sheridan Security has already started to compile information along Correctional Center combine an industry these lines.39 After this review, the Illinois Community College Board (ICCB) and IDOC, in partnership with local which is looking for people [residential workforce boards, workforce development professionals and organizations throughout the state, should identify building and construction] with people and develop appropriate vocational training programs that who are looking for better-paying jobs. correspond to available post-release job opportunities in industries that pay decent wages.40 Community colleges Vocational training gives individuals a near IDOC institutions should modify the curriculum options for the prison population, after the requisite input potential for making a meaningful wage, and approval from ICCB, to ensure IDOC’s vocational

E TRY EEN instead of a minimum wage. Former R offerings are specifically tailored to meet the needs of this population.41 A few other states have begun a similar prisoners need a chance for employment process in an effort to link prison vocational training to RISON ER

P more specific market demands. In Indiana, for example, that has a future to it. I tell my guys, the Department of Corrections now designs its vocational ‘Don’t just serve time. Let time serve you. training programs for industries that the Indiana

AUCUSON Department of Workforce Development classifies as Participate. Leave here with more than C having a low supply of personnel and a high demand for new workers.42 you came here with.’ ” OLICY P Cornell Hudson Project Coordinator, Homebuilders Institute Project Y RAL AYO at Sheridan Correctional Center M 20 Restructure and expand Illinois Correctional Industries. Recommendation

Issue fiscal year 1993, and only 36 percent returned to prison during the subsequent five years.44 Illinois’ recidivism rate Work programs administered in prison provide prisoners for that same five-year period was approximately 50 per- 45 with experience and skills that increase their employability cent. upon release. Illinois Correctional Industries (ICI) does just that, operating “factories with fences,” farms and However, few prisoners are able to take advantage of this service programs in many of the adult prisons. ICI current- employment opportunity. In 2003, only 1,078 prisoners ly operates 38 such programs in 19 different correctional participated in ICI jobs throughout Illinois Department of 46 facilities throughout the state.43 The goods and services Corrections (IDOC) facilities. produced through ICI include wood furniture, food products, city and highway signs, clothing, maintenance Several factors may explain this low participation rate. supplies, bedding, eyeglasses, asbestos abatement and First, to obtain an ICI placement, prisoners must have a service dog training. GED; this is an education level many prisoners have not achieved. Second, the work experience and skills that are Historically, prisoners who work in ICI programs have gained from these jobs may be somewhat limited. These lower recidivism rates than the general prison population. businesses produce goods and provide services used According to ICI’s 1998 Annual Report, 235 individuals primarily by local and state government agencies and who had participated in ICI programs were released in IDOC. Accordingly, many of these jobs are not directly relevant to employment opportunities outside of prison. Third, due to loss of staff during recent years, capacity within ICI to expand job offerings is lacking. IN SPIRATION FROM TH E FIELD: PRISON REHABILITATIVE Solution INDUSTRIES AND DIVERSIFIED ICI is a self-supporting business; that is, it does not receive EN TERPRISES IN FLO RIDA any state appropriation, but rather generates revenue from the sale of goods and services. Therefore, expanding ICI Prison Rehabilitative Industries and offers a relatively low-cost way to increase opportunities Diversified Enterprises, Inc. (PRIDE) is a for prisoners to develop good work habits and trade skills private, not-for-profit manufacturing and during their incarceration, and likely increase their work- services corporation. In 1981, the Florida force participation after release. IDOC should strive to legislature authorized the company to manage increase the number of jobs available through ICI, and and operate the state’s correctional industries. double the percentage of prisoners who have access to PRIDE provides prisoners with vocational and these jobs by 2010. To that end, IDOC should consider M AYO RAL on-the-job training in a variety of fields as well reevaluating the eligibility criteria to obtain an ICI job. as limited post-release support.

In expanding ICI, however, it is critical to assess the P Studies indicate that PRIDE placed 88 per- LICY O cent of its workers in relevant jobs in 2001 applicability of ICI jobs to employment opportunities out-

and, during this same year, only 17.3 percent of side of prison. ICI jobs should expose prisoners to work C UU N O AUCUS its former workers returned to prison. In experience and skills training for long-term employment 2004, PRIDE generated $65.7 million in sales of with upward mobility. Given the success of ICI jobs in prisoner-made products and services. PRIDE reducing recidivism, ICI should collaborate with large

employers, business associations, unions and job P pays a portion of its earnings to defray the cost ER RISO N of incarceration, cover restitution to crime placement agencies to develop correctional industry jobs victims, and provide post-release job place- applicable to and correlated with employment in high-demand industries. R ment services to prisoners. EEN TRY

Source: www.oppaga.state.fl.us/profiles. 21 Review occupational licensing restrictions on formerly incarcerated individuals that do not promote tangible public safety goals. Recommendation Issue Solution

Many state statutes restrict licensure or re-licensure in jobs Through recently passed legislation, the State now offers based on an individual’s criminal background. In Illinois, of two certificates— Certificates of Relief from Disabilities the 98 state statutes regarding professional licensing, 57 (CRD) and Certificates of Good Conduct (CGC)— which contain restrictions for applicants with a criminal history, attempt to reduce the number of barriers prohibiting impacting over 65 professions and occupations.47 Of those individuals with criminal backgrounds from obtaining their professions, 22 statutes automatically bar employment for professional license.51 The major differences between the individuals convicted of crimes of dishonesty or directly certificates relate to the main purposes underlying the related to the practice of the profession involved.48 certificates, who is eligible, and how one applies.52

These restrictions may, in certain cases, reflect reasonable In effect, both types of certificates remove bars that would safety concerns. Obviously, society would not want a child result automatically from a non-violent felony conviction. molester to drive a school bus or a former drug addict to Basically, the certificates create a presumption of rehabilita- work in a pharmacy. But no rationale exists to prevent tion in the licensure process, and licensing bodies must someone who stole a car from cutting hair. While these consider them when reviewing the license application of an laws were passed to increase public safety, they often have individual with a criminal record.53 the exact opposite effect. According to the Legal Action Center in New York, New York, these laws may actually “Change needs to happen. More than “endanger public safety by excluding people with criminal records from mainstream society and opportunities to lead 52 percent of former prisoners go back to law-abiding lives.”49 prison because they have no other thing In some cases, prisoners participate in vocational training through the Illinois Department of Corrections (IDOC) and that they know. They can’t get jobs. then become qualified for professions that they cannot prac- So they go back to what they do know tice once released due to licensing restrictions. Stateville, Menard, and Vienna Correctional Centers all offer vocational [criminal activity]. I don’t ask about training in barbering, for example, but Illinois state law prohibits individuals with a felony record from obtaining a criminal backgrounds. The former barber’s license. “The situation might be best described as a ‘Catch-22,’” says Glenn Martin, Co-Director of the National prisoners who work for me appreciate HIRE Network in New York, New York. “The very fact that someone has been in prison causes him to fall short of the the jobs that they are given. This provides

E TRY EEN state licensure standards for the same trade that the state R a foundation where they go on with their itself trained him for in prison.”50 lives and make a better life for themselves. RISON ER

P If the goal is to move individuals from criminal activity to legal employment, the proliferation of licensing restrictions They are trying to make a transformation. impedes that goal because it effectively diminishes the number of legitimate jobs that a formerly incarcerated person We [as employers] need to give them AUCUSON

C could pursue upon release. These restrictions, then, more often extend punishment than serve society. that credit and not slap them down.” OLICY P James Andrews President and Owner, Andrews Paper Company Y RAL AYO M 22 While the passage of this legislation marks significant Once implementation has been streamlined, the State progress, challenges to the implementation and impact of should convene a taskforce to recommend further changes these certificates remain. As of August 2005, the Prisoner to the law and to expand the certificates’ applicability to as Review Board had only issued one Certificate of Relief from many licensing statutes (and professions) as possible.60 Disabilities and had not issued any Certificates of Good Conduct.54 Although very little was done initially after this The Illinois General Assembly also should explore other law went into effect to promote and implement these certifi- avenues to address occupational licensing restrictions by cates, IDOC,55 the Prisoner Review Board,56 the courts,57 and tackling the substance of statutes themselves. In 2004, the Illinois Department of Finance and Professional Delaware’s governor, for example, signed legislation that Regulations58 have increased their efforts to build awareness eliminated automatic felony bars to 37 professional occupa- and make these certificates a viable option for former tional licenses in the state.61 The new law requires licensing prisoners. Additionally, a Certificate Implementation boards to make individualized determinations about an Advisory Group was formed in October 2004 to develop a applicant’s specific qualifications, including the relevance of strategic plan of action, monitor progress, track problems, an applicant’s criminal record to the license being sought. and share feedback with relevant state agencies.59 The State should continue to work with this group to ensure that released prisoners are able to obtain and benefit from these certificates. M AYO RAL P LICY O C UU N O AUCUS P IONER RISO N R EEN TRY

23 Improve basic pre-release preparation by enhancing Pre-Start services. Recommendation

Issue The usefulness of this pre-release program is questionable. In a 2004 study, the Urban Institute found that although Prisoners must access community programs and resources 79 percent of Pre-Start participants reported receiving within a relatively short period of time after their release, some training about job searches, only 25 percent report- before they become desperate or tempted to revert back to ed receiving actual referrals to potential jobs, less than ten criminal behaviors. These same individuals, upon dis- percent received actual referrals for health care, housing charge, often are less attached to jobs, their families, and and counseling, and only 22 percent reported contacting a the communities to which they return. And they community program after their release using an actual 64 likely are not aware of, or do not know how to access, the referral from Pre-Start. myriad of social services their communities can provide. Left on their own, most prisoners fail to connect with all Solution the services they need. Similar to health care services, prisoners need continuity In 1991, the Illinois Department of Corrections (IDOC) of employment services to sustain the benefits of their developed a specifically designed pre-release program, in-prison education and training after their release. known as Pre-Start, to provide prisoners with a “crash Because prison programs do not (and should not) extend course” on life after prison.62 Pre-Start was designed as a past prisoners’ release, community-based agencies must one-to-two week, 15-hour per week, specialized devise ways to reach prisoners during their incarceration curriculum focusing on reentry preparation, such as to provide a continuum of services and to be effective in employment, housing, transportation, budgeting and fam- reducing recidivism. ily reunification. It is offered to prisoners within approximately one month of their release date.63 Various Pre-release programs such as Pre-Start should provide components of Pre-Start differ slightly depending on the specific information about reentry support services, focus- correctional institution. ing on employment and retention issues. Pre-Start, in conjunction with IDOC’s Placement Resource Unit (PRU), Many challenges exist within the current structure of the should assist prisoners with preparing a detailed reentry Pre-Start program. First, the substance of the material plan and discharge summary and should directly link presented in Pre-Start is general, and the local resource prisoners to community-based agencies, including job information is often outdated and inaccurate. Second, placement centers, faith-based organizations, supportive Pre-Start is structured mainly as lecture-type classes (with services, and health care providers in the local neighbor- some use of workbooks), and does not provide any oppor- hoods to which they are returning. Further, each tunity for individualized discharge planning for prisoners. prisoner should leave prison with appropriate referrals This is the responsiblity of Field Services, though the two coordinated through PRU. activities should be better integrated. Prisoners may complete the Pre-Start program with a broad understand-

E TRY EEN ing of what to expect after their release, but are not given R referrals for specific services. It is, then, primarily up to the prisoners themselves to locate and establish contact

RISON ER with community-based agencies upon discharge. P

Further, community-based agencies are not included in the Pre-Start program; rather, correctional staff primarily AUCUSON

C teaches these classes without assistance from the organizations that may be receiving these prisoners later. Lastly,

OLICY the same Pre-Start curriculum (and workbook) serves all P prisoners, whether they read at a fourth-grade level or a college level and whether they have been incarcerated for Y RAL AYO six months or ten years. Very little individual attention is M provided through Pre-Start. 24 IDOC is currently re-examining the Pre-Start curriculum, and developing a pilot course focused primarily on job preparation skills and resources.65 IDOC should take advantage of its current review of Pre-Start to completely overhaul the existing structure and substance of this pre-release program.

Community-based agencies should be immersed in Pre-Start to connect with prisoners during their incarceration, before they return to society with little, if any, professional support. Despite some geographic barriers, community-based agencies should be encouraged to participate in and teach part of the Pre-Start curriculum, or at least help to develop a more tailored curriculum that emphasizes partnerships with service IN SPIRATION FROM TH E FIELD: providers in the community. PROJECT RIO IN TEXAS Further, professionals teaching Pre-Start should provide resources that are current and comprehensive, yet Project RIO (Re-Integration of O ffenders) customized for the different needs and circumstances of is a comprehensive pre-release program that individual prisoners in order to provide the full benefit of operates through the Texas W orkforce information through this curriculum. Commission, serving over 16,000 parolees every year. The National Institute of Corrections (NIC) offers Project RIO specialists begin working with Offender Workforce Development Specialist (OWDS) prisoners who are within two years of their training to professionals in corrections as well as staff from release. The specialists assist with gathering other state departments and community-based agencies personal documents, developing employment that provide pre-release services, specifically employment. plans, and providing job readiness training. This training incorporates a comprehensive curriculum W hen RIO participants are within six months that teaches necessary skills for working with prisoners of their discharge date, they participate in a life and helping them to make informed decisions about skills program. After their release, the employment, retention and career advancement. OWDS specialists work with the participants to place training also instructs participants in how to train other them in jobs that match their skills and education and employment service providers in the field temperament, and train parole officers about to increase their basic knowledge and abilities in work- the program. force development and career facilitation.66 An independent evaluation of the program in 1992 found that nearly 70 percent of RIO Currently, only one team of four individuals has been participants found employment compared to trained as Offender Workforce Development Specialists in M

36 percent of non-participants and that RIO AYO RAL Illinois, although the State is planning to send two saved the State of Texas over $15 million in additional teams to the NIC training in 2006.67 The State 1990 alone due to reduced recidivism. should organize more teams to become Offender P LICY O

Workforce Development Specialists every year, thus bring- Source: www.texasworkforce.org.

ing additional pre-release reentry resources into prisons C and the community. N O AUCUS P IONER RISO N R EEN TRY

25 Reforms with Citywide Impact

Adopt internal guidelines for the City of Chicago’s personnel policies regarding criminal background checks, and advocate for fair employment standards. Recommendation

Issue Often, employers obtain the results of a background check and presume that any involvement with the law (even an The availability of criminal records online, and changing arrest which may eventually be dismissed) implies that the public policies regarding access to those records, make it applicant is a bad person who cannot be trusted to do a easier for employers to conduct criminal background good job. Some employers have adopted discriminatory checks on potential employees.68 Approximately 80 percent blanket policies that categorically reject people with crim- of employers across the country conducted background inal histories from employment, ultimately denying for- checks in 2003, up from 51 percent in 1996, the Society merly incarcerated individuals the opportunity to provide for Human Resource Management found.69 In 2004, in for themselves and their families, and to become produc- this state alone, Illinois State Police conducted 693,439 tive, law-abiding citizens. background checks, up from 546,015 background checks in 2003, a 27 percent increase in one year.70 Generating “After criminal background checks became background checks through private companies has common practice in the mid-1990s, become an industry in itself with little oversight— no standardized way to request or retrieve information, no Advocate Health Care began looking at regulations to determine whether the information is valid (or even for the correct individual), and no uniform its hiring practices in Chicago. Rather presentation of the information acquired. than simply dismissing applicants with A recent study commissioned by the National Association of Professional Background Screeners (NAPBS) raised any kind of criminal record, we review the concerns about the Federal Bureau of Investigation (FBI) criminal database, noting that it lacked proper identifiers, type and severity of the offense as well as missed records, and generated false positives.71 According the length of an applicant’s criminal to the NAPBS, employers who rely on the FBI files can be “lulled into a false sense of security that they are availing history, and allow applicants to explain themselves of the most accurate and comprehensive search available.”72 their criminal record. We wanted to have

Even more troubling challenges arise once employers a well defined process to follow, rather actually obtain a criminal history; it is unclear how E TRY EEN

R employers use the information from background checks than just barring people with criminal once they have acquired it. Currently, no guidelines exist histories. We didn’t feel that would about how to read a “rap sheet” or how to interpret this RISON ER P information fairly and appropriately. Advocates worry have been fair, and it would have been about the unintended consequences of this information, and the difficulty in adequately protecting people from contrary to the mission and value of

AUCUSON mistakes and misuse. “People’s lives can be ruined by C information that may well be erroneous or misinterpreted the organization.” or just taken out of context,” explains Maurice Emsellem, OLICY P Soros Justice Senior Fellow of the National Employment Valerie Johnson Law Project in Oakland, California.73 Director of Recruitment Systems, Advocate Health Care Y RAL AYO M 26 Solution Through its own actions, the City should encourage employers to adopt similar standards and make individu- To increase employment opportunities available to all alized determinations about a person’s specific qualifica- Chicago residents with a criminal record who are strug- tions, rather than imposing flat bans against hiring people 76 gling to successfully reenter society and remain crime-free, with criminal records. With approximately 38,000 the City should review its own personnel policy regarding employees, the City is one of the largest employers in the background checks to lead by example for other public metropolitan region. “It would send a strong message,” and private employers. said Jodina Hicks, the Safer Foundation’s Vice President of Public Policy and Community Partnerships, “if the City The United States Equal Employment Opportunity publicized its policy, meticulously enforced the guidelines Commission (EEOC)— the agency responsible for enforc- in its own hiring, demanded that any city contractor ing Title VII of the Civil Rights Act of 1964— has imple- enforce similar guidelines and encouraged other 77 mented policy guidelines governing the consideration of employers to follow its lead.” arrest and conviction records in the hiring process, and advises employers not to use criminal records as an Along the same lines as the EEOC guidelines, a number of absolute bar in hiring decisions.74 The EEOC’s guidelines states have enacted statutes or issued guidance to prohib- do not allow employers to deny people employment it employment discrimination against qualified people because of a criminal record unless there is a “business with criminal histories. Thirty-three states, in fact, have necessity” for doing so. A business necessity can be estab- laws that prohibit denial of a job or license “solely” on 78 lished by looking at the following factors: nature and grounds of a criminal conviction. Such state anti- circumstances of the offense, length of time that has discrimination laws encourage the employment of people passed since the conviction, the individual’s employment with criminal records by ensuring that qualified people M AYO RAL history, and the individual’s efforts at rehabilitation.75 If with criminal records are given fair and equitable an individual lies about his or her criminal history, the opportunities to obtain gainful employment, while simul- P employer can refuse to hire, or later fire, that person. taneously promoting public safety. These laws do not LICY O require employers to hire people with criminal histories.

The City should adopt fair employment standards Although the laws vary in the 33 states, most require C UU N O AUCUS modeled after the EEOC guidelines, and establish a employers to consider whether a conviction is “reasonably “balancing test” in its hiring process: that is, the City related” to the particular occupation before termination or should only consider convictions related to the job in refusal to hire is permitted. P question, and should take into account factors such as the ER RISO N The City should advocate for state legislation modeled applicant’s age at the time of the offense, length of time after these existing statutes. Employers should be that has elapsed since the conviction, and efforts at required to make individualized determinations about a R rehabilitation. EEN TRY job applicant’s specific qualifications and criminal history, and should be prohibited from imposing categorical bans on qualified people with a criminal record. 27 Develop more community-based employment centers that use a comprehensive approach and provide long-term support. Recommendation

Issue

In some Chicago neighborhoods, community-based education and employment agencies have helped formerly incarcerated individuals find work for many years. They have developed sophisticated, comprehensive strategies for serving this population, and they have tapped into private and public funding streams to support the necessary array of services. In these communities, a person leaving prison will usually hear by word of mouth that a certain neighborhood organization is “the place to go” for formerly incarcerated individuals seeking a job.

However, there are not enough such agencies in Chicago. Those that do exist do not always have the capacity to meet the need in their communities, and many community- based agencies, although employment-focused, do not formerly incarcerated individuals. For example, some have experience serving formerly incarcerated individuals. agencies provide technical training as part of job preparation that requires participants to read and compute at a Chicago is home to five One-Stop Career Centers, also ninth-grade level. Many former prisoners cannot meet known as Chicago Workforce Centers, which provide this requirement, and consequently may not benefit from employment and employment-related services to low- these agencies’ services and programs. income individuals. But because of the specific federal funding source for these centers (usually Workforce These agencies must do more than assist released Investment Act funds), there are placement and retention prisoners in obtaining skills and connecting with employ- benchmarks, program constraints and eligibility ers. Formerly incarcerated individuals present complicated, requirements which do not always make the Chicago multi-layered barriers to employment. Agencies serving Workforce Centers effective for former prisoners. these individuals need to address changes in attitudes, Formerly incarcerated individuals, by virtue of their sub- behaviors and lifestyle from prison culture and criminal stance abuse histories, emotional, mental and physical activity and encourage positive engagement in the com- health challenges, academic deficiencies, or limited munity. These agencies must do more than teach employment experience, often need access to a variety of marketable skills; they must help reestablish connections. services over a long period of time. Further, family issues Moreover, low-wage, unskilled workers will often cycle

E TRY EEN frequently are intertwined with prisoners’ issues as they through several different jobs.80 The first job placement R reenter society and must be addressed concurrently. The often is the beginning of a long progression, which may be Chicago Workforce Centers, by and large, have not pro- disrupted as former prisoners struggle to meet demands of

RISON ER vided an environment conducive for former prisoners to

P the workplace along with emotional and practical adjust- discuss these issues and do not have resources to ments of life outside prison.81 Organizations that address 79 sufficiently handle them. only employment will not successfully meet the needs of these individuals. A more comprehensive, long-term AUCUSON Similarly, many traditional community-based education C approach integrating supportive services is necessary. and employment agencies are not adequately equipped to

OLICY assist individuals with criminal records in finding gainful, P long-term employment. These agencies’ services also may contain funding limitations, programmatic constraints or

Y RAL AYO eligibility requirements that prevent them from serving M 28 “Securing good employment opportunities Solution for formerly incarcerated individuals requires a variety of strategies. It is not To be most effective, education and employment agencies with extensive experience serving formerly incarcerated enough to polish their resumes and send individuals need to be community-based, and community-based education and employment agencies need to be them to the employer’s doorstep. You proficient in serving formerly incarcerated individuals. have to attend to their basic human Agencies already exist in Chicago that employ a compre- needs, so they are in a proper emotional hensive, long-term approach and work with large numbers of formerly incarcerated individuals. The City state to seek employment. You have to should identify these agencies and assist them in develop- help them develop their education, tech- ing new funding sources to expand their efforts in this area. At the same time, the City should determine which nical skills and “soft skills” so that once communities have high concentrations of formerly incarcerated individuals and lack agencies with sufficient they are in the work place, they have the resources and capacity to provide support specific to this tools to succeed. And then, you have to population. The City should then help to foster the development of new agencies to fill this unmet need by be there for them when that first or directing potential agencies to federal, state and city funding sources. second job doesn’t work out. Because if you are not, they may end up right Community-based education and employment agencies should apply a holistic approach in their case management back where they started.” and job search assistance. Case managers must assess individuals and provide referrals to treatment centers, Brenda Palms-Barber family counseling providers and other service agencies Executive Director, North Lawndale Employment Network when needed. Staff must understand their clientele and appreciate that individuals returning from prison may need numerous placements to find an appropriate job, may need to repeat job readiness classes or vocational training, may need a mentor for additional emotional support during their job search, or may need extensive follow- up and retention services.

Because of the large need for reentry services at the local level, the City should partner with community-based agencies and lobby at the federal and state levels for more

flexible funding sources to assist formerly incarcerated M individuals. The Workforce Investment Act is the largest AYO RAL funding source for workforce development programs

nationally. However, the use of this funding source is P LICY O constrained by numerous performance measures focusing

on job placement and retention, and does not lend itself to C serving the formerly incarcerated population. N O AUCUS

To effectively reduce recidivism and help formerly incar-

cerated individuals with obtaining and retaining gainful, P IONER RISO N long-term employment, the City must support, expand and strengthen programs proven effective in assisting

them. R EEN TRY

29 Expand curriculum for work readiness “soft skills” training. Recommendation

Issue resent employer consensus on what “work readiness” means for workers across industry sectors and across the Work readiness training traditionally has been focused on nation. Once formerly incarcerated individuals have ensuring that individuals master “soft skills”; that is, the achieved these credentials, they will have the foundation non-technical, intangible, interpersonal skills needed to for success in the workplace. succeed in the workplace. These skills include punctuality, reliability, good communication, teamwork, working with The City should form a taskforce comprised of representa- supervisors, problem-solving, and critical thinking. tives from the Chicago Workforce Board, the Mayor’s Employers often emphasize that these “soft skills” are Office of Workforce Development, the City Colleges, the essential, and sometimes even more important than tech- Chicagoland Chamber of Commerce, World Business nical skills to the success of their business.82 However, as Chicago, Chicago Public Schools, local businesses and the 21st century workplace has become more complex, other stakeholders to determine how work readiness employers often look for expanded work readiness skills credentials could meet the needs of employers in the to be competitive for a job. Chicago area. This taskforce should review and evaluate the models of “work readiness” credentials that are 83 Solution currently being used throughout the United States. Once a model has been selected that fits the needs of Cities, counties and states across the country are adopting Chicagoland employers, a pilot program should be work readiness credentials in response to employer developed for formerly incarcerated individuals, high experiences with large numbers of job seekers and school students, immigrants and/or public housing workers lacking basic employability skills. When an indi- residents. Although the concept of a work readiness vidual completes the requirements for a work readiness credential is being discussed in several different venues credential, he or she receives a certificate that covers locally, one model should be chosen to be implemented competencies like reading comprehension, technology across Chicago’s workforce and education systems, proficiency, problem solving, team building, business thereby ensuring uniformity and consistency for job math and many others. These credentials are nationally seekers and employers. portable for job seekers, legally defensible for employers, and have been developed in cooperation with agencies like the National Skill Standards Board (NSSB). They rep-

IN SPIRATION FROM TH E FIELD: SAN DIEGO WO RKFO RCE PARTN ERSHIP IN CALIFO RN IA E TRY EEN R

In 1998, the San Diego Workforce Partnership and community employers established a focus group to

RISON ER determine which work readiness skills would best serve both job seekers and local businesses. The group P created a list of 24 skills,and contracted with the school district to develop a program for each skill set. The program’s curriculum is available to a variety of training organizations throughout San Diego, including O ne-Stop Career Centers and community organizations.

AUCUSON Upon completion of the program, participants earn a “W ork Readiness Certificate.” The certificate is C accepted by a majority of San Diego employers, and represents work readiness skills that are commonly

OLICY demanded by the targeted industries. This certificate enables job seekers to show potential employers they P have the skills to succeed in the workplace, and gives employers some assurance that hiring these individuals will be a worthwhile investment. Y RAL AYO M Source: Cindy Perry, (Director of Special Operations, San Diego Workforce Partnership), interview with Tim M ichaels, August 19, 2005. 30 Encourage more “demand-side” approaches to job training designed in partnership with employers and customized to meet their needs. Recommendation Issue Community-based education and employment agencies should collaborate with businesses to identify career 87 A significant number of industries currently are experienc- opportunities in high-demand, high-growth industries, ing labor shortages due to an aging workforce, changes in assess which industries would be good matches for workplace requirements, and lack of a skilled employee individuals with criminal backgrounds, and develop base.84 These shortages provide formerly incarcerated customized training that goes beyond traditional educa- individuals with opportunities to find jobs after participat- tion and employment programs. Such partnerships would ing in education and employment programs, and for provide potential employees with specific industry skills employers to hire trained and qualified employees. and chances for career advancement, and would provide Unfortunately, training programs and employer demands employers with a stable workforce that contributes to their are not always aligned. business profitability.

To strengthen local businesses and help formerly incarcer- IN SPIRATION FROM TH E FIELD: ated individuals obtain and retain jobs with advancement possibilities that lead to self-sufficiency, training programs NORTH LAW N DALE EMPLOYMEN T and employer demands must be better matched. NETWORK AND ADVOCATE

To this end, work readiness training must be followed by HEALTHCARE PARTN ERSHIP IN CHICAGO industry-specific training based on employer demands. “Potential employees must have the requisite skills and a The N orth Lawndale Employment N etwork solid understanding of a particular field to increase their (N LEN ) and Advocate Trinity Hospital (Trinity) have chances of being hired,” stated Diane Williams, President developed a partnership to help formerly incarcer- and CEO of the Safer Foundation.85 Without a strong link ated individuals secure jobs in local hospitals. between training programs and employer demands, limit- Participants who graduate from N LEN ’s ed public resources will be spent on training that does not “U-Turn Permitted” reentry program and qualify result in long-term retention of quality jobs for under the Illinois Healthcare Worker Background formerly incarcerated individuals. Check Act spend three weeks of unsubsidized training in Trinity’s Environmental Services or N utritional Solution Services Departments. Upon completion of the training, participants are placed into available Community-based education and employment agencies positions at Trinity. Starting hourly pay is $9.00 to must link their job training to the evolving needs of $10.50 with full benefits; Trinity also provides a work-school program that assists employees in M Illinois industries through direct partnerships with specif- AYO RAL ic employers. “What we have realized is that customized acquiring education to advance in a medical career. training works only to the extent that it creates the oppor- To date, all 15 participants that have enrolled in P tunity for real dialogue between the company and the the training have completed it. Trinity directly hired LICY O training provider,” said Will Edwards, Director of the 12 trainees and two were placed in other jobs. O f

the 12 individuals hired at Trinity,11 still work there C

Workforce Solutions Unit for the Chicago Mayor’s Office N O AUCUS of Workforce Development. “This dialogue demands that after three years. O ne study showed that these the company is a true partner. When a company is not employees have a 25 percent reduction in absences fully engaged in the training process, there is less of a and time off compared with other employees,which P chance that they will actually hire individuals who provides the hospital with a direct cost savings. ER RISO N successfully complete the training.”86 N LEN plans to replicate the program at Mount Sinai Hospital and Advocate Bethany Hospital. R EEN TRY

Source: Brenda Palms-Barber (Executive Director, N orth Lawndale Employment N etwork), interview with Julie W ilen, October 24, 2005. 31 Engage employers to devise effective hiring incentives and retention strategies. Recommendation Issue This employer group, along with City departments (e.g., Budget, Law, Planning and Development, Procurement, To successfully place released prisoners into jobs as soon Revenue, Business Affairs and Licensing, and the Mayor’s as they leave prison, education and employment agencies Office of Workforce Development) should explore options must have established strong relationships with employ- of creating local business incentives to supplement the ers. Many employers are admittedly hesitant to hire Federal Bonding Program and the Federal Work former prisoners, but some indicate a willingness to do so Opportunity Tax Credit. Under the Federal Bonding with appropriate incentives (e.g., insurance against any Program, the Illinois Department of Employment Security potential legal liability) and interventions (e.g., case man- issues bonds of $5,000–$10,000 with no deductible for agers)88 to work with the employee and help avert any up to one year in case of theft or damage by an “at-risk” 90 problems. These incentives and interventions need to employee. Under the Work Opportunity Tax Credit, address concerns of employers about the perceived risks of employers receive up to a $2,400 federal income tax hiring individuals who were formerly incarcerated and credit for each low-income person on their payroll who provide former prisoners with necessary job training, has a felony record and who is within one year of convic- 91 placement and supports.89 tion or release. More employers should be urged to take advantage of these existing incentives. During fiscal year 92 If employers are not incorporated into the workforce 2004–05, only 34 bonds were issued and approximately development discussion— if they are not asked what 579 individuals were certified as former prisoners for tax 93 works and what does not work from a business credit purposes in Illinois. Employers should provide perspective— then they will continue to be reluctant to advice as to what supports are needed, what financial and employ released prisoners. business incentives should be provided to encourage them to hire qualified men and women with criminal records, Solution and what rewards and recognition should be given to employers willing to hire these individuals.

Listening to and learning from employers on issues ranging from job readiness to retention concerns is a critical step in crafting long-term solutions. “Sustained employment keeps me from The City, through the Chicago Workforce Board, the going back to street crime. It’s about Mayor’s Office of Workforce Development, the Department of Business Affairs and Licensing, the learning to love what you do . . . you Chicagoland Chamber of Commerce, World Business can’t say that about dealing. You may Chicago, the Civic Committee of the Commercial Club, and other partners, should solicit employer feedback love the money, but you don’t really E TRY EEN R (either through surveys or focus groups) to better under- love what you’re doing for it. But my stand and manage issues of hiring and retaining formerly incarcerated individuals. biggest accomplishment goes beyond RISON ER P my paycheck. I have an 18-year-old As a result of these conversations, the City should form a “Business Leadership Group” with private employers to daughter. I missed out on six years

AUCUSON identify potential strategies for employing these individuals.

C of her life, but she’s proud of me now. This group could serve as an incubator for innovative ideas, act as a peer exchange network, and host educational That’s the best.” OLICY P forums for the broader business community. Lafayette Haynes Spent seven years in prison for drug crimes and currently has been Y RAL AYO

M employed for over one year with a wood design company 32 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 33 tion with ent, ns ns an Recommendation O RK Y EW N non-profit agency that provides a a that provides agency non-profit diate, paid, short-term employment Ford Motor Company Motor Ford Rev. Henry Barlow Rev. Presid and Baptist Church Christ Tabernacle Pastor, ru also Barlow Rev. Ministers Coalition. New City’s in collabora trainingautomotive program technology nd has placed participants with over 150 participants placed has nd Former prisonersFormer are put back on the streets to be productive members of society, with nothing offered to be of benefit to them. If there are no organizations that can offer alternatives to former prisoners, we will continue to see the same devastation in the community as we have been seeing. These individuals have to eat, have to live somewhere, have to put shoes on their kids’ feet, and they can’t get a job. We will be faced with continued tragedies if there are no plans or alternatives for former prisoners to get a way out of their criminal lifestyle.” “This is a forgotten about population. Institute found that only 15of par- percent that only found Institute srie ogvrmn ulig,maintain buildings, to government services 0 percent of its graduates find full-time jobs full-time find graduates of 0its percent s. program, withworks CEOthis During staff s from agencies for which it conducts work. it forconducts which from agencies s

ed within three within ed years. g ut 1,800 former prisoners returning to Nreturning ut York 1,800 former ew prisoners h h and helps them secure long-term jobs.long-term them secure helps and CEO’s ul da- ility nate prior skills ment from crises, ave noave ividuals PPORTUNITIES IN O : IELD F MPLOYMEN T E Promote and support transitional jobs programs. The Center for Employment The O(CEO)Center a pportunities for Employment is CEO’s N eighborhood Work N(N CEO’s Project eighborhood Wimme provides P) CEO has developed an expansive employment network a employment expansive an developed CEO has EN TER FO R N SPIRATION FROM TH E C I City under community supervision. City community under highly structured set of employment services to abo services of employment set structured highly Source: www.ceoworks.org www.ceoworks.org Source: through day-labor work that perform custodial crews day-labor through nature trails, paint classrooms, and clean up roadway up clean and trails,classrooms, nature paint individuals on vocational and interpersonal skills skills interpersonal and on vocational individuals it generate revenue by 90funded percent is program within twowithin to three months.Vera the by A 1997 study public and private sector employers.sector private 6 and Approximately public were reincarcerat jobs in that CEO placed ticipants and values neededand values to succeed in workplace.the Wit other job candidates, employers look to person’s a work experience or job performance, often contactin tion.most formerlyindividuals But h incarcerated Employers on rely perceptions— their and oftentimes misperceptions— during hiring process.the Many employers may doubt former a prisonerthe that has Issue previous employers of or recommenreceiving letters recent work Furthermore, employers history. may be concerned contending individuals are these that wit which could undermine productivity their and reliab employee.an as powerf a oftenThese factors as act To combatTo formerlyind situation, incarcerated this addiction emotional issues, or adjustments, family disincentive to hiring former prisoners. need to develop work helpexperiences to that elimi unknowns,these shouldand this occur in environan allows them tothat develop good work learn habits, and buildmistakes, confidence their and skills. 34 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY limited English proficiency, and welfare Englishand recipients limited proficiency, disabilities, with individuals mental (e.g., tions assist to transitional programs hard-to-serve jobs targeted has been funding public more consequently, realizethesePolicymakers programs thebenefitsof employment. steady, obtain to unsubsidize needed experience and training,gain basic valuanesscan and individuals rea casejob management, with assignments.Coupled experien work paid recently released into prisoners pl rapidly programs These services. supportive and skill developme real work, that combines employment subsid publicly temporary Transitionalprovide jobs employment. unsubsidized permanent found ments as work short-term completed who the individuals of per 94 to that MathematicaResearch 81 Policy found by study A training and models. employment than traditionalsuccessful are programs more even fact,thatInresearch intensivehas transitishown their return to issuestheseupon face individuals addressingincarcerated theperso while individuals former to experience real work theyprovide because effect be to Transitionalhaveproven programs jobs Solution onal jobs onal illnesses, ble skills ble popula- society. 94 , and , sign- cent ized for ace nal ive di- nt, ce ly ). ). d concentration of returning prisoners. of concentration a with high neighborhoods in especially Chicago, several to transitional programs sites through jobs cu thetwo expanding for funding federalgovernment s using of thepossibility consider should City The participants a valuablethem make among investment. ratereci of the low retention and ratejob high of expensive, be can transitional programs While jobs thecurrentp expanding for several options explore should theCity and effortis needed ambitious more programs emerging a few to ishome Chicago Although search process. thejob of understanding improved andhistory a marketablehad work period employment thesubsidized of at hired immediately the end not w who those even and experience, valuable work oped incarcerated individuals formerly These employers. priva with experience work paid subsidized publicly using backgrounds felony with people for program transitional a pilot jobs launched Development Workforce Mayor’sof Chicago’s JulyInOffice 2004, Pennsylvania,York,Wisconsin. and New ateWashing states in thecountry,including around transitionalCurrently, programs than 40 jobs more “The way businesses are successful is successful are businesses “Theway someone who doesn’t.”who someone than employee better a be ultimately may they record, criminal a have may Evensomeone though sentence. life a becomes now conviction major of kind any that is that of consequence social the And goodbye. it’s record, criminal a find they if and, check, background a do today employers Most risk. additional an that’s sometimes conviction, a with applicant potential a of issue an is there If risk. minimizing by Presidentof Chicago the Office, Computersfor Scho Cade Willie 96 95 ols divism devel- tateor oper- rrent ton, ilot. out the an ere , a , te MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 35 , l d. nd id- , a and they treet with r its r e e in a ation’s its get its thers. thers. in San ement — grants person- c social skills at skills ratransit e e success- or is what core the is Recommendation Solution offer opportunityan Social enterprises for people criminal records workto significant gain experienc business environmentpractices and with standard procedures toindividual their needssensitive and circumstances. al within businesses a are usually Social enterprises non-profit produce that entity goods (e.g., soaps a honey) or provide (e.g.,services landscaping and s cleaning)to specifi trade a and directly link that mission. By and large, social enterprises strive f strive mission.social andenterprises large, By commonly “double toa referred as bottom line” deliver on both and socialfinancial performance Funding forcomes socialtargets. enterprises from profthe business revenue, welland as generally as channeled back into organization the for manag case and other social services. Foundation,The Delancey foundedoriginally Street fo reputation Francisco,national a California, has th well as as innovative ventures social enterprise ful outcomes achieved its At byparticipants. its behavior beliefcan that be changed structured in a supportive market-driven environment in which indiv ual responsibility ual and emphasizeaccountability are learn equivalency participants degree. Afterwards, one schools:of training Foundation’s the moving a service and catering trucking company, restaurant a print and copy shop,pa sales, wholesale and retail services, and automotivean among service center, o During an individual’s participation in organiz the During individual’s an two-year program, workthey to high achieve a schoo ile one. may , this often uire a uire ife ife out- Promote and support social enterprise initiatives. Executive Director, The Kitchen Enterprising Director, Executive Lauri Alpern to sustainable employment and are the building blocks for self-sufficiency. trainingThrough and participating in real world work experiences, individuals obtain job skills (leadership and problem-solving), identify gaps in basic skills (reading and math) and get opportunities for higher level training (computer literacy). Social enterprises give participants an opportunity to build self-esteem and self-confidence in an environment that is structured and demanding, yet set up for them to succeed.” “Social enterprises are stepping stones process will not involve formula same the for every may req individuals initially Formerly incarcerated not be conducive tounique their circumstances. Wh dedicatedmany are to findingjob a and maintaining more supportive to acclimate they work l as setting Issue For prison,individuals leaving competitivethe and unforgiving nature of unforgivingwork structured nature a environment side of prison and develop new ofa set skills. 36 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY social enterprises. social the by servicesdelivered and manufactured products for networks business-to-business and to-business cultivate to governm help should theCity Moreover, ones. developing and asnew as their well operations businessmentor enterprisesexisting exp social to encourage should a City The enterprises thissocial population. for addit of fosterthegrowth to money seed provide to explore already individuals should City The exist. specifically enterprises social of a small number Chicago, In individuals. train and incarce formerly house to asimilar model independent lives. independent are and leatheprogram graduated successfully from have individuals than 14,000 more theorganization, Accord a smalland stipend. housing, food, receive return, thein resi community; theDelancey support busines theDelancey generated by the funds of Most ore:Eric(ExecutiveCAR einheimer Director,The W Sources: crewsin2006. permanentjobs benefits with inprivatethe sector. Cleanslateoperation, achieved marked success. Seven theof Auburn-Greshamcommunity Chicago’son south teachaboutthem workplace expectations. astasks, theytheir perform and adetailed curricul individuals, mostlythosea criminal with background recyclingprograms community to residents and busin andvacant provideslots; light landscaping and snow coe 7 2005. 17, October C I PRTO RMT E TH FROM SPIRATION N E NSAEI IN SLATE LEAN focused on helping formerly incarcerated formerly helping on focused The pilotprogram The launched inJune onewo with 2005 CleanslProgram ofoutgrowth An inCARA Chicago, The Cleanslateis anon-profit neighborhood beautificat 97 The City should consider investing in consider should City The C F IELD IAOHICAGO : options ing to ing dents rga)adMakCrol(rsdn,Cleanslate),Carroll(President, ark M Program)A and rated ional ding ent- and ses lso se

umand evaluation process have been established to contractualopportunities. assess surveydepartments to appropria other should as aexperiences guide, Usingthese two vehicles. preventativeCity repairs maintenanceand on ligh perform to adultsrecords, criminal with young Trainingtraining Center,for anautomotive program YouthAdult and theChicagoland with iscontracting Fleet DepartmentManage of The services. landscape perform to people, homeless and servinglow-income ChristianorganizatIndustrial League, a non-profit Transportation theChicago with of havecontracted General Servicesthe DepartmeDepartment of and The initiatives currentlyCityhas such The a few under servicesthat it already needs. o products for contracting by population overlooked an for opportunities development workforce crucial providin be would City The environments. ticesand standard to business exposure them giving viduals, incarcerate formerly for late training into support directly would dollarsefficiently. and Government effect departmentsmore operate help to theCity by servic delivering and goods theCity, for producing asqualify v enterprises instance,social For could Cleanslatewillbeexpanding work fouroperate to removal services;and helpsChicago’s promote to . The participants The learn criticaland . lifework skil esses. of the originaltheof Cleanslateten interns have found ionbusiness cleansthat sidewalks, parkways, side. After only monthsfirstthe three After of side. rk crew focusedcrew rk commercialthe on streets ateemploys “difficultplace” to interview with Julieinterviewwith ile W theCity esused d indi- d endors trans- often- ls n, prac- ment ively way. ion nt te g r t MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 37 e ly ed f f a nd and tion hich s ands nd to ive ive to s whos licens- start-up specifi- , regula- immedi- e e listings. rtnership Recommendation 99 res. After online completeAfter users short ques-a 98 EXAS rk O ffice;three prisoners have obtained rkhave O prisoners ffice;three T Under PEP’s guidance, two prisoners filed filed twoguidance, prisoners Under PEP’s ormer prisoners currently run their own currently ormer prisoners profit organization that leverages the skills of the skills that leverages profit organization s to small business financing. business to s small wish to become self-employed. in conjunc The City, with of Illinois the Department Corrections (IDOC), should program to work through Pre-Start IDOC’s promote such resources before a prisoners’ release, The City, through the Department of Business Affair through of Department the The City, Business and th Center, Assistance Business Licensing, Small Office ofMayor’s Workforce Development, should exp to provide business initiatives resourcessmall its fortailored cally formerlyindividual incarcerated encourage prisonindividuals leaving to consider self-employment viable, morea as flexible alternat employment.traditional starting a business and a glossary of business andglossary a a usfrequently starting business terms. tionnaire regarding their business goals and their business goals and their their regarding tionnaire Commission.License Mayor’s the The new department point a as ofserve contactwill essentially and pa ate needs, the website generates customizedneeds, websiteate the generates resourc In November 2004, City the announced creation the o and Licensing, w newAffairs of Department Business toplans consolidate functions several from the of Departments and Development,Revenue, Planning a for with providingbusinesses, licensing assistance tory andrequirements, business development. This onlinetodepartment plans create applications and providewell support as as ing renewals, extra for andbusinesses. Theexisting department became ful endthe operational at of 2005. competition, program, work executive readiness ormer prisoners with entrepreneurial training. with ormerentrepreneurial PEP’s prisoners d to or all ng as job

that hese isms and , and ically eit in eit s ands other reedom ROGRAM IN sources, employ- mmary. job skills, P : IELD F N EURSHIP TREPREN E patent applications with the U.S.Patent and Tradema with and the U.S.Patent applications patent on a full-time basis. full-time on a PEP has engaged 120 prisoners in two Texas prisons. Texas twoin 120 prisoners engaged has PEP The Prison Entrepreneurship Program (PEP) is a non- a is (PEP) Program Entrepreneurship The Prison Foster more opportunities for entrepreneurial ventu RISON N SPIRATION FROM TH E Source: Su Program,Entrepreneurship Executive Prison provisional P investors; threefrom seed f and commitments funding businesses I key initiatives include an in-prison business plan plan business in-prison an include initiatives key senior business executives to equip prisoners and f and prisoners to equip executives business senior acces and school program, entrepreneurship mentoring Self-employment f allows individualan flexibility, and control, and avoidsbarriers institutionalized employment.traditional mechanTherefore, creating to encourage f and ventures support entrepreneurial individuals with criminal records can provide more opportunities conventional than employment models. Individuals seeking to become may nee entrepreneurs Solution Many released prisoners confront released Many multiple barriers limited education, work little experience, lack of and orabuse substance hiring restrictions, stigma, ment may not option.be feasible a Since many of t individuals beenhave (alb successful entrepreneurs simplythey enterprises), needillegal to rechannel abilities. their redirect re business, available a information about starting and encouragement. Sm the Theestablished City has Issue compound to findstruggle their employment, includi individuals,For issues. these traditional health (SBAC), Center officean specifAssistance Business designed to succeed.help businesses small SBAC provides to commonanswers business questions, such business development guide a well onprograms as as permit and license zoningrequirements, regulations website posts useful business inspections. SBAC’s resources, suchinformation as about funding source 38 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY clients. fo Conduct) DisabilityCertificates Good or from of Certificates sealing, or of record and expungement (e remedies judicial crucial systemobtain tice and navigate to the crimina theintricacies of how know ful not mayalso They future employment. means for misinterpretmay a and reco sheet”) whatsuch (“rap read anindividual’s to history criminal standhow casemanagersunder and not may developers job ple, ex For them. with work wantingto as not perceived incarceratedmay and clients,formerly with working adept be skills or thespecialized possess not may ag cases,staff employment and some In at education circumstances. appreciate their unique not do search, and job preparationor employment assist to t with well-equipped are individuals, not incar formerly of needs thespecific about informed these in agencieswe areprofessionals not however, barriers. T state,interconnected and multiple and situation, emoti their record, criminal standing of un aincarcerated nuanced clientsformerly involves reentry.assistance with Working upon employment for colleges Career community Centers, and One-Stop faith-basedorganizatio other and churches zations, organ community-based rely on prisoners Manyformer Issue ment agencies to better serve individuals with crim with individuals serve better to agencies ment educatio existing to development professional Offer oo often, oo cerated record rtheir encies Relief l jus- l onal der- heir am- be .g., ns, rd ll- ly at i- - “My son was placed in a halfway house halfway a in placed was “My son criminal justice process, potential judicial remedi judicial potential process, justicecriminal as thestagessuch topics covering reentryprocess, anstaff educate records criminal to about workshop facilitated They centers. a resource employment assistance technical staffLISC-funded nine to of pro to (LISC) Initiatives Local Corporation Support and theCollaborative with worked theCity 2004, In theselines. along variousmodules with curriculum aninnovative havealready and Collaborative, de CriminalRecords the haveformed Chicago organizations in Advocacy their clients help to tools concrete developers job g and prisoners, former of circumstances theunique culture better theprison understand developers job sensitivityinfuse to reentry toward issues orde in interactive worksh encompass trainings These should incarcerated servingindividua formerly tailoredto trainings specificall conduct and reentrydesign to prisone and development workforce both expertise in h who professionals with coordinate should City The self-sufficiency. economic a placement job needed obtain reentering thebestavenues for pris of one provide agencies employment and education Community-based Solution him to go out and do wrong.” do and out go to him pressuring is there right That job? a doesn’thave he when rent pay to going he Howis leave. to him asked house halfway the and him, of demanded rent monthly small the even afford longer no could he before wasn’t long It work. couldn’t find but prison, after Mother of formerly incarcerated Motherof formerly son CarolynNance 100 inal records. inal n and employ- nand ssistance on theirto ssistance road on Recommendation r to help rto oners to oners of the of d the d vised the and vide ops ave ive ls. es y y r . MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 39 ; k- ed, ices t oft e e to 103 tions r, we r, on to of the a year a State’s o have e.” aling ofaling gencies. ving the employ- ealed ealed or d courtsthe Recommendation g g and sealing their s to formerly Both ofcrim-the Both processes these that require 104 Bill ConwayBill Container Cameo Manager, Human Resource Although I may look at an individual’s record, if they are honest about their criminal background, the criminal history most often becomes a non-issue.” “I value“I honesty the most. ers to use the website as a basic to resource.a ers use website the as Howeve examine local needs and in gaps providing informati According Hampton, to Lisa Senior Policy Associate Chicago Council, Jobs “Our goal tois encourage wor force development job and frontline staff, seekers communitieswant to expand use of their websit this employers and job and toseekers, consider how serv get accessedget and supportswhat availabl locally are Under Illinois law, some eligible Under t Illinois individualslaw, are or conviction orof part arrest all their history s expunged. inal history beinal maderemo confidential, essentially criminal history fromindividual’s public Se view. records protects informationthe from public access to enforcementlaw available however,a still is it physically destroy records.the The process orfor sealing expungement complicatis time consuming, and expensive.potentially Applica must be filed police,with localthe and state the Cook In someCounty. overprocess the cases, takes to complete. Expungement requires that the arresting agency, the agency, arresting the Expungement that requires Office, Attorney’s an Office, State’s the Sheriff’s Office and Attorney’s Clerk the of Circuit the Cour - s” ll. er of S) ut ii) ap in ges lop elp- ula- inor eets, crip- heets tions: work intake , ways e e indi- impact . They Bureau ains the ains d federal mployers Expand Expand access to and availability legalof resource incarcerated individuals for assistance in expungin criminal records. This training could This training be expandedeasily to include 101 occupational publicbans and waivers, andbenefits supports, common bibliography, terminology, and a h and assessment, job and and assessment, job readiness, retention; ( includes information on criminal records and sh rap ful links; includesand (iv) information “RESP” abo Employment Reentry including Program, Service IDES’ workshop tools, andcontact a presentations, list. (i) “Working with includesClients” information on “Working with Employers” includes common mispercep- hiring peopletions regarding with criminal records tions toof e andbenefits the incentives available who formerlythe hire (iii) incarcerated; “Resource (e.g., expungement, of sealing records, r a reading sheet), and ofchallenges the working popwith this with Chicagothe partnered has Council Jobs to deve who website fora andfrontline staff maintain serv with viduals criminal records. launchedwas The site October 2005 four onsec website and features IDES’ toto employers, demonstrate rehabilitation and des The Illinois Department The of Illinois Department Employment (IDE Security tion. socialany service provider or economic development organization. sive repositories. The Illinois State Police repositories.maint sive The Illinois State criminal record and Federal the repository, state’s misdemeanor convictions or with no convictions a at where personthe include nev was sheets Rap arrests Thousands of with Chicagoansonly sheets rap have m Issue Any person record whoa has beenever has arrested criminal history (“rap their an sheet”). The state governments compile information this into comprehen one. federal the ofmaintains Investigation dismissed, or were later char charged,that charges where personthe foundwas s These rap not guilty. publicare record and may be preserved indefinitely are accessible to are employers, and may significantly employment individual’s an prospects. Few people can navigate this process successfully without Solution some sort of legal assistance, and even fewer can afford an attorney. Currently, Cabrini Green Legal Aid Clinic Free or low-cost legal services and resources should be (CGLA) is the only private agency in Chicago that provides more accessible to individuals with criminal histories this service for free, and it is over capacity. Between 400 seeking expungement or sealing. and 500 former prisoners visit this clinic each year, and only 200 individuals are able to obtain assistance with In July 2005, more than 3,000 people attended an legal proceedings. In an attempt to serve more clients “Expungement Summit” sponsored by the Honorable expeditiously, CGLA set up a help desk at the Clerk’s Dorothy Brown, Clerk of the Circuit Court of Cook office, three days a week, so lawyers can file petitions on- County, in conjunction with Congressman Danny Davis, 105 site for clients. But it still cannot meet the need. State Representative Connie Howard, other elected officials, and an array of community organizations. The “Most of the people we [the Cabrini summit was intended to bring expungement services directly to the community. Volunteer attorneys assisted Green Legal Aid Clinic] see have participants in preparing applications for filing petitions for expungement or sealing. The State’s Attorney, Chicago been denied jobs due to their criminal Police Department, and Illinois State Police explained their backgrounds. They are unemployed petition review process. The Illinois Prisoner Review Board discussed Certificates of Relief from Disabilities and or underemployed. This perpetuates Certificates of Good Conduct, as well as how to prepare letters for clemency and/or pardons from the Governor. economic hardship and poverty. Other agencies shared information on employment, training, health care, housing and other services specifical- They have served their sentences and ly for people with criminal records.

want to move forward. They want to In addition to sponsoring these types of summits, the City should collaborate with the Chicago Bar Association, the improve their lives and their families’ Illinois State Bar Association and local law schools and lives.” legal clinics to increase access to appropriate legal assistance and advice for judicial remedies for formerly incarcerated individuals. For many individuals, these Margaret Soffin actions could be the first step on their road to employ- Attorney and Director of the Criminal Records Program, Cabrini Green Legal Aid Clinic ment, self-sufficiency and successful reentry into society. E TRY EEN R RISON ER P AUCUSON C OLICY P Y RAL AYO M 40 Sandra S. is a 38-year-old African-American woman

After graduating from high days in county jail. She remem- of her three months of treat- school in Chicago’s Garfield bers mainly watching TV with ment, she was eligible for Park neighborhood, Sandra had fellow inmates—and waiting to Sheriff’s Furlough again and she her sights set on college. She get out. returned to house arrest status. enrolled in a computer training She was able to spend time with program that she hoped would Sentenced to probation, she her daughters, even attending help her to prepare. But then, was placed under house arrest. her youngest’s graduation from out partying with her friends She wore an electronic band grammar school. one evening, she tried crack around her ankle and had to cocaine. After that, she doesn’t report to her parole agent Gradually,as her court date was remember what happened with every month, but she was not postponed over and over, the computer training class, or required to take drug tests or Sandra began to feel the strain thoughts of going to college, or undergo treatment. According of her uncertain circumstances. Real Life plans for getting a job. Except to Sandra, “Probation was just “I was really on a rollercoaster that it all went away. She was 19 something I had to do every at this time,” she explains. “I years old. month. So long as I reported in, was so grateful to be back home then I could sail on through.” that I had no intentions of using “I had just finished high school, Sandra continued to use and sell drugs. But for me to come and I just wanted to try things,” crack during her probation. home each day,I had to pass the Sandra recalls.“And that’s how I Soon she was getting high “24 same block where I used to ended up where I’m at today. hours a day.” hang out and get high.” They say you only have to try crack cocaine one time to be In February 2003, narcotics After her conviction and addicted, and I guess it’s true.” police apprehended Sandra with sentencing, a full year after her a large quantity of crack— with- initial arrest, Sandra was trans- in 1,000 feet of a public park. ferred to Decatur Correctional Under Illinois drug laws, Sandra Center, where she continued to Sandra S.

W hen she realized she had a knew, a conviction of intent to attend daily group therapy drug problem, she tried to sell near a public park could meetings. W ith each day that regain control of her life. At the carry a severe sentence. W hile passed, she felt a little more in age of 21, pregnant with her first in Cook County Jail for five control. “I didn’t think I had a child, she managed to stay off days, she became increasingly bad drug habit until I was in crack for an entire year. But desperate and depressed. these places, because I wasn’t soon after her child was born, Shortly after being released on doing some of the things that I she relapsed. She became preg- Sheriff’s Furlough, she attempted had seen other people doing M

nant with another child less suicide. “It was my attempted out there,” Sandra says. “N ow, AYO RAL than two years later. Although suicide that saved my life,” she in treatment, I was getting con- her second child was born drug- explains. trol of myself and my life. I was P

free, she again relapsed quickly realizing that getting high was LICY O after her birth. As soon as she was released not what I wanted to do any-

from the hospital, she was more. But there were other C

As her habit grew, Sandra start- picked up by Sheriff’s police and woman there with the same N O AUCUS ed selling drugs to support her returned to Cook County Jail. problems as me who didn’t addiction. In 1999, she was This time, however, she enrolled want to be in these programs. arrested for the first time. in a drug treatment program for They just wanted to do their P N ow, a crack cocaine addict for the first time in her life. She time and get back on the street. ER RISO N more than 10 years, Sandra was kept to a daily schedule of group And they ended up getting rear- charged with possession and therapy meetings and other rested.” R

intent to deliver. She spent 17 structured activities. At the end EEN TRY

41 her custody her custody for ceedings necessary to regain necessary ceedings of her children.custody And her leads,away job far mostly either in from her community industries, food or fast cleaning nowhere. to going be seemed to turn around began Things with reconnected Sandra when pro- service community-based a had she with vider which worked after arrest. her first a began agency at this Staff housing for affordable search employment, informed and and the get could that she Sandra fee legal waived. A proceedings few days pro- later, jobs the transitional inter- on an Sandra sent gram view. case a as hired was She lead and to organize manager for drug sessions therapy group individual conduct and addicts evaluations. important “I feel manager. It feels case a being people. helping good I And can so in do it,been I’ve because myself. I this like groups many going know what they’re Sandra. explains through,” an like feels paycheck Each on Sandra’s important milestone toroad recovery. grateful “I feel today. where There places are can records with felony people work,find many. there but aren’t that I’m out of the I’m grateful time last this in I was situation year.”

“Now, in treatment, I was getting control of myself and my life.” Because she was a first-time a was she Because not been had and offender offense, violent of a convicted toto transfer able was Sandra Transition Adult Valley the Fox Valley),Center (Fox near Aurora, after three months. Here, for her time the in first life, the arduous a began she holding and of finding process job. period, found she difficult a It Although says. was Sandra restaurant, food work fast at a the workmore challenging was expected, had she than and months, few after a was she fired. to hired then was Sandra at the workkitchen in full-time Valley. Fox her release approached Sandra with trepidation.day hold- felt and She of finding her chances were of prison outside job a ing to worry remote,began she and of her custody regaining about been had her sister children, as while temporary custody given prison.in was Sandra Around time,this recruiter a from a pro- service community-based looking Valley Fox visited vider tonew a women in enroll program. jobs transitional eight of one just was Sandra to participate. women selected with Valley Fox left Sandra But $200 no job,cash, no place and to live. with stay couldn’t She her moth- her mother because not would tolerate landlord er’s with a of someone the presence couldn’t she record and felony of because with her sister stay their relationship. turbulent Meanwhile, out found Sandra to need would pay that she pro- $300 to the legal initiate

MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 42 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 43 als in Cookin County Jail.als This courtin to arranged agency tocare. its released Marvin have to him obtain helped They large a in immediately housing that Nhouse rooming orth Side meals. communal offered O nce visited managers out of jail, case that to ensure day a once him as medication his taking was he a build him helped as well network support the in community. living is and now moved He has apart- small a in independently ment. visit still managers Case daily.him his Hefollowing is treatment regime, compliant and,with supervision his in words, tostraight, “trying keep job,stay a get and puppy, a get now He can medication.” on my the community in function care. institutional without any five therapy this beginning Since not been ago, has Marvin years back notarrested, been has he not returned to has jail,he and hospitals. state to any

his medication or therapy. medication his out of and in cycled Marvin homes, hospitals, state nursing YMCAs, homes, shelters, group time of his much spent and and in homeless. cycled He also out term of jail, with prison one for theft. O 30 years, ver the last one- more than spent Marvin either hospi- in life third of his or jail. tals securi- social receive did Marvin for his topay help ty benefits treatment. health mental sent time was However,he each to jail, checks disability his to reapply had he and stopped release. after his for eligibility time, this During often was he without medication, money, or housing. stable Marvin the years Throughout and medication received has treatment, quite never it was enough. involve- intensive Even a days five program a ment in stabi- him not week did keep lized. someone needed Marvin medication take tohim help holidays. and on weekends even W acknowledges Marvin hile him, helps that medication it dif- very make still symptoms to the medication take ficult day. each In 2000, time Marvin the last jail,involved in was became he community “assertive with an to treatment designed team” individu- ill work with mentally

stay on my medication.” my on stay

get a job, get a puppy, and and puppy, a get job, a get “[I am] trying to keep straight, keep to trying am] “[I For the past 35 years, For the past Marvin chronic from a suffering been has schizo- illness—paranoid mental of this because phrenia—and repeatedly been illness,has he justice the criminal in involved system. record arrest goes His to 1969.back been He for 151 crimes times arrested has theft,retail including criminal trespassing, battery,robbery, indecency. public and armed 33 hospitalized been He has psychiatric state in times additional multiple plus facilities, psychiatric private in times hospitals. W not on medication, hile nervous excessively gets Marvin func- paranoid,cannot and and contam- society.tion in Fearing ination,clothing stolen has he handle ratherlet clerk a than the merchandise. peo- Fearing hurtwill ple him, has Marvin unpredictable, on at least been armed attempting occasion one robbery. served Marvin illness, his Before Air the Force,in own his had a apartment, as job a held and department a in clerk stock store. illness, began of his he onset However, was the and during suspicious becoming toplaces, go afraid thinking him. harm would strangers As and confused, was says,“I Marvin too well.” myself adjust couldn’t himself bring couldn’t He simply with to tohim others allow help Marvin A. is a 64-year-old African-American man. Marvin A. Marvin Real Life Recommendations

Reforms with Statewide Impact • Ensure that prisoners receive a comprehensive health assessment at intake as a basis for treatment plans.

• Increase availability of effective in-prison substance abuse and mental health treatment.

• Streamline continuity of care from prison into communities.

• Develop information-sharing programs to streamline portability of records both into and out of prison.

• Ensure timely access to Medicaid and SSI/SSDI benefits for eligible individuals released from prison.

Reforms with Citywide Impact • Increase access to and availability of community-based treatment programs to address prisoners’ health-related issues.

• Create and expand diversion programs for individuals who commit non-violent offenses and need substance abuse or mental health treatment.

• Create more positive social structures and peer support groups to assist with recovery and difficult psychological adjustment during prisoner reentry. Chapter 2 Health 44 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 45 , hey entry, social falling ectious release, ners. ners. If bility ofbility . eep jobs, the com-the e e exacer- and rein- deterioration, negative social deterioration, outcomes, negative rearrest, carceration. Addressing issues—prisoners’ health abuse substance and mental physicalchronic health, and inf illness likelihoodthe increasing willthey find andthat k housing, secure stable and forge positive, lasting munity at large. They are at an elevated risk for risk elevated an at They are large. munity at into cycledestructive a incarceration, of arrest, component diseases— essential an is of successful re release with and family friends after relationships significant gap betweensignificant needthe for and availa the services. oftencare Accessbasic health issues ar bated forprisoners whoreturning likely had their Medicaid while incarcerated. terminated benefits concerns health notBut affect only priso returning t notneeds are health managed appropriately, their also jeopardize well-beingthe of and family their , 5 s e . es or ia, tic and and care betes ins a a ins ltural , that t onet espite r than r e e with mooth an onean tion. institu- ndence ities are ities a range a risoners 3 such as 75 per- bringing st mental st 6 Up to 16 percent of 4 More two-thirds than of Prisoners also have a high- a also have Prisoners 1 7

The use of drugs and alcohol linkedis to 80 2 Chapter 2: Health 2: Chapter people for depesubstance meet criteria the in jail or abuse. serious mental disorder serious mental and in is need of treatment the nation’s prison populationnation’s the fromleas at suffers major depression, bipolar disorder, and post-trauma percent of crimes committed in United the States. Serious mental health disorders suchhealth schizophren mental Serious as disorder among twostress prisoners are to four tim population. general the higher than er incidenceer ofhigh blood asthma, and dia pressure public. general the than of all prisoners home,willthese return Virtually concerns health their with them, and willthey face adjustment. ofHealth make they that obstacles as s a important play an services role in facilitating back d totransition community.the Unfortunately, tremendousthe growth of Chicago’s community-based rema still there in recent years, system net safety because committedhave they may not crimes hav that occurred Somehad receivedthey of treatment. our correctional house institutions nation’s more peopl Undeniably, there are individuals living behind are there bar Undeniably, do than illness mental our health mental country’s tions; Cook for large the is instance, County Jail, one-quarter nearly of year, people living with HIV one-third nearly AIDS, of people C, with hepatitis health care facility in countrythe facility care health today. In 1997, prisoners constituted considerably th less percent of population. total country’s the However more one-third than of those with tuberculosis were from prison released a or jail. struggling with infectious struggling chronic disease, illness of peopledisparities health with criminal records, By mostindividuals in By correctionalmeasures, facil addiction, highe far levels anddisorders mental at public. general the number a ofare There broad cu contribute challenges that to factors health these low socioeconomic and employment lack of status, discrimina and services racial care health adequate over According Statistics, of toJustice Bureau the drug-are or alcohol-involved. cent of state prisonerscent and of80 state percent of p federal Reforms with Statewide Impact

Ensure that prisoners receive a comprehensive health assessment at intake as a basis for treatment plans. Recommendation

Issue Undiagnosed illnesses are problematic both for the affected individual and society as a whole. Health Although most prisoners develop their health problems conditions are generally easier and less expensive to treat before being incarcerated, most people sentenced to when they are detected early in the progression of a 14 prison lack health insurance and have rarely, if ever, seen disease or the cycle of addiction. a doctor in the community.9 In a sense, then, prison is potentially the first point of access to diagnose and treat a Treatment plans differ widely between institutions and are variety of physical, behavioral and mental health condi- dependent on several factors. First, public safety and tions affecting these individuals and threatening public security concerns dominate a prison setting. Wardens, not health. As the National Commission on Correctional doctors, manage and control institutions, and often make Health Care (NCCHC) contends, adequately treating decisions (e.g., if and when a prisoner can be taken to an people in prison can serve society at large by minimizing outside specialty appointment or when medications can be transmission of communicable diseases, reducing health delivered) that normally would be made by medical care costs in the community, lightening the emotional personnel. Second, the quality and breadth of medical burden on families, and diminishing the potential for care after screening can fluctuate depending on the entity future crimes committed by people whose untreated administering health services at a particular correction mental health problems or substance abuse drives them to institution. In recent years, complaints have surfaced that criminal behaviors.10 some private contractors who deliver prison health services in Illinois have not provided adequate medical The Illinois Department of Corrections (IDOC) conducts supplies, or have restricted treatment for seriously ill pris- 15 health screenings during prisoner intake. Correctional oners. Third, health services provided by corrections health staff interviews each incoming prisoner about departments across the country are not consistent with the individual and family medical histories, mental illnesses, standard of care provided outside prison, and are drug use, chronic ailments and histories of physical or considered to be “20 years behind the state of practice” in 16 sexual abuse.11 Diagnostic tests and physical examinations the medical industry. are used to screen for hypertension, diabetes, high cholesterol, chronic alcohol and drug use, hepatitis and other diseases.12

However, this screening is limited.13 IDOC’s Reception and Classification Unit (the division of IDOC responsible for intake and processing of prisoners) lacks a validated,

E TRY EEN science-based assessment tool that serves as a basis for the R development of a treatment plan. Reception and Classification’s screen for substance abuse does not lead to RISON ER

P a comprehensive diagnosis of an individual’s clinical needs. This unit does not have sufficient capacity to adequately screen for, let alone assess, all prisoners’ clinical needs. Mental health screens are self-reporting AUCUSON

C and only identify people who are currently experiencing or exhibiting symptoms. The screens are primarily aimed OLICY

P at identifying suicidal or homicidal prisoners who need to be segregated from the general prison population. Similar to mental illness, testing for HIV and hepatitis C is Y RAL AYO

M provided only for symptomatic prisoners and for those 46 whose histories indicate an elevated risk. Solution

Capacity of correctional health and medical staff must be expanded to perform thorough assessments, and correctional facilities must be equipped to do them. There are opportunities during intake and incarceration to screen, manage and treat many physical, behavioral and mental health conditions that signficantly impact the well-being of prisoners, their families and the community. Because institutionalized health care may be the only health care option for many individuals involved in corrections, it is important to make the most of these opportunities.

IDOC should routinely administer a validated, science- based assessment tool to diagnose various health-related issues of physically and mentally ill prisoners. This tool should provide sufficient information to develop a clinical health plan and treatment program that can follow prisoners throughout the prison system and be used to continue services after they are discharged. For example, prisoners with serious chronic illnesses must receive proper treatment during incarceration, those with HIV, hypertension or diabetes must receive regular checkups, and mentally ill prisoners must receive treatment that prepares them to function in the community after release.17

Similar to the medical community outside prison, the health staff at correctional institutions should serve their prisoner patients within a uniform standard of care. Sufficient guidelines and oversight should exist to guarantee that prisoners “This is the best chance to do not receive substandard medical care, but rather a standard of care that ensures individuals leave prison physically locate customers. They are in and mentally healthier than when they arrived. NCCHC’s Standards for Health Services offer a guide which Illinois front of you and they aren’t can use to create model standards. Designed by independent experts from the fields of health, law and corrections, going anywhere. You can talk the NCCHC standards provide comprehensive guidelines 18 to them, and you can get them for improving the health of prisoners. M AYO RAL all the resources they need. A number of states are experimenting with innovative ways to provide oversight and accountability for prison health P

Otherwise, in the community, systems. The Governor of Texas has appointed a committee LICY O comprised of physicians, university representatives and cor-

they might not find these rectional facility administrators to provide independent C oversight of the prison health care system according to N O AUCUS resources on their own.” quality standards.19 Oregon is attempting to keep prison health care consistent with community standards by requir-

Dr. Nader Tobia P

ing prisons to provide quality services similar to health care ER RISO N Medical Director, Stateville Reception and 20 Classification Center, which processes 2,200 available to the insured poor in the community. male prisoners monthly for Illinois prisons R EEN TRY

47 Increase availability of effective in-prison substance abuse and mental health treatment. Recommendation

Issue and property offenders (the latter are largely considered to be drug-involved) have among the highest recidivism rates 29 Illinois leads the nation in drug-related crimes.21 The in the Illinois prison population. number of people incarcerated for drug offenses rose from 7,874 in 1994 to 10,808 in 2003, an increase of 36.9 Substance abuse issues that are not addressed during percent.22 By 2003, 41 percent of the 35,000 adult incarceration and/or upon return to the community can prisoners were convicted of a drug law offense.23 It is severely hinder the reentry process. In the absence of estimated that, annually, 69 percent of all prison admis- treatment, the risk of relapse following release from prison sions in Illinois are for crimes associated with drug use is high. The National Center on Addiction and Substance regardless of the specific offense for which the person was Abuse makes this point: “Release of untreated drug- and convicted.24 In fact, 82 percent of all male arrestees in alcohol-addicted prisoners is tantamount to visiting crim- 30 Chicago tested positive for at least one illegal drug at the inals on society.” time of their apprehension.25

E TRY EEN Despite the incidence of substance abuse and the positive R National studies reveal that untreated substance abuse is a results from effective treatment programs, in-prison treat- major factor in repeated criminality. While approximately ment is not available to most that need it. Nationally, only

RISON ER 40 percent of all first-time offenders have a history of 10 percent of state prisoners in 1997 reported receiving P substance abuse, more than 80 percent of individuals with formal substance abuse treatment, a decrease from 25 31 five or more prior convictions have a history of substance percent in 1991. In comparison, an estimated 70 percent abuse.26 The Bureau of Justice Statistics found that the of prisoners in Illinois are believed to need substance AUCUSON abuse treatment.32 In 2001, the Illinois Department of C national rearrest rate for drug offenders after three years increased from 50.4 percent in 1983 to 66.7 percent in Corrections (IDOC) had only slightly more than 3,100 27 OLICY 1994. In Illinois, in 2000, 33 percent of former substance abuse treatment beds for the estimated 27,000 P 33 prisoners were rearrested for a drug offense or returned to adult and juvenile prisoners in need. prison because they tested positive for an illegal drug

Y RAL AYO 28

M while on mandatory supervised release or parole. Drug 48 Similar to substance abuse treatment, the need for mental IDOC should replicate programs like this one that are health treatment far exceeds current capacity. Up to 16 successful and cost-effective. IDOC should focus on percent of the state prison population across the country implementing best practice treatment approaches is estimated to suffer from mental illness, ranging from (e.g., acquisition of pro-social values and conduct and schizophrenia to major depression.34 Approximately 6.4 involvement of all treatment and correctional staff in the percent of men and 15 percent of women at Cook County prisoner change process). Further, IDOC should explore Jail exhibit a severe mental illness.35 Among individuals developing other drug treatment programs based on with mental disorders in jail, it is estimated that 72 Sheridan’s comprehensive therapeutic approach at other percent also have a co-occurring substance abuse institutions, or perhaps creating more specialized prisons disorder.36 modeled after Sheridan.

Because much of this information is self-reported, the Mental health treatment should be initiated in prison and incidence of mental illness likely is much higher than continued after release to have a positive impact on these numbers indicate. In general, in Illinois prisons, prisoners’ abilities to reenter society successfully. Because there is a lack of data about the scope of mental health there is a lack of data on the need for and availability of problems. Without any quantifiable data, the needs for mental health services, both inside and outside prison, the and treatment of this vulnerable population remain State should form an independent taskforce to assess the unresolved. “In this case, what we don’t know can hurt quality, availability and focus of mental health care in us,” says Melody Heaps, President of Treatment prisons. Based on the results of these findings, the State Alternatives for Safe Communities (TASC).37 should explore establishing mental health units within existing institutions or perhaps creating a specialized Solution prison modeled after Sheridan for prisoners with mental health issues. In-prison drug treatment, when linked with continuity of care, can decrease post-release drug use and enhance 38 positive outcomes. IDOC should dramatically increase IN SPIRATION FROM TH E FIELD: the availability of effective alcohol and substance abuse recovery programs, including detoxification services, SHERIDAN CO RRECTIO N AL education and counseling, self-help groups, and therapeu- CENTER IN ILLIN O IS tic communities for minimum- or medium-security prisoners throughout the correctional system. In January 2004, the Illinois Department of Corrections (IDO C) reopened Sheridan Currently, there are two Illinois prisons dedicated as Correctional Center solely for medium security substance abuse treatment facilities—Southwestern male prisoners diagnosed with substance abuse Illinois Correctional Center (SWICC) and Sheridan problems. The men receive intensive substance Correctional Center (Sheridan). SWICC opened in 1995 abuse treatment in a therapeutic community. and was the state’s first prison devoted entirely to adult They also participate in educational and voca- males incarcerated for drug- or alcohol-related offenses. tional classes and they get assistance in develop- Sheridan re-opened in 2004 as the state’s (and nation’s) ing a comprehensive post-release plan. Upon their discharge, Sheridan prisoners receive

largest prison solely for adult males with substance abuse M problems. A core premise of Sheridan— and one that sets referrals to various services in the community AYO RAL it apart from other prison-based drug treatment services to ensure that they are moving towards recovery and self-sufficiency. The prison collaborates across the country— is the implementation of a full P LICY O therapeutic community within prison walls. with four different organizations to provide treatment and rehabilitation support during C

The early track record of Sheridan demonstrates that incarceration and for one year post-release. N O AUCUS IDOC can significantly reduce recidivism by devoting the Loyola University professor David E. O lson proper resources and expertise to substance abuse recently studied the first 863 prisoners released to parole from Sheridan as of September 2005 treatment. An evaluation conducted by the Illinois P IONER RISO N Criminal Justice Information Authority in June 2005 and found an overall recidivism rate of showed that parolees from Sheridan were reincarcerated at 7.7 percent.

a rate nearly 50 percent lower than a comparison group of R EEN TRY parolees.39 Sources: Z ernike, Kate,“H elping Inmates Kick Drugs (and the Prison H abit),”The N ew York Times, June 26, 2005; Gateway Foundation, “Answers to Addiction” N ewsletter, N ovember 2, 2005. 49 Streamline continuity of care from prison into communities. Recommendation

Issue establishing these linkages. A 2004 study by the Urban Institute found that only nine percent of prisoners return- Around the country, studies show that seamless and ing to Chicago from Illinois prisons reported receiving continuous health services are most effective for long- referrals to community-based health services, and eight term, lasting outcomes, including decreased drug use, percent received referrals to community mental health 41 lower recidivism rates and reduced hospital stays. services.

Drug treatment programs that begin in prison and Even when general linkages with community providers are continue after release are far more successful than those made, logistical issues within IDOC impede discharge that end with a prison sentence. The findings from the planning, case management and program placement. Delaware Key-Crest Substance Abuse Program, which Uncertain release dates and destinations of prisoners make offers intensive clinical treatment in prison followed by connecting community providers with individual clients treatment, support and supervision in the community challenging. IDOC’s Placement Resource Unit works in upon release, are remarkable: 74 percent of participants concert with Field Services to assist prisoners in their tran- were arrest-free 18 months after release, compared to 47 sition, but large caseloads make it hard to provide individ- percent of those who did not participate, while 43 percent ualized attention. of participants were drug-free 18 months after release, compared to 15 percent of those who did not participate.40 Yet despite the documented importance of continuity of Although the benefit of drug treatment service continuity care, the barriers to receiving adequate health care after is well established in the research, it is not a common release are immense. Access is limited for numerous practice. reasons. The vast majority of released prisoners are not covered by health insurance.42 Consequently, free com- Illinois lacks a systemized and seamless transition of care munity clinics (with long waits) and emergency rooms from correctional institutions into communities. While often are the only options for these individuals. Mentally the Illinois Department of Corrections (IDOC) has made ill prisoners typically are given only 14 days worth of 43 strides in this area, especially at Sheridan Correctional psychiatric medication. These prisoners, many of whom Center, there is still room for improvement across the are not covered by Medicaid, likely will have difficulty system. Linkages between prisons and community health obtaining additional, and much-needed, medication. services appear to be rare, making continuity of care, even Further, many released prisoners also lack immediate for those who received treatment in prison, difficult if not access to HIV/AIDS services in the community. impossible. Little assistance is provided to prisoners in

IN SPIRATION FROM TH E FIELD: THRESHO LDS CO RRECTIO N AL NETWORK IN ILLIN O IS

Starting January 1, 2006, Dwight and Dixon Correctional Centers (the Illinois prisons with the

E TRY EEN largest number of prisoners with severe mental illness) as well as Cook County Jail will have video- R conferencing cameras set up in their mental health units. At the same time, Thresholds (one of Chicago’s largest nonprofit providers of mental health services) will set up video-conferencing

RISON ER equipment at some of its facilities around the city, along with Heartland Health O utreach in Uptown P and Community Mental Health Council in Auburn-Gresham. Thresholds will supply the cameras to the prisons and will cover its portion of the project’s costs. The Illinois Department of Corrections will provide access to the network for use by the video-conferencing cameras. AUCUSON

C This initiative marks the first time in the United States that such technology is being used to assess prisoners prior to their release, according to officials in charge of the project. The technology will give

OLICY these social service agencies an important and cost-effective way to work with the participants before P discharge and ease their reentry into society.

Y RAL AYO Sources: Sadeanu,Adinea,“Video-conferencing Enhances Reach of the Thresholds Prison Project,” Daily Southtown,August 18, 2005;John M Fallon (Coordinator of Demonstration Projects,Thresholds), interview with Julie W ilen, October 25, 2005. 50 Solution “We know formerly incarcerated Connections to community-based treatment upon release reduce the likelihood of recidivism and relapse. So the individuals aren’t getting continuity adequacy of discharge planning and integration of community services can have critical public health of care, because most end up right implications. back in jail shortly after they are Effective health planning for prisoners’ return to society, released to parole.” specifically connecting them with community services, would greatly increase their chances of receiving medical care post-release. Prisoners should leave with scheduled Dr. Carl Alaimo Director and Chief Psychologist, Cermak Health Services’ follow-up appointments to a community-based health Mental Health Division, Cook County Jail care provider; a case manager assigned in the community; medication to cover the gap before medical benefits are obtained; a copy of their prison medical summary (or records); assistance with completing applications for medical benefits; and connections to other reentry services. Community providers and families (along with correctional staff) should be included in pre-release planning meetings, and IDOC should develop a comprehensive discharge summary for all prisoners leaving an IDOC facility. IN SPIRATION FROM TH E FIELD: In North Carolina, for instance, every prisoner has the name, address, and phone number of a provider and an CORRECTIONSAND appointment already scheduled prior to release. They are COMMUNITY INITIATIVE IN released with an adequate supply of medications to sustain them through the transition from prison to the onset of ILLIN O IS community-based services.44 Rhode Island has forged a partnership between the corrections department and local The Corrections and Community Initiative, health departments as well as numerous community- launched as a demonstration project in 1999 by based providers of housing, substance abuse and related the Centers for Disease Control (CDC) and services. Two-person teams are organized to develop the Human Resource Services Administration treatment plans prior to release and then “track and trace” (HRSA), matches specially trained case man- individuals back in their communities. An infectious agers with HIV-positive prisoners and includes disease specialist offers follow-up care after release. frequent clinic visits and small caseloads. Prior Participants see the same medical providers promoting to release, case managers prepare HIV-positive continuity of care. And transportation assistance to prisoners for their reentry by providing them M AYO RAL medical appointments is provided.45 access to public benefits, medical services, food and nutrition programs, housing alternatives, P

Discharge planning, and the requisite case management job training, substance abuse treatment, mental LICY O that accompanies it, demands additional staff, time and health programs and other services. O ver the resources. These tasks require extensive coordination of first five years of the initiative, 675 individuals C UU N O AUCUS correctional staff and community agencies to link and qualified for and received services. Based on manage service delivery across systems and agencies. preliminary evaluation results by the Although an expensive undertaking, the State should Community Mental Health Council, recidivism P maximize the investment made in pre-release rates have been less than 30 percent for ER RISO N substance abuse treatment, mental health care and program participants. medical care, and dedicate staff and funding for adequate R discharge planning and post-release follow-up. Sources:http://www.sph.emory.edu/H IVCDP/ILL.htm;Rev. Doris EEN TRY Green, (Director of Community Affairs, AIDS Foundation of Chicago), presentation, Chicago M ayoral Policy Caucus on Prisoner Reentry, September 22, 2004. 51 Develop information-sharing programs to streamline portability of records both into and out of prison. Recommendation

Issue

Even for the few released prisoners who are referred to community health providers, a lack of transferable medical records— showing what assessments and treatments “For many people, Cook County Jail is individuals received before and during their incarceration — impede effective continuity of care. There is no system the only place they receive primary in place to ensure portable records flow into and out of the health care, and may be the only time prison system. they receive PAP tests, screening for Prisoners often enter prison with sparse information, if any, regarding their medical history. The Illinois sexually transmitted diseases or Department of Corrections (IDOC) must make a separate vaccinations. Because they are so request for each individual record from the state public health office— a very labor intensive process which is not disenfranchised, once they leave the used consistently.46 institution, their ability to integrate

By law, Cook County Jail is supposed to provide prisoner themselves into structured primary files to IDOC upon transfer of prisoners.47 The assess- health care delivery systems is compro- ments are paper records that must be collected, copied and physically transferred when a prisoner leaves the jail. mised. Health care information Unfortunately, Cook County Jail lacks the personnel to management technology is one of the adequately accomplish this task. At the same time, IDOC also lacks sufficient staff to review and manage all files most important challenges for the future transferred from the jail. of health care in this country.

Moreover, prisoners do not leave prison with any medical Portability of medical records provides records to promote continuity of care after their release. one avenue for individuals to receive Community-based agencies, then, typically must conduct their own initial health assessments, often lacking critical continuity of care once they are released. pieces of information about individuals’ prior care and However, with more than 300 new duplicating time, effort and resources.48 admissions to Cook County Jail each E TRY EEN

R day, the current paper-based system presents logistical challenges that are RISON ER

P insurmountable.”

Dr. Sergio Rodriguez

AUCUSON Director, Cermak Health Services’ Medical Division, C Cook County Jail OLICY P Y RAL AYO M 52 Solution Other cities and states already have created similar information-sharing programs. In San Francisco, the City and Initially, the State should encourage enforcement of the County of San Francisco Jail Health Services (SFJHS) existing law and require all counties to deliver medical employs a computerized clinical reporting system that records, along with other judicial and penal documents, to maintains a single uniform health record both in the jail IDOC upon an individual’s transfer from a county jail. and in the community. The computerized system allows SFJHS to facilitate continuity of care post-release by Information-sharing methods— creating a uniform system referring reentering prisoners to a network of community for portable medical records— would streamline health centers. SFJHS staff made over 10,000 post-release 51 continuity of care between prisons and the community. case management contacts last year. In Texas, the state The precedent has been set for Illinois to establish a com- obtained a Health Insurance Portability and puterized information-sharing system to link IDOC, jails, Accountability Act (HIPAA) waiver, which gives correc- and community-based health and treatment providers. tional institutions access to jail records and public health On July 12, 2005, Governor Blagojevich signed into law records so prison health staff are informed at intake as to 52 an amendment to the Mental Health and Developmental what services prisoners have previously received. Disabilities Confidentiality Act that allows the Illinois Department of Human Services, state prisons and county jails to share information about prisoners’ mental health for admission, treatment, planning and discharge purposes.49

This is significant progress, but the State should expand on this effort to develop a computerized network that IN SPIRATION FROM TH E FIELD: allows IDOC, community providers, and other relevant HAMPDEN COUNTY government agencies to share more medical records of individuals imprisoned or recently released. Any network CORRECTIONAL AND developed would, of course, have to take into account COMMUNITY HEALTH privacy and confidentiality concerns of these individuals. MODEL IN MASSACHUSETTS Cook County has already moved in this direction. The Cook County Jail’s DataLink Project is a computerized The Hampden County Correctional and system that allows the jail’s health staff to cross-check Community Health Model provides intensive intake records with Illinois Department of Public Health’s screening to individuals in jail at intake, followed records. DataLink allows the jail’s health staff to determine by continuous education on particular which detainees have been involved in and treated health-related issues throughout their detention. through the state’s mental health system, after which staff Four jail health teams are integrated with four can contact the appropriate facility and access an individ- community health centers. Patients are assigned ual’s health records. Such information-sharing allows to a health team by their home zip code or prior health staff to provide treatment consistent with previous M association with a community health center. AYO RAL care, and enables correctional staff to coordinate with the Physicians, nurses, and case managers are dually community-based agency to resume an individual’s assigned to local jails and community health 50 P treatment after release from jail. centers. LICY O About 90 percent of prisoners involved in C

this program keep their medical appointments N O AUCUS after their reentry into the community, and the overall recidivism rate for the Hampden County Correctional Center is 36 percent, well below P that of other comparable correctional facilities. ER RISO N

Source: Dr. Thomas Lincoln, Physician at Baystate M edical R

Center, presentation, Chicago M ayoral Policy Caucus on Prisoner EEN TRY Reentry, September 22, 2004.

53 Ensure timely access to Medicaid and SSI/SSDI benefits for eligible individuals released from prison. Recommendation Issue charged, SSA must be informed of the prisoner’s release, and a form must be submitted with evidence that financial Incarcerated individuals with a serious mental hardship still exists. Although this process is relatively illness may have once received Medicaid53 or federal simple, often it is more than mentally unstable individuals disability benefits, like Supplemental Security Income leaving prison can accomplish on their own. Thus, these (SSI) or Social Security Disability Income (SSDI).54 Prior individuals may go weeks or months without receiving the to incarceration, they likely were not employed, and relied benefits to which they are entitled, and all too often end 57 on SSI or SSDI payments to cover housing or other living up homeless or back in jail or prison. expenses. The vast majority do not have access to private health insurance and rely on Medicaid for health care SSI benefits are terminated if an individual is incarcerated coverage, or have no insurance at all. for 12 full consecutive calendar months or more. An individual whose eligibility has been terminated must file a Few prisoners, however, are enrolled in these federal new application for SSI. The average prisoner in Illinois 58 assistance programs upon release. When they begin their prisons serves just over 19 months; consequently, the jail or prison terms, they often lose eligibility. And when possibility that benefits will be terminated is quite high. they are released, restoring that eligibility can be difficult. Once SSI benefits have been terminated, the reinstatement If prisoners received SSI, SSDI, or Medicaid before process is considerably more involved than after suspen- incarceration, they can reapply; if not, they can apply for sion. The individual must obtain documents detailing his the first time. But the paperwork is cumbersome and or her medical history, and receive a new assessment to unfamiliar, and applications can take months to show a current disability under the eligibility standards. process— months during which many formerly incarcerat- SSA may then take at least three months to review the ed individuals lack money for medication, housing or application and issue a decision about reinstatement. In treatment. cases where information is missing, the process may be extended by six or nine months.59 Again, the lack of As a result, access to these critical supports— typically benefits during this period may force these mentally ill conditions of probation or parole— is severely limited, individuals back on the streets and into the criminal presenting a significant obstacle to transitioning into the justice system. community and maintaining continuity of care. “When individuals with mental illness are released from jail or Like SSI, SSDI payments continue for a short time while prison without SSI, SSDI, or Medicaid benefits, they are an individual is incarcerated. An individual can receive much more likely to end up in a homeless shelter, in the SSDI benefits until he or she has been convicted of a crime emergency room, or back in jail or prison,” according to and spent 30 days in jail or prison. Payments will be Chris Koyanagi, Policy Director at the Bazelon Center for “suspended” on the 31st day of confinement, whether or Mental Health Law in Washington, D.C.55 not a full calendar month has passed. However, SSDI ben-

E TRY EEN efits are never terminated for incarceration alone, no mat- R Generally, the length of time a person is in jail or prison ter how long the prison term. People who qualify for SSDI determines whether, or when, federal benefits will be remain eligible as long as they meet the federal definition

RISON ER 56 of disability. Cash payments can resume after release; P affected. however SSA must receive verification that the person is SSI payments continue until an individual has been in jail no longer in a correctional facility. or prison for a full calendar month— from the first of the AUCUSON

C month through the last day. After one full calendar Jails and prisons have a financial incentive to inform SSA month, the individual is “suspended” from SSI. The per- that a person is confined; they receive federal payments

OLICY when they supply information resulting in suspension or P son remains on the rolls, but does not receive payments. 60 During this period, the Social Security Administration termination of SSI or SSDI benefits. Unfortunately, cor- (SSA) presumes that the prisoner, while incarcerated, rectional institutions have no such incentive to advise SSA Y RAL AYO

M remains disabled. However, when the individual is dis- when prisoners are released so benefits can be restored. 54 assure speedy restoration of SSI and SSDI benefits upon a prisoner’s release.63 As part of this procedure, a “pre-release agreement” should be established between IDOC and SSA. The local Social Security offices would help correctional staff learn the rules for pre-release processing of applications and reapplications for benefits. Correctional staff would help the prisoner initiate his or her benefits applications in anticipation of release, gather supporting documents, and notify SSA when the prisoner is officially released. With such an agreement, SSA can process claims more quickly and prisoners can begin receiving payments within days, not months, of their release. This agreement and process currently exists and is being implemented at Dixon Correctional Center.64 This arrangement should be expanded to and used at all IDOC institutions statewide.

Illinois should further move to suspend, rather than termi- Medicaid does not pay for services while an individual is nate, Medicaid eligibility during incarceration. This is in jail or prison. Federal law does not require states to possible under federal law, but requires state legislative terminate eligibility, but most do. The state removes the approval. In May 2004, the Centers for Medicare & prisoner’s name from the Medicaid list immediately when Medicaid Services encouraged all state Medicaid directors it is informed of the person’s incarceration. Medicaid to “ ‘suspend’ and not ‘terminate’ Medicaid benefits while benefits are supposed to be reinstated upon release; a state a person is in a public institution” as part of a larger effort may not drop someone from the rolls unless it has been to end chronic homelessness.65 The prisoner would determined that the individual is no longer eligible. But remain enrolled but placed on suspended status. Then, jails and prisons must notify the Illinois Medicaid Office of immediately upon release, the prisoner would be entitled the prisoners’ release. If this does not happen, released to receive benefits from an approved provider. The prisoners have to submit an entirely new application, and Bazelon Center has a model law that Illinois could use as may lack any means of paying for and receiving a guide.66 medications and health care they need to stabilize their mental health condition. A 2004 Urban Institute study IDOC should consider extending its post-release housing found that 16 months after release, 85 percent of former subsidies beyond the typical two months for former prisoners were uninsured.61 prisoners with mental health issues who have initiated the process but are still awaiting reinstatement of benefits. Under the current system, most individuals with serious IDOC also should facilitate scheduling post-release health mental illness will spend their first months out of prison care appointments and obtaining an adequate supply of living on the streets and sliding into more and more medications for prisoners to cover any delay in benefit dangerous mental states. Many will be rearrested and

coverage that may occur. M returned to jail or prison before their SSI and Medicaid AYO RAL benefits are reinstated. Other states are grappling with these same issues and have 67 developed innovative strategies to address them. For P LICY O Solution example, the Texas legislature created a specific agency—

the Texas Correctional Office on Offenders with Medical C

IDOC should enhance its efforts to encourage all prisoners or Mental Impairments (TCOOMMI)— to meet the needs N O AUCUS to apply for SSI or SSDI if they are eligible. For prisoners of prisoners with mental illnesses. TCOOMMI has a for- who are interested, IDOC should do what it can to help mal agreement with SSA for processing applications for facilitate and expedite the process. prisoners awaiting release. The New York State Office of P IONER RISO N Mental Health (OMH) operates a Medication Grant The Social Security Administration (SSA) has a Program for prisoners with mental illness whose Medicaid

“pre-release procedure” designed to “promote deinstitu- applications are being processed. OMH provides coverage R EEN TRY tionalization by assuring eligible individuals timely SSI for psychiatric medications in the community until an payments when they reenter the community.”62 IDOC applicant’s Medicaid eligibility is determined. should take advantage of this pre-release procedure to 55 Reforms with Citywide Impact

Increase access to and availability of community-based treatment programs to address prisoners’ health-related issues. Recommendation

Issue “You really need to have programs set up where you’re meeting someone at the The potential costs of not addressing health-related needs of reentering prisoners are high. Prisoners on prescribed gate when they come out. If someone medications are often released with a limited supply of was at the gate the very day of dis- medications or none at all. Those released with conta- gious diseases risk infecting others within the community charge, someone that had the social if treatment is interrupted. Lack of treatment for drug or skills to help this person in society, then alcohol addiction may result in unemployment, criminal behavior and recidivism. Lack of treatment for chronic that would make all the difference in conditions may lead to higher long-term public health costs. Maintaining one’s health is a key factor for success- the world. Because if a positive person ful reentry. isn’t meeting them at the gate, then

This problem cannot be solved simply by building better the dope dealer will.” hospitals in prison. Prisoners need access to community- based health services after discharge, and prisons need to Rev. Larry Smith collaborate with these community providers to improve Assistant Pastor, United Baptist Church continuity between pre-release and post-release health care. Such measures, while effective, would stretch the community, because there is nothing available,” explains capacity of these already-strained community agencies. Dr. Dan Lustig, Associate Director of Clinical Services at If more reliance is placed on community programs that Haymarket Center. “If you go to the county hospital for provide drug and mental health treatment, the number service, you’ll end up waiting 12 hours for service, and and capacity of these agencies needs to be greatly expanded. that’s on a good day. An addict isn’t going to wait. He’s going to get high.”69 Currently, depending on geographic location and type of service needed, waiting lists for community-based drug Haymarket Center’s operations illustrate the grave drug treatment programs in Chicago may be so long that most treatment shortages throughout the city. Over 60 percent released prisoners will relapse and/or be rearrested before of the center’s clients were involved with the criminal they are accepted into a program.68 “There is a 90 percent justice system during the 90 days prior to their arrival at failure rate for drug offenders released right to the Haymarket. Of those clients who had actually served time, 98 percent had not received any drug treatment in

E TRY EEN prison or jail. The prison system refers around 4,000 R prisoners a year directly to Haymarket, which has the capacity to service around five percent of those individuals.

RISON ER Although Haymarket refers individuals it cannot assist to P other drug treatment providers, waiting lists around the city are comparable to its own. “The result,” says Lustig, “is formerly incarcerated drug addicts are roaming the city AUCUSON

C in what is likely to be an unsuccessful search for treatment. The goal here has to be immediate access.”70 OLICY P Meanwhile, mental health services are increasingly in short supply around the nation, and Illinois is in worse Y RAL AYO shape than most states. Although the state ranks 9th in per M capita wealth, it ranks 39th in mental health funding.71 56 To ensure the greatest return on investment, policymakers should support comprehensive programs that are positioned to treat mental illness, substance abuse and other client needs simultaneously. The difficulties faced in dual and triple diagnosis (physical illness, mental illness and substance abuse) are particularly acute, and the associated service needs are even more complex and challenging.74

Community-based providers, particularly those who offer intensive outpatient treatment, not only play a central role in continuity of care, but also hold the key to reaching as many released prisoners as possible. The Thresholds Post Care Program, for example, connects with mentally ill prisoners during their incarceration to reduce the risk they will go untreated when released. After their release, program staff provides intensive support to these individ- In Chicago, year-long waiting lists exist for most uals, visiting them daily to ensure they have an adequate residential group homes, and according to advocates, supply of, and are taking, their medications. Because only preference is given to people who are already in the a few of these programs exist in the city and their capaci- Medicaid system and who do not have criminal records.72 ty is severely limited,75 the City should help existing treat- Few prisoners leave prison with appointments to see a ment providers expand their services, and at the same mental health professional, and those who do not have an time, help foster the development of new agencies to fill appointment usually cannot manage to make one them- this critical void. selves. If formerly incarcerated individuals were to seek service at a free, walk-in clinic, they likely would have to Community-based providers contribute to the quality and wait at least six weeks before a staff psychologist could see availability of reentry health services. They are also more them.73 Few former prisoners with serious mental illness cost-effective. Every $1.00 invested in substance abuse can manage such a wait. treatment saves taxpayers $7.46 in crime-related spending and lost productivity.76 One Chicago study documented Within today’s economic environment, resources are substantial cost savings— more than $18,000 per scarce for community-based treatment providers and person— from public investment in community mental other primary health and support service providers to health care and housing for released prisoners.77 meet the needs of this population. At the same time, many community providers are not proficient in or comfortable working with formerly incarcerated individuals and their often interrelated physical and mental health issues and addiction problems. M

Solution AYO RAL

To significantly reduce recidivism, community-based P health and treatment providers are integral to the LICY O equation. C UU N O AUCUS Any strategy to adequately address capacity issues demands increased federal, state, county and city funding

for community-based treatment. The current fee-for-serv- P ice structure, which hampers service delivery, should be ER RISO N monitored to ensure that rates are sufficient to cover

service costs for working with these individuals. The City R also should offer incentives to providers and facilitate EEN TRY trainings to enhance proficiency in serving formerly incarcerated individuals. 57 Create and expand diversion programs for individuals who commit non-violent offenses and need substance abuse or mental health treatment. Recommendation

Issue

Experts increasingly agree that treating non-violent individuals convicted of minor crimes in the community is far more effective than imprisoning them. “Imprisonment for drug crimes is not a cost-effective sanction compared to treatment or intermediate sanctions, and its overuse for lower-level drug offenders represents a misallocation of scarce prison resources,” said James P. Lynch, Associate Professor in the Department of Justice, Law and Society at the American University, and William J. Sabol, Senior Research Associate at The Urban Institute.78 Incarceration IN SPIRATION FROM TH E FIELD: diverts valuable dollars that could be spent on outpatient PO LICE CRISIS INTERVENTION substance abuse and mental health treatment programs. TEAMS IN TEN N ESSEE Public opinion in Illinois supports a shift away from incarcerating individuals with substance abuse and mental The Memphis Police Department’s Crisis health issues. Approximately 75 percent of Illinois voters Intervention Team (CIT) is a police-based believe that non-violent drug users should be treated, not pre-booking jail diversion program. CIT incarcerated.79 Similarly, 82 percent of Americans believe officers receive 40 hours of training in psychi- that mentally ill prisoners should receive treatment in atric disorders and mental illness and learn mental health facilities instead of serving time in prison.80 how to respond to mentally ill individuals in Despite this public sentiment, local criminal justice crisis. About half of CIT calls are resolved at systems continue to rely overwhelmingly on prisons to the scene. O ther times, CIT officers may treat individuals with substance abuse and mental health transport an individual to an emergency issues. service. The CIT program has had many bene- ficial results including: decreased arrest rates, decreased reincarceration rates, decreased officer injury rates, decreased hospitalizations (less than 15 percent in one year), and increased health care referrals.

Sources: The American Psychiatric Association,“State Updates: E TRY EEN

R September/October2001,” http://www.psych.org/join_apa/ mb/newsletters/state_update/su_septoct102401.pdf (accessed August 19, 2005). Vickers, Betsy, “M emphis,

RISON ER Tennessee, Police Department’s Crisis Intervention Team,” P Bulletin from the Field, Practitioner Perspectives (W ashington, D.C.: U.S. Department of Justice, Bureau of Justice Assistance, 2000). AUCUSON C OLICY P Y RAL AYO M 58 Solution treatment program instead of going to trial, and likely prison, for a probation violation. Those who opt for drug Diversion programs and alternatives to incarceration treatment must commit to an intensive 120-day jail-based potentially curtail the “revolving door” admissions of the treatment program in Cook County Jail, followed by prison system and significantly rehabilitate individuals sustained out-patient treatment in the community during with substance abuse or mental health issues. an 18-month probation period. Generally, to graduate from the program, participants must remain drug-free for One option is to divert these individuals before they get one six-month period. The State’s Attorney’s Office deeply involved in the criminal justice system. In July gathers data on graduates comparing criminal activity in 2005, the Chicago Police Department established Crisis the year prior to entering the program versus the year Intervention Teams (CIT) in two police districts on a pilot 81 basis. These teams are dispatched when police officers “Crisis Intervention Team (CIT) apprehend an individual with mental health issues and are trained in methods to de-escalate mental health crisis sit- officers can have a significant uations. These teams also have ongoing relationships with impact on reducing recidivism. community-based mental health clinics to help locate individuals who have missed appointments and may not These officers look at the actions be taking medication regularly. Since its inception, 334 of individuals as a manifestation M individuals have been served by CIT officers and taken to AYO RAL community hospitals for assistance.82 Nationwide, these of their mental health, rather intervention programs have shown impressive results for P both the criminal justice system and individual outcomes, than criminal behavior. CIT LICY O reducing arrest rates, decreasing mental health symptoms officers will more readily look 83 C and increasing quality of life. N O AUCUS to community-based treatment Another diversion approach is the establishment of “drug alternatives rather than to courts,” which opened in Cook County in 1998. These P courts exclusively hear cases of individuals on probation arrest alternatives.” ER RISO N who get arrested for a new non-violent felony drug- Lt. Jeffry Murphy

related offense (or where an individual’s substance abuse R contributes to the offense). These individuals are given Crisis Intervention Team Coordinator and Mental EEN TRY Health and Disabilities Liaison, Chicago Police the option to participate in an intensive substance abuse Department

59 following completion. For those participants who Studies have shown that 85 percent of successful gradu- graduated from October 1999 through May 2004, felony ates (those individuals who completed the program) were arrests decreased by 92 percent, total arrests decreased by not rearrested for a drug offense in the following three 82 percent, 87 percent had no felony arrests, and 93 years.88 percent had no felony drug crime conviction.84 The City should gather data to compare costs of existing In 2004, Cook County opened a “mental health court,” the diversion programs versus costs of incarceration and first mental health court in the country to exclusively hear processing, and explore other promising approaches that cases of criminal defendants accused of felony violations. have potential for replication or expansion as well as sav- This court voluntarily diverts individuals with chronic ings. For instance, the new Cook County Jail Diversion mental illness arrested for non-violent offenses into appro- Program legislation proposed by Cook County priate community treatment programs instead of jail or Commissioner Earlean Collins creates a pilot program to prison for a 24-month probation period. This specialty develop alternatives to incarceration for individuals with court recognized the public safety risk posed by mentally mental illness and substance abuse issues accused of mis- ill individuals, the difficulties associated with housing demeanors and minor felonies. It also establishes a crisis them, and the inadequacy of the criminal justice process center and an advisory panel to oversee the effectiveness of in dealing with this population.85 the program.89

Of the 30 individuals referred to community treatment during the court’s first 18 months of operation, only two individuals were arrested for new offenses. These same men and women averaged four arrests and two convic- IN SPIRATION FROM TH E FIELD: tions per person in the year before the mental health court PROPOSITION 36 IN CALIFO RN IA diverted them to community-based treatment.86

CIT officers, specially trained in handing individuals with In the N ovember 2000 elections, California mental illness and co-occurring substance abuse, work voters approved Proposition 36, also known as with the mental health court by serving warrants issued by the Substance Abuse and Crime Prevention Act, judges assigned to this court. These officers have served as a major shift in criminal justice policy. It more than 40 warrants without incident, and have been required substance abuse treatment, not jail, for successful in locating individuals quickly and returning individuals convicted of drug possession or use them to Cermak Health Services at Cook County Jail, and for non-violent parolees who test positive for thereby keeping individuals in the program and reducing drug use. The state Legislative Analyst’s O ffice recidivism significantly. This court recently received a estimated that the Act could eventually save the $1.2 million grant from the Center for Mental Health state between $100 and 150 million per year and Services of the Substance Abuse and Mental Health counties about $40 million per year. Services Administration as part of the Targeted Capacity According to the University of California at Expansion for Jail Diversion Initiative. This grant will add Los Angeles, which is studying the impact of 150 individuals to the program, and allow the Chicago Proposition 36, this initiative has yielded Police Department to train an additional 250 CIT officers excellent results during its first several years of 87 implementation. The completion rates were

E TRY EEN to assist with the expansion of this court.

R comparable to those in other diversion Similarly, the State’s Attorney’s Office offers a diversion programs, such as drug courts, even though participants on average had longer histories of

RISON ER program for non-violent drug offenders with limited crim- P inal histories. Known as the State’s Attorney’s Drug Abuse drug addiction, and half of them never had access Program (SADAP), or “drug school,” it provides partici- to treatment before. The future of Proposition pants with 10 hours of educational classes aimed at 36 is now at issue in the California legislature.

AUCUSON increasing awareness of the implications of drug use in C Sources: Cornett, Craig and Dan Carson, “Implementing one’s life (medically, socially, vocationally and legally). For Proposition 36: Issues, Challenges, and Opportunities,” Legislative

OLICY individuals who successfully complete the program, all Analyst’s Office, December 2000, http://www.lao.ca.gov/2000/ P pending charges are dismissed and they are immediately prop36/121400_prop_36.html (accessed November 29, 2005); eligible for expungement. In 2004, nearly 4,600 people “Evaluation of the Substance Abuse and Crime Prevention Act: 2004 Report,” http://www.uclaisap.org/Prop36/documents/sacpa Y RAL AYO were offered and accepted the “drug school” alternative.

M 080405.pdf (accessed November 29, 2005). 60 Create more positive social structures and peer support groups to assist with recovery and difficult psychological adjustment during prisoner reentry. Recommendation

Issue Many individuals leave prison with the goals of maintaining a drug-free and crime-free lifestyle, finding Individuals leaving prison, whether for the first or the stable housing and employment, and repairing family rela- fourth time, often are confronted with an emotional and tionships. However, as released prisoners progress down psychological adjustment upon their return to society. this path, they need support to help them cope with the emotional, psychological and physical stress of reentering During incarceration, many prisoners become disconnected society. from family and friends. They often leave prison with little money, no job prospects, addiction issues and housing concerns. They may return to environments that contributed to their criminal activity and led to their incar- “When people walk through ceration. Due to the social dynamics in prison, they may the door, they feel safe, they feel lack the social skills needed to interact successfully with others outside prison walls. Their support network in welcomed. They participate in their neighborhood or community, to the extent one exists support groups and they can be at all, may be comprised of other formerly incarcerated individuals. Once they are released, many prisoners do themselves. And, gradually, not know where to seek help, and instead return to their that breaks down their hesitation previous life on the streets. “I became addicted to the street, hanging out with people from the projects,” said to use other services.” Chicago resident Terrence Johnson, who was sent to Jerome Collins Illinois prisons three separate times for drug and property Founder of Winners’ Circle peer-led support group crimes. “When I got out of prison, I just went right back to the same environment. It was like I didn’t miss a beat.”90 M AYO RAL P LICY O C UU N O AUCUS P IONER RISO N R EEN TRY

61 IN SPIRATION FROM TH E FIELD: WIN N ER’S CIRCLE IN ILLIN O IS

In 1997, Treatment Alternatives for Safe Communities, Inc. (TASC), a community-based organization that provides specialized clinical case management services for individuals with substance abuse and mental health issues, launched a reentry program called the W inners’ Circle. The members of this peer-led support group are actively involved in family, recreational, and community projects, serving as volunteers, mentors, recovery advocates, role models, and presen- ters to other peer support groups and community organizations. The meetings are patterned after traditional 12-step groups,which many members also attend. Members lead and TASC staff facilitate the meetings. Currently, there are more than 100 active members in the 12 groups that meet in five cities across the state of Illinois.

Source: “Restoring Citizenship: Inner Circle and W inner’s Circle,” http://www.tasc-il.org/preview/corrections.html# rcsp (accessed November 16, 2005).

Solution been served through this effort, gaining invaluable basic life skills, high school diplomas, job training and long- Many community- and faith-based organizations can term stable employment. The mentoring offered by the provide a framework for structured peer support groups faith partners has been critical. “Persevering through the and mentoring programs for formerly incarcerated indi- tough times is easier when caring people are there to guide viduals. Peer support groups hold a unique place in the and encourage you,” says Rodney Horton, a R4W reentry process, providing invaluable assistance and participant. “You have to hold onto something that is true encouragement from other individuals “who have been and real in your life— something and someone that will 91 there” and succeeded. Quality mentoring relationships support you in good times and in bad.” offer a extra level of support to people coming out of prison or jail and can help them discover how to unlock and achieve their potential. “Being part of a peer support or The City should promote the development of peer support mentoring group shows you that others groups and mentoring programs by agencies already working with this population and providing other servic- have succeeded. You look at the other es. Agencies could incorporate participation as part of an employment strategy or treatment plan. These groups and people and say, ‘If you can do it, I can programs would provide positive social relationships and an atmosphere conducive for formerly incarcerated do it. I just need an opportunity. It’s individuals to discuss— and work together to resolve— not about what you can do for me, but challenges arising from their transition back to society.

E TRY EEN what I can do for myself.’ Being a R For instance, Ready4Work (R4W) is a three-year, national demonstration project funded by the U.S. Department of mentor is just as rewarding. It gives Labor, which has promoted the use of mentoring to help RISON ER P reduce recidivism in 17 sites across the country. As the you the extra push to go on. To do lead organization in Chicago, the Safer Foundation is col- laborating with St. Sabina, People’s Church of the Harvest, for someone else what someone

AUCUSON Trinity United Church of Christ, and Ambassadors for C Christ to blend mentoring with job readiness and place- did for you.” ment services for young people, ages 18 through 34, who OLICY Erick Williams P are returning to the community from prison or jail. Since Chair of Narcotics Anonymous group December 2003, more than 250 men and women have Y RAL AYO M 62 Margaret M. is a 55-year- old Latino woman. Margaret grew up on Chicago’s W hile in Chicago, she became, wanted me around. They were south side with an abusive, in her words, “a welfare mom.” afraid and I didn’t know what to alcoholic mother as well as her Although she was surrounded do,” she explains. Her other father and older brother. Her by relatives, the majority of children were older, and living mother “abandoned” the family them also were struggling with on their own at this point; as a when Margaret was four, and alcoholism and provided no result of what had happened, she was raised by her father and positive outlet for her drinking she had conflict with them, too. her father’s relatives. She ran problems. “My life was unman- “I was desperate. I didn’t know away for the first time when she ageable. I was running from sit- what to do. I just wanted to be was 12 years old at which time uation to situation, changing my together with my daughter. I she began drinking, “imitating environment, but never changing thought she needed me,” what I saw growing up,” she my behavior,” she says. Margaret Margaret says. Finally,Margaret’s explains. got involved in yet another abu- attorney took her into her own Real Life sive relationship. “It was all I home and, as Margaret She dropped out of high school knew, and I accepted it as a way describes,“saved my life.” as a freshman, and started of life.” Her family and friends experimenting with drugs. Her tried to help her, but she recalls Margaret pled guilty to second- parents died when she was 14 “I was too ashamed and embar- degree murder and was sen- years old. “N o one stepped up rassed that I was in another tenced to six years in prison. to take responsibility for me,” abusive relationship and I just Her attorney took responsibility Margaret recalls. “I lived in an couldn’t rely on them as a way for her youngest daughter while assortment of places during my out of the difficult situation.” she served her time, and told teenage years, in relatives’ and Although she had a job and her Margaret about the treatment friends’ living rooms, shelters, I own apartment, she moved into programs available to her during even would ride the trains at her boyfriend’s house, away her incarceration at Lincoln night for somewhere to stay.” from her family. Margaret finally Correctional Center. She She got married when she was built up the resolve and courage “surrendered” and enrolled in Margaret M.

17 years old to a man who was to leave this boyfriend. The day one of the treatment programs violent, schizophrenic, and not she packed her bags, she had that her attorney had described. on medication. They moved been drinking heavily. Her Initially she did not think she across the country. “I had four boyfriend returned home from needed it. But on the first day, children, continued to drink work,“yelled at her to get out of her counselor told her that heavily, had no job, and was his house,” a terrible fight “[she] was not going anywhere” repeatedly ‘tormented’ by my ensued, and in the midst of the without it. She began taking husband,” she says. “W e moved altercation, Margaret shot her every class and every group ses- M

to California to start fresh.” It boyfriend. sion that she possibly could. AYO RAL did not work. “After I got focused, I obtained During her time on bail, many certificates in prison, took P

Margaret eventually left her hus- Margaret bounced around to GED classes and completed my LICY O band, but then immediately got different family members, some treatment program.”

involved in another abusive rela- of whom took care of her C

tionship. During this time, she youngest daughter. Although N O AUCUS completed a nursing program, she got a job at a grocery store became a licensed vocational and was involved in counseling, nurse, and worked three differ- she was still drinking heavily and P ent jobs in health care settings. her relatives kept throwing her ER RISO N “I wanted to escape the abuse out on the street. “Everyone from my boyfriend, so I decided was distant. O ne relative even R

to give up my jobs and move told me, ‘This has never hap- EEN TRY back to Chicago.” pened in our family.’ N o one

63 Both during and after prison, Margaret has been sober for Margaret luckily had a great deal three years now. She is current- of support from her friends and ly participating in a job readiness family. Her children and program and wants to apply for relatives wrote to her and visit- a training program. “I am open ed her at Lincoln. However, she to new things. I know I need also knew that she faced many new job skills and need to fit in obstacles upon her release. She somewhere. I never even fin- did not have a place to live, she ished school. There are a lot of did not have a job, and she did programs here. I know I have to not want to relapse into her stay connected to meetings and addiction. “It was hard to admit to recovery,and talk to my sup- that I was homeless again. I port network and learn about knew I had to change my life and red flags in relationships. I also my choices,” she realized. know now that I am worthy to have a good life.” Margaret’s daughter and attorney picked her up from prison Margaret knows that she can and took her directly to a succeed outside of prison. supportive housing facility, “Support of friends and family where she has been for the past makes the difference for me. six months. There, she received They help me avoid people, intensive outpatient treatment places and things and to love and health services through myself. A lot of people loved me community-based agencies, par- during this difficult time.” As ticipated in group therapy, and part of an advocacy group, “took advantage of all the pro- Margaret explains,“I often go to grams and support they churches and other groups to offered.” According to Margaret, talk about my experience in “It gave me hope that I could prison, to increase awareness of achieve some of the goals that I prison conditions, and to show wanted. There were meetings how this experience has affect- and bonding and caring and con- ed me and my family.” cern. It made me believe in myself. It made a world of difference to feel that way.”

“Support of friends and family M AYO RAL makes the difference for me. P LICY O C

UU N O AUCUS They help me avoid people, places and things and to love myself. P IONER RISO N

R A lot of people loved me during this EEN TRY difficult time.” 64 Sam J. is a 41- Similar to most of his closest A few years later, according to out.” His wife understood his friends and relatives, Sam used Sam, “the bottom fell out. The need to become healthy and heroin, “hustling and living the ugly side of my addiction took emotionally stable before street life for many years,” he over. I thought I was in control, looking for a job. Although it explains. “It was a social thing at but really the drugs were in was financially difficult to pro- first. I didn’t understand how it control.” He was arrested and vide for the family during this would get out of control.” After convicted of possession again. period, his wife backed his over ten years of habitual drug decision. “I was exposed to so use, his health began to deterio- However, this time, things were much understanding and sup- rate and he became increasingly different for Sam. “After 23 port. Drugs were a plague on unable to meet society’s daily years, I was ready to try our family. But when my demands. “I was using the something new,” Sam says, mother got clean, it had a trickle streets as a method to generate remembering the sudden deter- down effect.” revenue. I thought the working mination he felt after his second

Sam J. Today,Sam has been drug- and crime-free

Real Life for six years. “I found year-old African-American man. man was a sucker. I could live conviction. “I said to myself,‘this freedom,” he describes. He has the fast life with all the action— revolving door is over.’ I’m been employed as a cook at an it was captivating.” going to do what I need to do to Italian restaurant for the last become a productive member four years and he volunteers At 23 years old, Sam was arrest- of society and to enjoy life like one day a week at a community- ed and convicted for possession other people do.” Sam entered based employment center, con- of illegal substances. He was drug therapy while at Vandalia necting other former prisoners sentenced to six years at Logan Correctional Center and, as he with his own extensive support Correctional Center. After describes,“spent the majority of network. serving two-and-a-half years of my prison term in a treatment his sentence, Sam was released atmosphere.” By the time he from prison. Although his health was released, he was equipped had improved during his incar- with strategies for facing his ceration, his craving for heroin addiction on the outside. “They “Once I saw persisted. W hen he returned taught me about resources to home, he soon found that his use in mainstream society. I family and friends were still learned about my addiction as a my family abusing illegal substances. disease.” “I didn’t change my method of survival,” he says. And so, shortly The first and most critical members M

thereafter, Sam relapsed. strategy, Sam realizes, was to AYO RAL find and connect to other drug recovering, I He spent seven more years addicts who were in recovery. “I P

struggling with his heroin addic- explained to my wife, ‘I’m not LICY O tion. During this period, he going to be a burden to you.’” knew it was

volunteered at a neighborhood Sam reached out to other C

restaurant. Because he had family members, many of whom N O AUCUS taken culinary classes in prison, were former addicts now in possible for he was hired as a cook. Sam recovery. “O nce I saw my held this position for over a family members recovering, I P

me.” ER RISO N year, explaining “my boss was knew it was possible for me. very supportive,” but because Some of my friends that I grew he was still using drugs, he up with, they were also in recov- R

couldn’t keep steady employ- ery. I had an insight that there EEN TRY ment and changed jobs fre- are other people dealing with quently. these issues who found a way 65 Recommendations

Reforms with Statewide Impact • Designate a family liaison officer to provide pre-release support to prisoners and their families beginning at prisoner intake.

• Improve visitation facilities and procedures to encourage increased contact, when appropriate, between prisoners and their families during incarceration and to enhance the quality of prison visits.

• Facilitate contact between prisoners and their families during incarceration by decreasing the expense and increasing methods of long-distance communication.

• Review policies regarding child support obligations of incarcerated parents.

Reforms with Citywide Impact • Support and expand family-focused case management services, and cultivate family support groups.

• Improve reunification services at Cook County Jail so that the instances of termination of parental rights are reduced for this incarcerated population.

• Support more mentoring and other social service programs for children of incarcerated parents. Chapter 3 Family 66 Chapter 3: Family

Having a supportive and committed network of family and friends can be key to an individual’s success or failure in the reentry process.1

Research confirms this fact. In a recent Urban Institute report, 71 percent of former prisoners noted positive family support as crucial in helping them turn their lives around.2 Relatives, with whom former prisoners often live during their transition, provide financial aid, job search assistance, moral support, encouragement to abstain from drugs and obtain treatment, and positive reinforcement.3

Yet despite the central role that families play, the impact of incarceration and reentry on families is frequently overlooked. Policymakers often are not attuned to how the prison experience takes its toll on the loved ones left Furthermore, few families with incarcerated relatives can behind, nor have they paid sufficient attention to how afford to focus on the reentry process. By and large, most engaging families during and after confinement may boost families face challenging circumstances themselves, the chances of better reentry outcomes. To effectively including poverty, mental illness, substance abuse, limited address prisoner reentry issues, and to successfully access to social services, and a family history of involve- develop solutions to these issues, we cannot concentrate ment with the criminal justice system.7 Often, with a solely on the individual; it is crucial to tackle the needs relative in prison, these families must contend with and promote the strengths of the whole family. additional hardships. For instance, the household may have lost one of its major wage earners and be forced to Unfortunately, families all too often become alienated and stretch resources to meet housing, food, employment, and estranged from their loved ones in prison. Nationally, up transportation needs. A grandmother may find herself the to 50 percent of the men and 65 percent of the women in sole caregiver of her grandchildren, and a teenager may prison are parents, but more than half of these individuals lose the daily support and companionship of his or her report never receiving a personal visit from their children parent. Left unaddressed, these new challenges can under- during their incarceration.4 For many families, the mine a family’s ability to effectively support the reentry of obstacles to visiting a relative in prison— time and money their loved one. needed to travel long distances to the institutions as well as the emotional stress of the actual prison visit (e.g.,

But when it comes time for release, incarcerated M lengthy security checks, uncomfortable visiting facilities, individuals will often still turn to their family for help. AYO RAL and seemingly unfriendly correctional department staff)— And the stress that families encounter when a relative is are overwhelming. So contact may be sporadic. The

incarcerated simply does not disappear when the person is P respect, trust, and daily intimacy that hold families LICY O released. Formerly incarcerated parents may experience together may be strained when a loved one becomes 5 difficulties trying to reestablish a relationship with incarcerated. The imprisoned individual may feel angry, C children who had been left in the temporary custody of N O AUCUS isolated, depressed, and guarded while those left behind family members. Further, the assumed support often may feel confused, anxious, abandoned, resentful, guilty evaporates over time as extra demands are placed upon an and relieved all at once. The social stigma and shame

already-strained family system. P associated with having a family member in prison also can ER RISO N weaken relationships.6 In spite of these troubling facts, today there is no concerted

effort to assist families of incarcerated individuals in R EEN TRY Illinois. Most are, quite simply, left to fend for themselves.

67 Reforms with Statewide Impact

Designate a family liaison officer to provide pre-release support to prisoners and their families beginning at prisoner intake. Recommendation

Issue

Strict security precautions, long lines, and emotionally tense situations at prisons preclude the development of a cooperative relationship between correctional staff and visiting family members. Such an environment con- “When my sons were incarcerated tributes to stressful and unsatisfying visits for both visitors and prisoners, and presumably lowers job satisfaction on drug and burglary charges, among correctional staff, already contending with highly I didn’t really know anything demanding job environments.8 about the prison system. At first, Solution I didn’t even know the number The Illinois Department of Corrections (IDOC) should designate staff at each correctional institution to promote down there to call. But I wanted the positive involvement of family members during to stay involved in their lives.” prisoners’ incarceration and in preparing for their release.

E TRY EEN In New York and Texas, for instance, prisons employ R Carolyn Nance 9 “family liaison officers” for this purpose. Here in Illinois, Mother of three sons, each of who have been these family liaison officers would similarly help incarcerated in Illinois prisons

RISON ER facilitate family visits and act as a first point of contact for P families. Family liaison officers would not be correctional officers. They would work with families as soon as a relative enters prison to help them understand and AUCUSON

C prepare for the psychological, environmental and practical challenges both families and prisoners may encounter

OLICY when prisoners return home. They would be available at P institutions during visiting hours to answer questions. Such resources could greatly reduce anxiety, and thus Y RAL AYO

M ensure that families are in a better position to fully support 68 the reentry process. MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 69 re y” are ical heir heir ution For ats in a ats ma- the vices ldren may Recommendation and this canand posethis a 16 eir families , Centerforce), with interview Julie prison visits. When bad,is weather the visitors ourage increased 14 the Hill, is managed by Centerforce, the by Hill, managed an is 17 15 ALIFO RN IA n emergency clothing exchange for visitors who for visitors exchange clothing emergency n C machines may be onlythe source of food. some At may not families use cash, but facilities, instead required to purchase $10 fromcash cards instit the to buy bag ofa chips. contact. tremendous psychological for children barrier who a accustomed to connecting through parent withphys a must must spend additional an 50 cents toco their store locker. In Illinois, only few a prisons “child-friendlhave children with t Elsewhere, visit areas. visitation incarcerated parent in the general visitation area. visitation in general the parent incarcerated reasons of safety, security and order, visiting chi and security order, visiting ofreasons safety, tohave communicate parent with incarcerated the screens, through Plexiglas essing unit to unit center. the visitor infor Itessing provides , bus routes, area hotels and car rentals.car , and routes, hotels The area bus House rmer prisoners, and family members of prisoners. members rmerfamily and prisoners, the life of a San Q uentin state prisoner to prisoner Qanswer state uentin San of a the life ot y services and waiting areas, and transportation ser transportation and areas, waiting and services y of tice s ofs ting , the s are s rying soner’s before ending on cer- ith workith on unin- g some of ENTER IN et;Tara Regan (Children and Family Program Director Program et;Tara and (Children Regan Family C S ’ 11 : IELD ISITO R F V Once inside gen-institution, the 13 For example, even visitors, those from 12 UENTIN Q For those who do not access tohave and car a 10 San Q uentin Visitor’s Center, onHouse Visitor’s as known Q also uentin San h os nteHl rvdscidaesrie,a services, childcare The on the House Hill provides contact, when appropriate, between prisoners and th during incarceration and to the enhance quality of Improve visitation facilities and procedures to enc AN N SPIRATION FROM TH E tion on local resources, general health and wellness and health general resources, tion on local in day a tracking video a presents on the Hill also children. visiting by posed questions typical Information Outside She Sources:Centerforce/Friends from local transportation centers and from the proc and centers transportation from local W ilen, November 1, 2005. I S are denied a visit due to due hospitalit their clothing, visit a denied are organization that offers assistance to fo prisoners, assistance that offers organization eral conditionseral often contribute V to frustration. Moreover, the actual prison visit itself can be prisonMoreover, t itself a actual the visit instituti the experience. at often arrive Visitors formed about inand rules, the longmust wait lines outfilling forms requisite the and being processed through security. other states, may be turnedbecause otheraway did they states, n know to bring, and lack, therefore appropriate form personal identification. Most of 27the correctional in Illinoi institutions Issue located downstate more 100 than miles from City the Chicago. for those with resources, limited visitin financial these prisons is virtually impossible. prisons these virtually is visi Prison andonly permit visiting schedulesrestrictive are times, often certain conflicting anddays at tain w and school schedules. of A study by Jus Bureau the founddistance betweenthe pri as a that Statistics home ofand institution the increased incarceration percent of visitors steadily percentdecreased. of steadily visitors 70 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY holiday programs and overnight visits. overnight and programs holiday stor including interaction, existsparent-child for a varietyactiviti groups, of support and workshops literacy activities,Beyond foste parent education, year after one to up their children keep to prison i mothers daysanursery allows year. prison A 365 is playroom well-equipped A incarcerated mothers. and children to leaderits in progressiveapproach importance. pertinent rules and conditions, hours, procedures, visitation about families information with provide t handbooks haveCalifornia,developed and Missouri Several are place. in states, policies as Arisuch these rulthereasons explain why and policies, and thefamiliesvisitati about effectively inform more shoul (IDOC) Corrections DepartmentIllinois of The Solution Bedford, New York. New Bedford, Children’sFac Centerat Hills Correctional Bedford isthe mothers for programs notable themost of One included. shoul their and experience vantage important point, But theycan partobjective. theyare because not an parttheyare in because young theconversation, contribut cannot theproblem that affectedby those incarcerated parents. Itof isoften children with con should theseIDOC spaces, Tobestdesign dren. incarcerated parentsinteractionbetween their and relaxedsoc informal, promote should Visitingrooms differ of activities other children for appropriate games, books, toys, areasTheseincorporate should establishedmaintainedall and in be prisons should areas supervised Child-centered, machines. vending available be t in Healthy snacksshould schedules. transporta public account taking into children, and adultfamily membe for variedschedules accommodate timesthat daysand a range wou of provide to hours assess families.Prisons and should prisoners visi interactionbetwe meaningful positive, thatpromote facil and visiting procedures on expand should IDOC all orientationsfirst-timefor visitors. volu conduct and offer Eachinstitution should also thedepar requesttheInternet from asas well upon avathis materialbe addition, visitors.In should prospective to mailthis information to opportunity t given be Prisonersorganizations. service should vis and transportation, maps, lodging, nearby about deta and rules,necessary documentation, schedules, visi sheet,including a visitorinformation develop 18 Each Illinois correctional institution should Eachcorrectional Illinois 19 The Children’s The Centerisa national assumed y corner, y ing ages. ing ilableon on rules on offer an offer ilityin tment. esand rcare tation birth. zona, ntary open their their d be d chil- d in d e to e ities tion ting and sult itor hat en he he ial ils es ld rs d n .

also improve the chances of reentry success. of thechances improve also sustain Prisonvisits to familyrelatio help tion. in of after and during theperiod both play can ily thter appreciaterole and the important understand staff safetytrainewerecorrections if precautions v compromising stressfulrewarding without more and tainlynecessary. Still,becom familyvisits could strict and securitymeasures isa aproblem serious their and families. prisoners Con interactions for mean positive, promoting for ritylimits,conducive reasonable within create to anoverallenvironment, Finally,be staffdepartment all should corrections their with timefathers. one-on-one qu spend visit and theireat fathers’ lunch, rooms, thefacility a into and are escorted children where incarcerated fathers of “Children’s children and Da gr a support visitors.PACT prisoner sponsors also asaslodgi well a overnight hospitality and center Texas,similar severalservices in provides federal ParentsTogetherFort Worth, in (PACT) Children and bonds between children and their and incarcerated fathechildren between bonds nur preserve and children’shelp visiting to center a parenting skills both course It provides prison. incarcerated fathersfor at their aand children me familyserv and parenting education of siveprogram York,Westchester wasthe first County, New compreh FamilyWorksat FacilitySing Sing Correctional in “We visit my daughter-in-law in prison in daughter-in-law my “Wevisit mean as much.” as mean don’t letters and her. Pictures touch to and her see to want They mom. their visit to kids the to lot a means It nice. so is It hugs. big her give and her, to run her, they see they When them. loves she that knowing up grow to kids the want I kids. her see to daughter-in-law my want I often. TheresaPowell murderandshe currently ofhas custody her grfour Herdaughter-in-law sentenced was pr in years 20 to 21 22 andchildren isonfor nships and nships llowed to llowed d to bet- to d prisons turethe trained carcera- n’sstate traband oup for oup atfam- and a and recer- ng for for ng secu- e lesse ingful ality rs. alid ices en- y” 20 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 71 f ir r- of e e to iting ssive those who fornia, re rev- re sted sted in r hospi-r e e means at Menard at Menard Given dis-the 27 Recommendation ing ing methods lies during In In addition to and centers trans- visitor 26 Jonathan Logan Jonathan 17 years old; his brother was sentenced to 35 years was sentenced his brother 17 years old; Center Correctional Correctional Center to see my brother. It was very stressful. It took us seven hours to get there on a dirty, crowded bus. The bus left from the south side of Chicago at midnight, and we live on the west side. We had to take two buses and two trains just to get to the bus. Someone went to the bathroom in the back of the bus. My mom had to clean it up.” “My mom and“My I went to Menard Solution IDOC should to reduceattempt orexcethe eliminate enues derived from shouldthey calls, these be inve direct to services Newbenefit families. and York usedfundinghave California this to provide visito surcharge placed surcharge on prison phone a there calls. If bus andfree centers programa to transport tality membersfamily who otherwise could not rid afford a remote prisons. tance betweentance individuals andmany the incarcerated home communities, IDOC should explore innovative toways provide contact opportunities for relatives especially those who away, may not live far th have to travel. long-distance communication— suchemail, instant as videotapedmessaging, correspondence and videoconfe encing— should that also be considered. Although concernssecurity like Cali somemay exist, states, children. advanced technologiesToday’s o widepermit a array OhioTexas, foundand have Maryland, to secure ways offer basic computer access to inmates. portation assistance, Illinois couldportation assistance, pool use this resources to purchase books, toys and forgames vis s ct this this the state made gh fee e e only of the ible to nected on are time time call scovered n average oner, col- der to pay alternative 25 The Florida study found accepting that 24 incarceration by decreasing the expense and increas long-distanceof communication. Facilitate contact between prisoners and their fami 23 Issue highly motivatedcon are to stay that families Even to imprisoned an may find simply it imposs relative onlythe to correctional Today, travel facilities. telephonetois personal visits conversations. In or costly a is alternative. this Unfortunately, like recordingcall for measures security and real- monitoring, correctionsthe department imposes hi a on telephone in andcalls out of prisons. In 1998, Florida Florida government commissioned study toa look at policies on and phone mail, visiting access, and di of Illinois the Department Correctionsthat (IDOC) $12–16 lecting estimated an million over coursethe burdenfinancial sinceallowed prisoners are to mak from collectcalls instituti an all calls. Because diverted to telephonesingle a company under contra with correctionsthe department, i payingthe party However, it is largely inmates’ families that bear bear that families inmates’ However, largely is it collect phone from calls prisoner a costa families 50 cents for every one dollar placedcall by pris a year. unable to choose own— their and perhaps lower cost— service provider. of $69.19 per month. E TRY EEN R RISON ER P AUCUSON C

OLICY Formerly incarcerated women from Chicago created art for an exhibit called “Interrupted P Life: Incarcerated Mothers in the United States” that will tour the country in 2006. Samples of their work are displayed here and throughout this report. Y RAL AYO M 72 Review policies regarding child support obligations of incarcerated parents. Recommendation

Issue Studies in Massachusetts and Colorado documented that parents with child support orders entered prison already Fathers who are released from prison often find them- owing approximately $10,000 on average. By the time of selves burdened by large child support arrearages. In fact, release, these noncustodial parents owed as much as 35 studies have shown that over 20 percent of prisoners in $16,000 to $20,000. the Illinois Department of Corrections (IDOC) were part of the child support caseload.28 In 1996, Congress passed the Personal Responsibility and Work Opportunity Reconciliation Act.36 Among other Child support enforcement is critical to the well being of things, the law prompted the “New Hire Registry,” a children and families.29 At the same time, noncustodial system that allows the government to track noncustodial parents accruing debt while they are incarcerated likely parents who owe child support and who obtain employ- have no resources to pay off their obligations upon their ment anywhere in the United States. Employers must release from prison because they typically reenter society report new hires within 20 days, and the information is with no savings or assets, limited job training and work matched against local, state and federal records. Parents experience, substance abuse or mental health issues, and who are identified as owing child support may have as barriers to employment ranging from legal restrictions to much as 65 percent of their earnings, as well as the employer attitudes.30 Accruing child support obligations contents of their bank accounts, seized. Their drivers’ and penalties while in prison, therefore, can serve as a licenses also can be suspended. Although these regula- disincentive for released prisoners to seek legitimate tions are intended to provide assistance for children, some employment, and discourages them from getting involved, formerly incarcerated individuals may instead seek illegal emotionally and financially, with their children and employment to avoid having their locations and earnings 37 families after release. The current system of child support reported to the child support enforcement system. presents this dilemma for society, and any recommendation considered must acknowledge this public policy quandary. Noncustodial parents should not necessarily be relieved of their financial obligations merely because of their imprisonment; however, children and families might be better served if these individuals leave prison in a financial position to pay their debts.

Courts generally set child support amounts as a percent-

age of the earnings of the noncustodial parent at the time M of the decision. If the noncustodial parent is unemployed AYO RAL or cannot be found, the court bases the amount on the 31 parent earning minimum wage at 40 hours a week. P LICY O However, when a parent who owes child support is incarcerated, his or her wages can drop to as little as 25 cents C an hour.32 Despite the huge drop in earnings experienced N O AUCUS by incarcerated individuals, the order amount is not automatically reassessed, and the process for modifying a child 33 support obligation can be long and involved. Usually, P IONER RISO N the amount is not reduced, and a substantial debt can accrue as interest builds on unpaid child support.34 R EEN TRY

73 Solution “When I left prison, I owed $15,000 in

The State should balance children and families’ pressing back child support because of the time financial needs with society’s interest in encouraging I was in prison [10 months] without individuals with criminal records to find legal, self- sustaining employment, stay out of prison, and pay their working. When I got out, if I had had child support debts. to pay rent, I’d be homeless. Because of The Illinois Department of Healthcare and Family Services, Division of Child Support Enforcement (DCSE) the amount of money I owed, I had to currently runs educational programs in several Adult Transition Centers (ATCs) to help soon-to-be released forfeit my parental rights, I had to lose noncustodial parents understand their rights and responsibilities. DCSE also refers released prisoners to my child, which has taken an emotional community organizations that assist with employment toll. I am currently working two searches, provide parenting classes, help incarcerated fathers establish paternity, and aid with requests for full-time jobs, and am looking for an modifications of child support orders.38 In 2002 and 2003, the DCSE implemented a pilot program, the Father additional part-time job to pay off Reintegration Project, which placed full-time staff members at two ATCs to more effectively deliver informa- my debt and to survive.” tion and handle case management.39 Ivan Lopez Noncustodial father formerly incarcerated at Lessons from the Father Reintegration Project should be Sheridan Correctional Center used to extend DCSE’s programs to all incarcerated noncustodial parents with child support obligations. DCSE agencies in Massachusetts, Minnesota, Oregon and Washington, for example, inform noncustodial parents at intake about requesting a modification of their child Several states have provided other types of relief for incar- support order to avoid significant, and largely unpayable, cerated noncustodial parents. In Arizona, for example, child support obligations upon their release.40 courts can suspend the imposition of interest on child support debts while the parent is imprisoned, and Massachusetts and Texas are experimenting with ways to streamline the modification process for incarcerated mothers and fathers.41 Michigan began a new state pilot program that enables prisoners, through audio and videocon- ferencing, to modify child support orders in court hearings without leaving prison.42

Ensuring that child support payment plans are reasonable, E TRY EEN

R for both the incarcerated noncustodial parent as well as the family, will help incarcerated parents reenter their communities without impracticable debts, encourage RISON ER

P them to obtain legitimate employment, and play a more positive and active role in their children’s lives. AUCUSON C OLICY P Y RAL AYO M 74 Reforms with Citywide Impact

Support and expand family-focused case management services, and cultivate family support groups. Recommendation

Issue Although surprisingly little research has been done on the impact of imprisonment (and reentry) on families of The more often people leaving prison are involved in pro- incarcerated individuals, clearly families experience eco- 44 grams that expose them to different ways of thinking and nomic hardships and emotional stress. Incarceration is behaving, the less likely it is that these people will end up difficult for everyone affected. There is often a fear of back in prison. Unfortunately, formerly incarcerated indi- being labeled. The justice system and its procedures are viduals may not choose, on their own, to take advantage often confusing and frustrating. The happy and unhappy of such opportunities. Formerly incarcerated individuals feelings and events of day-to-day life may be difficult to who have successfully stuck with the rehabilitation talk about. Over time, disconnectedness can overtake process point repeatedly to family encouragement as their relationships. There may be both physical and psycholog- primary motivation for doing so.43 One of the most ical distancing. And the moment of release and reunion effective strategies for facilitating prisoners’ transition into may be viewed with anticipation, reservation or apprehen- mainstream society, then, is for families to be directly sion, or it may not be desired at all. In all instances, involved in planning and supporting the reentry process. coming home triggers a complex, mixed set of feelings and realities for those with the closest bonds to the former But families of former prisoners often face their own set of prisoner. challenges and, to fully support their loved one’s return to society, may need ongoing support themselves. Families may need to restructure their entire lives to deal with the absence of a relative, and then again with the return of that relative, and may find that, at a time when help is most needed, people withdraw from them.45 M AYO RAL P LICY O C UU N O AUCUS P IONER RISO N R EEN TRY

75 IN SPIRATION FROM TH E FIELD: LA BODEGA DE LA FAMILIA IN NEW YO RK

The La Bodega de la Familia Center offers a range of services, including family case management, referrals, 24-hour crisis support for drug-related emergencies, support groups, and cultural activities. Case managers help the family work with various social service agencies and advocate with parole agents to promote the use of alternatives to incarceration when appropriate. A study of La Bodega’s participants by the Vera Institute found that involving families during the first six months of an individual’s release and treatment process helped to reduce drug use from 80 percent to 42 percent, reduce recidivism and reduce the number of family members with unmet medical, social, housing and mental health needs.

Sources: La Bodega de la Familia, “La Bodega de la Familia: Families, N eighborhoods, Justice,” http://www.labodegadelafamilia.org (accessed July 19, 2005); Sullivan, Eileen et al, “Families as a Resource in Recovery from Drug Abuse:An Evaluation of La Bodega de la Familia” (N ew York: Vera Institute of Justice, 2002).

Solution sources to expand their case management to the family, and at the same time, help to foster the development of The Illinois Department of Corrections (IDOC) should new agencies to fill this unmet need. refer families of incarcerated individuals to community- based agencies in their neighborhoods for case Additionally, the City should work through its depart- management services, ideally through the role of the ments and sister agencies (e.g., Departments of Children “family liaison officer.” These agencies could then refer and Youth Services, Human Services, Public Health as well families to (or provide) services such as family counseling, as Chicago Public Schools, Chicago Housing Authority support groups, parenting classes, youth mentoring, anger and others) to more systematically provide information management, financial counseling, legal assistance, free about informal family support networks and encourage health care, job training and placement, and housing the development of more family support groups by organ- assistance. izations that already serve formerly incarcerated individuals. Similar to support groups for an array of addictions, Many community-based agencies already exist in Chicago family members of incarcerated individuals can find great that provide case management services to large numbers comfort and strength in sharing their experiences with of released prisoners; these agencies are solid partners other people facing comparable situations. Family with which IDOC could connect to provide family- support groups can make a significant, demonstrable focused case management. However, these agencies difference— often providing a solid foundation for typically look at the formerly incarcerated individual as recovery and rehabilitation programs— and should be their client. They fail to consider family members affected expanded to encompass the family members of this by the individual’s incarceration. These agencies should vulnerable population.

E TRY EEN broaden their focus to look holistically at the family as R their client and shift their approach to more For example, in Chicago, Sankofa began in 1996 as an family-focused case management. Case managers who informal network organized by a small group of women with children in prison. Sankofa members provide each

RISON ER focus holistically on the family unit not only assist released P prisoners by involving close friends and relatives in the other with a nucleus of emotional and spiritual support, reentry process, but also link friends and relatives to attending court hearings together and collectively advocat- much-needed services. ing for an increased focus on rehabilitation in the

AUCUSON corrections system. Individuals whose family members C Because the demand in many of these agencies is already are involved in the criminal justice system still run the organization, which now serves families across the

OLICY high, they face serious capacity (and related funding)

P 46 issues affecting their ability to take on new clientele or to Chicago area. increase their breadth of services. The City should

Y RAL AYO encourage these existing agencies to explore new funding M 76 Improve reunification services at Cook County Jail so that the instances of termination of parental rights are reduced for this incarcerated population. Recommendation

Issue

While incarcerated fathers may find themselves incurring provide these services. In order to meet DCFS’ interactive mounting child support debts during their imprisonment, visiting requirements, all three adult women’s correctional incarcerated mothers will more likely face custody battles. facilities have child-friendly visiting areas, where the Approximately 10 percent of children of incarcerated mother can touch, hold and play games with her children. mothers are placed in foster homes, whereas only two Free bus services are readily available to transport children percent of children of incarcerated fathers are placed in to and from Cook County to downstate prisons. For foster homes.47 Since custody issues disproportionately situations where such visits are impractical, video affect mothers, women’s correctional facilities must be conferencing capabilities now exist at the Women’s especially prepared to assist prisoners with these matters. Treatment Center in Chicago, enabling children to more meaningfully engage with their mothers. Children are The Adoption and Safe Families Act (ASFA) provides for given free bus tokens to the center, and the conferences are tight timelines in processes and reports to guide the court even recorded so the child can replay them at home. system in situations where children have been removed from their biological parents.48 Once the child has been in state care for 15 out of the previous 22 months, the State must file a petition to terminate parental rights.49 Whether a case progresses towards reunification, adoption or subsidized guardianship is dependent on the factors of each individual case. Ultimately, the court must determine whether the best interests of the child are served by a plan for reunification or some other permanency goal.50

But according to Gail T. Smith, Executive Director of Chicago Legal Advocacy for Incarcerated Mothers (CLAIM), mothers often are held in pretrial detention at Cook County Jail for as long as a year without access to services to progress in their reunification plan.51

Nevertheless, the State’s Attorney may still move to M terminate parental rights during this time. AYO RAL

Fortunately, since the advent of the Women and Family P LICY O Services Division in 1999, the Illinois Department of Corrections (IDOC) has greatly expanded its efforts to C assist mothers with custody issues during their incarcera- N O AUCUS tion.52 When a mother enters an Illinois prison, she is interviewed about the status of her children, and whether

they are in foster care or the custody of a family member. P Prison staff then contacts DCFS to determine what type of ER RISO N reunification plan, if any, is in place. If the plan calls for

drug therapy or parenting classes before the mother can R EEN TRY reestablish custody of her child, the prisons typically

77 Unfortunately, the situation at Cook County Jail is somewhat different.53 The Department of Women’s Justice Services at the Cook County Jail has made an effort to establish services for women detainees. The Sheriff’s “Years of anecdotal evidence show Female Furlough Program (female day reporting) and the Sheriff’s MOM’s Program (Maternity Objectives that the thing that helps women Management Program) both help to preserve the bond between female detainees and their children.54 However, in prison turn their lives around many conditions still exist which prevent mothers from fulfilling the DCFS requirements for reunification. Cook is having some kind of hope. County Jail’s “no contact” rule prohibits any contact with prisoners and requires visitors (even children) to commu- For so many women, kids are the nicate with their relatives through Plexiglas windows. source of that hope. When they Further, approximately 70 percent of women are in jail for non-violent (usually drug-related) offenses, and women lose that, that’s when they spiral comprise about 23 percent of the jail’s population. Although the Residential Drug Treatment Program con- out of control. But with today’s tains 100 beds for comprehensive therapeutic substance abuse treatment, the need for therapy far exceeds the laws, someone could be in prison availability. Despite these conditions, the women in Cook County Jail are expected to meet the same reunification for shoplifting and they could requirements as women in IDOC prisons. Because of the lose custody of their kids current conditions at Cook County Jail, many cannot fulfill these requirements and risk losing custody of their permanently if they don’t have a children permanently. family member that’s able to Solution step in.” DCFS and Cook County Jail staff should coordinate to improve reunification services by routinely transporting Joanne Archibald children from foster care homes to the jail to enable them Associate Director, Chicago Legal Advocacy for to visit with their mother in a child-friendly visiting Incarcerated Mothers environment, and by providing parenting classes to all prisoners with children (custodial and noncustodial).

In addition, incarcerated and recently released parents need legal assistance to negotiate the process of regaining custody. “Once a child is in the system, it is not so easy to get them out, even if the parent is completely competent to care for them,” said Smith.55 Access to appropriate legal

E TRY EEN assistance and advice, through local law schools and legal R clinics, could greatly reduce the frustration and often unnecessary expenditure of time, paperwork and money

RISON ER to regain custody of children where termination of P parental rights has occurred. AUCUSON C OLICY P Y RAL AYO M 78 Support more mentoring and other social service programs for children of incarcerated parents. Recommendation

Brothers Big Sisters of Metropolitan Chicago paired 500 children from single-parent homes with adult mentors; another 500 children were placed on the waiting list. The study found that the children matched with mentors were 46 percent less likely than their unmatched counterparts to start using drugs, 27 percent less likely to start using alcohol, 52 percent less likely to skip a day of school, and 33 percent less likely to hit someone.59

A trusting relationship with a caring adult can provide much-needed stability for the young person. It also can provide the incarcerated parent with assurance that someone will look after the best interests of their child. Mentors should not be “replacement parents.” Rather, mentors can facilitate a smooth reentry by helping the incarcerated parents reconnect with their child and may become a supportive resource after the return of the parent.

Considerable momentum is already building around this issue. In 2003, President Bush called on Congress to provide $150 million over three years for community- and Issue faith-based organizations to recruit and train mentors for children whose parents are incarcerated.60 As a result of From 1991 to 1999, the number of children with a parent the President’s directive, the federal government has in state or federal prison rose by more than 50 percent, already funded 52 new mentoring programs in the first from 900,000 to approximately 1.5 million.56 The incar- year and another 169 programs in the second year 61 ceration of a parent can have a profound effect on child through the Mentoring Children of Prisoners Initiative. development. When parents are arrested and confined, children’s lives become disrupted and chaotic. Children “I like this program. They help me with may experience traumatic separations from their parents my homework, we go different places and or siblings and stressful shifts to different caregivers, which may be compounded by existing poverty, addiction, we do all sorts of activities together. My M 57 and abuse and neglect issues. As a result, children of favorite part is going to the computer lab. AYO RAL incarcerated parents are six times more likely than other 58

youth to become incarcerated at some point in their lives. When my dad left, everyone was mad. P LICY O Positive intervention with children of incarcerated parents They help me get my feelings out and let is essential to prevent criminal behavior from moving to C the next generation. me talk about my dad [in prison]. My N O AUCUS sister and I have been coming here for a Solution

long time. My mom used to bring us to P IONER RISO N To break intergenerational cycles of crime, the City should this program when she had to go to help children of incarcerated parents cultivate healthy, stable adult relationships by providing ongoing support work.” R EEN TRY and positive role models through mentoring programs. Research shows that mentoring is effective in putting, and Diavanna Davis 13 years old, daughter of incarcerated father. Diavanna is a keeping, children on the right track. For instance, Big participant at Elliott Donnelley Youth Center 79 The City should follow this lead by encouraging existing mentoring programs to tap into this federal source of funding, and promote the development of more mentor- “Growing up, my mother did drugs ing programs in communities with high concentrations of incarcerated parents. Of course, mentors should be and was physically abusive. This specially equipped to work with this population given the was the life I knew. So I did drugs, feelings, reactions and behaviors that they may encounter. Organizations like The Mentoring Center in Oakland, sold drugs and I finally ran away California, and the Federal Resource Center for Children when I was 14 years old. After of Prisoners in Washington, D.C., could provide technical assistance and training in this area.62 Mentor programs doing jail time, I became a father also should appreciate the children’s perspective, and and it was a turning point for me. should take into account the experience of these young people in their planning and programming.63 Effective, But knowing that the woman who culturally sensitive mentoring programs should be brought me into this world was in designed to meet the unique challenges of incarcerated parents and their children, and should collaborate with prison had a big effect on me. I faith-based groups, neighborhood organizations, social have a son now, but where is his service agencies and businesses in the communities.64 grandmother?” Beyond mentoring programs, children of incarcerated parents likely would benefit from other social services Larvell Watkins Youth with mother incarcerated for three years on such as group and individual therapy, developmental drug charges skills–building activities, and social-recreational activities. Individuals with whom young people interact frequently (e.g., teachers, school counselors, tutors, church members) should be involved in the delivery of these services to ensure long-term, far-reaching outcomes.

IN SPIRATION FROM TH E FIELD: AMACHI IN PEN N SYLVAN IA E TRY EEN R Amachi, one of the first major efforts to mentor children of prisoners, is a unique collaboration of secular and faith-based organizations. Amachi organizers work closely with local justice institutions to

RISON ER identify and contact children of prisoners. Faith organizations recruit ten volunteer mentors from their P congregations, who work at least one hour a week for a year with a child of a current or former prisoner. Amachi’s partner, Big Brothers Big Sisters, screens, trains and supports the mentors. Amachi recruits large numbers of qualified, motivated mentors, especially from the African-American community. AUCUSON

C As of June 2005,108 Amachi-affiliated programs exist nationwide;they have partnered with over 1,000 churches and served more than 7,600 children. OLICY P Sources: www.amachimentoring.org; Farley, Chelsea, Public/Private Ventures In Brief, Amachi In Brief, February 2004, 1-3. Y RAL AYO M 80 Billie H. is a 41-year-old Billie grew up on the west side W hen Billie was 26 years old, DCFS took custody of her baby of Chicago with her mother and she was arrested for burglary at the hospital, and, to Billie’s nine siblings. At age 14, Billie while engaging in an act of pros- surprise, subpoenaed her into began using marijuana;it was the titution, and was sentenced to court and took her other beginning of a 25-year addiction three years in prison. She daughter from her in the court- that led to a life of habitual drug served one year at Dwight room. Both girls were placed use and prostitution and shuf- Correctional Center, which she with a foster family. “I started fling in and out of jail and prison describes as “sweet.” “It was feeling sorry for myself after

Real Life over 150 times. Following a like going on vacation. I could this. I tried to overdose. I was school suspension for smoking sleep in a bed, have hot food and using more and more drugs and marijuana, she dropped out showers. I wasn’t living on the hated everyone. I was mad at after the eighth grade. At 15 streets or doing my drugs. I was my mom for raising my sister’s years old, she began having sex, just playing cards with the other kids, but not raising mine,” and quickly became promiscu- girls.” W hen she was released, recalls Billie. ous, “turning dates for a bag of she was given $100 of “gate pot.” Billie says that her older money,” and Billie claims that In 1995, Billie was arrested and sister, who was already a prosti- money served as her “trigger.” sent to prison for theft. She tute, “introduced her to life on She went straight back to her served one year at Logan the streets.” Lured by the large drug spot, and within hours, she Correctional Center (Logan). amounts of money she could was back into prostitution on During this time, she signed up make in one night, she began the streets working to get more for a GED preparation course, selling sex on a more frequent money for drugs. but she was released before she basis. Her drugs of choice esca- could complete the class. She lated to heroin and cocaine, and left prison with $350 in her

Billie H. pocket that she had earned at Logan. According to Billie, “I went straight from the train to her life became filled with pimps A couple years later, her drug my drug spot, without even African-American woman. and other prostitutes. To pay use and prostitution became going home first.” for her expensive drug habit, more intense and Billie started approximately $500/day, she “boosting,” or stealing clothes N ot even one year later, she was engaged in prostitution full- from department stores. “I had again arrested for theft, agreed time. She became mesmerized no pimp. I was back living in to a plea bargain, and was sent by her lifestyle, and as she cars and on the streets for days to prison for another nine claims, “had a life that I liked at a time, hanging out with any- months. This time, she says, “I with a lot of fine things.” Billie one and everyone who would just wanted to work and to go began living in hotels, friends’ give me a hit.” During this time, to my room. And after my living rooms, cars, and on the she gave birth to a daughter release, I tried to change my life M

street, basically she says, “any- who was drug-exposed. The — to stop the drugs, the prosti- AYO RAL where that I could close my Illinois Department of Children tution, and tried to find a job.” eyes for a little while. Some- and Family Services (DCFS) put She sought help from a job P

times I would just slump over a “hold” on the baby and only training and employment pro- LICY O on a curb in between jobs.” released the baby into Billie’s gram;however, as she explains,“I

custody with the assurance that became frustrated after a few C

During this time,Billie was taken Billie’s mother would help to months and was depressed that N O AUCUS 1 to jail repeatedly each week for care for her. Although Billie it was going to take 2 ⁄2 years to solicitation, and each time her moved back in with her mother, get my daughters back.” Shortly pimp would bail her out. Short she was “turning tricks” at her thereafter, she began working at P stints in jail did nothing to home. Billie got pregnant again, a temporary employment ER RISO N diminish her substance abuse or and gave birth to another baby agency. “But my dope mentali- prostitution. “Jail was not stop- girl,who was also drug-exposed. ty took over, I was still using R

ping me from going out and Billie recalls, “I didn’t want to drugs and I stole from my EEN TRY doing my thing,” Billie explains. have an abortion. So, I thought I employer.” Eventually, she got “Sometimes I wanted to be would keep using drugs, and the fired from her job. picked up by the police— I was state would take the baby and 81 so tired.” give it to a family to care for it.” “People had faith in me. It was enough to keep me going.”

In 1999, she gave birth to her During this time, she heard third daughter. Billie was drug- about a community-based free and employed at odd jobs employment agency from her during this time. Although she case manager and from some was clean for three more years, girlfriends, and began its job- her drug habit resurfaced in readiness and placement pro- 2002 and she was arrested for gram. She also became an felony prostitution. She spent a intern at the agency’s social short time in prison. enterprise business. “People had faith in me,” Billie realizes. Finally, at this point, Billie “It was enough to keep me became resolved. “I was not going. I found out that I am going back, I wanted to see my responsible. Through my evalu- baby, and everything took a ations, I always ranked number turn.” She returned home, but one.” DCFS required Billie to attend drug treatment to maintain cus- N ow,she has been clean for two tody of her youngest daughter. years. She recently became She entered in-patient residen- employed with a local taxicab tial treatment, while her mother company.“I am never late, never and friends took care of her sick. I am responsible. I am will- daughter. From there, she went ing to go above and beyond in to a DCFS-affiliated recovery jobs, and I would do anything to home for six months, and then help others on my team.” O ne into DCFS-affiliated semi-inde- month ago, she regained cus- pendent housing. She regularly tody of her youngest daughter, attended Alcoholics Anonymous and moved into an independent and N arcotics Anonymous living housing facility. She meetings. She has a strong sup- recently opened up a bank port network of family mem- account, and has accumulated a bers and friends, many of whom small savings. She has reestab- M

AYO RAL are recovering addicts, and have lished her relationships with her been clean for many years. “I relatives, and as she says, “I’m often turn to my oldest brother best friends with my mother. P

LICY O for support,” she says. “He is my My whole family supported me [AA] sponsor. He keeps our through everything.” family together. He is a recover- C

UU N O AUCUS ing addict, and used to tell me, Billie knows her successes. As ‘Billie, it is okay if you relapse. It she tells it,“everything is coming takes a few times to get things along. I’m not stressed out. I’m right.’” not in need of anything. I am P

IONER RISO N just keeping up with treatment and my programs. If I use another drug, I know the conse- R

EEN TRY quences.”

82 Shannon G. is a 33-year-old African-American man. Shannon was 12 years old when cerned about job training or standing was that this organiza- he tried cocaine for the first education in prison. However, tion just got you jobs. I didn’t time. By sixteen, he was using he did not realize that his life- know about all the other alcohol and drugs so often that long substance dependency programs they had.” his mother encouraged him to would quickly resurface once he get treatment. He didn’t. W hen returned to Chicago’s south Finally,pressured by his wife and he went away to college two side, threatening his job, his mother to seek assistance, years later, Shannon’s drug prob- family, and his mental and Shannon visited this agency. His

Real Life lems became even more severe. physical health. caseworker connected him with His behavior was erratic. His drug therapy and mentoring drug-fueled rages became more In prison, there was no access services offered near his home. pronounced, finally landing him to drugs, and Shannon simply W ith this support, Shannon says in prison on charges of assumed that, after nearly 10 that he felt for the first time that manslaughter and arson. years of being drug-free, he he was making strides toward would have kicked the habit. long-term stability. Shannon was sentenced to But on the outside, Shannon Mississippi Correctional Center relapsed into drug use as soon Currently, Shannon is employed for 20 years. He served more as he got his first paycheck. His at a moving company in than nine years, and avoided violent rages returned shortly Chicago, where he has been for prison programs on principle.“It thereafter, undermining his the last two years. But he is impossible to deal with those efforts to reestablish a life with makes clear, “I still have a lot of types of issues when every day his wife and children. He left his my childish, selfish ways, even you have to think in the terms first job, then his second. He though I’m 33 and I have a wife of ‘only the strong survive,’” was fired from his third job, a and two kids. I still have some Shannon says.“Emotionally I set well-paying manufacturing job in of my prison ways. I still haven’t myself aside, except on visiting the suburbs. Still, he says, it psychologically adapted to soci- days when my wife would come never occurred to him to seek ety as a whole. A lot of it is to see me. O ther than that, my help. “I think I had been on mental. It’s about working with daily life was ‘I’m the meanest of parole for close to two years issues you tend to deal with in the mean. Don’t bother me and before I even thought of trying prison, and maybe even before I won’t bother you.” to get some help,” Shannon you went to prison. But what explains. “I had heard about a I’ve realized is, job or no job, if I Through his father-in-law, specific community-based agency don’t change the way I think, I’m Shannon knew he would have a that could help before I left still going be the same person.” job waiting for him after his prison. But I had no need release, so he was not con- because I had a job. My under-

“What I’ve realized is, job or not job, if I don’t change the M way I think, I’m still going to AYO RAL P be the same person.” LICY O C UU N O AUCUS P IONER RISO N

Shannon G. R EEN TRY

83 Recommendations

Reforms with Statewide Impact • Develop a standard discharge planning process that connects formerly incarcerated individuals with reentry services in or near the community to which they will return.

• Ensure that prisoners have appropriate identification (or documents with which to obtain a state identification card) at the time of their release.

• Expand capacity and number of Adult Transition Centers for a more gradual transition from prison to the community.

• Restructure parole supervision to better facilitate connections to and delivery of reentry support services.

• Generate an annual report of returning prisoners for municipalities to encourage needs-based assessment of local resources.

• Explore options to stimulate justice reinvestment.

Reforms with Citywide Impact • Design and conduct a comprehensive awareness and outreach campaign.

• Establish an information and referral source for formerly incarcerated individuals.

• Expand housing options for formerly incarcerated individuals.

• Establish community-based “Reentry Resource Centers” in neighborhoods with the highest concentration of returning prisoners.

• Incorporate restorative justice principles into the criminal justice system and reentry process.

• Advocate for revision of the methodology of the U.S. Census, which currently counts incarcerated individuals as residents of the prisons instead of their home communities. ChapterCommunity Safety 4 84 Chapter 4: Community Safety

Prisoner reentry affects not only the individuals who are Prisoners who return to communities lacking the returning home, but also the community to which they necessary resources to meet the challenges they face have are returning.1 At the same time, the characteristics of the higher rates of recidivism, and communities affected by community may affect an individual’s reentry success. For elevated levels of incarceration and reentry may experi- instance, the availability of jobs and housing and the ence higher crime rates.9 Indeed, in Chicago, the accessibility of social services are likely to influence the communities with the highest number of formerly transition process.2 incarcerated individuals have some of the city’s highest crime rates. In areas experiencing both high rates of In 2001, 97 percent of all men and women released from people going to prison and high rates of people returning Illinois prisons returned to communities within the state.3 from prison, relationships among residents become About 75 percent of these individuals went back to only precarious, families experience greater stress, the image of six counties (Cook, Winnebago, Lake, St. Clair, Peoria and the neighborhood suffers, and financial investment in the Will).4 And 53 percent returned to the City of Chicago.5 community declines.10 That means, in 2001, approximately 15,488 formerly incarcerated men and women returned to Chicago alone. The public safety issues associated with incarceration and Just three years later, in 2004, that number had already reentry tend to be exacerbated in neighborhoods already increased to 18,320.6 experiencing significant disadvantage. But when formerly incarcerated individuals return to a life of drugs and A large number of prisoners who locate to Chicago are crime, all of Chicago’s communities suffer. Families are concentrated within just a few communities of the city. In destabilized, and neighborhoods are characterized by fear 2001, for example, 34 percent of prisoners transitioned and distrust. Businesses close their doors and move back to only six of Chicago’s 77 communities— Austin, elsewhere. The scarce opportunities for advancement Humboldt Park, North Lawndale, Englewood, West diminish still further. Children entering their teenage Englewood and East Garfield Park.7 These communities years lose hope. Developing ways to increase the chances are ill-equipped to absorb these former prisoners given the of successful reentry— and simultaneously enhance public high percentages of poverty, unemployment, and female- safety overall— is a pressing need. headed households within those areas.8 M AYO RAL P LICY O C UU N O AUCUS P IONER RISO N R EEN TRY

85 Reforms with Statewide Impact

Develop a standard discharge planning process that connects formerly incarcerated individuals with reentry services in or near

the community to which they will return. Recommendation Issue In 2002, IDOC received a $2 million grant from the U.S. Department of Justice through the Serious and Violent Typically, on their release day, prisoners are given their Offender Reentry Initiative to establish the Illinois Going personal belongings, a small amount of “gate money,” Home Program. The Going Home Program is a pilot perhaps a bus ticket and are told to go directly to their program for male prisoners between the ages of 18–24 11 host site to meet with their parole agent. Most released who will be paroled to the North Lawndale community. prisoners return to their communities without referrals, a IDOC has contracted with several social service agencies support system or a plan of action during the most critical to provide participants with assessment, intensive case time of reentry. management, substance abuse treatment, mental health counseling, transitional housing, employment training Released prisoners, then, may simply wander from pro- and placement assistance. The program’s transition teams gram to program in the hopes of finding an appropriate fit are comprised of clinical reentry managers, job develop- or an available spot. Individuals with substance abuse or ers, licensed clinicians, parole agents, and IDOC mental health issues are at particular risk without appro- counselors. These teams work with prisoners during the priate discharge planning. Without therapy or proper last six to twelve months prior to their release date to medication, they may relapse in a matter of days or even develop a reentry plan and discharge summary, and to 12 hours. address any barriers they may have. During this period, the participants are incarcerated at an IDOC Adult The responsibility often falls on parole agents— who may Transition Center in the North Lawndale area. After their have caseloads of between 70 to 100 parolees— to quickly release, the former prisoners are required to have ongoing identify the parolees’ needs and form a plan for connect- meetings with their clinical reentry manager and maintain 13 ing them to services available in the community. Because contact with their parole agent. The goal of the Going parole agents may get assigned released prisoners in a Home Program is to reduce recidivism by building strong large geographic area, many parole agents may not be fully relationships with service agencies in the community. aware of all available agencies, programs or resources near their parolees. In many cases, relying primarily on a University of Chicago researchers currently are completing parole agent to develop a discharge plan and make the an evaluation of the Going Home Program. Their initial appropriate linkages may be too little too late. recommendations encourage IDOC to begin reentry support services as early as possible while prisoners are Solution incarcerated; bring the community inside prisons by involving mentors, faith-based organizations and business owners with the transition from prison to parole; The Illinois Department of Corrections (IDOC) should cre-

E TRY EEN gradually transition prisoners from higher security prison

R ate a standardized and coordinated discharge planning sys- facilities to Adult Transition Centers then to a transitional tem throughout its institutions that connects prisoners with living environment before returning back to their home; appropriate social service agencies in the community before

RISON ER and provide more intensive case management after release P they are released. That way, on a prisoner’s release day, he by more frequent face-to-face contacts and smaller or she will know exactly where to go for support services, caseloads for parole agents and case managers.14 and the agencies will be prepared for the individual’s arrival.

AUCUSON A discharge planning system should be designed to address

C IDOC should use the lessons of the Going Home Program treatment, employment, health, housing, transportation, to help inform policymakers about the changes needed to financial and other related needs with which prisoners must

OLICY develop and implement an effective discharge planning P contend once outside prison walls. process statewide. Y RAL AYO M 86 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 87 e o in th th tly ild als eal lity not tate the mily after over, btain ed to e the e the act toact docu- State dence) if not reentry, ent (forent a e the e next the o secure a Recommendation on on cation card) Because the name the onBecause judgmentthe In fact, someIn fact, prisoners may actively 19 18 order issued by sentencingthe court, also known as court mittimus, may or may not r be individual’s an needs individuals to prove identity. their The quicker formerlyindividuals can incarcerated o identification, soonerthe state valid canthey tak thereby reducing likelihoodthe of recidivism. name, the Secretary of State cannot on ofrely this State name, Secretary the paperwork. For many public policy (e.g. reasons ch support obligations, of liens, etc.), Secretary the own their tosuccessful necessary facilitate steps certificate, Social Security card, orSocial Security certificate, proof of resi Many problemst Many for attempt they prisoners as arise identification. Mostobtain dostate valid not hav supportingrequisite documents (e.g., passport, bir also need to Prisoners to necessary apply. appear t facility of State person Illinois Secretary an at difficult, is identification card— that state task a impossible, personfor incarcerated an to do. More impede counselors’ their to efforts obtain missing must be requested ments fromthat appropriate the s many months before dodischarge, prisoners usually know where willthey be living post-release, and consequently definite address. cannotEven a list housing stable until found,is and may not uti have and do names, or aliases, f not this towant reveal correctional staff. agency (for or birth certificate) departm a federal their release, many prisoners may be release, living their with fa members or friends, or frequenmay change addresses bills and other forms of documentation typically us proofestablish of residence. complicateTo problems these many individu further, convicted arrested, are under and incarcerated fals social card).security

ed any — to , the t least t irtually reentry of their ing this months rvices. lease or lease that only that To achieve that achieve To that 16 This This lack of identification may disrupt wholethe At the same time, same soonerthe the At prisoner released a (or documents with which to obtain a state identifi at the time theirof release. Ensure thatEnsure prisoners have appropriate identificati 17 15 Unfortunately, most prisoners are released without most released prisoners are Unfortunately, one piece of accepted identification. foundidentification. Institute Urban the In fact, 22 percent of toprisoners returning Chicago report kindany having of photo identification on day the release. stability andfunction effectively stability in society today apply for job, a to receive medical tocare, sign a bank— a to at services get individual an a must have treatment, housing of andrange treatment, a otherse critical impossible for person a to begin looking for job, a process of beforebegun, reentry has it v making it obtains employment, and some semblance of stability after release are a decisive a period are forrelease successful after outcomes, dur highest its recidivism at is and that time. likely he orless toshe is recidivate. Research has consistently shown that the first six consistently shown has first the Research that Issue Solution Released prisoners also still need to personally appear at a For a smooth transition back to a community, prisoners Secretary of State’s Office; the burden is on each individ- must leave prison with valid state identification, or at least ual to act within 30 days of his or her release or the IDOC with the supporting documents with which to obtain a card will expire. At that point, they are treated as a state identification card immediately after their release. first-time applicant to obtain state identification. IDOC should help to facilitate this personal appearance require- 29 Currently, the process is in place for prisoners to obtain a ment where possible. Further, the process to obtain an temporary IDOC identification card (IDOC card) before IDOC card remains voluntary, and because of the issue of their release.20 Up to 18 months prior to discharge, false identities, few prisoners take advantage of it. IDOC IDOC’s Pre-Release Services Division is required to assist a should encourage all prisoners to apply, and do what it can prisoner in obtaining a Social Security card and birth to help expedite the process. certificate.21 IDOC is required to store the documents for the individual.22 If all identifiers match, an IDOC card is IDOC’s ultimate goal should be for all prisoners to leave processed for a $1 fee from the individual’s commissary prison with valid state identification. Short of that, IDOC account.23 The IDOC card expires 30 days after the pris- should collaborate with other state agencies to establish oner’s release.24 measures that would dramatically increase the percentage of prisoners who have all the documents necessary to Within 30 days following discharge, the individual may obtain proper identification as soon as they are released. present the IDOC card, along with his or her Social Security card and birth certificate, at any Illinois Driver Services facility to obtain an official state identification card for a $20 fee.25 At this point, if the individual’s identifying documents all match, the Secretary of State will waive the proof of residency requirement, and will accept an address verbally.26 Moreover, IDOC will write the Secretary of State a check for the $20 fee usually required for first-time applicants to receive a state identification card, thus essentially waiving the required fee.27

This process is a significant step toward resolving this issue, but some challenges remain. First, although prisoners receive information upon their initial arrival at IDOC’s Reception and Classification Unit (the division of IDOC responsible for the intake and processing of prisoners) about the importance of having valid state identification after their release, it is the responsibility of counselors at each separate correctional facility to determine what documents prisoners already have or may need. This practice should be streamlined at the Reception and

E TRY EEN Classification Unit, saving staff time and resources for R what has become labor-intensive and time-consuming. Here, efficiency is extremely important, taking into

RISON ER account that the majority of Illinois prisoners are in prison P for about one year.28 AUCUSON C OLICY P Y RAL AYO M 88 Expand capacity and number of Adult Transition Centers for a more gradual transition from prison to the community. Recommendation

Issue

For most prisoners, the transition from prison back to their communities is a stressful and complicated time, filled with questions, concerns and unknowns.

With even the best pre-release programming, many prisoners may not be mentally, emotionally or logistically prepared for their discharge. The Illinois Department of Corrections (IDOC) has created Adult Transition Centers (ATCs) to provide selected prisoners with structured supervision in a community setting for a more gradual transition back into society. Formerly known as Community Corrections Centers or Work Release Centers, the ATCs allow incarcerated individuals to spend the last months of their sentence residing in or near their home community. They have been successful in helping prisoners reconnect with family, prepare for the rigors of employment, and generally readjust to the social and cultural mores of life outside prison.30

IDOC operates eight ATCs throughout the state, three of which are located in Chicago.31 Only one of these eight centers houses female prisoners. All combined, they are designed to house approximately 1,500 prisoners, who must work or go to school and return to the ATC when not participating in an approved community activity.

Prisoners who are within two years of release and involvement helps prisoners develop a sense of personal classified as minimum security may apply for transfer to responsibility and competency. Those individuals unwill- an ATC, and IDOC is extremely selective about who is

ing or unable to live up to the requirements of the ATC are M approved. The population at ATCs has increased 22 per- returned to prison to serve out the remainder of their AYO RAL 32 cent in recent years from 1,360 in 1999 to 1,658 in 2001. sentence. Despite this increase, only three percent of all Illinois pris- P LICY O oners are transferred to Adult Transition Centers. Unfortunately, even with highly restrictive requirements for participation, these ATCs operate beyond full capacity, C

Prisoners at ATCs are expected to spend at least 35 hours and can only accommodate and assist a small portion of N O AUCUS a week involved in constructive activity, including the prison population to gradually transition back into employment, vocational training, life skills, alcohol and their communities. drug counseling and public service work. These individ- P uals are expected to contribute 20–30 percent of their ER RISO N income to offset the facilities’ operation costs, and are required to save a portion of their earnings. This financial R EEN TRY

89 Solution

Because of the success of the ATCs, IDOC should earmark more state funding for the development of additional ones. ATCs give those leaving prison an opportunity to make a gradual, rather than an abrupt, adjustment to life on the outside. Prisoners participate in programming specifically designed to ease the stress of the reentry process, and often provide an outlet for emotions that might otherwise have prompted them to return to a life of drugs and crime.

Additional ATCs for female prisoners are especially needed. Debbie Denning, Deputy Director of IDOC’s Department of Women and Family Services recognizes this. “Transition support is so important,” she explains, “because so many women have absolutely no family support when they leave prison, or the family they do have may step up and hand their children over and say, ‘Hey, it is time for you to take care of them,’ when the woman doesn’t even have a job or a place to stay yet. The ATC is a safe place for them. It gives them time to build a bank account, have a stable job, and find supportive housing.”33

Restructure parole supervision to better facilitate connections to and delivery of reentry support services. Recommendation

Issue Theoretically, mandatory supervision serves two primary functions: (1) promoting the successful reintegration of The majority of formerly incarcerated individuals are released prisoners back into society and (2) monitoring released to some form of supervision following prison, released prisoners for public safety purposes to ensure that 37 typically parole. In Illinois, 83 percent of prisoners are they are maintaining drug- and crime-free lifestyles. But given mandatory supervision, with the condition that they the second function seems to have consumed the first. 34 The role of a parole agent typically is to make certain that E TRY EEN report to a parole agent on a regular basis. As incarcera- R tion and release rates have grown over the years, the released prisoners are complying with the conditions of parolee population has grown as well. Between 1990 and their parole. Parole agents monitor the parolees under

RISON ER 2000, the overall Illinois parole population jumped 59.9 their charge, and have the discretion to report all misbe- P percent from 18,882 to 30,199 individuals.35 There has haviors to the Prisoner Review Board, which could lead to been a corresponding increase in the percentage of rearrest and reincarceration. parolees that are rearrested for committing a new crime or AUCUSON Mandatory supervision offers a crucial opportunity to C violating a condition of parole (these technical violations— such as failing to report for a scheduled office visit, assist released prisoners at the time when they are most

OLICY missing a curfew, failing to attend a job or school, testing likely to recidivate. For the majority of returning P positive for drugs or alcohol— are not by themselves a prisoners, a parole agent may be one of the few people criminal offense). In fact, technical violations accounted they encounter who has the ability to make referrals to Y RAL AYO for 24 percent of all new Illinois prison admissions support services. M in 2004.36 90 However, with the dramatic increase in the number of Instead, parole agents must view their primary function as released prisoners, parole agencies across the country have facilitating linkages with social service agencies and found that their resources are tight, which translates into resources in the community.41 However, this will entail higher caseloads for parole agents and fewer services for more than a shift in job responsibilities. The mentality of parolees.38 “Underfunded parole agencies . . . have made the parole department is ingrained in years of recruiting parole more a legal status than a systematic process of former corrections officers for parole jobs. To achieve a reintegrating returning prisoners,” wrote Jeremy Travis, radically different approach to parole agents’ work, IDOC President of John Jay College of Criminal Justice in New must begin by recruiting new parole agents with not only York and a preeminent national researcher on reentry corrections experience but also social service back- issues.39 grounds. IDOC also should provide training for all parole agents to focus more on the connection to and importance Clearly, to be effective in reducing recidivism, parole must of community-based services. be supportive of the overall reentry challenges of the individuals under correctional supervision. Without the With new motivation, parole agents could become appropriate resources for and focus of parole agents on resources for the restoration of local neighborhoods and reentry support services, returning prisoners will not the rehabilitation of individuals. To this end, parole agents receive the individual attention they need to succeed. should be given incentives to make referrals to community-based services when technical violations occur. Solution Implementing intermediate or graduated sanctions for technical violations of parole is more effective in reducing To promote the successful reentry of people with criminal recidivism than simply reporting parole violators and 42 records, enhance public safety, and strengthen communi- sending them back to prison. Graduated sanctions may ties, a fundamental philosophical shift must occur in the include residential treatment, community service, elec- way parole agents view their jobs. tronic monitoring, curfew, counseling, increased drug testing, or formal reprimand. These graduated sanctions As a part of parole reform, and in a major effort to increase change the behavior of the parolees by showing the cer- resources for parolee supervision and services, the Illinois tainty of punishment, while saving prison for more seri- Department of Corrections (IDOC) implemented ous, violent criminals. Operation Spotlight.40 This initiative will double the number of parole agents over a four-year period, signifi- Parole agents should be responsible for particular neigh- cantly reducing their average caseload and enabling them borhoods rather than having their caseloads span a wider to provide more individualized attention to individuals geographic area. Reentry from prison, then, can become a under their charge. An automated case management shared responsibility of the community, parole agencies, system is also being developed to assist parole agents in parolees and their families. effectively maintaining and tracking contacts with parolees. This increase in staff, coupled with smaller case- In Spokane, Washington, “neighborhood-based supervi- loads, will allow parole agents to improve parolee supervision” has changed the mentality of parole agents by sion as well as intervene promptly and appropriately to aid requiring them to do outreach in the communities in high-risk parolees like those struggling with mental illness which they work. Parole agents are no longer based in a M AYO RAL and drug addictions. The goal is to reduce crime and central office to which parolees are expected; instead, recidivism throughout the state. these “community corrections officers” walk the streets

and hallways of low-income housing complexes. Rather P LICY O Operation Spotlight presents a unique opportunity and than using random phone calls to monitor an individual’s

IDOC should take advantage of it as a launch pad for even progress, they make random person-to-person visits. C UU N O AUCUS more widespread reform. The overall philosophy of and Because they become enmeshed in the community, they the culture within the parole department must still be sub- often know when one of their parolees is behaving stantially altered if parole agents are to play a meaningful improperly, and can intervene to correct or change that

behavior. “A lot of [the parolees] don’t have anyone else P role in facilitating the delivery of reentry support services. ER RISO N Parole agents must focus on helping prisoners succeed in or know where to turn for help,” one community their reentry efforts, rather than only monitoring them for corrections officer told the Spokane Spikesman-Review. “That’s part of our job.”43 R mistakes. For many years, parole agents have concentrated EEN TRY on law enforcement, surveillance and compliance, and their job performance has been measured accordingly. 91 Generate an annual report of returning prisoners for municipalities to encourage needs-based assessment of local resources. Recommendation

Issue In April 2003, the Urban Institute launched a three-year longitudinal study of prisoner reentry in Illinois. The Almost all individuals who are released from an Illinois report from the first phase of research included a wide prison will return to a community in Illinois.44 But the range of statistical information of prisoners released from 45 communities receive these formerly incarcerated men and Illinois correctional facilities. It examined the percentage women with little, if any, information about them or their of prisoners released by race, age, education, admission evolving need for services. Although the Illinois type, conviction offense, sentence length, time served, Department of Corrections (IDOC) has some of this data security level, and number of prior incarcerations. This (e.g., demographics, offenses, health issues, and report presented the number of prisoners returning by education levels of prisoners), there is no systematic, con- county, city, and district, providing useful data on which sistent method to provide local governments with this jurisdictions received the most returning prisoners. For information. those communities in Chicago with the highest percentage of returning prisoners, data about unemployment, pover- Policy decisions should be made that are empirically ty levels, and local social service providers also was includ- grounded and reflective of current realities. Without this ed in the report. data, municipalities are unable to inform city departments about where to focus available services to best support The Urban Institute study represents a tremendous effort formerly incarcerated individuals in their jurisdiction and on the part of a research-based institution to collect and are unable to adequately persuade city councils, public present an extensive amount of information in a succinct officials or policymakers about where to judiciously and organized manner. It has been highly useful to those allocate scarce resources. working in the criminal justice field. However, the Urban Institute study is based on statistics gathered in 2001. In Solution order to better serve municipalities, efforts should be made to keep the data current so that local jurisdictions can make informed judgments about how and where to It is invaluable to have knowledge about released prison- invest their resources. Annual exit reports could help ers conveyed to local government. Because the statistical ascertain the complexities with which local jurisdictions information concerning the needs of prisoners returning must contend, and help inform reentry planning efforts. to each county is constantly evolving, IDOC should develop a system to accurately update prisoner records on a yearly basis and create “exit reports.” These reports should include the total number of exits to each local jurisdiction, and should be further broken down by zip code within each local jurisdiction. These reports could

E TRY EEN be published and made available to the public via the R Internet. Basic demographics about the released prisoners should be provided as well as employment and education RISON ER

P levels, health status, offenses committed, and type of housing into which prisoners will be released. These reports would provide a more complete picture for local jurisdictions of issues with which they will be dealing AUCUSON

C when prisoners return to their communities. OLICY P Y RAL AYO M 92 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 93 OUNT C O DE C IP Z EGEN D L N MATES <100100–200200–300300–400400–500500–1,0001,000 + 5 31 Area Community 6 0 6 10 5 I Gage Park Clearing West Lawn Chicago Lawn West Englewood Englewood Greater Grand Crossing Ashburn Auburn Gresham Beverly Washington Heights Mount Greenwood Morgan Park O’Hare Edgewater South ChicagoSouth Burnside Calumet Heights Roseland Pullman DeeringSouth Side East West Pullman Riverdale Hegewisch Garfield Ridge Archer Heights Brighton Park McKinley Park Bridgeport New City West Elsdon Washington Park Hyde Park Woodlawn Shore South Chatham Avalon Park 74 75 76 77 67 68 69 70 71 72 73 59 60 61 62 63 64 65 66 51 52 53 54 55 56 57 58 42 43 44 45 46 47 48 49 50 40 41 City of Chicago 2004 Inmate Exits (18,320) (18,320) Exits Inmate 2004 Chicago of City to Chicago by Zip Code and Community Areas and Community Zip Code by to Chicago N Fuller Park Fuller Grand Boulevard Kenwood Near Side South Armour Square Douglas Oakland South LawndaleSouth West Lower Side Loop West West Garfield Park GarfieldEast Park Near West Side North Lawndale Logan Logan Square Humboldt Park West Town Austin Montclare CraginBelmont Hermosa Avondale Albany Park Portage Park Irving Park Dunning Norwood Park Park Jefferson Glen Forest North Park North Center View Lake Park Lincoln Near North Side Park Edison Rogers Park Rogers West Ridge Uptown SquareLincoln 8 9 6 7 4 5 2 3 1 38 39 36 37 34 35 32 33 31 29 30 27 28 25 26 23 24 21 22 19 20 17 18 15 16 13 14 11 12 10 94 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY bulk of former prisoners. former of bulk that are hom reinvest existtheto neighborhoods in institutions.As it those stands, few,from anyif re people of influx thegrowing receive to equipped jail and are a adequatelyprison prepared to people large number disproportionately send munitieswhich thec whether contemplate to need also policymakers safety. so, public doing In compromising without populatio theprison of stemthegrowth to possible consider to sensitiveneed Policymakers endeavor. extreme and theright ing measures isa complicated theanswerdevel Determining sense. and makesgood substantial thisof whether type financial investme asse to leaders need government Illinois, including Asthefiscal crisis intensifies states in acrosst block. thesame unchanged unhealthy to an yearsuneducated untrained, unstable,unskilled, average, less in than on return and them, offenses— drug non-violent for these people half of over — Br in singleblock just one from incarceratepeople adollars a million spends now society out, points YorkBut research item. New as in study budget one increasedas faster,fast, often and than anyother have expenditures corrections thepast decade, Over Issue ore www.dys.ohio.gov/RECLAIMSource: Ohio.html. July2004. DYS felony-levelserious,popu more repetitive, youth. Institutionsareless and DYS iscrowded, focus ment. diverting judgesyouth DYS, from even have opporthe decisions treatment areappropriatethat and inthe and treatment the care(DYS) for youthfulof offend community-basedof needsthe options meet to juvof hiowas is created It O a infunding July initi 1993. R I PRTO RMT E TH FROM SPIRATION N ECLAIM Explore options to stimulate justice reinvestment. justice stimulate to options Explore ne h rga,ec hio eachcounty receivesprogram, theO Under funds f As a result, more youth As more currentlya result, arebeing served l responseIn agrowing to addressneed to overcrowdi O I HIO F IELD : 46 he country, he , initiatives , e to the to e ooklyn yearto leased if itif is three state om- s of sof op- nd ativewhich encourages juvenile develop courts to a nt ss ly d n n r.Thisensures localthat ers. judges make areto free bs neeto h ot n h omnt.By best interestyouth theof and community. the lationdecreased in 1,800 into May 2,600 from 1992 enileoffenders youth riskat or offending.of tunity to increase tunityto fundsthe available locally. ingitsand treatment rehabilitative efforts the on ocallyfamilies where can participate trea in their “You can think of the money money the “Youof think can an actual spending policy.” policy.” spending actual an as of thought be to investment financial enough to amount to out turns it but decisions, individual ofbunch a of results the were these sions, admis- prison of year’s a worth at back Looking . . . way. different a in spent be could that funds—funds of pool a as justice criminal and incarceration on spends [society] ngissues hio’sinO juvenile institutions, RECLAIM EricCadora Director,Justice Mapping Center rom the O hio Department of hioDepartment Youth O Servicesthe rom Recommendation range t- MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 95 Julia Stasch Julia T. Catherine and D. The John President, Vice MacArthur Foundation Institute has laid the foundation for a model reentry demonstration project. Its goal should be to lower recidivism and permit the savings to be invested in services to reduce crime and enhance strong community-based programs.” “The illuminating“The work of the Urban g s’ i- e, ill d- A is- gh ug to s a s and and The vely ther h of ome ed a tion. enar- hold- onate ork. o illu- avings e e State parks 49 tability , better riminal riminal 50 nvestment Justice reinvestment is, reinvestment Justice 47 48 Solution The goal of to is “justices redirect reinvestment” portion of $60the billion America now spends on pr ons to rebuilding humanthe resources and physical schools, the infrastructure— facilities, care health and public spaces— of neighborhoods by hi devastated oflevels incarceration. These states are creating maps of creating prisonare spending These states a number of prisoners. released new way to look phenomenon.the at The prison-spen money beingis spent on (usually in incarceration o in particular neighborhoodsin particular disproportireceiving a communitying that maps fact highlight the resident might bethere another andof that parts state) the way to spend those criminal justice dollars.same should Theexplore State toways move direc in this goal is to generate savings by moderatingsavings goal to is growtthe generate prisonthe population andsome to reinvest of s the must buildIt momentum politicalthe w and generate andjustice system, tonew suggest ofways thinking about crime and punishment, recidivism and reform. prison-spending map of specific neighborhoods in Chicago, would ofand other parts state, the help t to analyze the current incentive structure of incentivecurrent the to structure c the analyze would It issues. these minate demonstrate how much money society spendingis on compared incarceration should group then convene of representative a stake iosto abouteffecti incentive structures different reduce recidivism and make Illinois communities saf and economicallystable places viable to live and w how much money society spendingis on education, dr and care job health mental Th training. treatment, dialogue toto and ers stimulate developattempt sc The Council Governments provided ofhas State techn cal assistance to a few states that have demonstrathave that to few a states cal assistance commitmentbipartisan publicto maintaining safety implementation of initiatives. justice reinvestment reducing correctionsthe budget through designthe however, more simply andthan rethinking redirectin public accoun funds. also aboutis It transferring and responsibility torei localthe level. Justice community-levelseeks solutions to community-level problems. 96 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY Reforms withCitywideImpact gangs in their community. Pushed further, people m further,Pushed gangs their in people community. drugs thedisastrous vandalism,or effect of about Rather,unfamiliar controversial. perhaps and peop issuestheir The lives.a rebuild to able be would returningare prisoners treatedthey whether how or concern theyvoice do incarceratednor individuals, forme concerning face might particularneighborhood thei that or society theproblems about think often not do people up, come does crime of thetopic When this fact. of discussion public no at large. Yet thecommunity and there is neighbors affectsThis themselves,the individuals support. dailybasis,little with typicallycounse planning, a on neighborhoods reenter prisoners Former Chicago Issue campaign. ou and awareness comprehensive conducta and Design almost about le talkle their l or or l and rly ay re r and take addressand stancethem. a to proactive reentry of appreciate theimportance to need them, theresidents and with as a whole, Communities so. to theopportunity them give to enough— willing and strongenoug be must actresponsibly, thecommunity learmust prisoners former While hurdle. threshold It engagement. and knowledge perception, public’s thegreatestreentry, successful of for challen one creatingpat durable effectiveto and it comes When these institutions. from jailsr and the individuals and prisons about tions stigma fear. and by Thereare general misc colored unfortunately, sometimes, theirAnd perspec media. hear whati theyseejust or reflect back sometimes treach treach Recommendation gesisthe eleased oncep- hways issues tiveis n the n n to n —h— isa do in “When I meet with employers, all I Solution ever hear about are the horror The City, in partnership with a public relations or market- stories, never the success stories. ing agency, should design and implement a widespread We need public service announcements awareness and outreach campaign. Such a campaign would help to raise consciousness among all Chicagoans, from owners of companies, top tackling misperceptions and negative stereotypes while salespeople and other successful enlisting broad support and input. professionals sharing their success The campaign should engage numerous strategies to reach a broad range of audiences. On a grassroots level, the City stories and acknowledging that they should sponsor informal dialogues with community-based have criminal records. Credibility is organizations and leadership groups to stimulate local discussion. The dialogues should include a diverse array a big issue. Society looks at people of people, such as formerly incarcerated individuals, returning from prison to do wrong concerned citizens, advocates, social service professionals, local employers and others. As a result of these thought- again. They become institutionalized ful conversations, participants would have a chance to again, this time not through the better understand the impact and implications of prisoner reentry, examine how this issue relates to their own lives, penal system, but rather in their and consider how to develop multi-dimensional policies, own neighborhoods. We must give programs and initiatives for the future. these individuals a chance to prove Chicago’s Alternative Policing Strategy (CAPS) is one themselves to society.” mechanism to “spread the word” as a part of an awareness and outreach campaign. Since 1995, CAPS has held meet- Alderman Walter Burnett ings in church basements, libraries, hospital cafeterias and 27th Ward, City of Chicago Park District field houses throughout each of Chicago’s 281 “beats.” Today, 60 percent of Chicago residents are aware of CAPS meetings in their area and 28 percent are estimated to have attended at least one CAPS meeting.51 The meetings are an effective way to increase knowledge Further, the City should consider supporting art exhibi- about neighborhood crime, and about how police respond tions created by formerly incarcerated individuals as a to such activity. Building off the structure already in place medium to enhance understanding and appreciation with CAPS, the City could showcase how community about the lives of these individuals both inside and outside agencies are working with returning prisoners during their prison walls. transition home, and how this population can be more of an asset than a burden to Chicago’s neighborhoods. A website should be developed to illustrate the innovative

ways that organizations and government are beginning to M AYO RAL The Reentry National Media Outreach Campaign offers think, work and collaborate on reentry activities. media resources to help facilitate these types of Information about city initiatives, and how communities

52 can be involved in or contribute to the reentry process, P discussions. They have developed more than 12 public LICY O television documentaries that span over the last two years. should be accessible on this website. Additionally, public

The City should request copies of these documentaries for service announcements or advertisements should profile C a variety of purposes. It could plan public television pro- success stories and share real-life challenges faced by for- N O AUCUS grams on the ChicagoWorks cable station. It could host merly incarcerated individuals. local screening events and post-film forums at Chicago

Each component of the campaign would help to stimulate P

Public Libraries or City Colleges. It could also present a ER RISO N select number of films in local Chicago public high dialogue among the public, with the ultimate goal of schools, and sponsor an essay-writing contest for students. encouraging community ownership of the problem and

the solution. R EEN TRY

97 Establish an information and referral source for formerly incarcerated individuals. Recommendation

Issue

Information about community resources can provide access to programs and a corresponding sense of direction for prisoners who are reentering society. Formerly incarcerated individuals often need guidance about services and opportunities in their communities for employment, treatment, health care, housing and various other issues. Former prisoners, specifically those who have been away from their communities for a significant period of time, may need assistance determining where services are located and how to travel to these services.

It is somewhat unclear how former prisoners get their information. There does not appear to be any consistent, reliable source to guide individuals with criminal records. Word of mouth can be invaluable, but may be limited in terms of depth and breadth of information.

IN SPIRATION FROM TH E FIELD: Solution THE OSBO RN E ASSOCIATION IN NEW YO RK The City should develop an extensive community resource mapping system to identify organizations and programs in each Chicago community that serve formerly incarcerated The O sborne Association operates a individuals. After this information has been compiled, the toll-free information hotline for families of City should, then, develop mechanisms and explore incarcerated individuals providing answers to different channels by which to disseminate and share this

E TRY EEN questions about visitation, transportation, information. R transfers, parole and other issues related to a relative’s incarceration. Former prisoners and The City should create a “reentry resource guide”

RISON ER their families volunteer to staff the hotline and

P containing organizations, programs, services, contact provide additional information, support, and information and transportation options for each commu- linkages to community services. For their nity. Hard copies of this guide could be available in a service, the volunteers receive transportation variety of public venues (e.g., parole offices, libraries, AUCUSON passes,meal allowances,and small stipends. The C health clinics). It could also be distributed to every pris- hotline receives an estimated 200 calls a month; oner through the Illinois Department of Corrections

OLICY approximately 30 percent are repeat callers.

P (IDOC) Pre-Start program, with each prisoner’s reentry plan and discharge summary. But this resource guide Sources: www.osborneny.org;Eric Waters (Program Coordinator, should be electronically based and accessible through the

Y RAL AYO Family Resource Center,The Osborne Association), interview with

M Julie W ilen, N ovember 1, 2005. 98 Internet. This vehicle allows for increased accessibility to The resource guide also could be a practical and informa- many people, and will enable the database to be updated tive tool for either Chicago’s 311 Call Center or a new and maintained regularly. As with any kind of resource toll-free reentry information hotline. The 311 Call Center guide, it runs the risk of becoming obsolete within is often used by Chicago residents to access non-emer- months. Consequently, the issue of how, when and who gency and general information about Chicago’s events, updates and maintains this resource guide and database services, and community programs. It handles 3.8 million must be dealt with at the outset. calls annually, receiving requests or inquiries and forwarding them to the appropriate departments. A toll-free Prisoners could assist with this responsibility. They would hotline could be established, as an alternative, to provide be a consistent and low-cost labor force, and would gain callers with information on a wide range of issues, invaluable job experience at the same time. Additionally, including treatment centers, housing resources, and it would help them learn about organizations, programs employment agencies. Formerly incarcerated individuals and services available to them after their release. In could contact the 311 Call Center or the toll-free hotline if Washington, the Correction’s Clearinghouse (CCH) they are unsure about where to go for assistance, and the publishes a Case Management Resource Directory which operators could use the resource guide to provide direc- lists over 2,500 resources in the state— from free clothing tion and guidance. to substance abuse treatment— that can steer formerly incarcerated individuals to needed help. CCH coordinated correctional administrators and local college computer instructors to devise a prison industry program for prisoners to assist with designing, editing, maintaining, producing and distributing the resource directory.53

Expand housing options for formerly incarcerated individuals. Recommendation

Issue New research has emerged on the relationship between incarceration and homelessness, which suggests that Housing is one of the most important elements of a “homelessness contributes to a higher risk for incarcera- reentry plan for prisoners returning to the community tion and that, inversely, incarceration contributes to an 57 from prisons and jails, but sometimes a stable housing increased risk of homelessness.” Data from a New York option cannot be found by the time an individual is study showed that 6.5 percent of prisoners had used released. Nationwide, of the approximately 650,000 indi- homeless shelters in the two-year period prior to entering viduals released from state and federal prisons annually, prison; 45.1 percent of these individuals had subsequent 58 and the seven million individuals released from local jails, shelter stays and 42 percent had subsequent prison stays. an estimated 10 percent are released into homelessness.54 M

For those with mental illness, approximately 20 percent AYO RAL are homeless in the months before and after incarceration.55 In Chicago, approximately 1,200 former- P ly incarcerated individuals are discharged from state LICY O prisons to homeless shelters each year because they have

56 C

no other place to go at the time of their release. N O AUCUS Homelessness, literally being back on the streets, makes it difficult to comply with parole conditions and contributes to the cycle of recidivism. P IONER RISO N R EEN TRY

99 IN SPIRATION FROM TH E FIELD: ST.LEON ARD’S MINISTRIES IN CHICAGO

Founded in 1954, St. Leonard’s Ministries provides a unique blend of supportive housing and case management services for 350 formerly incarcerated individuals each year through its three residential programs—St. Leonard’s House, Grace House, and St.Andrew’s Court. Staff at St. Leonard’s Ministries creates a tight-knit community to keep residents on the path to productive and self-sufficient lives. To complement its mix of services, St. Leonard’s Ministries recently opened the Michael Barlow Center within walking distance of its residential buildings to provide job training and placement assistance for its residents. The recidivism rate for its residents after three years is approximately 20 percent, compared to the statewide rate of 54 percent.

Source: Bob Dougherty (Executive Director, St. Leonard M inistries), interview with Ben Lumpkin, January 25, 2005.

But the homeless service system is not equipped to deal between addressing the housing needs of various popula- with large numbers of formerly incarcerated individuals. tions while safeguarding all residents from drug dealing A recent paper published by the Regional Roundtable on and other criminal activity.62 Homelessness noted that the federal Department of Housing and Urban Development’s (HUD) funding It’s important to note that the Chicago Housing Authority restrictions and resource limitations, as well as program (CHA), regardless of its screening policy, has waiting lists and community-specific rules, often bar individuals with of tens of thousands of families for public housing units felony convictions.59 and housing choice vouchers (formerly known as Section 8 vouchers). So currently, securing a new lease or a new The general lack of affordable housing in Chicago also is a voucher through federally-assisted housing is not a barrier for many. Of course, former prisoners are only a realistic option for anyone in Chicago, let alone those with smaller subset of the larger general population in need. criminal backgrounds. Additionally, as CHA continues Cutbacks in federal housing resources have reduced the through its “Plan for Transformation,” housing resources housing alternatives for all low-income people. As the are not available to accommodate households expanding Re-Entry Policy Council pointed out, “Given the over- due to family members returning from prison or jail. whelming demand for and limited supply of affordable housing and the stigma of having a criminal history, it is Released prisoners who may be able to stay with family, or unrealistic that individuals released from prison or jail on their own, in their old communities may not want to would be given priority access to the affordable housing. do so. They may need to change how they live, with At the same time, there are public safety and other whom they live, and where they live. The Urban Institute implications to categorically excluding recently released found that 45 percent of men leaving prison in Illinois individuals from this housing stock.”60 chose not to return to the same Chicago community where they had lived before prison, partly because they wanted Of the affordable housing that is available, many returning to “avoid trouble” in their old neighborhoods.63 prisoners do not have the financial ability to even pay a E TRY EEN

R deposit on an apartment by themselves. And they may be Although finding a place to live is a critical component of ineligible for public housing. the reentry process for former prisoners, it may not be enough to simply have a bed to sleep in and a roof over RISON ER

P Public housing policies in this country are governed by a their heads. Indeed, some individuals may actually need complex set of federal laws and regulations, local policy some form of “supportive housing,” where their place of directives, ordinances and judicial case law. When it residence is enriched with on-site services including a case

AUCUSON comes to people with criminal records, federal law impos- manager to help facilitate access to treatment, counseling, C es ineligibility for public housing on certain types of employment and educational programs. offenders, and gives discretion to local providers of OLICY

P federally-assisted housing as they shape their admissions In the housing arena, more options for formerly policies to deny access to others.61 Federal law also incarcerated people must exist to prevent recidivism, requires public housing authorities to evict certain foster stability, and promote public safety. Y RAL AYO

M occupants for certain criminal offenses. Screening rules 100 nationwide were developed in order to strike a balance In addition, the City should encourage the use of the HUD definition of homelessness to determine eligibility for formerly incarcerated people who have experienced homelessness and who qualify for federally-funded services and housing. Unlike the McKinney definition of homelessness, the HUD definition allows access to HUD- funded programs for individuals leaving institutions and other systems of care, including prisons, with no regular, stable place to live.65 Advocacy at the client- and systems- level is needed to ensure that formerly incarcerated individuals who are homeless can access safe, stable residential settings.

Short-term rental subsidies also should be provided for select prisoners immediately after their release.66 These temporary stipends can assist in making the first few months’ rental payments and may give these individuals a window of opportunity in which to gain employment and to become self-sufficient.

Furthermore, the City should encourage HUD to fund and develop pilot programs to provide subsidized public housing with some intensive services for a targeted set of formerly incarcerated individuals, such as the Oakland Housing Authority in California has done through their Maximizing Opportunities for Mothers to Succeed (MOMS) Program.67 The Oakland Housing Authority works with the Alameda County Sheriff to identify single Solution mothers who have been released from Santa Rita County Jail. These women become public housing residents and The City should work with the State to develop a targeted may obtain apartments in a specific public housing build- strategy for identifying formerly incarcerated individuals ing designated for MOMS participants. For one year while who were homeless at entry into prison, and advocate to they are involved in the program, MOMS participants are cease the current Illinois Department of Corrections’ provided with on-site case management services and (IDOC) practice of discharging directly into homeless support including substance abuse treatment, mental shelters. With the development of the new Homeless health counseling, basic parenting classes, life skills, and Management Information System in Chicago, the City vocational and educational guidance. If the mothers and could match its homeless shelter use data with IDOC their children are successful in the program, they can prison admissions data to identify individuals who are move to permanent public housing. cycling regularly between shelters and prisons. In New York City, for example, the Departments of Corrections The City should continue its efforts to promote the development of supportive housing, specifically in the M

and Homeless Services have initiated a formal collabora- AYO RAL tion in which they have matched their data systems to geographic areas with high concentrations of returning identify individuals that are frequently in contact with prisoners. Supportive housing— safe, affordable rental P both agencies. These agencies are jointly developing an housing paired with an array of services— has proven LICY O initiative that would target housing assistance resources to effective to help homeless individuals, and others with 68 these at-risk individuals, with the goal of breaking the multiple barriers, successfully reengage in society. C UU N O AUCUS cycle of homelessness and incarceration.64 Implementing Supportive housing interrupts the costly cycle of people housing assessments at prison intake, identifying housing moving in and out of hospitals, shelters, prisons, and jails, needs well in advance of release, and securing appropriate and provides individuals with the stability they need to P housing placements upon discharge could prevent thou- reenter the work force and lead healthier lives. ER RISO N sands of people each year from entering homelessness directly from prison. R EEN TRY

101 While development of supportive housing exclusively for formerly incarcerated individuals is one worthwhile “I was nervous about my release. approach, efforts should simultaneously be made to integrate individuals with the general population. Existing My biggest fear was who was going supportive housing providers should be offered training to to hire me, especially now that I am more effectively serve and meet the needs of formerly incarcerated individuals. This training could touch on an ‘ex-con,’ and where was I going to issues unique to people with criminal records, and could help case managers more successfully assist those with a live. I had burned my bridges. history of incarceration. I had no family to turn to. Overall, however, attitudinal barriers in the community must be overcome to expand housing options for people Supportive housing helps to combat coming out of prison and jail. Communication strategies the revolving door syndrome of around housing developments for formerly incarcerated individuals should highlight that the risk to the community prison. It reminds you that you is not the number of residents who are former prisoners; the danger actually stems from the number of don’t have to go back, that there are residents who are former prisoners and who do not have appropriate support, services, and stable housing. As so many resources available to you.” Jackie Reed, Executive Director of the Westside Health Authority contends, “You might not want to have them in Kevin Ronquillo your backyard. But, guess what? They are going to be in Formerly incarcerated at Taylorville Correctional Center, your backyard anyway. They already are.”69 To counter current Maintenance Supervisor at St. Andrew’s Court the “not in my backyard” syndrome, outreach to communities must demonstrate how expanding housing options for formerly incarcerated individuals contributes to overall community safety.

Establish community-based “Reentry Resource Centers” in neighborhoods with the highest concentration of returning prisoners. Recommendation

Issue when traveling across gang boundaries. As Niuris Ramos, the lead community organizer of the Near Northwest In 2001, the Urban Institute found that more than half of Neighborhood Network points out, “People in Humboldt released prisoners in Illinois returned to the City of Park are not going to go too far south or too far west. It is Chicago, and 34 percent of those individuals returned to hard for them to cross gang borders. Even when they have E TRY EEN 70 R only six of Chicago’s 77 communities. In that same year, to go to 26th Street [Criminal Court Building] for proba- only 24 percent of the agencies specifically and exclusively tion, they may worry about crossing this border, and this designed to serve formerly incarcerated individuals were border, and this border. And they don’t know what to RISON ER 72 P located in any of these six communities.71 do.” Many returning prisoners, then, when confronted with such challenges, will simply do nothing, and When individuals, particularly former prisoners, are ultimately, will not attempt to connect with services they need. AUCUSON forced to travel to multiple agencies beyond their C neighborhoods to obtain services, additional barriers arise. During years of confinement, many have developed OLICY P genuine phobias of traveling outside areas of the city familiar to them. Many have no reliable means of trans-

Y RAL AYO portation. And many must confront personal safety issues M 102 Solution providers coordinate reentry support services, former prisoners have a different level of trust and comfort. Local “reentry resource centers” could provide support to Parolees feel more comfortable talking to someone outside 74 returning prisoners as they begin and proceed through the corrections.” reentry process. Working alone, neither IDOC staff nor community-based The City should develop pilot resource centers in providers can fully meet the needs of all individuals neighborhoods with large numbers of reentering prisoners leaving prison. The unique circumstances of formerly that lack sufficient social service agencies with the skills incarcerated individuals are too complex, and the and capacity to work with this unique population. These challenges to reentry are too numerous, for either one. centers should be a former prisoner’s first point of entry The most successful reentry outcomes will be and continual point of access. These centers would accomplished only through deliberate coordination and primarily serve as a hub for referrals, support and guid- collaboration. ance, although they could provide some discreet direct services. Reentry resource centers should collaborate, not “When you get out of prison, you compete, with parole agents and other community-based service providers on which these individuals rely. think it’s us against the world. You

During a prisoner’s pre-release period, correctional staff have $50 in your pocket and you should contact the appropriate reentry resource center and work with them to develop a plan for post-release must figure out what to do with it. It services. This type of collaboration would foster intensive early planning and linkages between correctional staff, is a very stressful experience coming prisoners, and the local community-based reentry out of prison; it has a psychological resource centers, and would provide the framework for the continuum of services when an individual returns to effect on people. You can’t just the community. throw us into mainstream society The Illinois Department of Corrections (IDOC) recently opened two of its own reentry resource centers in Chicago. and expect us to succeed. We need The centers are managed by a Chicago social service agency and co-located with parole offices. IDOC’s goal is resources immediately upon release; to establish a community corrections model that allows for we need a support system to help parole agents, providers, and community leaders to work together on reintegrating former prisoners into the adjust. We don’t know how to live. community. The agency’s hope is that, through this model, former prisoners will have more opportunities to I didn’t even know how to use a cell connect with essential services when they stop by to check in with their parole agents for their required periodic phone. We need a roadmap to help M AYO RAL appointments.73 get back into society.” P

Some advocates believe that this model could be enhanced LICY O by also establishing a network of similar, community- Xavier McElrath-Bey based resource centers that would reach even deeper into Discharged from Illinois Rivers Correctional Center C UU N O AUCUS the former prisoner population and further increase the after 13 years in prison range and availability of services. “The majority of parole agents have been trained as correctional workers and are P still part of corrections,” explains Joanne Archibald, ER RISO N Associate Director of Chicago Legal Advocacy for Incarcerated Mothers (CLAIM). “When community R EEN TRY

103 Incorporate restorative justice principles into the criminal justice system and reentry process. Recommendation

Issue ever-evolving discussion that explores whether or not their communities are stronger after the criminal justice Our legal system today is grounded in the philosophy of intervention than they were before the crime happened. retributive justice.75 The criminal justice system tends to Ultimately, through a restorative justice lens, only be punitive, adversarial and state-centered. There is a interventions that are grounded in and directed by the concerted focus on rules and laws. The primary aim is to community are likely to strengthen the community in the 82 establish guilt or innocence. Accountability is equated end. with punishment. With the increasing mass of imprisoned individuals, increasing expense of building The City should explore ways to operationalize the princi- correctional facilities and incarcerating offenders, and ples underlying restorative justice. To that end, the City increasing recidivism rates, a growing number of judges, should build on existing programs and practices that probation officers, parole agents, prosecutors, and other reflect restorative justice principles, such as victim-offender justice professionals as well as community leaders agree mediation, family group conferencing, or community that the time is right to consider alternatives on how we service. handle traditional criminal justice practice.

Solution

Restorative justice provides a new way of thinking about, understanding, and responding to crime.76 It is an emerging philosophy that, with increasing frequency, is being used to guide justice system responses all over the world.77

First, it views criminal acts more comprehensively.78 Rather than defining crime only as broken rules and laws, restorative justice views crime as harm done to people and places. Second, it involves more parties.79 Rather than giving key roles primarily to government and the offender, crime is considered an injury to the individual victims, offenders and communities, and creates an obligation for everyone to work together to make things right. In fact, restorative justice strives to maximize input and active participation of these constituencies, giving equal weight

E TRY EEN to their concerns in the quest for responsibility, restora- R tion, recovery, reconciliation, healing, habilitation and reintegration.. Third, it measures success differently.80

RISON ER Rather than looking at how much punishment has been P inflicted, it assesses how much harm has been repaired or prevented. Finally, it sees crime as a collective problem.81 Rather than leaving the problem of crime to government AUCUSON

C alone, restorative justice recognizes the critical importance of full community involvement and initiative in respond-

OLICY ing to and reducing crime. A strong, sensible, enduring P solution requires maximum engagement of all the affected parties to decide what justice requires in each situation, Y RAL AYO

M and those same individuals ought to be involved in an 104 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 105 - n ton ws Ohio,ws October 26, 2005, North Lawndale resident and member of of member and North resident Lawndale North Community Lawndale Team Advocacy Valerie Leonard Valerie many people dealing with prisoner reentry issues and can refer them to resources in the community. Our role should be to facilitate discussion and educate people to advocate for themselves or their family members who have been incarcerated. Our goal should be to look at alternatives, besides being behind bars, that can be implemented at the community level.” “Many community“Many residents know , representing all seven Adult Parole Authority Adult Parole seven , all representing Circles” to engage community residents in the in residents community to engage Circles” e their release from prison. e their release volunteer Residents -abiding citizen. meet The regu -abiding on a Citizen Circles heir heir neighborhoods. articipants. participate as well. as pla a participate All together,develop they e d d rs ty a ew plans, interview new applicants, admit new members admit interview ewnew applicants, plans, 72 ise is nal ents s tos tion; ools, evel- raged d the e e and ogram Center as four as al fabric al make a ex-offenders begin new lives in Cleveland,” Nnew City begin lives ex-offenders e commu- The idea is p?NewsID=62899&sID=4 November 17,(accessed 2005). 83 HIO O : IELD F IRCLES IN C Prisoners are generally told about the groups befor the told groups about generally are Prisoners As of July 2005, were 18 of progress July in Citizen As Circles In In O“Citizen Authority formed hio, Adult Parole the ITIZEN N SPIRATION FROM TH E epteidvda eoeahaty productive, law healthy, a become the individual help to serve on the circles, and prisoners volunteer to volunteer prisoners and toon the circles, serve a ai odsusteidvdas rges revi progress, the individuals’ p to discuss basis lar unsuccessful and both successful to discharge and process of welcoming released prisoners back into t back prisoners released of welcoming process I C regions. Source: M cM illan, M ews/article/article.as eta,http://www.citynewsohio.com/N widen to “Citizen help Circles the conceptthe of “community a justice corps.” For example, in Oregon, Deschutes County adopte has to mobilize people home returning from prison ag as 204 hours of community service compared to four hou w rate foryouth incarcerated restitution and their peers. Theincarcerated Citheir higher than times should from learn Oregonthe experience and develop afforded andof means effective efficient an protec heldoffenders accountableare foractions an their Through a restorative justice framework, Through publicthe restorative a of community In 1997,restoration. Oregon passed allowed that Deschutes Countylegislation to superv juveniles— otherwise prisons— destined for state in community programs. These youth join with other communityhousing and tosch rehabilitate residents redesign and rebuild and parks playgrounds, and red highpercent, national according a to National the The youth Justice. in programthe forave Juvenile pilot community justice corps for people with crimi records. of restoration power the suffered; harm any of the bonds so harnessed is an nity that strengthened are people and recidivism reducedsafer; feel is becaus also affordedoffenders meaningful are opportunitie develop in engage productive skills, and activities op and sociand rebuild physicalthe infrastructure of own their neighborhood. Within oneprthe year, byreduced facilities youth in incarceration state positive contribution for renewed a of sense purpos belonging in society. 106 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY earmarked for thepoor. earmarked for than their reapalsofair more federalshare dol of districts, theseas c prisoners prison residents of statehave in otherwise affairs. impov By counting thestate than theylegislature influence more and streng undeserved givesThis districts prisons with Representativesthparts Senators other and of from againthen and itof increases thenumber Chicago, Representatives of ber Senatorso theCityand from First, representationChicago’s ittwice. reduces dilu thecensus by resident miscounted EachChicago legislativedistricts. state as when constituents legislators count u draw t then, it Illinois; isironic, in vote even cannot actually Incarceratedresides. individu population failaccurately thereflectstate’to numbers where c when isdiluted this principle but government, to VoteensuresThis rule. that resident each gets eq PersonOne Amendment’sOne the14th under required peopl of thesame number districtcontain each will dataredrawits to legislative district boundaries statetheIllinois Eachdecade, legislature usesU. federalfunding. representationits and Springfield eligibility in f proper Chicago’sassignificant to questions poses statisticaljust anissue isThis of not tion. tri pop Chicago’s undercount and are prisons located of themaj where Illinois in communities of population Asa result, figures thecurrentcensus inflate the built. rural often districtsless prisons populated where areasurbanto live prisoners most where populated the from figures shiftspower political population electorald state today, federalpadding and prison peo million data. But 1.4 with demographic usesof incarceration rateshigh pre-dates m or methodology theyactuallyThi cities where and lived. thetowns residents insteadof atime— short only arefor held wher locations theprisons— as “residents” of people incarce rules counts census in quirk longstanding A Issue 84 instead of their home communities. home oftheir instead reside as individuals incarcerated counts currently U.S ofthe methodology ofthe revision for Advocate via;rather it or state or and S.Census ualaccess thenum- hatthey densely ounties erished so that so istricts’ e state.e e most e would odern ple in ple from ensus thin rated ority e ase ula- lars the are tes als p p s s f

population. incarceraits formerly of tationthecalculation in fair for repr advocate should communities Chicago’s healthy, into viablesettings, develop and Togrow communities. home enumerateas prisoners their residentsact of would Bureau’sthe Census of version redistricting data t SecretarytheIllinois State of create to a special requ Representativewould Arthur L.Turner 2005, in introduced Act, thePrisoner Adjustment Census 906, thestate On House passage level, census. of 2010 th before its change procedures simply Bureaucould eitherstate thefederal or Federally, level. the a modified be can methodology This process. census thflaw in a troubling whathas cure clearly become addresses at wo prisoners their pre-prison Counting Solution nts of the prisons ofthe nts . Census, which Census, . Recommendation ly modified ly Census esen- uld by Bill ted ted hat ual ire e e t MAYORAL PO LICY CAUCUS ON PRISON ER REENTRY 107 s hy ter, uba and akes rked s, s, as our 20— uner, pas- other ngela initial their prock, ing the work to ewpoint one you city, and city, ’s Office, ’s al report al citations, ese pages, ese e e finished , butwas it Then Julie o the reflect and sharing way, taking way, nd pen. sharp Michaels, Alison Nemirow, and Julie Wilen— Michaels, Alison Nemirow, and Julie for their foothold, and Tim and helpedAli crucial fill gaps. benefit the of eye a careful his material give this meticulousHis editing documentmade entire the bet time for their Perspectives, investing Stakeholder always essential. essential. always Thank you to our of team writers—Lumpkin, Ben Timot sion months,and perseverance. For several wothey diligently to help compile recommendationsthe all into frompolishedyear the entire the analysis fin you that hold in your hands.helped Ben an us get brought together toth everything masterfully craft product. embedded is She in every page. Thank you fortoownhis interrupting David Daskal stronger. crisper, Thank you in Dialoguethe to Groupparticipants the peoplethe well as who to agreed be interviewed for brought ideas. Each uniquetheir a vi and valuable to conversation.the report We t final wanted this thinking best of concerned citizens throughout the helpedthey us to goal. achieve this And to those individuals with criminal records, and loved ones, who find reflected within themselves th and yourlet tell story, courage stranger to a let and your weread hopestory, we’ve strangers d that someof measure justice.small Michelle Light to Mayor the Initiatives for Reentry Assistant Office of Mayor the hefty briefing binders. It wasn’t always glamorous always briefing hefty binders. wasn’t It youthank with yourforus.t sharing It struggles Thank you to all the interns and staff at the Mayorthe at Thank you and staff tointerns the all and Management, Chicago Capital Ariel Metropolis 20 Br Jonathan Bhat, Sujata Dorcas DrewAustin, Beres, Kontorovich, Monica Na, Grace Ohs, Rogers, A Akilah Su Schackmuth,Rudolph, Mark Julia Sadleir, Rudyard Veljkovic— Thomas, Maria whoSamantha provided extra of pointssets helping different along hands at the notes, making phone chasing calls, down particular sources,verifying photocopying documents, duplicat Rebecca Curtis, Jennifer Dunlay, Mary Ann Dyar, Kri Ann Mary Dyar, Dunlay, Rebecca Jennifer Curtis, L Fong, Golden, Harris, Irene Jessica Ekdahl, Laura

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A Note of Thanks of Note A A Note of Thanks of Note A Thank Thank you to Caucusthe members fordedicatio their wisdom. contributions, Withinsightful their C the Many peopleMany worked to very hard success the ensure Our thanks first goOur first to thanks The Honorable M. Richard Dal Thank you to our two co-chairs, Roxanne Ward of Ari Mayoral Policy Caucus on Prisoner Reentry. PolicyThe Mayoral inf Caucus on Reentry. Prisoner beenhave possible without leadership. their Mayor of City the of Chicago, for visionthe having to confronting posedchallenges the by formerlythe incarcerated. Wolff of and Paula ChicagoManagement Capital Metro They and details. offeredfiner the intellig sharp benefitedand insight, Caucusthe fro always astute discerning questions and clearheaded guidance. The role models,as critics, gentle and constant champi Working with twothe of them made work pleasure. a evolved into something Theyvaluable. were truly a of will inspiration help inspiration, and infl that ciously allowing us tosplendid use their meeting s our to w that ensure weanticipate didn’t initially went off without hitch. a kindnessTheir and gener and recommendations contained report in wouldthis been has ignoredcourage that issue to this address long. Since boldhis step to membersthe call of t other together, elected aroundofficials countrthe followed lead his and begun to devote time and reso 2020. focused Roxanne and Paula on both bigthe pi debate on of issues to forprisoner c years reentry of Thank you Bank Chicago Reserve to fo Federal the ourwas Caucus home where we could and learn listen broughthave them to Chicago without foundationthe support able financial well. coveredas Ariel our drink expenses and even offered tomany costassume appreciated. greatly Thank Thank you toFoundation MacArthur the for kindly pa Thank you to Chicagothe Community Richathe Trust, Thank you forcon Management their toCapital Ariel tion and discuss, ofand where fruits the our labor shape. expenses for ourtravel the all out-of-town guests. addedguests to immeasurably our dialogue, and we c tance. Foundation,Driehaus Foundation, Joyce the Polkthe Foundation, and Woodsthe Fund of Chicago for helpi someoffset of expensesthe for producing fina this beliefTheir projectin this reality. made a has it List of Participants (as of July 1, 2005)

Ms. Joanne Archibald, Chicago Legal Advocacy for Incarcerated Mothers, she was formerly incarcerated Ms. Marva Arnold, Illinois Department of Human Services, nephew was formerly incarcerated Ms. Sue Augustus, Corporation for Supportive Housing Ms. Veronica Ballard, Cook County Adult Probation Dr. Carl C. Bell, M.D., Community Mental Health Council, Inc. Ms. Deanne Benos, Illinois Department of Corrections Mr. Darron E. Bowden, Law Offices of the Cook County Public Defender, cousin was formerly incarcerated Mr. Walter L. Boyd, Protestants for the Common Good, he was formerly incarcerated Dr. Lisa Braude, Ph.D, Treatment Alternatives for Safe Communities Mr. Herman Brewer, John D. & Catherine T. MacArthur Foundation Mr. Bill Buckner, Office of Governor Rod Blagojevich Mr. Joseph P. Burke, Illinois Department of Corrections Mr. Willie Cade, Computers for Schools Mr. Freddy Calixto, BUILD, Inc, son was formerly incarcerated Mr. Mark Carter, Project VOTE, he was formerly incarcerated Dr. James R. “Chip” Coldren Jr., John Howard Association for Prison Reform, brother was formerly incarcerated Ms. Tami I. Cole, Chicago Department of Human Services, one close family member was formerly incarcerated Mr. Sam Crawford, FAITH, Inc. Mr. Matthew Crowl, Office of Mayor Richard M. Daley Ms. Shelley A. Davis, The Joyce Foundation Mr. Robert J. Dougherty, St. Leonard’s Ministries Ms. Jackie Edens, private consultant Mr. Will Edwards, Mayor’s Office of Workforce Development, one close family member was formerly incarcerated Dr. Michael J. Elliott, Ph.D, Roosevelt University (Department of Human and Community Development) Ms. Christine Farrell, Cabrini Green Legal Aid Clinic Rev. James R. Goodwin, Mt. Olive Missionary Baptist Church/Pastors of Englewood Mr. Rick Guzman, Illinois Department of Corrections Ms. Lisa Renne Hampton, Chicago Jobs Council Ms. Deborah Harrington, Woods Fund of Chicago Ms. Meghan K. Harte, Chicago Housing Authority Mr. Vance Henry, Chicago’s Alternative Policing Strategy Ms. Josette Heredia, LCSW, Youth Outreach Services Ms. Jane Higgins, Lutheran Social Services of Illinois E TRY EEN

R Ms. Joelle Isidore, City Colleges of Chicago Ms. Linda J. Kaiser, Chicago Workforce Board Ms. Ngoan Le, Chicago Community Trust RISON ER

P Ms. Michelle L. Light, Office of Mayor Richard M. Daley Mr. Timothy J. Leahy, Chicago Federation of Labor, AFL-CIO Mr. Ron Lofton, McDonald’s Corporation

AUCUSON Mr. Gloster Mahon, Illinois Department of Human Services C Mr. Michael Mahoney, Illinois Juvenile Justice Commission Mr. LaRue Martin, Jr., United Parcel Service OLICY P Dr. James B. McAuley, M.D., Rush-Presbyterian-St. Luke’s Medical Center Y RAL AYO M 108 Ms. Ellen A. Meyers, Office of Illinois Secretary of State Mr. Andrew J. Mooney, Local Initiatives Support Corporation/Chicago Mr. Chris Moore, Exodus Renewal Society, Inc., he was formerly incarcerated, one close family member was formerly incarcerated Mr. Ralph G. Moore, Ralph G. Moore & Associates Ms. Sherri Moses, Illinois Department of Employment Security Dr. Patricia O’Brien, University of Illinois at Chicago (Jane Addams College of Social Work) Ms. Ellen A. O’Connor, Chicago Department of Planning and Development Mr. Alberto Ortega, Instituto del Progreso Latino Ms. Brenda Palms-Barber, North Lawndale Employment Network, nephew was formerly incarcerated Mr. Howard A. Peters, III, Illinois Hospital Association Dr. John M. Raba, M.D., Cermak Health Services, Cook County Bureau of Health Services Dr. Anthony Raden, Ph.D, Chicago Department of Children and Youth Services Mr. James Reynolds, Loop Capital Markets Mr. Howard Robinson, Illinois Department of Corrections Mr. Julio Rodriguez, Illinois Department of Commerce and Economic Opportunity Mr. David Rosa, St. Andrew’s Court, he was formerly incarcerated, brother was formerly incarcerated Ms. Brenda Russell, Illinois Department of Employment Security, niece was formerly incarcerated Ms. Ellen Sahli, Chicago Department of Housing Mr. Chuck Schwartz, Gateway Foundation, Inc., he was formerly incarcerated, two close family members were formerly incarcerated Deputy Chief Tina M. Skahill, Chicago Police Department Rev. Larry Smith, United Baptist Church, he was formerly incarcerated Mr. Phillip Stevenson, Illinois Criminal Justice Information Authority Mr. Andrew Teitelman, Chicago Housing Authority Ms. Roxanne Ward, Ariel Capital Management Mr. Gregory F. Washington, Grand Boulevard Federation Rev. Patricia Watkins, Target AREA Development Corporation, brothers, uncles and cousins were formerly incarcerated Father Bruce Wellems, Holy Cross/Immaculate Heart of Mary Parish Dr. John Wilhelm, M.D., Chicago Department of Public Health Ms. B. Diane Williams, Safer Foundation, cousin was formerly incarcerated Ms. Paula Wolff, Chicago Metropolis 2020 Ms. Patricia L. Zeglen, Cook County Juvenile Probation and Court Services

Dr. Anthony M. Zipple, Thresholds, godson and cousin were formerly incarcerated M AYO RAL P LICY O C UU N O AUCUS P IONER RISO N R EEN TRY

109 List of Special Guests (as of July 1, 2005)

Anonymous, son was formerly incarcerated Anonymous, brother was formerly incarcerated Mr. Irvin Ashford, Cook County Juvenile Probation and Court Services Cmdr. Salvador E. Avila, Chicago Police Department (14th District) Dr. R. Scott Chavez, Ph.D, National Commission on Correctional Health Care Dr. Todd R. Clear, Ph.D, John Jay College of Criminal Justice, City University of New York Cmdr. Beatrice V. Cuello, Chicago Police Department (10th District) Ms. Paula Daniels, son is incarcerated Mr. Edward F. Davis, Lowell Police Department Mr. James Drake, resident of Auburn-Gresham Rev. Michael Eaddy, People’s Church of the Harvest, resident of East Garfield Park Mr. Harl Earts, daughter was formerly incarcerated Mr. Steven Eiseman, Cook County Juvenile Probation and Court Services Mr. Anthony Elliott, resident of Austin, he was formerly incarcerated, one close family member was formerly incarcerated Ms. Nancy Fishman, New Jersey Institute for Social Justice Ms. Dorothy Freeman, daughter is incarcerated Ms. Elizabeth Gaynes, The Osborne Association, children’s father is incarcerated Ms. Hedy Gist, Advocate Trinity Hospital Rev. Doris J. Green, AIDS Foundation of Chicago, husband was formerly incarcerated Ms. Marilyn Hammond, two brothers are incarcerated Mr. John Hattery, Home Builders Institute Ms. Thomasina “Tomi” Hiers, Maryland Department of Public Safety and Correctional Services Rev. Robin Hood, Redeemed Ministries, resident of Englewood, one close family member was formerly incarcerated Dr. Robert M. “Mike” Hooper, Strategic Solutions for Public Safety Cmdr. James Jackson, Chicago Police Department (11th District) Ms. Stacy Johnson, she was formerly incarcerated, husband was formerly incarcerated Mr. Kevin D. Jones, Comau Pico Service Mr. Darryl P. King, Fifth Avenue Committee, he was formerly incarcerated Ms. Queen Lake, daughter is incarcerated Ms. Valerie F. Leonard, resident of North Lawndale Ms. Darlene Lewis, University of Chicago Hospitals Medical Center, nephew is incarcerated Dr. Thomas Lincoln, M.D., Baystate Medical Center Ms. Sheila McCrea, resident of North Lawndale Mr. William McKenzie, he was formerly incarcerated Mr. Charles Michalek, Cook County Juvenile Probation and Court Services Mr. Cory Muldoon, Organization of the Northeast, resident of Uptown, cousin was formerly incarcerated Ms. Yolanda Najera, Centerforce, children’s father was formerly incarcerated Ms. Diane Nelson, son was formerly incarcerated Mr. Nathan Pearson, Circuit City

E TRY EEN Ms. Rochelle Perry, Safer Foundation, she was formerly incarcerated R Ms. Niuris Ramos, Near Northwest Neighborhood Network, resident of Humboldt Park Mr. Marvin Reed, Illinois Department of Corrections Ms. Jackie Robinson, three sons were formerly incarcerated RISON ER P Ms. Carol Shapiro, Family Justice, Inc Ms. Sharon Shipinski, Illinois Department of Corrections Ms. Mary Steward, Mid-South Planning and Development Commission, resident of Bronzeville

AUCUSON Ms. Pamela Thomas, Rose House, she was formerly incarcerated

C Ms. Mary Tucker, son was formerly incarcerated Dr. Christy A. Visher, Ph.D, Urban Institute

OLICY Ms. Mildred Wiley, Bethel New Life, resident of Austin P Dr. Reginald A. Wilkinson, Ohio Department of Rehabilitation and Correction Cmdr. Eugene E. Williams, Chicago Police Department (15th District)

Y RAL AYO Ms. Dee Wilson, Texas Correctional Office on Offenders with Medical or Mental Impairments M Mr. Edward A. Zanghi, Illinois Department of Corrections 110

112 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 5 7 6 4 20 19 21 3 18 8 2 2 14 16 17 15 1 Introduction 9 13 12 11 10 Endnotes 2003), http://www.ojp.usdoj.gov/bjs/pub/pdf/piusp01 2003), Throughout this report, words such as “former priso as “former such words this report, Throughout 2005). 11, November (accessed 1044.pdf D.C.: (Washington, Continues” Population in Growth France ( (97), Germany Canada (116), Britain(145), Council of State Governments, “Report of theRe-Ent Stateof “Report of Governments, Council ( http://www.ojp.usdoj.gov/bjs/reentry/releases.htm Justice, U.S.Department of Bureau Justice of Stati areinterchangeably. used record” criminal Bonzcar, Thomas, “Prevalence of Imprisonment in the in Imprisonment “Prevalence of Bonzcar, Thomas, http://www.ojp.usdoj.gov/bjs/pub/pdf/piusp01 2003), Thereare populations with Illinoiscitiesseven in (ac http://www.ojp.usdoj.gov/bjs/pub/pdf/ppus03.pdf LaurenGlaze, Seri and Palla, Parole and “Probation Illinois Department of Corrections, “2004 Departmen “2004 Corrections, DepartmentIllinois of 2005). 11, November (accessed EST2002-08-17.pdf July 2002” through 1, July Alphabetically: 2001 1, per 100,000 persons places this country at the top at thetop this places country persons 100,000 per Community,” Introduction, http://www.reentrypolicy. Introduction, Community,” Bonzcar, Thomas, “Prevalence of Imprisonment in the in Imprisonment “Prevalence of Bonzcar, Thomas, military, enforcement, juvenile country,Indianand http://www.idoc.state.il.us/subsections/reports/dep Council of State Governments, “Report of theRe-Ent Stateof “Report of Governments, Council Back: Rethinking AllCome Reentry They Prisoner the United States at year end 2004 for stateStates theUnited for fe and (acces at 2004 year end http://www.ojp.usdoj.gov/bjs/pub/pdf/p04.pdf Harrison,Paige “PrisonersBeck,Allen 2004” in and http://www.ojp.usdoj.gov/bjs/glance/tables/corr2tab Illinois Department of Corrections, “2004 Departmen “2004 Corrections, DepartmentIllinois of La Vigne, Nancy G. and Cynthia A. Mamalian,Cynthia A. Port and “A LaG. Nancy Vigne, (ac http://www.ojp.usdoj.gov/bjs/pub/pdf/pjim04.pdf (3) Rockford— 151,068; (4) Naperville— 135,389; (5) J (5) Table“Illino Bureau,8 Division, Census Population 135,389; Naperville— (4) 151,068; Rockford— (3) Community,” Introduction, http://www.reentrypolicy. Introduction, Community,” Illinois Department of Corrections, 2005), http://w 2005), Corrections, DepartmentIllinois of 32,609. systemrectionala with rated of capacity 2003), 46. 2003), Harrison,JailPaige and “Prison Beck,Allen and In http://www.idoc.state.il.us/subsections/reports/dep (accessed December 1, 2005). 2005). 1, December (accessed U.S. Department of Justice, U.S.Department of Bureau Justice of Stati Periodicals Online, October 1996), http://www.lib.n 1996), October PeriodicalsOnline, Durose, MatthewPatrick and Durose, SentencLangan, “Felony At the end of calendar year 2004, the adult prison theadult prison calendaryear 2004, of Attheend 5. 2005), 1, December (accessed http://www.cul-chicago.org/7 2002), League,October Street,JoRace,Prison, Circle: Paul,Vicious “The http://www.idoc.state.il.us/subsections/reports/sta Illinois Department of Corrections, “Statistical Corrections, DepartmentIllinois of Pr (ac http://www.ojp.usdoj.gov/bjs/pub/pdf/ppus04.pdf LaurenGlaze, Seri and Palla, Parole and “Probation (ac http://www.ojp.usdoj.gov/bjs/pub/pdf/fssc02.pdf Huppke, Rex. “Record Numbers of Ex-Cons Return to I Return to Ex-Cons of Numbers “Record Rex. Huppke, Calculation based on taking 50 percent of theproje of percent taking 50 on based Calculation See alsoSee Wheeler, Charles, “It’s the ‘get tough on crime’ fa crime’ Charles, “It’s Wheeler, on the‘gettough (Washington, D.C.: National Institute Justice, D.C.: of 2 (Washington, esentation 2003” (Springfield, IL: DepartmIllinois (Springfield, esentation2003” bs, and Community in Chicago, Illinois, and theNat and Illinois, Chicago, in Community and bs, tistical_presentation_2003/part1.shtml#5 (accessed tistical_presentation_2003/part1.shtml#5 above 100,000 persons: (1) Chicago— 2,886,251; (2) 2,886,251; Chicago— (1) persons: 100,000 above stics,“Reentry Trends States,”theUnited in stics, “Number of Persons under Correctional Superv Correctional Persons under of stics,“Number Illinois Department of Corrections, “Statistical Corrections, DepartmentIllinois of Pr artment_data/Department%20Data%202004.pdf. (accesse artment_data/Department%20Data%202004.pdf. artment_data/Department%20Data%202004.pdf (accessed artment_data/Department%20Data%202004.pdf deral prisons and local jails territorial local plus and deralprisons pris mates at Midyear 2004” (Washington, D. C.: Bureau C.: o D. (Washington, matesat Midyear2004” facilities. ww.idoc.state.il.us/subsections/reports/statistical population was 35.1 percent over rated capacity,over percent to was35.1 population accessed June 16, 2005). June accessed 16, in the United States, 2003” (Washington, D.C.: Bu D.C.: (Washington, States,theUnited in 2003” in the United States, 2004” (Washington, D.C.: Bur D.C.: (Washington, States,theUnited in 2004” http://www.census.gov/popest/archives/2000s/vintag .htm (accessed June 16, 2005). 2005). June (accessed 16, .htm of the list in the Western world. Rates other thelistof theWestern in world. of is Incorporated Place Population Estimates Place Population isPopu Incorporated and cted total releases for 2005, or 50 percent of 42,0 of percent 50 or total releases cted 2005, for (Washington, D.C.: Bureau Justice of D.C.: Statistics, (Washington, cessed November 11, 2005). 11, November cessed iu.edu/ipo/1996/ii961042.html (accessed June 16, 20 June (accessed 16, iu.edu/ipo/1996/ii961042.html ner,” “released prisoner,” “formerly incarcerated ner,”i “released“formerly prisoner,” sed November 11, 2005). This figure includes thet figureThisincludes 2005). 11, November sed 8,adJpn(0—areall significantly Japan and lower. (60)— 88), ry Policy Council: Charting theSafe Successfu and Council: Policy ry ry Policy Council: Charting theSafe Successfu and Council: Policy ry cessed November 11, 2005), Table 7. 2005), 11, November cessed org/report/introduction.php (accessed November 11, 11, November (accessed org/report/introduction.php org/report/introduction.php (accessed November 11, 11, November (accessed org/report/introduction.php cessed November 11, 2005), Table 8. Table 8. 2005), 11, November cessed cessed November 11, 2005), 1. 1. 2005), 11, November cessed 2329633112722/lib/72329633112722/the%20vicious%20ci talData Fact IL: Sheet”Dep Illinois (Springfield, talData Fact IL: Sheet”Dep Illinois (Springfield, .pdf (accessed November 11, 2005), Table 1. 2005), 11, November (accessed .pdf .pdf (accessed November 11, 2005), Figure 3. The U The Figure 3. 2005), 11, November (accessed .pdf U.S. Population, 1974-2001,” (Washington, D.C.: B D.C.: (Washington, 1974-2001,” U.S.Population, U.S. Population, 1974-2001,” (Washington, D.C.: B D.C.: (Washington, 1974-2001,” U.S.Population, The Sentencing Project, 2005), http://www.sentencin 2005), Project, Sentencing The rait of Prisoner Reentry in Illinois” (Washington, raitPrisoner Reentry(Washington, Illinois” of in es in State Courts, 2002” (Washington, D.C.: Bureau D.C.: (Washington, Statees in 2002” Courts, oliet— 118,423; (6) Peoria— 112,670 and (7) Springfie (7) and 112,670 Peoria— (6) 118,423; oliet— llinois Streets,” llinois ChicagoTribune , June 19, 2005. June , 19, ll campaign season again”IL:season Illinois(DeKalb, llcampaign ons, immigrations and cus and immigrations ons, 000), NCJ 181413. NCJ 181413. 000), _presentation_2004/defaul esentation 2004” (Springfield, IL: (Springfield, esentation2004” ent of Corrections, 2004) Corrections, entof nations— Russia (564), Gre Russianations— (564), 2005), June 16, 2005), Table 1. 2005), June 16, 00. See ndividual,” and “person w “person and ndividual,” ion” (Chicago, IL: Chicago Urban IL: Chicago (Chicago, ion” artment of Corrections, 2 Corrections, artment of artment of Corrections, 2 Corrections, artment of taling 44,054 inmates a in cor- taling44,054 ision, 1980-2003,” ision, reau of Justice reauof Statistics, 2004), eau of Justice eauof Statistics, 2005), D.C.: The UrbanInstitute The D.C.: e_2002/SUB-EST2002/SUB- Aurora— 156,974; 156,974; Aurora— l Return of Prisoners Returnl to of l Return of Prisoners Returnl to of lation Change, Sorted lationChange, f Justicef Statistics, 200 otal incarcerated population in otalincarcerated population “New Incarceration Figures: “New 05). 2005); Travis, Jeremy, 2005); 2005). ureau of Justice ureauof Statisti ureau of Justice ureauof Statisti gproject.org/pdfs/ of Justice of Statistics, 2 .S. incarceration.S. rate724 of d June 16, 2005). June d 16, June 2005). 6, ld— 111,834. U.S. 111,834. ld— rcle.pdf rcle.pdf toms , t.shtml at 004) 004), 5), ith the the But 004), , cs, cs, MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 113 e a e t 5) for cs, rious 2001, 005), ” ,” , s, go sites t oft 5). 10VgnVCM100000 le.pdf (accessed tors argue that there is is there that tors argue ation and Reentry and ation ccessed June 16,ccessed June 2005). d.pdf 7,(accessed June it is Full of Full is it Pork for , 1-8. re 4.re sachusetts, Michigan, Newsachusetts, et, “Illinois State Budge et, “Illinois State Missouri and Oregon wer ureau of Justice Statisti ofureau Justice Jacobson, Michael, (accessed June 16,(accessed June 2005), 6. r” r” (Washington, D.C.: Th cies Appropriation Bill, uspended eligibility the t Practices, January 5, 2 January Practices, t Prisoners OncePrisoners Removed: The gov/reentry/learn.html#se using, Education, Voting, D.C.: The Institute Urban s ofs Prisoner Reentry au of Justice Statistics, 2000), Statistics, 7.ofau Justice ublic housing toagencies deny accessed November 11, 200 been documented. clearly See true, it would it true, not explain the on by Gender,” um Mass Incarceration Con Incarceration um Mass ion,” (Chicago, Chica IL: Department of Department Correction accessed November 5, 2005), 3. ther childrenther to beat incarcerated rogram rogram to four additional 2005), 2005), 11, Table tates, t of t andfood a welfare ben-stamp rrections, Departmen U.S. See See also , Sept ,28, Sept 2000. ed. Jeremy Travis and Michelle Waul, Travis ed. Jeremy vol. 31, no. 2003):3 (May/June 3-4. August 8,August 2002, (New York, NY: New York University Press, 2005). (NewPress, New NY: University York, York New York NewTimes York /zmagjulaug2005.shtml (accessed on November 11, 200 Families Left Behind: Costs ofThe Hidden Incarcer Behind: Left Families s and the Criminal Justice System: Five Years Late Years Five System: ands Justice Criminal the stice and the State, the Judiciary and Related Agen and Related Judiciary the and stice State, the e e Island. rait of Prisoner Reentry in ofIllinois” (Washington,Reentry Prisoner rait story_id=1270755 (accessed November 11, 2005). a1f6786440ddcbeeb501010a0/?vgnextoid=c223303cb0b320 29633112722/lib/72329633112722/the%20vicious%20circ posals, teams fromposals, Georgia, teams Idaho,seven states— Mas U.S. Population,U.S. 1974-2001,” (Washington, D.C.: B ontent/PolicyCenters/Justice/Projects/Projects.htm. pdf (accessed November 11, 2005), 3 Figure and Figu The Economist, accessed June 16,accessed June 2005). emoved: The Children ofand Family in Prisoners,” ir Parents,” Special Report Special (Washington, D.C.:Parents,” ir Bure tmental Data Fact Sheet” (Springfield, Illinois Sheet” IL: Fact Data tmental ss Incarceration ss sed November 11, 2005), 10. Table sed November 11, 2005). Some scholars and commenta r; State Democrats Push Plan Through; DemocratsPlan Push GOP Complains r; State webpage, http://www.nicic.org/pubs/2002/017520.pdf. vity”; vity”; and amendments to Higher the Education Act s (accessed June 16,(accessed June 2005). ttp://quickfacts.census.gov/qfd/states/17000.html ( eneral Revenue Fund.eneral Office of and Budg Management of Justice Programs webpage, Programs http://www.ojp.usdoj. of Justice b.htm 1, (accessed 2005). July ww.csosa.gov/Olipa/newsinterest/prison_to_home.pdf ww.urban.org/UploadedPDF/310882_families_left_behin (Washington, D.C.: Bureau of Justice Statistics, (Washington, Statistics, D.C.: of Justice Bureau (Washington, D.C.: Bureau of Justice Statistics, (Washington, Statistics, D.C.: of Justice Bureau participate. olomon, . See Mauer, Marc, “Invisible Marc, Punishment: Block . Ho Mauer, See risoner Reentry Policy risoner Reentry Academy” (NGA forCenter Bes et/FY06%20Budget%20Book.pdf 7, (accessed 2005) July ldren of moresix times o prisoners are likely than lacks endurelacks in and criminal the justice has system ts/department_data/Department%20Data%202004.pdf. (a are reform bill are placed ban lifetime on a receip the federal laws passed in laws 1996 federal and 1998 allowed for p From Prison to From Prison Home: TheConsequence Dimensions and stics, “Demographicstics, of Trends Correctional Populati stics, “Recidivism,” Reentry Trends in United the S “Recidivism,”stics, Trends Reentry r Families of Prison Inmates,” Special Issues in Co of Issues Special Inmates,” Prison Families r me Weighed,”is milies and Communities, and milies bs, and Community in Chicago, Illinois, and Nat the mericans commitmericans more were evencrimes. if that But y 2002) http://www.nicic.org/pubs/2002/017272.pdf ( el. Based onel. Based those experiences, NIC expanded p the nomics: Beyond Low-Road, Big-Stick, the and Zero-S cal and Economic Studies, cal and , June 1, ,2005. June (cont.) (July/August 2005)(July/August http://www.prisonpolicy.org/news Chicago Tribune Chicago The Urban Institute webpage, The http://www.urban.org/c Institute Urban The United States Department of Justice, The Officeof Department Justice, The United States For instance, within the last decade, For within instance, last the 1996the welf for anyoneefits convicted of felony a drug charge; Sentencing Sentencing Project, 1995), 1. Thomas, Bonzcar, of “Prevalence Imprisonment in the Travis, Jeremy, Amy Solomon Jeremy, and Michelle Waul, Travis, Downsizing Prisons: DownsizingHow Prisons: to Ma Reduce Crime End and Justice, National Institute of Corrections Institute National (Februar Justice, Harrison, Paige andin 2004” Allen Beck, “Prisoners Paige Harrison, Harrison, Paige andin 2004” Allen Beck, “Prisoners Paige Harrison, http://www.ojp.usdoj.gov/bjs/pub/pdf/p04.pdf (acces http://www.ojp.usdoj.gov/bjs/pub/pdf/p04.pdf (acces Long, Ray and Christi Parsons, “Budget Buzzer Beate Buzzer “Budget Parsons, Long,and Christi Ray Chicago,” some point lives.” in Quotedtheir fo in “Services U.S. Senate. September 8, Senate. 2000,U.S. “chi that indicates serious serious degree ofb disproportionatethat treatment http://ojjdp.ncjrs.org/dmc/. Huling,American “Young Black and Tracy Mark Mauer, simple explanation for these statistics: African A African simple explanation for statistics: these Z Magazine Book Fiscal Year 2006,”Book Year http://www.state.il.us/budgFiscal Fox, of “Effect onButterfield, Building Prison Cri Street, Paul, “The ViciousPaul, Circle: Prison, Race, Jo Street, 2003) http://www.ojp.usdoj.gov/bjs/pub/pdf/piusp01. Illinois QuickSee h from Census U.S. Facts Bureau, and of Illinois Department Corrections, “2004 Depar student loans student to anyone convicted of drug a offense Urban League, 2002), League, Urban http://www.cul-chicago.org/723 December 1, 2005), 3. Corrections 5.2%represented of 2005 Illinois’ FY G housing to anyone “engaged in drug-related acti any http://www.urban.org/pubs/prisoners/chapter1.html ( http://www.ojp.usdoj.gov/bjs/glance/tables/cpgendta Report 106-404:Senate of Departments Commerce, Ju U.S. Department of Justice, Bureau of Justice Stati of Justice Bureau of Department U.S. Justice, 2004) http://www.idoc.state.il.us/subsections/repor of andPriso “Race, Perils Place, the Paul, Street, Focus: The Magazine for the Joint Center Focus: The Magazine for Politi for the Joint (Washington, D.C.:2001), Institute, Urban http://w Stati of Justice Bureau of Department U.S. Justice, (Washington, D.C.:2003), Institute, Urban http://w 2005), 2. and Michelle OnceWaul, “Prisoners Jeremy R Travis, ofImpact Reentry Incarceration and Fa on Children, “Prison “Prison and Beyond: Never Fades,” That The Stigma http://www.economist.com/world/na/displayStory.cfm? 2003), 50-51. Mumola, Children Christopher, “Incarcerated and The M. Cincotta, Elizabeth and Amy S L. Jeremy, Travis, The Transition from toPrison The Community Transition Initiative http://www.ojp.usdoj.gov/bjs/reentry/recidivism.htm Vigne, Nancy G.La “A andPort A. Cynthia Mamalian, the first two states selectedpilot to two modthe test first the states including Michigan, Indiana, North Dakota, and Rhod NGA Center for Best Practices, “Issue Brief: NGA P Brief: “Issue Practices, NGA forCenter Best http://www.nga.org/portal/site/nga/menuitem.9123e83 1a01010aRCRD. Following for request pro national a Rhode and Island, Virginia— were invited to Jersey, 40 37 26 35 34 Introduction Introduction 22 36 25 23 38 24 33 32 39 27 31 41 42 29 30 43 28 44 45 114 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 19 18 20 4 3 11 12 10 2 14 14 13 5 6 6 1 Employment Chapter 1: 47 46 Introduction 7 48 15 17 16 8 9 Recidivism Study,” (Lanham, MD: Correctional Educ Study,”Correctional Recidivism MD: (Lanham, Ste UrbanInstitute, The 2004); D.C.: (Washington, (accessed November 17, 2005), 4; La Nancy,Vigne, 4; a 2005), 17, November (accessed school diploma. diploma. school passes successfully theGEDtest earns who person A Working Group, April 12, 2005. 12, April Group, Working KarentheLiteracy of Scheffels, ExecutiveDirector Petersilia,Prisoners theCom Return Joan, to “When 1990). Division, 2004, School District 428 was not able to provide c provide to able wasnot District 428 School 2004, Eisenberg, Michael, “Project RIO: Twelve month foll Twelve RIO: Eisenberg, “Project month Michael, Novem (accessed http://www.bls.gov/cps/cpsaat2.pdf EdReducesCrime.pdf (accessed August 1, 2005), 16; E 16; 2005), August1, (accessed EdReducesCrime.pdf Research and Evaluation, August 1994) http://www.bo ResearchEvaluation, and August1994) Federal Prisoner Harer,Among “Recidivism Miles D., 18. 2004), days). Roger Williams, (Superintendent, School Dis School (Superintendent, Williams, Roger days). thesecomp individuals of class1,925 and Education “StatePr Tolbert,Education Michelle, Correctional University IL: Roosevelt Il and (Chicago, 2003,” & County: Cook and Chicago Returning to Offenders for McKean, LiseMcKean, Charles and Ransford,“CurrentStrateg (ac http://www.ojp.usdoj.gov/bjs/pub/pdf/cpus97.pdf U.S. Department of Labor, Bureau U.S.StatisticDepartmentLabor of of La Vigne, Nancy G. and Cynthia A. Mamalian,Cynthia A. Port and “A LaG. Nancy Vigne, Novem (accessed human_services_plans/hsp2000_4.pdf, IL:Department Illinois of (Springfield, Centers,” Services “Human Corrections, DepartmentIllinois of http://www.nifl.gov/nifl/policy/st_correctio 2002), better success than young black men without anycri without men black thanbetter young success Devah are by troubling findings more even Although, 3. 2000), (November 9 no. Street,JoRace,Prison, Circle: Paul,Vicious “The JournalSociology of http://frwebgate.access.gpo.gov/cgi-bin/useftp.cgi? “StateFederal and InmatePrisoners: ProfileCha of http://www.whitehouse.gov/news/releases/2004/01/200 Address,” State theUnion of W.,“2004 Bush, George Street,JoRace,Prison, Circle: Paul,Vicious “The 6. UrbanLeague, 2002), (accessed November 10, 2005). “Second Chance Act o Act Chance “Second 2005). 10, November (accessed StatUnited 109th 1704IH, H.R. Act,” Chance “Second 2003), 35-36. 2003), Lisa Hampton, “Meeting Summary with SuperintendentSummary“Meeting with Lisa Hampton, District 42 School (Superintendent, Williams, Roger Programs: Fi of Review“Annual District 428, School Harlow, Caroline Wolf, “Education and Correctional Correctional and “Education Harlow,Wolf, Caroline 6. UrbanLeague, 2002), “Correctional Populations in the United States,theUnited in Populations 199 “Correctional http://www.ojp.usdoj.gov/bjs/pub/pdf/ecp.pdf 2003), D?c109:1:./temp/~c1095Hg7vs, D?c109:1:./temp/~c1095Hg7vs, Roger Williams, (Superintendent, School District 42 School (Superintendent, Williams, Roger (accessed July 18, 2005), Table III.1. July2005), (accessed 18, The Re-Entry Policy Council webpage, http://www.ree webpage, Re-EntryCouncil The Policy School District 428, “Annual Review of Programs: Fi of Review“Annual District 428, School (cont.) 108(5): 937-975. 937-975. 108(5): (accessed November 10, 2005). 2005). 10, November (accessed bs, and Community in Chicago, Illinois, and theNat and Illinois, Chicago, in Community and bs, bs, and Community in Chicago, Illinois, and theNat and Illinois, Chicago, in Community and bs, Corrections, 2000) http://www.idoc.state.il.us/sub 2000) Corrections, n_02.html (accessed November 17, 2005). 17, November (accessed n_02.html Pdrs=6.4.42&flnm=g01.x&direct filename=gg00117.txt& IPaddress=162.140.64.21& Council, testimony at public hearing, Governor’s C hearing, Governor’s at testimony public Council, racteristics in 1991 and 1997,” (Washington D.C.: D.C.: (Washington 1997,” and racteristics1991 in ograms: State Policy Update,” (Washington, D.C.: D.C.: State (Washington, ograms: Update,” Policy 7” (Washington, D.C.: Bureau Justice of D.C.: Statistics (Washington, 7” linois Department of Corrections, July 2005). Corrections, Department of linois s, “Employment Status theCivilian Noninstitutio“Employment s, of omparable data about waitlists. But 8,394 adultdatapr waitlists. about omparable But 8,394 ow-up,” (Austin, TX: Texas CriminalTX: (Austin, Department of ow-up,” 8), interview with Julie Wilen, November 14, 2005. 2005. 14, Julieinterview with November Wilen, 8), 8), interview with Julie Wilen, November 14, 2005. 14, Julieinterview with November Wilen, 8), trict 428), interview with Julie Wilen, November 14 Julieinterview with November Wilen, trict428), urer, Stephen and Linda G. Smith, “Education Reduce urer,Smith,“Education Linda Stephenand G. munity: Political, Economic and Social Consequences Social and Political, Economic munity: scal Year 2004,” (Springfield, IL:Depart Illinois (Springfield, scalYear 2004,” scal Year 2004,” (Springfield, IL:Depart Illinois (Springfield, scalYear 2004,” f 2005,” S.1934.IS, S.1934.IS, 2005,” f Plan–Fiscal Years 1998-2000: Adult Institutions Adult an Plan–Fiscal Years 1998-2000: Populations,” Special Report (Washington, D.C.: Bu D.C.: (Washington, Special Report Populations,” a StatethecertificateIllinois from Edu Board of leted the class (e.g., achieved at least a 6.0 on t at achieved leaston theclassleted a (e.g., 6.0 minal record. Pager, Devah. 2003. “The Mark of a C Mark of “The Pager, 2003. minalrecord. Devah. (accessed November 17, 2005), 1. 2005), 17, November (accessed (speech, United States Capitol, Washington D.C., J StatesUnited D.C., Washington (speech, Capitol, e o euigRcdvs, Ciao L Centerf IL: (Chicago, Recidivism,” Reducing iesfor cessed November 18, 2005), Table 4.1. 2005), 18, November cessed s Released in 1987,” (Washington, D.C.: Federal Bur D.C.: (Washington, sReleased 1987,” in Pager showing that young white men with criminal r criminal with men white thatPager young showing nd Christy Visher, “Chicago Prisoners’Christy Visher,Experiences nd “Chicago ber 17, 2005). 17, ber ation Association, 2001) http://www.ceanational.org 2001) Association, ation ntrypolicy.org/ ntrypolicy.org/ raitPrisoner (Washington, Reentry Illinois,” of in p.gov/news/research_projects/published_reports/reci Performance Report and Employment, Retention & Re Retention& Employment, and Report Performance es Congress, http://thomas.loc.gov/cgibin/query/D?c esCongress, lliott, Michael, Margaret Michael, lliott, Eppley, Haak,William and 40120-7.html (accessed June 16, 2005). June (accessed 16, 40120-7.html LeAnn Miller” (unpublished notes, December 17, 2003 17, December notes, LeAnnMiller”(unpublished ber 17, 2005), 73. 2005), 17, ber 109th United StatesUnited 109th Congress, sections/reports/ he TABE he test 90 after or either 45 ment of Corrections, 2004), 42. 2004), Corrections, of ment ment of Corrections, 2004), 42. 42. 2004), Corrections, of ment cation that cation a ishigh equivalent to , 2000), , General Accounting Office, 2000), Office, GeneralAccounting ommunity Safety & ReentrySafety & ommunity ion,” (Chicago, IL: Chica (Chicago, ion,” ion,” (Chicago, IL: Chica (Chicago, ion,” NationalInstitute Li for http://thomas.loc.gov/cgibin/query/ isoners took an Adult Basan Adult took isoners nal Population, 1940 to D to 1940 nalPopulation, D.C.: The UrbanInstitu The D.C.: , 2005. , d Community Correctional Community d anuary 20, 2004) anuary20, or Impact Research, Impact Augus or

ReturningHome,” Justice,ParoPardons and reau of Justice reauof Statistic eau of Prisons, Office of Prisons,Office eauof riminal Record.” riminalRecord.” /documents/ ,” ,” “Life Skills Reentry Pro s Crime: Three-State sCrime: 109:1:./temp/~c109Cn0Zn1, divism/oreprrecid87.pdf ory=/diskb/wais/data/gao ory=/diskb/wais/data/gao ecords often experienced often ecords Sentencing & Corrections Sentencing& cidivism Study, cidivism FY2002 ). One year later, One in ). American teracy, go go s, ic te, ate,” gram les t MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 115 , 5- factor -6-3; bsec- on GED .org/ ry ry man- cessed ased inois (Springfield, IL: ). One year later, ).in One later, year ccessed 10,August for Formerlythe idivism Through Work: Programming,” (Washington 2005), 73. 2005), 73. e shall be multipliedshall by a d Community Correctional d Community Correctional iew with Julie Wilen,iew with Julie that date.” 730 5/3that ILCS ng with Leonard McKinnis, der paragraph (2.1)der paragraph of su Illinois Department of Illinois Department safety, strengthens reent strengthens safety, isoners isoners were enrolled in ons/news/archive/2005/200 University of Chicago, Illinois University at n level and has trained staff at staff n trained andlevel has (Director of Ill Policy, c Programs and Vocational full-time in abuse pro-substance ent ofent Corrections, 2004), 43. ent ofent Corrections, 2004), 14. , 33, 21. Figure iously served more one than prior ons/faq/default.shtml (ac ancy G. and A. Cynthia previously received incre rkforceboardsmetrochicago 005). kground, many ex-offenders are al educational and little-to-no work idivism and Employment, and idivism Employment Barriers Facing Ex-Offenders”Facing (workingEmployment Barriers LeAnn Miller” (unpublishedMiller” LeAnn notes, December 17, 2003 5). e information about the general CSSI initiative, se e initiative, information aboutCSSI general the upward mobility.” Heinrich, “Reducing Svenja, Rec Jeremy Travis, “The Practice and “TheofPromise Practice Prison Travis, Jeremy with Julie Wilen, Octoberwith Julie 19, 2005. eeting, May 19-20,eeting, May 2003), 5. rce_Development/Resources/CSSI.htm. enders,” (Chicago, IL: Great Cities Institute, The enders,” (Chicago, Institute, Cities Great IL: ntly publishedntly “Winning Opportunities: Job A Guide iams, (Superintendent,iams, School 428), District interv ban.org/UploadedPDF/410493_PrisonProgramming.pdf (a nications, “2003 Report,”Annual (Springfield, IL: l l 1, 2005, II(F)(2)(b). at t Learning Center, City Colleges Center, of Learning t Chicago), meeti Feb. 16, 2005 http://www.idoc.state.il.us/subsecti Plan–Fiscal Years 1998-2000: Years Plan–Fiscal an Adult Institutions Plan–Fiscal Years 1998-2000: Years Plan–Fiscal an Adult Institutions uently uently been convicted of or felony, a (ii) prev has scal Year 2004,” Year scal (Springfield, Illinois Departm IL: scal Year 2004,” Year scal (Springfield, Illinois Departm IL: get forget of Department Corrections public increases ed Questions,” http://www.idoc.state.il.us/subsecti omparable data about waitlists. But 5,504 But omparableabout waitlists. prdata adult 1992 and 1.50 for program participation on or after ional programming provided by . Department the . . Learning,” http://cdl.ccc.edu/,Learning,” 5, (accessed 2 July orrectional facility.” 730 5/3-6-3.orrectional facility.” ILCS een incarcerated at least once least before.at een Vigne, N incarcerated La an_services_plans/hsp2000_4.pdf (accessed 2,August an_services_plans/hsp2000_4.pdf (accessed 2,August Directive 04.10.108Directive forSchool all Academi District 128 7, 2005),(July labor market and career information. andlabor Moses, career market Sherri fic periods of time in which such engaged is inmate is,” (Washington, D.C.: 2003) The Institute, Urban d (4)credit time under paragraph this who (i) has ns ns with mostthe job openings by each year educatio the goodthe conduct credit accumulated un and retained he types of jobs ex-offenders form that with little of experience of andcriminal bac stigma the their Corrections, 2000) Corrections, 2000) .asp?Name=094-0128 (accessed November 18, 2005). the northeast region northeast canthe be found http://www.wo at The Positive Impact of Corrections Education onofImpact The Rec Positive Corrections Education (cont.) Holzer, Harry, Steven Raphael, and Michael “ Stoll, Raphael, Steven Holzer, Harry, See See also City City Colleges of Chicago, “The forCenter Distance experience are relegated to.of experience lack relegated Because their are concentrated in low-wage and temporary jobs with no and Opportunities for EmploymentBarriers of Ex-Off 2005), 15. The of Illinois Department Employment rece Security in Illinois,” whichIncarcerated outlines occupatio Department ofDepartment Employment interview Security), email paper from the Urban Institute Reentry Roundtable Reentry M paper from Institute Urban the Illinois Department of Illinois Department Corrections, “Governor’s bud Lisa Hampton, Lisa with “Meeting Summary Superintendent November 14, 2005. of Illinois Department Corrections, Office of Commu Corrections, December 2003), 138. of“Low job rates canretention also be totraced t September September 2000), 20. School 428, District “Annual Review of Fi Programs: Illinois Department of Illinois Department Corrections, Administrative D.C.: 2002)May The Institute, Urban http://www.ur Correctional Sheridan the onCenter use the of its http://www.commerce.state.il.us/dceo/Bureaus/Workfo School 428, District “Annual Review of Fi Programs: Glenn M.Daniel Dubin,Mears, Sarah, Lawrence, and agement and agement sex offender monitoring,” news release, Student Assessment and Placement, effective onand effective Placement, Assessment Apri Student reports for Initiative Shortages Skill The Critical SexOffenderReentry.shtml (accessed NovemberSexOffenderReentry.shtml 17, 200 also provide “The shall and regulations rules that classes, and 1,170classes, passed exam.GED the Roger Will 2004, School 428 District notwas able to provide c Illinois Department of Illinois Department Corrections, “Human Services Centers,” Centers,” (Springfield, of Illinois Department IL: http://www.idoc.state.il.us/subsections/reports/hum transport.php (accessed November 17, 2005). For mor Illinois. 94th General Assembly. Illinois. Public 94th Act Assembly. 094-0 General http://www.ilga.gov/legislation/publicacts/fulltext Richardson (formerLizette director, Malcolm X Adul 15,August 2005. tion (a) of Section this by during inmate any speci correctional grams, or educatindustry assignments, Illinois Illinois Council on Education, Vocational of 1.25 for program participation before 11,August Illinois Department of Illinois Department Corrections, 1997), 51. of Illinois Department Corrections, “Human Services Centers,” (Springfield, of Illinois Department IL: http://www.idoc.state.il.us/subsections/reports/hum Mamalian, “A Portrait of Prisoner Reentry in ofIllino Reentry Prisoner “A Portrait Mamalian, Illinois Department of Illinois Department Corrections, Ask “Frequently good (4) credit under paragraph this subseq and has sentence of imprisonment for felony a c in adult an over 25 percentJust of prisonthe population b has August 2,August 2005). “No be eligible shall forinmate additionalthe goo 39 24 Chapter 1:Chapter Employment 21 22 23 34 35 37 38 36 25 33 28 29 30 31 32 27 26 116 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 41 40 Employment Chapter 1: 42 44 43 45 50 49 48 47 46 52 51 54 53 55 The IDOC Women and Family hasand Services tak Division Women IDOC The Partnerships,Mic interview with Safer Foundation), take the state boards, and a lot of women are not i are not women take thestateof a lot and boards, GED who nonetheless have skills that could lead to to lead haveskills nonetheless that could GEDwho tionaltraining theitsmand femalefor prisoners: warehousing, construction trades, lightmanufacturi construction warehousing, trainings and employment. Debbie Denning, thedivi Denning, Debbie trainingsemployment. and Chicago-area job market to determine which industri which determine market to job Chicago-area Sheridan Correc of thereopening preparationInfor graduate, and some women are taking their statewomen graduate,some boa and compl be could participate,havewhich a and GEDto train to afemale pri program launched District428 d to groups specific with worked then IDOC County. which to region annually thegeographic in openings D.C.: The Urban Institute, May 2002), http://www.u UrbanInstitute, The May2002), D.C.: and Lawrence,Sarah, Mears,Dubin, DanielM. Glenn interviewwith Corrections), DepartmentIllinois of De getan apprenticeship.” and a shop into walk can legislativegeneral barriers practice or hiring to t willing be industries thatfor specifically would Corrections, December 2003), 12. 12. 2003), December Corrections, Commu of Office Corrections, DepartmentIllinois of 15. 2005), Glenn Martin, (Co-Director, National HIRE Network), Martin, Glenn (Co-Director, 9. Institute,2004), Mukamal,“AfterSamuels, RoPrison: Paul Debbie and Ex- for Licensureas Policies relatedEmployment to Em Through Recidivism Reduce to Advisors of Council Ex- for Licensureas Policies relatedEmployment to Em Through Recidivism Reduce to Advisors of Council 12. 2003), December Corrections, Commu of Office Corrections, DepartmentIllinois of Review Board is the only body that issue acan CGC. body BoardReview istheonly individual if they have no more than one felony con felony than one more theyhaveifno individual thePrisoner BoardReview by atissued of thetime either se at a Court, Circuitof the time by issued matter not prison thatif in time spent individual Certificatescan Disabilities Relief from of (CRD) 2005). August3, http://www. (January 2004), 1, 093-0914, Act Public http://www.ilga.gov/legislation/publicacts/fulltext General 093- Assembly. Act Public 93rd Illinois. JudicialRelief“Certificate from of Court, Circuit http://www.ilga.gov/legislation/p (January2004) 1, then on hastimedepending passed, of period cient Relief from DisabilityalreadyRelief for from released individ to theapplication of forwarding and thecompletion basis of discretionary power to refuse to issue or issuerefuse or to to power discretionary basisof society. in Judicial, member a a productive become a of erase not the record it does and a pardon not It’sthat note havingeither to certifica important 2005). August3, ties.htm(accessed According to the Safer Foundation, very littleverythe Safer to work Foundation, According separatetheir ma through letter theCRD describing (1 had IDOC 2004, ButJanuaryDecember in by 2004. correspondence with Michelle Light, July 2005. Light, JulyMichelle with 2005. correspondence facilitatedalltraining incarcerated of individual Illinois Correctional Industries FY19 AnnualReport Correctional Illinois Illinois Correctional Industries FY19 AnnualReport Correctional Illinois Sue Hoffer, (Spokesperson, Illinois Department of F DepartmentIllinois of SueHoffer,(Spokesperson, (cont.) people with criminal records, and finally, and records, criminal with generati people s on theCertificatesDisability Relief dur from s on of te does not guarantee not gr that be te will does anindividual Disabilities,” http://www.19thcircuitcourt.state.i o hire people with education levels somewhere betwe levels somewhere education with hirepeople o .asp?name=093-0207 (accessed August 3, 2005); Illin 2005); August3, (accessed .asp?name=093-0207 uals. Rochelle Perry, (Acting Director of Public P Public Perry, uals.of Rochelle Director (Acting be issued to an individual if they have no more tha more theyhaveifno anindividual to issued be ntencing or later by application. If the person ha Ifthe person later application. or by ntencing re-issue a license, permit, or other privilege. other or re-issuepermit, a license, atory GED requirement, the length of vocational pro vocational theof lengthatoryGEDrequirement, as part of their sentence. If the person has not has not Ifthe person as their partsentence. of 0207 (January 2004), 1, 0207 criminal conviction. It simply testifiesIt simply that the conviction. criminal n prison long enough to complete the program.” Bec theprogram.” complete to enough long prison n ublicacts/fulltext.asp?name=093-0207 (accessed Augu (accessed ublicacts/fulltext.asp?name=093-0207 Ben Lumpkin, August 15, 2005. 2005. August15, Ben Lumpkin, had been done by IDOC to implement thelawimmedia implement to IDOC by done been had release. In comparison, Certificates of Good Condu Certificates Good of release.comparison, In soners to become nail technicians— a course in which in acourse nail technicians— become to soners dministrative, licensing, or other bodies can still can bodies other dministrative,or licensing, Offenders,” (Chicago, IL: The Safer Foundation, SepIL:Safer The Foundation, (Chicago, Offenders,” SepIL:Safer The Foundation, (Chicago, Offenders,” 98 (Springfield, IL: Illinois Department of Correcti Department Illinois of IL: (Springfield, 98 98 (Springfield, IL: Illinois Department of Correcti Department Illinois of IL: (Springfield, 98 ng and hospitality. and Presidentng (Vice Jodinao Hicks, inance and Professional and interviewwit Regulations),inance helle Light, September 13, 2005. Light,helle 13, September nagement information system during aninmate’s system during nagementinformation orie tional Center in 2004, for instance,theSafer for Foun 2004, tionalCenter in the PRB as part of the parole process; and (4) tra thePRB(4) and process; as the parole part of ature and level of the offense. See Public Act 093 Act See Public theoffense. ature levelof and viction, spent time in prison, and are now no longe no are and now prison, in time spent viction, jobs,” and many programs “have so many hours of wor of hours many so “have programs many and jobs,” bbie Denning (Deputy Director, Department of Women Women DepartmentDirector, of (Deputy Denning bbie There is a waiting period and the application wil theapplication and Thereisa waiting period most Sheridan inmates would return— Chicago and the and Chicago return— Sheridan inmatesmost would ilga.gov/legislation/publicacts/fulltext.asp?Name=0 rds before they are even released, so when theyget theyarewhen released, even so rdsbefore nications, “2003 Annual Report,” (Springfield, IL: (Springfield, AnnualReport,” “2003 nications, nications, “2003 Annual Report,” (Springfield, IL: (Springfield, AnnualReport,” “2003 nications, rban.org/UploadedPDF/410493_PrisonProgramming.pdf ( rban.org/UploadedPDF/410493_PrisonProgramming.pdf es were most likely to have jobs for people leaving people for havejobs to likely most eswere sion’s Deputy Director, noted “there are some women “there are some noted Director,sion’s Deputy evelop a half-dozen vocational training i vocational programs, a half-dozen evelop eted in four months. Denning comments that “today, comments Denning months. four in eted email correspondence with Michelle Light, November Michelle with emailcorrespondence adblocks to Reentry,” York,to LegalNY: Action (New adblocks JeremyTravis, Prison Practice Promiseof “The and ployment, “A Review of theState ProfesIllinoisof Review “A of ployment, theState ProfesIllinoisof Review “A of ployment, ) trained wardens and staff on CRD process; (2) int (2) trainedprocess; staff CRD wardensand ) on en the lead in this area by working to circumvent m circumvent to this thein leadarea en working by ing Pre-Start, ing started and assist to with l.us/self-help/other/reli ng large numbers of entry largeof ng numbers been incarcerated,be can a CRD been statecan theindividual believes anted a license or job. A certificateA is job. antedor a license olicy, Safer Foundation), personal Saferolicy, Foundation), s been incarcerated,be acan CRD sbeen rely upon the conviction as the theconviction rely upon n one felony conviction. It does conviction. felony one n ined parole on theCertificates on of parole ined grams, and thedisparitygrams, and -0207, 93rd General Assem 93rd -0207, f Public Policy and Commu and Policy Public f en 6th and 8th grade, with no with grade, 8th and 6th en ons), 21. ons), ons), 21. ons), ois. 93rd General Assemb 93rd ois. dation conducted a study of the aof study conducted dation h Tim Michaels, August 3, 2005. AugustMichaels,3, Tim h l be considered only if aif suffi- only considered be l ct (CGC) can be issued to an to issued be can (CGC) ct 93-0914& GA=093 (accessed GA=093 93-0914& Illinois DepartmentIllinois of Illinois DepartmentIllinois of r incarcerated. The Prisr incarcerated.The prison. They looked looked They prison. ause of this, in 2003, Sc 2003, this, in auseof tember 2002). 2002). tember 2002). tember back to the community, t thecommunity, to back st 3, 2005); Nineteenth 2005); st3, ncluding transportation a ncluding ntation to thefacility; ntationto sional and Occupational and sional Occupational and sional women would not need to need not would women Programming,” (Washington Programming,” Center, Open Society Center,Open that getneverthei will egrated the distribution of a egratedof thedistribution k experience before you c you before experience k 100 percent of thewomen of percent 100 telyafter e into it went any of thebarriers vo any of to and Family and Services, 10, 2005. 10, surrounding Cook surrounding accessed August10, accessed ef_of_disabili- -level -level between (3) oner hool ly. bly, nity hey r nd ffect ca- an , MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 117 t ts e , te, ton, loy- 7, t) re n te, te, iminal cation nal blic 3rd r See 93-0207 on about Prior e e on Considerationthe of release (January 20, (January release tle VII of VII tle Civil the Righ ts “rehabilitated” withou “rehabilitated” ts Network newsletter, with Michelle Light, D.C.: The Institu Urban ues. background checks over th es, es, denied 1 application, and 61, 2 (Sept. 7, 1990). st 3,st 2005); Illinois. 9 give individuals with cr raining Program” (Washing Program” raining w Lumpkin, with Ben 5May tion does not prevent emp mbly. Publicmbly. Act 093-020 d two were denied. Many FPR) developedFPR) report a i mericans andmericans Hispanics, a D.C.: The Institu Urban D.C.: The Institu Urban y, (Acting Directory, of Pu of color and consequently quali- th Julie Wilen, September 28, Julie th ecords from January 1,ecords 2004 from January to ve person to handle appli ilen, October 7, 2005. ulltext.asp?name=093- mployers not to use crimi Cook County Circuit Cour or of PublicSafe Policy, llion criminal records. 2005. e summarily e rejected summarily by clerk’s the ed.” The PRB ed.”did the notThe PRB feel that on city the urging and county to o criminal history. PA 0 oPA criminal history. paperwork to andthemselves sell Rochelle Perry, (Acting Director Rochelleof Perry, n DeletionFrancisco Urge Supervisors of Questithe October 12, 2005, B3. 6.asp (accessed November 18, 2005). atement on ofatement Issue the Conviction Records under Ti ackground press Checks Workplace to Ensure Safety,” ut priorut convictions during job does it interviews, rait of Prisoner Reentry in ofIllinois,” Reentry (Washington, Prisoner rait rait of Prisoner Reentry in ofIllinois,” Reentry (Washington, Prisoner rait ved 24 applications, of which issued they 16 licens II of Act II of Civil the Rights 1964,” Notice N-915-0 ion, June ion,22, June 2004. Light, July 2005. July Light, dditional occupations. Illinois. 93rd Asse General of minority certain groups,African-A particularly bs.com. risoners’ Experiences Returning Home,” Experiences risoners’ Returning (Washington, 2004) http://www.ilga.gov/legislation/publicacts/f amed Rapsheets.com criminal begannational selling Employment Opportunity Commission, “Policy Guidanc efinition. They also needed to administrati an hire to maintain applicationto maintain information. Rochelle Perr ocal advocacy groups beenhave working on iss these onal licensing statutes with stipulations related t related with stipulations onal licensing statutes ional Employment Project), Law correspondenceemail iew Board concernedwas (PRB) about deeming applican ve for Employment Background Checks,” HIRE National with Michelle Light, July 2005.with MichelleJuly Light, blic employment applications. Although resolu this nsure applicationsnsure from individuals with criminal r cations in application,the beyondget initial the

artment of(ID Regulations andartment Finance Professional as elected as unanimouslyofficials resoluti passed a udge across the state (Honorable udgein the Biebel state the across Paul er rate than whites. e than Therefore, EEOC advises the rate er ndence 2005. with MichelleJuly Light, from Disability fromapplications. Disability applicationsTwo wer ublicacts/fulltext.asp?name=093-0207 (accessed Augu pplicants had CRDs. Rochelle Perry, (Actingpplicants had CRDs. Direct Rochelle Perry, Community Partnerships, Safer Foundation),Community Safer intervie Partnerships, conclude indeedapplicant was an that “rehabilitat use use such use may disproportionately exclude people te Police),te with interview Tim 19,Michaels, August ware of the legislation enacting the certificates. of certificates. ware the enacting legislation the Guide: Offender Workforce Development T Specialists ent ofent EmploymentW Security), with interview Julie is Department of Department is Employment Security), wiinterview that its criminal directory its now that encompasses 170 mi ions were filed and considered— two were approved an Los Angeles Times, Los (cont.) Romney, Lee, “A Call to Let Felons Start Fresh: Sa Fresh: Felons“A toLee, Start Call Romney, Let See Sherri Moses, (DirectorSherri of Illinois Departm Policy, Tammi Kessel, (Assistant Bureau Chief, Illinois Sta Bureau (Assistant Kessel, Tammi The Safer Foundation, ActionThe Safer Legal andthe Center l Delaware. SB #229. SB Delaware. 142nd 1st sess Assembly. General The results from study can Thethis beresults found www.nap at December 2004), 3. 2005. In 1997, Memphis-based forsmall a instance, firm n internet for less than $30 forthan internet less apiece. claims The site 2003), 40. Vigne, Nancy“Chicago G.La Visher, and Christine P November 30, 2004. period, recei During that IDFPR had 7 pending. applications still None of 24the a (January 1, 2004)(January http://www.ilga.gov/legislation/p National Institute of Corrections, Institute National “Administrative 2003), 40. Vigne, Nancy G.La “A andPort A. Cynthia Mamalian, www.rapsheets.com and www.marketwire.com. Conducting Finds Employers Increasingly “SHRM Are B 2004) http://www.shrm.org/press_published/CMS_00712 D.C.: 2004),August of Department U.S. Justice, 1. Bonding Coordinator,Rusoff, (State Illino Patricia Foundation), personal correspondence with Michelle La Vigne, Nancy G.La “A andPort A. Cynthia Mamalian, clerks clerks in other municipal were not districts even a Foundation), PublicSafer Policy, personal correspo According Foundation, to Safer the Illinois the Dep applies to 15 occupations, 093-0914 and PA adds 3 a 0914&GA=093 (accessed 3,August 2005). General Assembly. Public Act Assembly. 093-0914,General 1, (January February 2005February on receipt the and processing of lice “Study Finds FBI Criminal Database Search Ineffecti Search Database Criminal “Study Finds FBI Currently, CRDs onlyCRDs apply Currently, to 18 of 57the occupati who reviewed has motions of for Relief Certificate office for information. insufficient Four applicat October 2005, 1-2. Nat Senior Fellow, (SorosEmsellem, Maurice Justice November 10, 2005. According show members that to EEOC, the statistics Policy, Safer Foundation), Safer Policy, personal correspondence According Foundation, onlyis Safer the there one j arrested and convicted arrested disproportionately a at high processing and needed funding toup set database a According Foundation, to Rev Safer the Prisoner the any qualitative descriptions of qualitative any howcould state the provided language enoughstatute direction on d the records as an recordsabsolute in an bar hiring decisions as beca fy as racial discrimination. racial fy as EmploymentEqual Opportunity Commission, “Policy St Act of 1964,” Notice N-915, 2 (Feb. 4, 1987); Records in Employment Arrest Equal Decision V under Title The City ofFrancisco took San bold a step recently delete the delete questionthe about prior convictions from pu ers fromers conducting background checks or abo asking Felonies from Public Applications,” Job 2005. Jodina Hicks, ofJodina (Vice PublicPresident Policy and backgrounds opportunityan qualifi to their present employer.an 65 68 64 66 63 70 69 67 59 62 58 61 72 71 60 73 74 57 Chapter 1:Chapter Employment 56 75 76 77 118 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 92 79 78 Employment Chapter 1: 93 91 90 89 88 94 96 95 82 81 80 85 87 86 83 84 PatriciaIllino (State Rusoff, Coordinator, No Bonding (accessed http://www.uses.doleta.gov/wotcdata.asp Ricki Lowitz, (Program Officer, Local Initiatives Local Officer, (Program Lowitz, Ricki S 1-4. 2005, newsletter,November Margaret Love, “State Colgate, Laws Limiting Consid improve service delivery,service DepartmenttheIllinois o improve From October 2004 to June 2005, the Illinois DeparttheIllinois June to 2005, 2004 October From 2005. Traini and Labor,See Employment U.S.Department of 2005). 17, November (accessed Your InsuranceEmployees,” for See“Federal Bonding: The D.C.: PrisonerReentry (Washington, Program,” AshleyVan Waul, Michelle L., Nessand Amy Solomon, The D.C.: Prisoner Reentry Program,”(Washington, AshleyVan Waul, Michelle L., Nessand Amy Solomon, Light, JanuaryMichelle with 2006. 4, matches. This program isdevelop still fully program This being matches. Liaisonisassisttrained to crimi with individuals ServiceProgram” (RESP) IDES atlocal office all 52 Kirby,et“Transitionalal., Gretchen Jobs Programs 2005. 11, October theirCoordinat release. Barb Herber,WOTC (Interim incarcerated individual 330 additional An program. requ employers whose and employed were who category projections occupational and information employment referralspreparation,resumetance, follow-up and or state prison, into jobs. It was signed into law It into wassigned jobs. state into or prison, place to establish may program a pilot Corrections General 093-0 Assembly. Act 93rd Public Illinois. http://www.transitionaljobs.net/Resources/Downloads NationalTransitional “Transitional Jobs Network, J x. 2002), Research, Policy Inc., occupations key to our local (and regional) economy regional) (and local our to key occupations theChicag 2002, Since pitality,retail. and tourism Harry Holzer, J., Steven Raphael,Stoll Michael and 1990). IL: Match, Project J Lynn,“High Linnea Berg,Conrad, Olson, Aimee and htt 2005), IL: Match, Project Frequent?”(Chicago, Herr,Wagner, Toby Suzanne “ and CharlesL., Chang, JulieemailSecurity),interview with Octobe Wilen, http://urbaninstitute.org/UploadedPDF/410803_Positi theUrbanInstitute from MeetingReentry Roundtable 2005), 4. 2005), Examples would be health care,manufacturing,transbe Exampleswould 2005. Unit Solutions Workforce of Edwards,(Director Will One model, model, One http://newfederalism.urban.org/html/anf25.ht 1998), “Big Shoulders, Big“Big PreparingShoulders, Challenges: Chicago’ States of New York, New Jersey,States York, New New of Washing and Florida InstituteLiteracyinit for [www.nifl.gov.eff.html] and Jennifer Dickemper Hicks, “Job Prospects for We “JobProspectsfor Jennifer Hicks, and Dickemper with Julie Wilen, October 24, 2005. 24, Julie with October Wilen, locations across the country now, including two sit two including now, acrossthecountry locations alreadysitea testingfor scoring and that isu [www.act.org/workkeys/overview/prod.html] Diane Williams, (President, Safer Foundation), emai (President,Safer DianeWilliams, Foundation), “Work Certified” “Work [www.workcertified.org] was originally developed by wasoriginally developed [www.workcertified.org] (cont.) Workkeys . Linda Kaiser,Workf . Chicago Director, (Executive on July 18, 2003, but no monies have ever been app haveever been monies no but July2003, on 18, ially to guide and improve adultliteracy programs, improve and iallyguide to nal backgrounds in their job search and work direct searchwork and their in job nalbackgrounds upport Corporation), interview with Ben Lumpkin, Ap Beninterview with Lumpkin, Corporation), upport is Department of Employment Security), interviewwi Security), Employment isDepartment of hard-to-employ persons, including persons who have who persons including persons, hard-to-employ : Stepping Stones to Unsubsidized Employment,” (Pr Employment,” Unsubsidized Stonesto Stepping : ed to provide assessment, job skills matching, job job skills assessment,matching, job provide to ed f Employment Security (IDES) recently launched aSecurity ne (IDES)recently launched Employment f obs: Real Jobs, Realobs: RealWages, 20 April Success,” s across the state, including the Chicago Workforce sacrosstheChicago thestate, including es in Illinois. Another model, model, Another Illinois. es in 208 (July 18, 2003). This bill pr 2003). (July 18, 208 services. Sherri Moses, (Director of Policy, Illin of Sherri (Director services. Moses, , “Can Employers Play PrisoEmployers Positive in “Can aRole More , r 19, 2005. r19, p://www.pmatch.org/rp_update_apr_ofive.pdf (access p://www.pmatch.org/rp_update_apr_ofive.pdf s Workforce for the New Economy,” (Chicago, IL: Chi (Chicago, Economy,” theNew for sWorkforce o Workforce Board (CWB) has targeted Boardthese (CWB) industri Workforce o l correspondence with Michelle Light, October 17, 2 17, Light, October Michelle with correspondence l s were certified while still in prison to assist to still while prison thcertified in swere . CWB chose these industries based on a combination a combination these industrieson based chose CWB . eration of Conviction in Employment and Licensure,” and Employment in Conviction erationof , Mayor’s Office of Workforce Development), intervi Development), Workforce Mayor’sof , Office ml (accessed November 18, 2005). 18, November (accessed ml Urban Institute, January 2004), 15. UrbanInstitute, 15. January 2004), UrbanInstitute, 14. January 2004), /TJProgramsRealJobsWagesSuccess.pdfNovem (accessed ton. Another option for work readiness assessment work for option Another ton. ment of Employment Security certified 579 individua Security 579 certified Employment of ment lfare Recipients: Employers Speak Out,” (Washingto lfareSpeak Out,” Employers Recipients: portation, warehousing and logistics, technology, f technology, logistics, and warehousing portation, sed by several by statessed T preparedness. determine to or, Illinois Department of Employment Security), in Security), Employment DepartmentIllinois of or, , March 20-21, 2002), March20-21, , veRole.pdf (accessed November 18, 2005); Regenstein 2005); 18, November (accessed veRole.pdf Advancement Among Project Match Participants:MatchProject How Among Advancement ob Turnover Among the Urban Poor: The Project MatcProject The theUrbanPoor: Turnover Among ob LindaKaiser,Workfor Chicago Director, (Executive . ng Administration, “What is the Work Opportunity Ta Opportunity istheWork “What Administration, ng Jeremy Travis, theWalls:National A Snap “Outside Jeremy Travis, theWalls:National A Snap “Outside vember 17, 2005). 2005). 17, vember http://www.ides.state.il.us/pdf/employers/fidelityb ested certification to receive credits under theWo creditsunder receive to estedcertification EquippedFuturethe for a Workforce Board in Florida but is used in differ in isused Board but Florida in a Workforce ovides thatServices Human and theDepartmentsovides of orce Board), emailcorrespondence Board), orce ois Department of Employm Department of ois and is currently being piloted in the in piloted iscurrently and being em in looking for employment after employment for looking in em ropriated to fund this pr fund to ropriated readiness and job search readinessjob and ly with employers to facilitate to job employers with ly 05, Centers. At each office, a RESP office, AtCenters. each been released from a county jail areleased county from been ner Reentry?” (working pa Reentry?”ner (working thJulie 28, September Wilen, inance and insurance, and insurance, and inance inceton, N.J.: Mathemati inceton, w “Reentry Employment w ril 20, 2005. However, t However, 2005. ril20, he City Colleges of Chicago is Chicago of Colleges City he was developed by theNational by wasdeveloped ew with Ben Lumpkin, May Ben with Lumpkin, ew 005. 005. es as notable high growth esashigh notable cago Jobs Council, Septem Jobs Council, cago ed August 9, 2005). August9, ed terview with Julieterview with Wilen, isACT’s ond.pdf ond.pdf n, D.C.: The UrbanInsti The D.C.: n, National HIRE Network rk Opportunity Tax Credit Opportunity rk ls under the “ex-felon” the“ex-felon” lsunder shot of Community-Based of shot Community-Based of shot , Marsha, , Jack Meyer, A. of labor market labor dynamics, of ce Board), correspondence Board), ce x Credit?” x h Experience” (Chicago, Experience” h ber 17, 2005). 17, ber Far? How Fast? Far?How How Workkeys ogram. assis- ent ca o per hos- tute, ent ber 5, MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 119 1- au , the onth erly , n, 1999). ted een 47, no.3 March 2002,March March 2002,March March 2002,March 0, P.A. 93-211,0, P.A. vision.session.ne of criminal records D.C.: of Justice Bureau stics, 2004).stics, angs). ot of Community-Based rvices), correspon-email over 1,500 low-income (accessed November 17, me=Business+Affairs+and+ (Washington, D.C.: Bure u of Justice Statistics, Statistics, u of Justice sealing 2005. table Meeting, Decembertable 1 First Defense Legal Aid, Defense Legal First D.C.: The Institute Urban Crime & Delinquency

ss a drug test within a mwithin druga a test ss 004). Effective January 1 004). January Effective 2005. interview with Julie Wile with interview Julie topetition a file their to seal n trade; nover trade; 10,000 form August 13,August 2005). , convictionif the b has ma from the state accredi ma from state the Lumpkin, 9,August 2005. Lumpkin, 9,August 2005. Lumpkin, 9,August 2005. Lumpkin, Aug. 9, 2005. w law, individuals with wmore law, than Report to Congress, A Report to Congress, A Report to Congress, tution after goingtution throughafter simi- a r the sentence.the r which A new law, he records; so can employers, such rs after the conviction.the after rs , 3,August 2003. The Daily Herald March 24,March 2001. “Summary “Summary of 202630/5 ILCS Amended 93-21 as by P.A. ldtmsap+niehsbe+etre&com.broadalid+timestamp,+engine+has+been+restarted& tion.do (accessed November 17, 2005). 2003,” (Washington, Stati D.C.: of Justice Bureau See , State and Federal Prisoners, 1997,” Prisoners, and Federal , (Washington,State 0(vol%201).pdf (accessed November 29, 2005), xi. 0(vol%201).pdf (accessed November 29, 2005). 0(vol%201).pdf (accessed November 29, 2005), xi. edy, “Health-Related Issues in Prisoner Reentry,” Reentry,” in Prisoner Issues “Health-Related edy, eremy Travis, “Outside Snapsh A National Walls: the eremy Travis, titute, 2004),titute, 49. ly. In 2004,ly. allowinglaw Illinois passed a people through workthe Foundation: of Delanceythe Street rini Green Legal Aid Clinic, Green Legal rini Chicago Council, Jobs Legal Aid Clinic, Legal 2005. which laws apply to State ak Health Services, Cook Services, Health ak ofCounty Se Health Bureau dence, Abuse, and Treatment of Jail Inmates, 2002,” Inmates, dence, of Jail Abuse, and Treatment y Brief: Health and Prisoner Reentry” (Washington, Reentry” and Prisoner Health y Brief: the Safer Foundation. Safer the moved about 10,000 violent membersgang from away g s Council),s Wilen, October with interview Julie 31, s Council),s with interview Tim 29,Michaels, August /www.eisenhowerfoundation.org/grassroots/delancey/ ounds. People drugseeking to recordsseal must pa Illinois Issues, Illinois nmates and Probationers,” (Washington,nmates D.C.: Burea The Health Status of Soon-To-Be-Released Inmates: The Status Health The Health Status of Soon-To-Be-Released Inmates: The Status Health The Health Status of Soon-to-be-ReleasedThe Status Health A Inmates: ly ill is dwindling,” ly is ill g/city/webportal/portalEntityHomeAction.do?entityNa 00 individuals been have in constructiothe trained ng paper presented at Urban Institute Reentry Round Reentry ng Institute Urban paper presented at Records Program, Cabrini Green Legal Aid Records Clinic), Cabrini Green Legal Program, e.il.us/ExOffenders/. s. 93rd General Assembly. PA 93-0211 s. PA 93rd1, Assembly. 2 General (January tion Center), and Classification with interview Ben tion Center), and Classification with interview Ben tion Center), and Classification with interview Ben tion Center), and Classification with interview Ben egov.cityofchicago.org/city/csbac/home.do (accessed ees; ees; 1,000 diplowith a graduated have participants ase, law enforcement authorities may still access t enforcementlaw may still ase, authorities been acquitted orwithout released being convicted onvictions 4for Class felony drug andabuse prosti ling. Applicants must also wait at least three yea three least ling. Applicantsat must also wait after the personthe completed has after supervision their o mbly. PA 93-1084 PA mbly. 1, 2004). (January Under nethe for felony convictions. (cont.) expungement Harrison, Paige M. and Allen J. Beck, “Prisoners in Beck, “Prisoners M. and Allen J. Paige Harrison, also Dr. Nader Tobia (Medical Director, Stateville Recep (Medical Nader Tobia Dr. Director, Stateville Ryan, Keith, “Checking Keith, Ryan, Up on Care,” Health Prison Peterson, Eric, “Why inpatient treatment for “Why Eric, Peterson, mental treatment inpatient Recep (Medical Nader Tobia Dr. Director, Stateville Dr. Nader Tobia (Medical Director, Stateville Recep (Medical Nader Tobia Dr. Director, Stateville 12, 2002), 5. Recep (Medical Nader Tobia Dr. Director, Stateville Statistics, 1999),Statistics, 1. Depen“Substance and Doris James, Jennifer Karberg, Mumola, Christopher, Abuse“Substance and Treatment Mallik-Kane, Kamala, “Returning Home “Returning Illinois Polic Kamala, Mallik-Kane, dence with Julie Wilen,dence Octoberwith Julie 19, 2005. 2005), 5. Anno, B. Jaye, “Prison Health Care Services” (worki Services” Care “Prison Health Anno, Jaye, B. See See of Justice Statistics, 2005), Statistics, 1.of Justice Solomon, andNess J Michelle Waul, Amy, Van Asheley (Washington, Programs” D.C.:Reentry The Ins Urban TheodoreHammett, M., Cheryl Kenn andRoberts Sofia National CommissionNational on Correctional Care, Health http://www.ncchc.org/stbr/Volume1/Health%20Status%2 (2002): 390-409. of I and M.,Treatment Health Ditton,“Mental Paula Dr. Jack Raba (Former Raba Chief Operating Officer, Cerm Jack Dr. http://www.ncchc.org/stbr/Volume1/Health%20Status%2 http://www.ncchc.org/stbr/Volume1/Health%20Status%2 CommissionNational on Correctional Care, Health National CommissionNational on Correctional Care, Health Lisa Hampton, Lisa (Senior Policy Associate, Chicago Job The website can be http://www.ides.stataccessed at Lisa Hampton, Lisa (Senior Policy Associate, Chicago Job “Chicago Small Business Assistance Center,” http:// Center,” Assistance “Chicago Business Small The Delancey Street Foundation,The http:/ Delancey “Main Page,” Street and P.A. 93-1084,”and P.A. published Chart by Cabrini Green In Illinois, there is no is In Illinois, there have recently beenrecently have considered by Assemb General the and convictionmisdemeanor arrest records. Illinoi Sargent Shriver National Center on Poverty Law, and onCenter National Law, Poverty Shriver Sargent 2004, personif the authorizedlaw this sealing has three-year vocational program;three-year and programthe has housing beenhave units built and by8 participants people highhave illiterate school equivalency degr 2005). (The following outcomes beenhave achieved October 11, 2005. of can sea the protest andrequest, the authorities Soffin, (Attorney and Director ofMargaret Criminal reversed, or if a certain periodorreversed, certain if a of passed time has took 1,oneffect 2005, June of sealing c addresses petition process.lar Illinois. 93rd Asse General one felony records. cannottheir seal And in c any schools,as who required by are tolaw check backgr w=Yes& Failed_Page=%2fwebportal%2fportalEntityHomeAc The RecordsCriminal Collaborative included Cab the “Department Overview,”“Department http://egov.cityofchicago.or Licensing& entityNameEnumValue=147& Failed_Reason=Inv 17 2 1 Chapter 2: Health 14 13 15 16 3 4 10 6 9 5 12 11 8 7 Chapter 1:Chapter Employment 97 104 103 102 101 98 105 100 99 120 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 19 18 Health Chapter 2: 24 29 23 33 22 20 28 27 32 31 34 25 26 21 30 41 39 35 43 42 38 37 36 44 40 Anno, B. Jaye, Anno, Health“Prison Care Services” (worki 2005). Health Care,“ Correctional on NationalCommissions Community, Reentry Program: national experts commend program f program ReentryProgram: national expertscommend Blago “Governor Corrections, DepartmentIllinois of Community, Reentry Program: national experts commend program f program ReentryProgram: national expertscommend Blago “Governor Corrections, DepartmentIllinois of Olson, David E., Rebecca Juergens Rebecca E., David Steven and P. Olson, Kar http://www.idoc.state.il.us/subsections/reports/sta Community, “IDOC data indicates that 57 percent of adultmale data of percent indicatesthat “IDOC 57 Illinois Department of Corrections, “Statistical Corrections, DepartmentIllinois of Pr July2005). (accessed 19, B. Jaye, Anno, Health“Prison Care Services” (worki 6. 2002), 12, Olson, David E., Rebecca Juergens Rebecca E., David Steven and P. Olson, Kar program participants,” program Olson, David E., Rebecca Juergens Rebecca E., David Steven and P. Olson, Kar Statistics,1999). Treatment and “SubstanceAbuse Christopher, Mumola, Ditton, Paula “MentalDitton, Health TreatmentM., and I of program participants,” program November 15, 2005). 2005). 15, November http://www.icjia.state.il.us/public/pdf/Criminal%20 Justice“Criminal Planthe State for Illinois,” of stance abuse treatment, and just over 3,100 treatme stanceabusetreatment, 3,100 just over and Blagojevich, Rod, “State theState Rod, of Blagojevich, (spe Address” 6. 2002), 12, July2005). 19, Castro,Jennifer, La ChristyNancy Vigneand Visher Cauc Mayoral Policy DelawareChicago (presentation, See alsoSee “Progress Report on Sheridan,” “Progresson Report 1. Institute,2005), National GAINS Center for People with Co-Occurring Co-Occurring with NationalPeople GAINS Centerfor Individuals leaving Cook County Jail County aretypically leavingIndividuals Cook percen that 81 fully found study a 2004 Chicago, In 12. Institute,2004), Winterfield, Laura Winterfield, Jennifer and Castro,“Returning 6 October Group, ReentrySafety Working & Community Heaps(President, Treatment Melody Alternatives for 2005). 29, September (accessed http://www.nami.org/Template.cfm?Section=By_Illness National Alliance for theMentallyNational Alliancefor Ill,Diagn “Dual SubstanceJails,” and Use in Disorders (Delmar,NY: PrisonerReentry, 2004). 22, September PresidentNational Vice Commiss Chavez, R.Scottof Augu HaymarketBeninterview with Lumpkin, Center), SafetStrategic Public for Hooper, Solutions Robert Nancy La PrisoneChristyNancy Vigneand Visher, “Chicago recidivism.htm (accessed July2005). (accessed 12, recidivism.htm U.S. Department of Justice, U.S.Department of Bureau Justice of Stati information.asp?instchoice=she (accessed July2 (accessed 19, information.asp?instchoice=she “Sheridan Corre Corrections, DepartmentIllinois of Petersilia,Joan, Petersilia,Joan, Harrison,PaigeJ.Allen and M. “Prisoners Beck, in (Chicago, IL:Criminal IllinoisJustice Informatio(Chicago, (Chicago, IL:Criminal IllinoisJustice Informatio(Chicago, (Chicago, IL:Criminal IllinoisJustice Informatio(Chicago, W hen Prisoners Come Home: Parole andParoleReent Prisoner Home: Prisoners henCome W W hen Prisoners Come Home: Parole andParoleReent Prisoner Home: Prisoners henCome W IDOC News, IDOC IDOC News, IDOC (cont.) Answers to Addiction to Answers http://www.idoc.state.il.us/subsections/news/archiv http://www.idoc.state.il.us/subsections/news/archiv June2001, esentation 2003” (Springfield, IL: DepartmIllinois (Springfield, esentation2003” tistical_presentation_2003/part1.shtml (accessed Ju (accessed tistical_presentation_2003/part1.shtml stics,“Reentry Trends http: theUS: in Recidivism, ech, Springfield, Illinois, March 12, 2003), http:/ 2003), March12, Illinois, Springfield, ech, osis and Integrated and osis Treatment Mental Illness of and given no medication at all.Dr. LustigDan medication (Associ no given y, clinician who developed Key-Crest Substance Abus developed y,who clinician Justice$20Plan/StateCriminalJusticePlan.pdf(access Home Illinois Policy Brief: Policy IllinoisTreatment Home (Wa Matching” ng paper presented atpresented paper Urban Institute ng Reentry Round ng paper presented atpresented paper Urban Institute ng Reentry Round ctional Center,” http://www.idoc.state.il.us/subsec ctional Policy Research Associates, 2002). Research Policy Associates, 2002). offenders and 63 percent of female adult offenders femaleadult offenders of percent 63 and offenders , “Chicago Prisoners’ Experiences Returning Home” ( Prisoners’ ReturningExperiences Home” “Chicago , 005). nt beds are available.”ntbeds See CriminalIllinois Just newsletter published by the Gateway Foundation, Nov theGateway Foundation, by newsletterpublished rs’ Experiences Returning Home” (Washington, D.C.: D.C.: (Washington, rs’ReturningExperiences Home” nmates and Probationers,” (Washington, D.C.: Burea D.C.: nmates(Washington, Probationers,” and jevich marks one-year anniversary marksSheridan one-year Natiojevich of jevich marks one-year anniversary marksSheridan one-year Natiojevich of Safe Communities), remarks made at Commission meet remarks at made Commission Safe Communities), t of prisoners returning to the city did not haveh not did the city returning prisoners to tof r, r, r, ion on Correctional Health CareChic Correctional (presentation, on ion us on Prisoner Reentry, September 22, 2004). Prisoner Reentry, 2004). on us 22, September Accreditation,” http://www.ncchc.org/accred/index.h Accreditation,” epae/otnMngmn/otnDslycm Con template=/ContentManagement/ContentDisplay.cfm& & ImpetusSheridantheand implementationof Correcti ImpetusSheridantheand implementationof Correcti ImpetusSheridantheand implementationof Correcti Disorders in theJustice in Disorders PrevalanceSystem, “The of or promising early results showing reduction in cri in early reduction results promising or showing or promising early results showing reduction in cri in early reduction results promising or showing , State and Federal Prisoners, 1997,” (Washington, State(Washington, , Federal and Prisoners, 1997,” st 10, 2005. st10, , 2005. , 2003,” (Washington, D.C.: Bureau Justice of D.C.: Stati (Washington, 2003,” n Authority, 2004), 2. 2. Authority, n 2004), n Authority, 2004), 2. Authority, n 2004), n Authority, 2004), 2. Authority, n 2004), ry ry (New York: Oxford University Press, 2003), 48. University Press, York: Oxford 2003), (New (New York: Oxford University Press, 2003), 48. University Press, York: Oxford 2003), (New e/2005/2005-Sheridan1YrAnniv.shtml (accessed e/2005/2005-Sheridan1YrAnniv.shtml e/2005/2005-Sheridan1YrAnniv.shtml (accessed e/2005/2005-Sheridan1YrAnniv.shtml /www.illinois.gov/gov/sos ent of Corrections, 2004) Corrections, entof //www.ojp.usdoj.gov/bjs/r ice Information Authority Information ice ly 19, 2005), Figure 3. 2005), 19, ly ate Director of Clinical ateof Director tions/facilities/ Substance Abuse Disorder Substance Abuse ealthCastro,Jennifer, insurance. ed December 7, 2005), 60. 2005), 7, December ed in prison are in need of of are need in prison in shington, D.C.: The Urba The D.C.: shington, e Treatmente Program in onal Center Therapeutic Center onal onal Center Therapeutic Center onal onal Center Therapeutic Center onal The Urban Institute, 2004), 3. UrbanInstitute, The 2004), a oe rgPio Prison& Drug nalModel a oe rgPio Prison& Drug nalModel Washington, D.C.: The Ur The D.C.: Washington, table Meeting, December 1 tableDecember Meeting, table Meeting, December 1 tableDecember Meeting, ago Mayoral Policy Caucus on Caucus Mayoral Policy ago u of Justice of u Statistics, Co-Occurring Mental Illn Co-Occurring tml, (accessed July (accessed tml, 30, me and recidivism among recidivism and me me and recidivism among recidivism and me ember 2, 2005. 2005. 2, ember D.C.: Bureau Justice of D.C.: ing, Governor’s ing, stics, 2004). stics,2004). tentID=13693 speech.cfm Services, , , eentry/ sub- 1999). ,”

n ban 1- 1- ess MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 121 ng , 82 , poli- ” with aid 2004); federal People the to entive) pon for SSI, work. foris SSDI of Corrections), email ial Security Disability Security ial t, t, 42 U.S.C. § 1383(m). Associates, 2004). Associates, edicaid Services). “Endi ndence with Julie ndenceWilen, with Julie aid Benefits for Jail aid Benefits the SSA website, http:// SSA the 2005. 2005. 2001); What “Arrested? (presentation, Chicago County Jail), interview interview County Jail), ago Mayoral agoPolicy Mayoral Caucus on ago Mayoral agoPolicy Mayoral Caucus on dence with Michelle Light D.C.: The Institute Urban Four State Case Studies. Case Four State k County Jail), interview kwithinterview County Jail), , 10,August 2005. , 10,August 2005. , 10,August 2005. 2002). odically adjusted by the r for Mental Health Law, Law, Health forr Mental /fulltext.asp?Name=094-01 sychiatric Disabilities u Disabilities sychiatric lanation of Mediclanation Federal ocial Security ocialnumbers, ofSecurity dates individual can be eligible for s sent within 30sent s ofdays three main sources:three “For ucting follow-up studies blic 104-193 Law inc (SSI ities, recoveryities, homes and is foris people with limited amount ion.pdf 19, (accessed 2005).July e a pre-release procedure pre-release e a ment of Corrections, 2004), 28. is probablyis mostthe important legal payments to men and women who too are disabled to nt and Placement Resource andnt Illinois Unit, Department Placement .900, and Section 1631(m) of Ac Social the Security lists). ors, 25,May 2004. 6-170 incentive). (SSDI Disorders in the Justice System, “Maintaining Medic “Maintaining System, Disorders in Justice the ance Abuse Disorders” NY: Policy(Delmar, Research hicago of Department Public correspoHealth), email till active, someactive, till of [e.g.,original plans the cond , 2005), http://www.ilga.gov/legislation/publicacts vered by Social Security. Benefit amounts are peri amounts are Benefit vered by Social Security. r 22,r 2004). t is readily available, residential treatment facil treatment residential available, readily is t es for at least 10 years in order to qualify. SSI 10 in order SSI least years tofores qualify. at ). r People with Mental Illness Released from Released Prison: Peopler Illness with Mental rations Manual System (“POMS”) onlineSystem Manual (available at rations ion on (presentation, Correctional ChicCare Health ion on (presentation, Correctional ChicCare Health y Brief: Health and Prisoner Reentry” (Washington, Reentry” and Prisoner Health y Brief: rly Health Programs Group, Programs for Health rly Centers Medicare & M Thresholds), 15,Lumpkin, with interview Ben June Thresholds), 15,Lumpkin, with interview Ben June Improving for Access Individuals with toP Benefits udge David L. Bazelon Center for Mental Health udgeLaw, Health forCenter David Bazelon L. Mental e institution receives $400receives e institution when information this i programs— Income Supplemental Security and Soc(SSI) elon Law), corresponemail Health forCenter Mental ermak Health Services’ Mental Health Division, Health Cook Mental Services’ Health ermak ce on Offenders with Medical orImpairments Mental e e been cut back due to lack of funding). A A to provide monthly reports of prisoners’ names, S ccessful Transition from Jail to Community: from Jail ccessful AnTransition Exp as there is for SSI, but when fororis SSI, there prisonsjails as hav Cermak Health Services’ Mental Health Division, Health Coo Mental Services’ Cermak Health udge David L. Bazelon Center for Mental Health udgeLaw, Health forCenter David Bazelon L. Mental pertains to SSI, SSDI and Medicaid derivedSSDI is tofrom SSI, pertains r bothr and care medical health mental services. n” (Washington, D.C.: Cente David Bazelon L. Judge ogram— only those needAn in financial can qualify. ices, Haymarket Center), Lumpkinices, with interview Ben Haymarket ices, Haymarket Center), Lumpkinices, with interview Ben Haymarket ices, Haymarket Center), Lumpkinices, with interview Ben Haymarket tistical_presentation_2003/2003StatisticalPresentat m that pays medicalpays m bills forthat eligible people. It esentation 2003”esentation (Springfield, Illinois Depart IL: 0 days. 42 U.S.C. § 1382(e)(1)(I) amended as by Pu (cont.) Dr. Dan Lustig (Associate Director ofDan Lustig Dr. Clinical Serv Dr. Dan Lustig (Associate Director ofDan Lustig Dr. Clinical Serv 20 Adm.Ill. Code 107.20 (2005). (Associate Director ofDan Lustig Dr. Clinical Serv John Fallon (CoordinatorJohn of Demonstration Projects, John Fallon (CoordinatorJohn of Demonstration Projects, (Lexington, Council KY: Governments, of 2005 State Brown (DirectorKelvy of Abuse C Substance Program, October 17, 2005 (although drugoutpatient treatmen methadone programs maintenance lengthy waiting have with Serious Mental Illness: Finding toIllness: Key the Su with Mental Serious (accessed November 29, 2005). Alaimo Carl (DirectorDr. and Chief Psychologist, C Release from Incarceration.” (Washington,Release D.C.: J Timely Accessfo “Ensuring to Medicaid and SSI/SSDI November 17, 2005. The following information describing it as law the SSI even never workedif have they SSI in employment co Mayoral Policy Caucus on Prisoner Reentry, SeptembePolicyMayoral Caucus on Reentry, Prisoner progra assistance Medicaid joint a is federal-state Public Act 094-0182, 1294th Assembly (July General September 22, 2004). Reentry, Prisoner Dee Wilson, DirectorCorrectional of Offi Texas the determine effectiveness ofdetermine effectiveness reducing recidivism] hav ofScott R. Chavez, CommissVice National President government. (Policy Koyanagi Chris David Baz L. Director, Judge R. Scott Chavez, Vice President ofScott R. Chavez, CommissVice National President Prisoner Reentry, September 22, 2004). Reentry, Prisoner Alaimo, Carl Dr. (Director and Chief Psychologist, Lumpkin,Ben 3,August 2005. Ben Lumpkin,Ben 3,August 2005 s is (although DataLink Happens to Your Benefits if You Go to Jail or Go Priso if You Happensto Benefits toJail Your and Disability Program Rules” (Washington, Rules” Program andD.C.: Disability J Chronic Homelessness” Memo Medicaid Direct to State “Building Bridges: An Act “Building Bridges: to Reduce Recidivism by they canthey also use them torecipients. help SSDI OfficeGuzmanRichard (Manager, ofManageme Reentry correspondence Wilen, Octoberwith Julie 11, 2005. (ActingGlenn Stanton Director of Disabled and Elde people who workedhave and paidtax Social Security of income “means-tested” andpr a resources.is It entitlement that people that fo have entitlement illness with mental two administers Administration The Social Security Income (SSDI)— which provides monthly income-support cy.ssa.gov/poms.nsf/lnx/0500520900 00520 SI POMS at There is actually no procedure actually is There pre-release for SSDI birth, confinement and otherdates information. Th Jails and prisons with intoSS can enter agreements Jails Illinois Department of Corrections, “Statistical Pr of Illinois Department Corrections, “Statistical http://www.idoc.state.il.us/subsections/reports/sta National GAINS Center forCenter GAINS PeopleNational with Co-Occurring with Co-OccurringDetainees and Subst Health Mental prisoner’s arrival, and $200 arrival, within 9 sent prisoner’s is if it and 42 U.S.C. § 402(x), amended as by Public10 Law Mallik-Kane, Kamala, “Returning Home “Returning Illinois Polic Kamala, Mallik-Kane, 2005), 3. Ope Program Administrations Social the Security See 70 68 69 50 67 56 53 49 52 51 55 Chapter 2:Chapter Health 45 46 47 48 66 64 65 54 63 60 59 58 57 61 62 122 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 86 85 90 89 91 84 83 82 81 80 79 78 75 77 76 71 Health Chapter 2: 72 73 74 87 88 4 3 3 2 1 Family Chapter 3: “Getting Off the Merry-Go-Round,” theMerry-Go-Round,” “GettingOff AlbertJ. Supervisor, Treatme (Clinical Pizza, LCSW 2005. 10, Julie with November Wilen, Mental and He (CrisisInterventionTeam Coordinator Department Crisis Police In PresentationChicago by Ben Lumpkin, August 3, 2005. See 2005. August3, BenLumpkin, Subcomittee,” October 27, 2005. 27, October Subcomittee,” Cook of all Commissioners to Memo Harris, Michelle. (Director of Treatment Programs, Cook County State’ Treatment County of (Director Programs, Cook Treatment “Drug S RAP on of Programs Impact Report: 1. 2005), 16, November (accessed http://www.bazelon.org/issues/criminali Law,2001), P Diversion Law Enforcement Diversion: “Pre-Booking 2005. 10, Julie with November Wilen, “CrisisInterventionTeam provided Program Report,” October Julieinterview with on Department), Wilen, LieutenantJeffry (CrisisInterventionTeam Murphy 11. 2005), August18, (accessed Hart-Poll.pdf PeterHart D. Research “Changing Associates, Inc., http://www.iadda.org/survey release,2003, March3, Association Dependence Drug and Alcoholism Illinois “Summary.” GettingLynch,James Tough “Did Sabol, William and acutetraumatic distress). Information available Information at http://www.thresholds.org Research Policy Center Drug CA: (Santa Army Monica, Peter SusanC. Rydell, and S.Everingham, “Controll Dr. Carl Alaimo (Director and Chief Psychologist, C Psychologist, Chief and Dr.(Director Carl Alaimo Meanwhile, Thresholds only costs around $26 per day per $26 around costs only Thresholds Meanwhile, spent also They arrest of booking. theexpense and daysless i 2,200 approximately spent pants studied their Families,” April 24, 2001, 12. 2001, theirFamilies,” 24, April Historical Perspectives, ServicesCo Supports: and Dr. Dan Lustig (Associate Director of Clinical ServClinical Dr.LustigDanof Director (Associate with Julie Wilen, November 1, 2005. 1, Julie with November Wilen, of Treatment Programs, Cook County State’s Treatment County of Programs,Attorney Cook “State’sProgram Highlights Attorney’s School Drug Stateat website http://consensusprojec Governments Haymarket’s p of ple, 68 clients, substance-abusing Open Society Institute, February 2002, http://www.s Institute, Society February 2002, Open Terrence Johnson, interview with Ben Lumpkin, May5 Terrence Beninterview with Lumpkin, Johnson, For example, the Thresholds Post Care ProgramtheThresholds o can example, For John Fallon (Coordinator of Demonstration Projects, Demonstration of John(Coordinator Fallon John Fallon (Coordinator of Demonstration Projects, Demonstration of John(Coordinator Fallon Seewww.gainscenter.samhsa.gov/pdfs/spotlight/TCE_g Institute of Justice, 2004), 1. InstituteJustice, of 2004), Bobbit, Mike and Marta Nelson, “The FrontLine:Bui Marta “The and Mike Bobbit, Nelson, 8. Institute,2004), Castro,Jennifer, La ChristyNancy Vigneand Visher chapter. significant others who are connected to a familyne to are connected significantwho others It m bloodline. or kinship by alwaysdetermined be We recognize that families recognize takemayWe different many Shapiro, Carol, “Coming Home: Building on Family Co Buildingon Home: “Coming Carol, Shapiro, (cont.) Catalyst Catalyst also Illinois Coalition for People with Disabilities, with “A People for Coalition Illinois newsletter published by the Safer Foundation, Winte theSafer by newsletterFoundation, published ices, HaymarketBen interview with ices, Lumpkin Center), ntemporary Issues and their Impact on People with D with People Issues theirntemporary on and Impact /jailtables.asp.p a yearDuring theThresholds in Public Attitudes theCriminalJusticePublic toward System ercent suffer from acute mental distress, and 44 pe acute mentalercentsuffer distress, from 44 and twork. But we will use the reference to “family” a “family” thereferenceuseButto will we twork. and Outcome Data,” updated continuously, provided b provided continuously, Data,” updated Outcome and ntAlternatives Mental HealthSafe for Communities, about 1,800 fewer days in public psychiatric hospi psychiatric public days in fewer 1,800 about n jail than in the year preceding theirjail n participatithanthe year in preceding zation/factsheets/pdfs/pre-booking_diversion.pdf zation/factsheets/pdfs/pre-booking_diversion.pdf , “Chicago Prisoner’s ( “Chicago ReturningExperiences , Home” ermakHealth Services’ Mental Cook Health Division, .pdf (accessed August 18, 2005). August18, (accessed .pdf forms and have many different“Family,”have many and meanings. forms Coordinator and Mental and Health Disabilities and Coordinator Liai ing Cocaine,” prepared for the Office of National D of theOffice for prepared Cocaine,” ing ay include fathers, grandparents, aychildren mothers, include tervention Team, Research and Development Division. Team,tervention Research Development and oros.org/initiatives/justice/articles_publications/ Thresholds), interview with Ben Lumpkin, June Beninterview with Lumpkin, 15, Thresholds), Thresholds), interview with Ben Lumpkin, June Beninterview with Lumpkin, 15, Thresholds), t.org/projects/fiscal/fact_fiscal_implications (acc t.org/projects/fiscal/fact_fiscal_implications s Attorney’s Office), email correspondence with Jul with emailcorrespondence sAttorney’s Office), 24, 2005. 24, by Officer Rosemary Loaiza, Chicago Police Departm Police RosemaryLoaiza, Chicago Officer by lding Programs Families’lding Ree that in Role Recognize ’s Office), email correspondence with Julie with Wilen, emailcorrespondence ’sOffice), alth and Disabilities Liaison, Chicago Police Depar althDisabilitiesPolice and Liaison, Chicago on Crime Pay?” (Washington, D.C.: The UrbanInstit The D.C.: Pay?” Crime (Washington, on , “Survey finds Illinois voters believe addiction i addiction believe votersIllinois “Survey finds , nly serve approximately 40 people per year. per people 40 serve approximately nly . . rograms” (Washington, D.C.: Judge L.Bazelon David D.C.: rograms”(Washington, rantee_Spotlight.pdf. rantee_Spotlight.pdf. , RAND, 1994). RAND, , County, Illinois: “Report of theHealth Hospit and of “Report County,Illinois: , 2005. , ubsequent Criminal Activity,” June 29, 2005, provid CriminalActivity,” ubsequent 2005, June 29, nnections,” nnections,” See alsoSee CriminalJustice/Mental Health coordinated Project The Corrections Management Quarterly Management Corrections The Report on Illinois’ Community System of Community Illinois’ on Report r 2005. r2005. publications/hartpoll_200 on, for savings of $70 per day plus day per $70 savings for of on, essed on November 18, 200 18, November on essed rogram, the 30 program pa program the30 rogram, s our shorthand throughou shorthand sour rcent have been diagnosed with diagnosed rcenthavebeen s a public health news issue,” sa public : Summary of Findings,” T Findings,” Summaryof : tals, for savings of $500 per day. per tals,$500 savings for of rug Control Policy and U. and Policy Control rug , siblings, cousins, friends, and friends, cousins, siblings, , ie Wilen, November 10, 20 10, November Wilen, ie January2006. 9, Court Program), intervie Program), Court son, Chicago Police Chicago son, tment), emailcorresponde tment), , August 10, 2005 (For ex (For 2005 August10, , broadly defined, may not may defined, broadly Washington, D.C.: The Urb The D.C.: Washington, evelopmental Disabilities evelopmental and County Jail), County interview alsHealth Public ntry” (New York, VerNY: (New ntry” vol. 5, no. 3 (2001): 52-61. (2001): 3 no. 5, vol. 2005. 2005. 2005. 2005. y Mark y Kammerer (Director ent, emailent,correspondence Lieutenant Jeffry Murphy ed by Mark Kammerer by ed ute, 1997) under 1997) ute, Center for Mental Centerfor Health by the Council of theCouncil by 20201/ rtici- tthis 5). w S. with he am- nce 05. a an MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 123 s s s s is-

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/reports/ ovember 5, November 5, heir prisonheir had 9, 2005); Missouri hoenix, AZ: Arizona isitingGuidelines.pdf s.” ctions), http://www.doc.m “Inmate Visiting Guideli Visiting “Inmate vol. 5, no. 3 (2001): 52-61. ed 22,August 2005), 14-5 al Services of Services Illinois),al al Services of Services Illinois),al al Services of Services Illinois),al 5, 2005). es, es, September 2004, n Lumpkin, June n 15,Lumpkin, June 2005. cago by Illinois car. d November 1, 2005). ration” ration” (Washington, D.C state.il.us/subsections/ rs and merely rs 30 percent ional Institute of Justice, 2000), of Justice, ional Institute release than women than release who had no Telecommunications Corp, al.,” et .” 9: Innovative Family Programs in 9: Programs Family Innovative s.” ), personal communication with women prisonexiting in 2 lt.shtml (accessed July 14, (accessedlt.shtml 2005);July From Prisons to Home From Prisons Conference (2002), Survey of Inmates in State and Federal Correctionaland Survey State ofin Inmates The Fourth The NorthFourth American Conference on the Family Maintaining Family ContactFamily WMaintaining hen a MemberFamily Goe Maintaining Family ContactFamily WMaintaining hen a MemberFamily Goe Maintaining Family ContactFamily WMaintaining hen a MemberFamily Goe Maintaining Family ContactFamily WMaintaining hen a MemberFamily Goe (Tallahassee, 1998),(Tallahassee, (Tallahassee, 1998),(Tallahassee, http://www.fcc.state.fl.us/fcc 1998),(Tallahassee, (Tallahassee, 1998),(Tallahassee, The Fourth The NorthFourth American Conference on the Family Osborne Today www.fcnetwork.org/4thnorth/someone.html (accessed N The Corrections Management Quarterly www.fcnetwork.org/4thnorth/children.html (accessed ercent ofercent prisoners from homes within 50 miles of t ograms for Men in Prison,” their prison their had visitors). m 14, (accessed 2005).July nnections,” r’s Incarceration,” Incarceration,” r’s dbook forMembers Family and of Friends (P Inmates” ust 9,ust 2005); of Department California Corrections, (Jefferson City, MO: City, of Missouri Department (Jefferson Corre ections.gov/IFFL/GB.htm#VISITATION (accessedections.gov/IFFL/GB.htm#VISITATION August ld, or mother likely toafter were less be arrested ovember 5, 2005). rs/incarcerationmarriagefamilylife/document (accessrs/incarcerationmarriagefamilylife/document ons, 2003), http://www.corr.ca.gov/CDC/PDFs/InmateV ls Correctional Facility,” Correctionalls Facility,” vocacy Mothers),for Incarcerated with interview Be y Life,” Russell Sage Foundation Sage Working Seri y Russell Life,” Paper rs at the University of Chicago Illinois University the at ofat rs 166 der 12:“Exhibit Telephone Contracts and Commission District Office/Lutheran Church,District Hillside, Illinois v. State of Illinois, InvisionAT& Telecom, T, State v. MCI within 50 to 100 miles from prison their had visito gramming, Prison and Family Ministry, Lutheran Soci Lutheran gramming, Ministry, and Prison Family gramming, Prison and Family Ministry, Lutheran Soci Lutheran gramming, Ministry, and Prison Family gramming, Prison and Family Ministry, Lutheran Soci Lutheran gramming, Ministry, and Prison Family partment ofpartment Corrections http://www.idoc. website at essed July 15, essed 2005),July 2. //www.idoc.state.il.us/subsections/facilities/defau Committee on Corrections, Committee on Corrections, Committee on Corrections, Committee on Corrections, s: Parenting Issues During Incarceration,” Issues s: Parenting s: Programs and Strategies,” (Washington, D.C.: and Strategies,” s: Programs Nat stics and Federal Bureau of Prisons, Bureau and Federal stics c.edu/jaddams/college/research/womens.html (accesse nt.html nt.html 18,(accessed, 2005),July under “Chapter nt.html nt.html 18, (accessed 2005),July under “Findings nt.html nt.html 18,(accessed, 2005),July under “Finding centers (89%)centers more 100 are than from miles away Chi le.asp?ObjID=Yfs9J0lfmx& Content=79 1 (accessed July ormerly Incarcerated Women’s ormerlyRecidivism andIncarcerated Reinteg , Visiting, and Telephone Access Telephone and , Visiting, , Visiting, and Telephone Access Telephone and , Visiting, Access Telephone and , Visiting, , Visiting, and Telephone Access Telephone and , Visiting, (cont.) (Quebec Canada: October City, 10-12, 1993) http:// (Quebec Canada: October City, 10-12, 1993) http:// 1997, conducted of by Census, Bureau the 2000 (54 p Shapiro, Shapiro, Carol, “Coming Home: onBuilding Co Family Gail T. Smith (Executive Smith Director, Chicago Ad T. Gail Legal (Washington, 30-31, D.C: January 2002), 47. and Famil Marriage, “Incarceration, Bruce, Western, http://www.russellsage.org/publications/workingpape Hairston, J. Creasie Finney, “Prisoners and Familie “Prisoners Finney, Creasie J. Hairston, U.S. Department of Justice, Bureau of Justice Stati of Justice Bureau of Department U.S. Justice, Finn, Peter, “Addressing Correctional Finn,Officer Peter, Stres http://www.ncjrs.org/pdffiles1/nij/183474.pdf, (acc Council, Florida HouseJustice of Representatives, Mapquest.com, “Driving Directions,” www.mapquest.co 2005). One recent study in Illinois conducted by researche Sister Pat Davis (Assistant Director of Women’s (Assistant Pro Davis Pat Sister prisoners from homes between 101 and 500 miles from interview with interview Alison Nemirow, 4,August 2005. Chaplain, Lori WilbertNorthern (Lutheran Illinois Alison Nemirow, 23,August 2005. Director of Women’s (Assistant Pro Davis Pat Sister interview with interview Alison Nemirow, 4,August 2005. Director of Women’s (Assistant Pro Davis Pat Sister interview with interview Alison Nemirow, 4,August 2005. For more information, access Illinois the Deplease to Prison: An Examination of State Policies on to Mail AnPolicies ofPrison: Examination State http://www.fcc.state.fl.us/fcc/reports/family/famco Other States.” outTwenty-four of Illinois’ 27 correctionaladult ofDepartment Corrections, “IDOC http: facilities,” Facilities, Key, Debra, “SomeoneKey, ComeTo Home Pr To: Parenting & Corrections found women that who chi from partner, had a visits visits. See O’Brien, Patricia and Robin Bates. “Fand Robin Bates. O’Brien, Patricia See visits. visitors, whilevisitors, 44 percent of prisoners from homes National Institute of Justice, 2003), of Justice, Institute National http://www.ui Corrections visitationrules/visitation.pdf. visitationrules/visitation.pdf. 2005). or “FamilyWorks Mends Frayed byBroken Ties Fathe a Arizona Department Arizonaof Department Corrections, “Information Han ofDepartment Corrections, 2003), http://www.azcorr ofDepartment Corrections, “Forand Friends” Family http://www.osborneny.org/newsletter.pdf (accessed N Florida House of Representatives, Justice Council, Florida HouseJustice of Representatives, Florida House of Representatives, Justice Council, Florida HouseJustice of Representatives, souri.gov/division/constser/FFWeb.mht (accessed Aug (Sacramento, CA: of Department California Correcti (accessed 9,August 2005). Centre—“TheRoulet, Children’s Elaine, Bedford Hil to Prison: An Examination of State Policies on to Mail AnPolicies ofPrison: Examination State family/famcont.html 18,(accessed, 2005),July un forCenter “Docket: Constitutional Rights, Arsberry http://www.ccr-ny.org/v2/legal/justice/justiceArtic on to Mail AnPolicies ofPrison: Examination State http://www.fcc.state.fl.us/fcc/reports/family/famco Council, Florida HouseJustice of Representatives, to Prison: An Examination of State Policies on to Mail AnPolicies ofPrison: Examination State http://www.fcc.state.fl.us/fcc/reports/family/famco 6 Chapter 3:Chapter Family 5 7 11 8 9 22 12 13 14 15 16 10 21 17 20 18 25 23 19 24 26 124 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 28 27 Family Chapter 3: 31 30 29 33 32 35 34 36 38 37 40 39 41 42 44 43 46 45 47 48 55 49 56 50 51 54 53 52 57 Pearson, Jessica, “Building Debt While Doing Time: Time: Pearson,Jessica, Doing While Debt “Building July 2005). (accessed 8, Cave, Damien. “Jailhouse Damien. Cave, Net,” 6 (2000), http://www.financeproject.org/Publication (2000), 6 IncarceratedServices for an “Support Sachs,Heidi, http://www.clasp.org/publications/cs_funding_072605 Turetsky,In Program:An Support Child “The Vicki, 6 (2000), http://www.financeproject.org/Publication (2000), 6 IncarceratedServices for an “Support Sachs,Heidi, Personal Responsibility and Work Opportunity Reconc Opportunity PersonalWork and Responsibility Karen Newton-Matza (Co-Manager of Community Outreac Community of Karen(Co-Manager Newton-Matza http://www.ncoff.gse.upenn.edu/briefs/brennerbrief. Brenner,theEric,“Fathers of ReviewA Prison: in (acce bin/query/F?c104:1:./temp/~c104PYXk8Y:e323953 Center for Policy Research, 2004). Research, Policy 2004). Centerfor Davis,Lanae, Jessica Esther Griswold, Ann Pearson Nemirow FamilyAlison interview with and Services), Pearson, Jessica, “Building Debt While Doing Time: Time: Pearson,Jessica, Doing While Debt “Building Institute Press, 2004), http://www.urban.org/pubs/p InstitutePress, 2004), Pearson, Jessica, “Building Debt While Doing Time: Time: Pearson,Jessica, Doing While Debt “Building work.org/cpl/CPL101-Introduction.html (This Intern (This work.org/cpl/CPL101-Introduction.html Pearson, Jessica, “Building Debt While Doing Time: Time: Pearson,Jessica, Doing While Debt “Building Travis,Jeremy Waul, Michelle and of prisoners and their and caregivers.) prisoners of Prisoner of Network-Children FamilyCorrections and Travis,“Bac Waul, Michelle and Jeremy, Solomon Amy Leonhardt, David, “As Prison Labor Grows, So Does t Does So PrisonGrows, “AsLabor Leonhardt,David, Pearson, Jessica, “Building Debt While Doing Time: Time: Pearson,Jessica, Doing While Debt “Building incarcerated. DCFS only takes children for substan takesfor incarcerated.DCFSchildren only Communities,” and out an appropriately safe plan for the children on on anthechildren appropriatelysafe for out plan these even Sometimes, thecase. be to likely found RueLandau, Dietrich, SharonE.,Pet M. Amy Hirsch, single mom or dad goes to jail or prison. DCFS is prison. jail or to goes dad or singlemom Every Door Closed: Barriers FacingClosed: Parents with Cr Door Every Pearson, Jessica, “Building Debt While Doing Time: Time: Pearson,Jessica, Doing While Debt “Building apeutic community drug treatment female drug for program community apeutic 2002). Mumola, Christopher, “Incarcerated Children and The and “Incarcerated Christopher, Children Mumola, Strategic of AndreaIngramPartnerships (Chief and who is who 2005. 4, Julie with November Wilen, correspondence The Sheriff’s The r Programday Female (female Furlough 2 Jail), County Julieinterview with October Wilen, Terry by McD wasprovided description following The Beninterview with Lump Corrections), Departmentof De Debbie by wasprovided description following The Pearson, Jessica, “Building Debt While Doing Time: Time: Pearson,Jessica, Doing While Debt “Building their homes each evening to care for their carefamilies for to evening each theirhomes 2000), 7. 2000), Shapiro, Carol, “Coming Home: Building on Family Co Buildingon Home: “Coming Carol, Shapiro, Paula Davis (Co-Founder, Sankofa), interview with A interview with Sankofa), PaulaDavis (Co-Founder, Gail T. Smith (Executive Director, Chicago Legal GailT.Ad Chicago Director,Smith (Executive Safe and F Adoption StatesUnited 1997. Congress. Gail T. Smith (Executive Director, Chicago Legal GailT.Ad Chicago Director,Smith (Executive Federal Resource Center for Children of Prisoners w of Children FederalCenterfor Resource already in state in care at thatthetime a parent isincarcer From Prisons to Home Conference PrisonsFrom Home to (cont.) Salon.com Prisoners Once Removed: The Children The andRemoved: Families o Prisoners Once , July 13, 2000, http://dir.salon.com/tech/feature/ July2000, , 13, iminalRecords Data,” National Center on FatherData,” NationalFamilies Center on and Brief . The Sheriff’s The Program (Maternity. Objectives MOM her own, and they end up in anunsafe in situation). up theyend and own, her d Released NonCustodial Parents,” Released d NonCustodial d Released NonCustodial Parents,” Released d NonCustodial ts may cross (e.g., it could be that a mom has been that be a mom it could (e.g., ts cross may only involved when someone reports abuse and neglec abuseand reports someone when involved only 4, 2005. 4, tiated cases of abuse and neglect; the agency does does theagency neglect; tiated abuseand cases of pdf (accessed August 11, 2005), 1. 2005), August11, (accessed pdf risoners/ (accessed August 26, 2005), Chapter1. 2005), August26, (accessed risoners/ s/heidijune2.htm (accessed August 11, 2005), under under 2005), August11, (accessed s/heidijune2.htm s/heidijune2.htm (accessed August 11, 2005), under under 2005), August11, (accessed s/heidijune2.htm and Nancy Thoennes, “Father Reintegration Thoennes, Nancy Project: and vocacy for Incarcerated Mothers), interview with Beinterview with Incarcerated for Mothers), vocacy vocacy for Incarcerated Mothers), interview with Beinterview with Incarcerated for Mothers), vocacy Information, Illinois Department of Children and Fa and Children DepartmentIllinois of Information, Child Support and Incarceration,” and Support Child Child Support and Incarceration,” and Support Child Child Support and Incarceration,” and Support Child Child Support and Incarceration,” and Support Child Child Support and Incarceration,” and Support Child Child Support and Incarceration,” and Support Child Child Support and Incarceration,” and Support Child ebsite, http://www.cwla.org/programs/incarcerated/ ebsite, vestment that Works,” Center for LawPol Social vestment and Centerfor that Works,” (Washington, D.C.: January 30-31, 2002), xix. 2002), January D.C.: 30-31, (Washington, amilies Act of 1997. 105th Congress. Public Law 10 Public Congress. 105th 1997. amiliesof Act eporting) enables women who are leaincarcerated to who enableswomen eporting) lison Nemirow, August 3, 2005. August3, Nemirow, lison , August 11, 2005. August11, , er D. Schneider, Irv Ackelsberg, Judith IrvSchneider, Ackelsberg, erD. Bernstein-B he Debate,” Debate,” he et resource provides 19 free information sheets freefor information 19 provides et resource nning (Deputy Director, Department of Women & Famil & Women DepartmentDirector, of (Deputy nning s Library website, “Introduction to Children of Pri of Children to sLibrary “Introduction website, .pdf (accessed August 11, 2005). August11, (accessed .pdf ermott (Executive Director, Department of Women’s J Women’s DepartmentDirector, of (Executive ermott ir Parents,” Special Report (Washington, D.C.: Bur irParents,”D.C.: (Washington, Special Report It is important to note that reunificnote It therequired to is important kin, Aug. 15, 2005. 15, Aug. kin, kground Paper: The Effect of IncarcerationPaper:ReenEffect and The of kground pre-trial Cook County Jail County detainees atpre-trial Cook variousst iliation Act of 1996, H.R. 3734, http://thomas.loc 3734, H.R. 1996, of iliation Act nnections,” nnections,” ssed August 11, 2005). Augustssed11, h, Division of Child Support Enforcement, Illinois Enforcement, Support Child of Division h, ated. A child does not come into state into care come not does child A ated. (Philadelphia, PA: CLASP and Community LegalPA: (Philadelphia, CLASPServi Community and New York Times,New The Corrections Management Quarterly Management Corrections The March 19, 2000. March19, f Prisonersf Welfare Information Network Issue Note InformationNetwork Welfare Welfare Information Network Issue Note InformationNetwork Welfare Judges’Journal Judges’Journal Judges’Journal Judges’Journal Judges’Journal Judges’Journal Judges’Journal 2000/07/13/prison/index.html?sid=890736 (Washington, D.C.: The Urban The D.C.: (Washington, , 1998, , not get involved every time atimeevery getinvolved not arrested and just couldn’t figure arrested just couldn’t and 43, no. 1 (2004): 7. (2004): 1 no. 43, vol. 43, no. 1 (2004): 9. (2004): 1 no. 43, vol. vol. 43, no. 1 (2004): 7. (2004): 1 no. 43, vol. vol. 43, no. 1 (2004): 6-8. (2004): 1 no. 43, vol. vol. 43, no. 1 (2004): 7. (2004): 1 no. 43, vol. vol. 43, no. 1 (2004): 8. (2004): 1 no. 43, vol. vol. 43, no. 1 (2004): 9. (2004): 1 no. 43, vol. ation process relates process aation child to ManagementisProgram)a n Lumpkin, June 15, 2005. June Lumpkin, 15, n n Lumpkin, June 15, 2005. June Lumpkin, 15, n

people working with chil with working people soners,” http://www.fcnet soners,” mily Services), email Services), mily ages of pregnancy. ages of aker,Joseph and Hohenste Final Report” (Denver, CO Final (Denver, Report” “Policy Questions.” “Policy “Background.” “Background.” .gov/cgi- icy,July 2005, vol. 5, no. 3 (2001): 56. (2001): 3 no. 5, vol. eau of Justice eauof Statistics 5-89. 5-89. ve thefacility ve retur and t, or abuse and neglect i neglect abuseand or t, because try on Children, Families Children, tryon ustice Service, Cook Service,ustice Department of Healthcare Departmentof y Services, y Illinois a mom or dad is dad or amom ces, Inc., May Inc., ces, vol. 4, no. 4, vol. vol. 4, no. 4, vol. , n to n - dren s ther- in, : MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 125 t n; ew ew e, ry ent Bill. sed m the ton . -3. from corners . think think of Corrections), intervi of Corrections), intervi gue of America website, ly ly 18, 2005). Mentor Children of Priso D.C.: The Institut Urban gram.html gram.html (accessed Augus Corrections). rants/open/HHS-2004-ACF- the Urban Institute Reent Institute Urban the ; one-third moneyof that was ive, see the U.S. ive, Departm U.S. the see r 28,r 2005. r 28,r 2005. r 28,r 2005. ications/assets/ eturning eturning prisoner, who a have ar/pdf/wp1_il.pdf (acces afety” (workingafety” paper fro d Agencies Appropriation d States Capitol, Washing d States e, and percenteight occur 24-36 defined solely by street ix times ix moretimes other likely than Urban Institute, 2005), Institute, Urban 1 Urban Institute, 2005), Institute, Urban 2 n an individual’s return return n individual’s an rests occurrests within six months of olleagues, family, friends, clergy, olleagues, family, ights” (San Francisco, (San ights” CA: San ognized on behalf of children of viewing community those peopleas Inmates,” Special Issues in Issues Special Inmates,” D.C.: 2003), The Institute, Urban 51. D.C.: 2003), The Institute, Urban 46. D.C.: 2003), The Institute, Urban 46. D.C.: 2003), The Institute, Urban 46. e e contextwe of reentry, (New York, NY: Russell Sage Foundation, Sage (New Russell NY: York, arceration (New 2003),NY: Oxford York, Press, University 196 ry nt and Placement Resource andnt Illinois Unit, Department Placement nt and Placement Resource andnt Illinois Unit, Department Placement .mentor.org/about_us.html and The ChildLea Welfare ce, Justice and the State, the Judiciary and Relate Judiciary the and State, the ce, Justice Planning and Research Unit, Illinois Department of Illinois Unit, Department and Research Planning -13, 2004), 5. y geographic area. But, viewedy not is geographic it But, broadly, area. through Mentoringthe Children ofInitiat Prisoners Report indicates that “children Report that ofindicates s prisoners are dren and Families website,dren http://www.acf.hhs.gov/gand Families news/releases/2003/01/20030128-19.html (accessed Ju d November 5, 2005). From to Groundthe Programs Up:Effective Creating ed/ s for(workings Enhancing Public Safety” paper from risoners’ Experiences Returning Home” Experiences risoners’ Returning (Washington, e Ventures, July 2005), July e Ventures, http://www.ppv.org/ppv/publ in, “Children of Incarcerated Parents: A Bill of in, A R Bill “Children ofParents: Incarcerated ogram Abstract,” ogramhttp://www.ojp.usdoj.gov/reentry/s Abstract,” ush talks about $450ush talks million for mentoring programs rait of Prisoner Reentry in ofIllinois,” Reentry (Washington, Prisoner rait rait of Prisoner Reentry in ofIllinois,” Reentry (Washington, Prisoner rait rait of Prisoner Reentry in ofIllinois,” Reentry (Washington, Prisoner rait rait of Prisoner Reentry in ofIllinois,” Reentry (Washington, Prisoner rait ., “2003 of Unionthe State Address” (speech, Unite ple who most byaffected are and i most influential he returning prisoner, he whoreturning can be impacted by r the release, 15 release, percent occur 12-24 releas months after mmunity Policing: Strategies for Enhancing mmunityPublic S Policing: Strategies 3) should whichthat beforth rights eight rec sets o, “Our Works!” Program http://www.bbbschgo.org/pro ties and Prisoner Reentry,” (Washington, D.C.: Reentry,” and Prisoner ties The ties and Prisoner Reentry,” (Washington, D.C.: Reentry,” and Prisoner ties The g Home Wilen, Program),Octobe with interview Julie g Home Wilen, Program),Octobe with interview Julie g Home Wilen, Program),Octobe with interview Julie as brick madeis as upIt and mortar. of neighbors, c nstitute of Correctionsnstitute 2002),(February lives.” lives.” Quoted of forin “Services Prison Families e e to formerlyindividual.the incarcerated We are riod immediately following release— 30 percent of ar ns that form loose ns that a social network. For us, in th Imprisoning America: The Social Effects ofAmerica: Mass Inc Effects The Imprisoning Social (cont.) W Come hen Prisoners Home: Prisoner ReentParole and Visher, Christy, and Jill Farrell, “Chicago Farrell, Communi and Jill Christy, Visher, Christine Rothwell Christine (Program Director, Illinois Goin Visher, Christy, and Jill Farrell, “Chicago Farrell, Communi and Jill Christy, Visher, Christine Rothwell Christine (Program Director, Illinois Goin Christine Rothwell Christine (Program Director, Illinois Goin La Vigne, Nancy G.La “A andPort A. Cynthia Mamalian, Unpublished provided (Manager, data byKarr Steven Petersilia, Joan, Joan, Petersilia, The Amachi Model” Public/Privat (Philadelphia, PA: 185_publication/pdf (accessed November 14, 2005). 12, 2005). 2003In the of Unionthe B State Address, President intended for children of prisoners. George Bush, W Big Brothers and Big Sisters of Metropolitan Chicag Sisters and Big Brothers Big 106th Report 106-404.Congress. Senate This Senate children someto beat point incarcerated in their Corrections, I National of Department U.S. Justice, http://www.nicic.org/pubs/2002/017272.pdf (accesse Francisco Partnership for Incarcerated Parents, 200 Parents, for Incarcerated Francisco Partnership parents. incarcerated Goode, “Building Smith, and Thomas Wilson J. W. Jr. “Main Page” http://www.cwla.org/programs/incarcerat “Main Page” forSee, Newby, Gretcheninstance, and Nell Bernste We recognize “community” that oftenis determined b United States Senate. 2000. Senate. of Departments United States Commer D.C., January 28,D.C., 2003), January http://www.whitehouse.gov/ For more information about fundingthe opportunity December 2004), 3. OfficeGuzmanRichard (Manager, ofManageme Reentry with Ben Lumpkin,with Ben April 28, 2005. OfficeGuzmanRichard (Manager, ofManageme Reentry and lines and onlines map. a consists of It people much as associations, institutio businesses, organizations, clear stake and vested interest in outcome.the and vested interest stake clear with Ben Lumpkin,with Ben April 28, 2005. of & Health HumanforAdministration Services, Chil ACYF-CU-0001.html. The Mentoring website,Center “About Us” http://www months after release. See “Prisoner Reentry and Co Reentry “Prisoner See release. months after La Vigne, Nancy G.La “A andPort A. Cynthia Mamalian, La Vigne, Nancy“Chicago G.La Visher, and Christine P “community” viewedbest is collectionthe as of peo prison. Community, fluidtherefore, is and relativ who and tomeans ability the have directly impact t Urban Institute, Reentry Roundtable 12Reentry Meeting, May Institute, Urban The likelihood during highest is pethe of rearrest 14 release, percent occur within 6-12 months after La Vigne, Nancy G.La “A andPort A. Cynthia Mamalian, Roundtable 12-13,Meeting, May 2004), 5. La Vigne, Nancy G.La “A andPort A. Cynthia Mamalian, and Community Reentry “Prisoner Policing: Strategie Mary Pattillo and others, eds., Pattillo Mary 2004), 139. “Illinois Going of Department U.S. Justice, Home Pr July 12, 2005).July 60 59 64 63 1 Chapter 4: Safety Community 58 Chapter 3:Chapter Family 61 18 19 2 62 3 17 16 15 4 14 9 13 5 8 10 11 12 7 6 126 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 44 33 45 34 43 42 30 35 32 36 41 40 31 23 22 21 20 CommunitySafety Chapter 4: 24 37 27 26 25 29 28 39 38 “During 2001, 97 percent of all men and women relea women and all men of percent 97 2001, “During Debbie Denning (Deputy Director, Department of Wome DepartmentDirector, of (Deputy Denning Debbie La Vigne, Nancy G. and Cynthia A. Mamalian,Cynthia A. Port and “A LaG. Nancy Vigne, Mamalian,Cynthia A. Portraitand “A PrisonerG. of La Vigne, Nancy G. and Cynthia A. Mamalian,Cynthia A. Port and “A LaG. Nancy Vigne, 2005. 15, Aug. Lumpkin, Where Felons Live,” Felons Where Sullivan,Commun Julie, Offenders; Tabs “Keeping on The PrisonerD.C.: Reentry Programs,” (Washington, AsheleyVan Waul, Michelle J and Ness, Amy Solomon, 2005. 14, October Veronica Ballardfields. service social or service Office of Secretary State, of of Office SecretaryIllinois of La Vigne, Nancy G. and Cynthia A. Mamalian,Cynthia A. Port and “A LaG. Nancy Vigne, services, and follow up to ensure needed servicesa ensureneeded to up follow and services, 2003). Hughes, Timothy, Doris Wilson and Allen Beck, “TrenBeck,Allen and Timothy,Wilson Doris Hughes, 21. 2003), West Siand Peoria,(Carbondale), Illinois Southern Illinois Department of Corrections, “2004 Departmen “2004 Corrections, DepartmentIllinois of http://www.ojp.usdoj.gov/bjs/pub/pdf/tsp00.p 2001), probationers can obtain help. The resource officer resource The help. obtain can probationers Probatio Adult of Office County Currently,theCook 2005). 14, November (accessed http://www.idoc.state.il.us/subsections/assistant_d Commu of Office Corrections, DepartmentIllinois of The eight ATCs are: Crossroads (Chicago), Decatur, eightATCs The are:(Chicago), Crossroads 43. 2003), October 27, 2005. 27, October ProgramsDirector, Support and Roberta Fews(Deputy 2005. 27, October ProgramsDirector, Support and Roberta Fews(Deputy PA92-240. of See House Illinois Corrections. of Code Unified (enacted Bill EffectiveHouse 2011 January 2002, 1, La Vigne, Nancy G. and Cynthia A. Mamalian,Cynthia A. Port and “A LaG. Nancy Vigne, http://www.idoc.state.il.us/subsections/reports/dep copy, proof of address (e.g., a check or piece of m of piece or a check address (e.g., of proof copy, First-time state applicantsfor 2005. 27, October ProgramsDirector, Support and Roberta Fews(Deputy 2005. 27, October ProgramsDirector, Support and Roberta Fews(Deputy 2005). IL 15 and Statutes. ILCS 335/4 15 Compiled Illinois through theSecretary State,through of arethe individuals to assistthenecessary documents obtaining in them Department County theCook with program successful facilitate help to this IDOC for possible Itbe may http://www.idoc.state.il.us/subsections/reports/dep Departmental Data Fact “2004 Sheet” (S Corrections, The average adult prison sentence is 4.1 years, and averageis 4.1 sentence The adultprison Prisoner Reentry Programs,” (Washington, D.C.: The PrisonerD.C.: Reentry Programs,” (Washington, AsheleyVan Waul, Michelle J and Ness, Amy Solomon, 22. 2003), Visher,Christy, Jill and Communi Farrell, “Chicago Illinois Compiled Statutes. 730 ILCS 5/3-14-1(e). ( Statutes. ILCS 5/3-14-1(e). 730 Compiled Illinois Illinois Compiled Statutes. 730 ILCS 5/3-14-1(e). ( Statutes. ILCS 5/3-14-1(e). 730 Compiled Illinois Travis,Jeremy, Back: Rethinking “But AllCome They The Spokane Spokesman-Review,The (cont.) State Prisoner R CardProgramsIDfor Policies and (Former Director, Cook County Office of Adult Prob Adult of Office County Cook Director, (Former personal appearance requirement. The Secretary The appearancerequirement. personal of taken to anDrivertakenIllinois Servicesto o facility to rco/rs%0ae%0 %20Operation%20Spotlight%2 irector/Press%20Paper%20— ail with address), $20 and must personally go to a to go personally must and $20 ail address), with identification cards need a SecurityvalidSocial cardsc need identification artment_data/Department%20Data%202004.pdf (accessed artment_data/Department%20Data%202004.pdf artment_data/Department%20Data%202004.pdf (accessed artment_data/Department%20Data%202004.pdf s work in conjunction with probation officers to re to officers probation with conjunction in swork Representatives. 2001. Illinois Identification C IdentificationIllinois Representatives. 2001. http://www.ilga.gov/legislation/ilcs/ilcs.asp, acce http://www.ilga.gov/legislation/ilcs/ilcs.asp, http://www.ilga.gov/legislation/ilcs/ilcs.asp, acce http://www.ilga.gov/legislation/ilcs/ilcs.asp, re received. Many probation and resource officers officers resource and Manyprobation rereceived. the average adult prison stay is only 1.1 years. theaverage stay1.1 adultprison is only ties and Prisoner Reentry,” (Washington, D.C.: The ties Prisoner and Reentry,” D.C.: (Washington, de (Chicago). de as Public Act 92-240) made changes to theIllinois to changes made 92-240) as Act Public Fox Valley Jessie Fox (Dixmoor) (Aurora), Houston “Ma” Reentry in Illinois,” (Washington, D.C.: The Urba The D.C.: (Washington, Reentry Illinois,” in obtain a state identification card. Through pre-ar a state obtain Through card. identification June 19, 1998. June 19, CS 335/12. (http://www.ilga.gov/legislation/ilcs/il CS335/12. n employs resource officers who identify organizatiidentify who officers resource employs n Prisoner Reentry,” (Washington, D.C.: National In Prisoner Reentry,” D.C.: (Washington, pringfield, IL: Illinois Department of Corrections, IL: DepartmentIllinois of pringfield, df (accessed November 11, 2005), Table 2. 2005), 11, November (accessed df nications, “Operation Spotlight” (Springfield, IL: (Springfield, Spotlight” “Operation nications, Urban Institute, 2004), 130. UrbanInstitute, 2004), Urban Institute, 2004), 129. UrbanInstitute, 2004), talData Fact IL: Sheet”Dep Illinois (Springfield, ds in State Parole, 1990-2000,” (Washington, D.C.: D.C.: (Washington, State in ds Parole, 1990-2000,” ity Corrections Officers in Some Parts W Some Spokane in Officers of ityCorrections sed from Illinois prisons returned to communities i communities returnedto prisons Illinois from sed raitPrisoner (Washington, Reentry Illinois,” of in raitPrisoner (Washington, Reentry Illinois,” of in raitPrisoner (Washington, Reentry Illinois,” of in raitPrisoner (Washington, Reentry Illinois,” of in ive Services, Illinois Department of Corrections), Corrections), Services,ive DepartmentIllinois of Corrections), Services,ive DepartmentIllinois of ive Services, Illinois Department of Corrections), Corrections), Services,ive DepartmentIllinois of Corrections), Services,ive DepartmentIllinois of eremy Travis,eremy theWalls:National A Snapsh “Outside eremy Travis,eremy theWalls:National A Snapsh “Outside of Corrections Boot Camp for more than three years.more for Camp Boot Corrections of n and FamilyCorre and Services, n DepartmentIllinois of btain their identification cards. Seebtain theircards. identification e-Entry,May2005. ssed November 14, 2005). 14, November ssed ssed November 14, 2005). 14, November ssed ard,a certificatebirthcertified or ard Act. 92nd General As 92nd ard Act. SeeDepartmentIllinois o ation), interview with Julieinterview with ation), Wilen, SecretaryState of facili cs.asp, accessed November 14, November accessed cs.asp, fer individuals to commun to fer individuals rangementafter and cleared being State’s has maintained a Office artment of Corrections, 2 Corrections, artment of have college degrees in h degreesin havecollege December 2003), December 2005), Urban Institute, 2005), UrbanInstitute, 2005), n Institute, 2003), 46. Institute, n 2003), Identification Card Act and the and CardAct Identification ons in the community wher thecommunity in ons D.C.: The UrbanInstitu The D.C.: D.C.: The UrbanInstitu The D.C.: D.C.: The UrbanInstitu The D.C.: D.C.: The UrbanInstitu The D.C.: stitute of Justice, 2000), 3. stituteJustice, of 2000), interview with Julieinterview with Wile Julieinterview with Wile interview with Julieinterview with Wile Julieinterview with Wile , North Lawndale (Chicago North , n Illinois.” La Illinois.” Na n Vigne, Bureau Justice of Statis ork in theNeighborhood in ork ot of Community-Based of ot ot of Community-Based of ot Boot Camp staff Camp members Boot ctions), interview with Binterview with ctions), November 15, 2005). 2005). 15, November June 6, 2005). June 2005). 6, 0(march%202005).doc ty. f sembly. uman 005), 43. ity te, te, te, te, n, n, n, n, tics, ncy e ), en MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 127 : 19 te, ty f , or pdf very the the the Income ntified.” ” as “an ” as Criminology & Public Criminology & Public of Corrections), meeting il 2005il df, (accessed November 7, s.pdf (accessed November or (accessed November 7, or (accessed November 7, ca Institute on oPoverty ca Institute oyment” (Washington, D.C. ase,” ase,” ase,” ase,” 05) and Policy Statement st Correctionsin an st Savings D.C.: The Institu Urban merica Institute on Pover merica Institute eting with eting Michelle Light and Eviction Standards f and Eviction Standards ice Reinvestment Initiative in Initiative ice Reinvestment : Institute for Policy: Institute l Return ofto l Return Prisoners l Return ofto l Return Prisoners l Return ofto l Return Prisoners multaneously address the multaneouslythe address ary nighttime residence that is a is residencenighttime that ary ce: People with Criminal 16, 2005), 10-11. ldingBridgesReportUpdate. ices for butparolees the also ccessed October 5, 2005); tion. . . . The HUD definition is oad policies disqualify indi- that what it costs it what IDOC to supervise a these types of these operating subsidies gram and gram Chicagothe Low subsequent residence ide Occasional Papers Series Vol.3, No.3Occasional Series Papers Occasional Papers Series Vol.3, No.3Occasional Series Papers Homeless Assistance Act ofHomeless Assistance 1987, defines “homeless Ideas for Ideas an Open Society Ideas for Ideas an Open Society November 16, 2004, 2. , November 16, 2004. s), http://homeless.cued.uic.edu/facing_homelessnes nt and Placement Resource andnt Illinois Unit, Department Placement http://homeless.cued.uic.edu/facing_homelessness.p bsite, bsite, http://www.reentrymediaoutreach.org/. apacity toapacity Reduce Space,”Prison Crime Apr and Save elter Use and Reincarceration Following and Use Reincarceration elter Rele Prison elter Use and Reincarceration Following and Use Reincarceration elter Rele Prison icago and in Suburbs,”the (Chicago, Mid-Ameri IL: , NY: Human Rights , Watch, NY: Human2004). Rights ww.reentrypolicy.org/report/ps19-housing.php#2-anch ww.reentrypolicy.org/report/ps19-housing.php#2-anch n Chicago and in Suburbs,”the (Chicago, Mid-A IL: l Action Center, Fall 2004). l Action Fall Center, 17. rg/report/introduction.php (accessed November 7, 20 ds with formerlyindividuals. incarcerated g Officials on the Federal Laws Regarding Admission Regarding g onOfficials Laws Federal the risoners’ Experiences Returning Home,” Experiences risoners’ Returning (Washington, ry ry Policy Council: and Successfu Safe the Charting ry ry Policy Council: and Successfu Safe the Charting ry ry Policy Council: and Successfu Safe the Charting zations, like St. Leonard’s Ministries, just under just Ministries, Leonard’s zations, like St. t41805Final.pdf (accessed December 1, 2005). 04 http://www.csgeast.org/pdfs/justicereinvest/Bui ments, “Options for Policymakers Considering Just a fs/justicereinvest/LAjustreinvestmentreport.pdf (a fs/justicereinvest/LAjustreinvestmentreport.pdf ess the housingthe ess needs of populationsvarious and si -housing.php#2-anchor (accessed November 7, 2005). rom Conviction to Employment. A Proposal to Reinve thorities across the countrythe across thorities overly drafted have br ito, October 12, 2005. ions not only provide housing and other social serv vement: Community Policing in Chicago” (Chicago, IL nvestment,” nvestment,” nghouse: A Comprehensive Approach to Offender Empl nd Homelessness, Chicago of Department Housing), me jrs.org/pdffiles1/174441.pdf (accessed on November ealth and safety of and community.the safety ealth “No Second Chan be evicted orfrom with no institution released an and adequate nighttime andresidence nighttime adequate and who prim a has e e place not designed sleeping accommodafor regular upervision. IDOC shouldin investment its increase ible that both the new Statewide Rental Support both iblePro Rental that newthe Statewide Village Voice, Village Village Voice Village (cont.) definition, as set forth in the Stewart B. McKinney B. definition,forth in set Stewart the as vol. 3, no. 2 (2004): 139-160. vol. 3, no. 2 (2004): 139-160. McKinney See http://www.edenir.org/rover_moms.htmlSee Gonnerman, Jennifer, “Million Gonnerman, Dollar Blocks,” Jennifer, See the Reentry National Media OutreachNational Campaign weReentry the See Gonnerman, Jennifer, “Million Gonnerman, Dollar Blocks,” Jennifer, individual [or family] who fixed, a lacks regular, similar, butincludes it thosesimilar, individuals about to assumes a large share of share responsibility fors large their a assumes Ellen Sahli, and Rick Guzman,Sahli, Ellen October 12, 2005. The December 2004), 3. to E Plan (Projects Benito Administrator, Elizabeth See “Facing Homelessness: See A ofStudy Homelessness i real public concerns,real safety some public housing au whoviduals pose or no little h to risk general the Records Denied Access to Public Housing,” (New York Vigne, Nancy“Chicago G.La Visher, and Christine P of Heartland Alliance forAlliance of Human Heartland Needs & Human Right temporary shelter, institution, orinstitution, publictemporary shelter, or privat 7, 2005), 4. IDOC number small a pays ofCurrently, local organi given number of parolees. organizat the In return, targeted to help targeted also possformer prisoners. It’s Fund Housingcould Trust behousehol used to assist People with Records,”Criminal (New NY: Lega York, enormousIn dealing with this to pressure help addr Community,” Policy Statement 19Community,” Policy “Housing” Statement http://w 2005). Home: at “Safe GuideA Reference for Public Housin Heartland Alliance forAlliance Human Heartland Needs & Human Rights), 2005), 16. Council Governments, of “Report ofState Re-Ent the Community,” Policy Statement 19Community,” Policy “Housing” Statement http://w 2005). OfficeGuzmanRichard (Manager, ofManageme Reentry Ben and Elizabeth Sahli, with MichelleEllen Light, Culhane, “Homeless Sh and Dennis Metraux Stephen P. Policy Culhane, “Homeless Sh and Dennis Metraux Stephen P. Policy “Facing Homelessness: A ofStudy Homelessness in Ch Council Governments, of “Building Community State C http://www.csgeast.org/pdfs/justicereinvest/KSSummi Louisiana,” January 2004 http://www.csgeast.org/pdJanuary Louisiana,” Finn, Peter, “Washington State’s Corrections Cleari “Washington State’s Finn, Peter, Skogan, Wesley, Susan Hartnett et al, “Public al, et Invol Hartnett Susan Skogan, Wesley, Research, Northwestern University, September 2000), Northwestern University, Research, “Housing” http://www.reentrypolicy.org/report/ps19 Council Governments, of “Report ofState Re-Ent the Community,” Introduction http://www.reentrypolicy.o Employment Initiative, One Year Later,” February 20 February Later,” OneEmployment Year Initiative, (November 2003), 2. Council Governments, ofF “Building Bridges: State (November 2003), 2. Rei Open“Justice Programs, U.S. Society Institute, Open Society Institute, U.S. Programs, “Justice Rei Open“Justice Programs, U.S. Society Institute, (accessed October 5, 2005); Council Govern of State 1999), of Justice, Institute National http://www.nc Council Governments, of “Report ofState Re-Ent the 65 64 63 66 67 62 61 60 56 57 58 59 50 53 51 52 55 Chapter 4:Chapter Safety Community 46 49 48 47 54 128 MAYO RAL POLICY CAUCUSON PRISON ER REEN TRY 84 83 78 77 79 76 74 72 71 70 80 75 73 81 82 69 68 CommunitySafety Chapter 4: /26mon3.html). also Editorial, “Phantom Constituents in the Census,” Editorial,theCensus,” Constituents in “Phantom 5-6. 2003), (November 3 no. 3, Seehttp://www.co.deschutes.or.us/go/government/dep http://www.icjia.state.il.us/public/index.cfm?metaS SeeCriminaltheIllinoisJustice Autho Information with Ben Lumpkin, April 28, 2005. 28, April Ben with Lumpkin, 60. 2003), Mamalian,Cynthia A. Port and “A LaG. Nancy Vigne, 46. 2003), Mamalian,Cynthia A. Port and “A LaG. Nancy Vigne, 2005. March14, Group, ReentrySafety Working & Richard Guzman (Manager, Office of Reentry Managemeof (Manager, RichardGuzman Office Jackie Reed (Founder and ExecutiveWestsiDirector, and Jackie(Founder Reed 2005). http://w Statement “Housing” Policy Community,” 19 Council of State Governments, “Report of theRe-Ent Stateof “Report of Governments, Council See Prison Fellowship International SeePrisonFellowship “Restorative Ju See Prison Fellowship International SeePrisonFellowship “Restorative Ju “Restorative Zehr,Howard, Justice: Concept,” The Legal JoanneChicago Director, (Associate Archibald Organizer, Near Northw Community Niuris(LeadRamos See Prison Fellowship International SeePrisonFellowship “Restorative Ju “Restorative Zehr,Howard, Justice: Concept,” The See Prison Fellowship International SeePrisonFellowship “Restorative Ju Pranis,Kay, Restorative in “Engaging theCommunity Open Society Institute, Society PrisonU.S.Programs, “From Open (cont.) New York Times,New cinPbiain&metaPage=RestorativeJustice.ection=Publications& Corrections Today, Corrections Corrections Today, Corrections stice Online” webpage http://www.restorativejustice webpage sticeOnline” stice Online” webpage http://www.restorativejustice webpage sticeOnline” stice Online” webpage http://www.restorativejustice webpage sticeOnline” stice Online” webpage http://www.restorativejustice webpage sticeOnline” rity’sRestorative Justice Centerwebpage Resource Advocacy for Incarcerated Mothers), interviewwithIncarcerated for Mothers), Advocacy de Health Authority) remarks made at public hearing Healthremarks at Authority) de made public ry Policy Council: Charting theSafe Successfu and Council: Policy ry Justice” (Washington D.C.: U.S. Department of Jus U.S.Department of Justice” D.C.: (Washington ww.reentrypolicy.org/report/ps19-housing.php#2-anch artments/juvenile-community-justice/community/commu raitPrisoner (Washington, Reentry Illinois,” of in raitPrisoner (Washington, Reentry Illinois,” of in nt and PlacementDepartmentUnit,Illinois ntand Resource s to Parks in Oregon,” Parks sto Oregon,” in est Neighborhood Network), interview with Beninterview with Lumpk Network), estNeighborhood September 26, 2005, (www.nytimes.com/2005/09/26/opi 2005, 26, September December 1997, vol.59, issue 7. vol.59, 1997, December December 1997, vol.59, issue 7. vol.59, 1997, December Ideas for An Open An Ideas for Society Occasional Papers Series Occasional Society vol. .org/intro/tutorial/. .org/intro/tutorial/. .org/intro/tutorial/. .org/intro/tutorial/. .org/intro/tutorial/. .org/intro/tutorial/. .org/intro/tutorial/. D.C.: The UrbanInstitu The D.C.: UrbanInstitu The D.C.: Ben Lumpkin, May 20, 200 May20, Ben Lumpkin, l Return of Prisoners Returnl to of tice, June 1998), 1. June tice, 1998), , Governor’s Community Governor’s , or (accessed November 7, November (accessed or of Corrections), intervi Corrections), of nity-justice-corps. nity-justice-corps. in, July in, 2005. 7, nion the te, te, See 5. ew CITY OF CHICAGO • RICHARD M.DALEY,MAYO R