Mayoral Policy Caucus on Prisoner Reentry

Rebuilding Lives. Restoring Hope. Strengthening Communities.

BREAKING THE CYCLE OF INCARCERATION AND BUILDING BRIGHTER FUTURES IN CHICAGO

FINAL REPORT OF THE MAYORAL POLICY CAUCUS ON PRISONER REENTRY

JANUARY 2006

CITY OF CHICAGO • RICHARD M. DALEY,MAYOR 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. Our 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. With 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. We 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.

When 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 AYORAL 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, OLICY citizens who believe that these former criminals safer place to live for all its citizens. do not deserve our attention or concern. C UU ON 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 RISONER keep our city strong and growing, we must make a renewed commitment to successfully reinte- Richard M. Daley R EENTRY 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 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 3 15 If they were all If they were To keep up with To 11 Yet Illinois prisons Yet 19 12 recently pointed out, that is recently Based on current estimates, more Based on current 16 18 14 Chicago Tribune Illinois currently has 27 correctional facilities, correctional has 27 Illinois currently 20 As the 13 17 Add up all the people under correctional supervisionAdd up all the people under correctional in or on parole— Illinois—those behind bars, on probation, would surpass 244,000. and the figure Following national trends, Illinois has seen its prison popu- Following national trends, 1970 and 2003, lation soar in the last 30 years. Between than 500 by more the Illinois prison population increased prisoners. 7,326 to 43,418 from percent, Meanwhile, Illinois has seen its prison exits rise as well. 2000 to 2003, the number of just a few years, from Within jumped from Illinois state prisons from people released than 22 percent. of more 28,876 to 35,372—an increase individuals) of prisoners (15,488 53 percent Approximately all Illinois prisons in 2001 returned to the from released City of Chicago alone. enough “to fill the United Center, about 10 city bus loads enough “to fill the United Center, in each week.” rolling seven work camps, two boot camps, and eight adult transi- seven work camps, two boot camps, and the state and employs tional centers operating throughout of the state’s detainment to oversee the secure 14,000 staff convicted prisoners. than 21,000 will have settled within the city limits in 2005. are more overcrowded today than they were in 1980; more today than they were overcrowded more are housed in facilities designed for than 44,000 prisoners are 32,000. this growth, the state built an average of one new prison the state built an this growth, every 1980 and 2000. year between placed in one location, it would be the second largest city in placed in one location, it would be the second largest the state. 8 The 1 This year, 6 At least 95 percent of At least 95 percent This number does not 5 7

4 10

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

The use of probation and parole has exploded to and parole The use of probation According to the federal Bureau of Justice Statistics, to the federal Bureau According 2 9

Introduction And they all go in and come out faster than most Americans three the average felony sentence is approximately realize; years. But most Americans have typically paid little or no attention prison. to people coming back from Most Americans are quite familiar with our penchant for Most Americans are of individuals putting people into prison. The number institutions has federal correctional in state and incarcerated decades. In 1980, risen exponentially in the past three and federal just over 300,000 people in state were there people. nearly 1.4 million were prisons; in 2003, there Every year, the United States sets two prison records—one the United States sets Every year, we talk about and one we don’t. The Reality of Reentry about 5.6 million adults have served time in state or federal prison. correspond with these statistics; more than 4.1 million indi- with these statistics; more correspond on were and another 765,000 on probation viduals were increase percent at the end of 2004—almost a three parole in just one year. one in 15 persons born in 2001 will be imprisoned during his or her lifetime. even include the millions who will finish up jail terms. all state prisoners will be released at some point. all state prisoners will be released our country’s prisons will release nearly 650,000 individuals, nearly prisons will release our country’s in 1980. 170,000 from an increase total now exceeds 2.2 million when you combine state and total now exceeds 2.2 million when you types of confine- federal prisons with local jails and other ment. 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

EENTRY 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 RISONER

P returns on the investment.

Safety AUCUS ON 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

AYORAL has failed not only them, but also the public at large.

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 AYORAL 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 OLICY communities. Today, a criminal record functions like a C

“modern-day scarlet letter,” ensuring that formerly incar- ON AUCUS cerated individuals are saddled with what The Economist once called “The Stigma That Never Fades.”41 P RISONER R EENTRY

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.

1980s 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-

EENTRY sentencing laws requiring these prisoners to serve a substantial portion of their R sentence before being eligible for release. RISONER

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. AUCUS ON C OLICY P Sources: Frontline,“Thirty Years of America’s Drug War:A Chronology,” Online resource; Huppke, 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 New Landscape of Imprisonment: Mapping America’s Prison Expansion” (Washington D.C.: Urban Institute, 2004); U.S. Department of Justice, Bureau of Justice AYORAL

M Statistics,“State Sentencing Law Changes Linked to Increasing Time Served in State Prisons,” January 10, 1999. 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. M

President George W. Bush in his 2004 State of the Union AYORAL This coming year, the U.S. Conference of Mayors will 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, OLICY 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 ON 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 RISONER R EENTRY

7 8 MAYORAL POLICY CAUCUS ON PRISONER REENTRY Chicago TakestheLead assessment and casemanagement. providing parole agents withimproved trainingon risk minimumcontactswith parolees,increasing mandatory and over afour-year periodfrom 370to740,reducing caseloads, This reform callsfordoublingthenumberofparole agents plan tofundamentallyoverhaul thestate’s parole system. and heightenedparole OperationSpotlightisa supervision. into theircommunitiesthrough extensive casemanagement correctional back settingandfollowsthemintheir reentry development, vocationaleducationandjobpreparation ina prisoners withintensivedrugtreatment, cognitiveskills fully dedicatedtherapeuticcommunity. Itprovides Sheridan Correctional Centerwasreopened in2004asa substantial investmentsintwocenterpieceinitiatives. first Office Management.Healsomade ofReentry RodBlagojevichcreated thestate’sMeanwhile, Governor Centers. Theseare justasamplingof recent developments. forparoleesavailable services atthefiveChicagoWorkforce held classesforparole agentstoinformthemabout incarcerated residents. TheChicagoWorkforce Board has education andemploymentcenterfortheirformerly Near West Sideorganization to help buildanew tribution. TheCityalsohasawarded acapitalgrantto ness skillsinbeekeeping,foodprocessing andsalesdis- prise, andhelppeoplewithcriminalrecords developbusi- agriculture movement,startahoney-farming socialenter- North Lawndaleorganization tobuildonthegrowing urban Workforce Developmenthasprovided seedmoneytoa formerly incarcerated individuals.TheMayor’s Office of to instruction, andjobtrainingplacementservices health screenings, counselingsupports, computerusage church andlocalhospitalinEastGarfieldParktooffer CAPS, hasbeenworkingcloselywithaneighborhood Chicago’s PolicingStrategyoffice, Alternative alsoknownas who trainorhire peoplewithcriminal backgrounds. been modifiedtogivespecialconsiderationemployers companies defraythecostoftrainingtheiremployees,has For instance,acityprogram calledTIFWorks, whichhelps grams andinitiativesforformerlyincarcerated individuals. Two yearslater, Chicagowassupportingavarietyofpro- issue. tohavecreated apositionexclusivelyforthis the country Department ofJustice,MayorDaleywasthefirstmayorin GeneralattheU.S. Nolan, aDeputyAssistantAttorney develop meaningful,feasiblemeasures. According toCheri his staff in2003tospearhead thecity’s efforts reentry and this issuelocally, theMayorestablishedaspecialpositionon reentry. Demonstrating astrong commitmenttoaddress significant stepstowards tacklingthechallengeofprisoner Chicago hasbeenoneofthefirstcitiestotake Under theleadershipofMayorRichard M.Daley, theCityof 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 M

records, probation officers, police officers, foundation AYORAL 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 OLICY service providers. C UU ON 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 RISONER 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, EENTRY 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. EENTRY R RISONER P AUCUS ON C OLICY P AYORAL 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.” One 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 Will County Jail and was which she describes as a “new younger days. “I attended brought before a judge in Will 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- Not 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 AYORAL man whose “hustle” was writing

From this point, Theresa got Once 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 OLICY wrong crowd.” She dropped her time. Because she had on how to do it, and taught me C

out of school and as she completed her GED while she everything I knew,” Theresa ON AUCUS remembers, “I was just running was detained at the Will 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 RISONER 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 she recalls,“anywhere I could lay was transferred to the Fox out drugs, was also very violent. EENTRY 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- One 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 When 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 When 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,” AYORAL 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 OLICY work hard.” and look at my apartment, and I feel good. I feel good about how C

UU ON 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

RISONER be happy and stay clean.” R EENTRY

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. With 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. Once 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). When 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.”

We 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. While 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.” AYORAL 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 OLICY 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.” ON 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. you have to RISONER ping and receiving at a local Before his release, he talked to meat packing plant. his prison counselor. “I had no

want to help R

place to go and I knew I had to EENTRY 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 AYORAL P OLICY C UU ON AUCUS P RISONER R EENTRY

15 16 MAYORAL POLICY CAUCUS ON PRISONER REENTRY eleventh grades. 29 percent hadaneducationallevelbetweenninthand prisoners hadaneducationallevelbeloweighthgradeand Statistics alsofoundthatin1997,14percent ofstate those whodidnotparticipateinsuchprograms. had a29percent reduction inreincarceration ratesfrom participated inanyeducationalprogram instateprison in fact,onenationalstudyfoundthatprisonerswho exist formerely participatingineducational programming; complete afullclasswhileinprison,significantbenefits Reforms withStatewideImpact programs monthly. approximatelyDistrict 428serves 11,000prisonersinits specifically designatedfortheprisonpopulation.School adult, specialandadvancededucationalprograms, 428, whichhasestablishedprimary, secondary, vocational currently operateaspartofCorrections SchoolDistrict ing educationalprograms within its facilities.These Illinois DepartmentofCorrections (IDOC)began provid- the averageforgeneralpopulation,in1972, Because theeducationlevelofprisonerswaswellbelow accomplishment. the jobmarketandhelpsdevelopasenseofself-worth Education provides individualswithbasicskillstoenter impact onrecidivism rates. achievement duringincarceration hasanappreciable Research hasfurtherdemonstratedthateducational is associatedwithhigherincidenceofcriminalactivity. Studies haveshownthatthelackofahighschooldiploma percent ofthegeneralpopulation. school diplomaoritsequivalentin1997,compared to18 federal prisonsandlocaljailshadnotreceived ahigh Statistics, about41percent ofindividualsinstateand educational need.According totheBureau ofJustice prisoners. Highschoolcredentials are theirmostcommon Low educationalattainmentisamajorissueformany Issue capacity andremoving barriers andrestrictions toparticipation. Expand accesstoin-prisoneducationprogramming byincreasing 9 11 Even forthosewhodonot 8 The Bureau ofJustice 12 10 90 days. even iftheydonotachieveaboveasixth-gradelevelafter beyond theABEclasses,butare not required todoso, skills. Prisonersmaychoosetocontinuetheirstudies classes teachbasicreading, writing andmathematics attend a90-dayAdultBasicEducation(ABE)class. Adult BasicEducation(TABE) atintake—isrequired to Reception andClassificationUnitaftertakingtheTest of below asixth-gradelevel—determinedbyIDOC’s By statestatute,anyprisonerwhoseachievementfalls incarceration. participated inanyeducationalprogramming duringtheir percent byIDOC ofreleased prisonerssurveyed proportion ofprisonerstoparticipate.Infact,only42 slots andenrollment restrictions enableonlyasmall from courseworktovocationaltraining.However, limited Most Illinoisprisonshaveeducationalprograms ranging 14 Recommendation 15 ABE 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 AYORAL

However, currently, any person who has served more than P OLICY one prior sentence for a felony in an adult correctional 26

facility is ineligible to receive good conduct credit, C

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

setting, good conduct credit should be revised or P RISONER expanded, either legislatively or administratively, to include more of the prison population. R EENTRY

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 EENTRY 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

RISONER tax burdens.”

P consent), City Colleges could broadcast GED courses over 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

AUCUS ON Executive Director of the Department of Human and

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 AYORAL

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 AYORAL 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 OLICY management, commercial custodian, construction and usually have access only to the ones available at their food service were the most commonly offered courses C specific institution—giving prisoners little flexibility to 37 throughout IDOC facilities. ON 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 RISONER and completing such programs can vary significantly.38 continuity of training. R EENTRY

19 INSPIRATION FROM THE FIELD: CORRECTIONS CLEARINGHOUSE IN WASHINGTON

The Corrections Clearinghouse (CCH), a unit of the Washington 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. One 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. Women 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,“Washington State’s Corrections Clearinghouse: A Comprehensive Approach to Offender Employment,” (Washington, D.C.: National 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 these lines.39 After this review, the Illinois Community Correctional Center combine an industry 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 correspond to available post-release job opportunities in who are looking for better-paying jobs. 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 EENTRY 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 RISONER

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 training programs for industries that the Indiana ‘Don’t just serve time. Let time serve you.

AUCUS ON 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 AYORAL 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 INSPIRATION FROM THE FIELD: within ICI to expand job offerings is lacking. PRISON REHABILITATIVE Solution INDUSTRIES AND DIVERSIFIED ICI is a self-supporting business; that is, it does not receive ENTERPRISES IN FLORIDA 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 AYORAL 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- OLICY 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 ON 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 RISONER 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 R

ment services to prisoners. high-demand industries. EENTRY

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

EENTRY 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. RISONER

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 AUCUS ON

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 AYORAL 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 AYORAL P OLICY C UU ON AUCUS P RISONER R EENTRY

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-

EENTRY 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

RISONER with community-based agencies upon discharge. P

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

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 AYORAL 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 INSPIRATION FROM THE 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 Offenders) 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 Workforce 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 When 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. 66 force development and career facilitation. 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 AYORAL Illinois, although the State is planning to send two saved the State of Texas over $15 million in 67 additional teams to the NIC training in 2006. The State 1990 alone due to reduced recidivism. should organize more teams to become Offender P OLICY Workforce Development Specialists every year, thus bring- Source: www.texasworkforce.org.

ing additional pre-release reentry resources into prisons C and the community. ON AUCUS P RISONER R EENTRY

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 EENTRY

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 RISONER 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

AUCUS ON 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 AYORAL 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 with criminal records by ensuring that qualified people M

passed since the conviction, the individual’s employment AYORAL 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 OLICY 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 ON 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 RISONER applicant’s age at the time of the offense, length of time The City should advocate for state legislation modeled that has elapsed since the conviction, and efforts at after these existing statutes. Employers should be R rehabilitation. required to make individualized determinations about a EENTRY 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

EENTRY 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

RISONER 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 AUCUS ON 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

AYORAL 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 AYORAL funding source for workforce development programs

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

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

To effectively reduce recidivism and help formerly incar-

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

them. EENTRY

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-

INSPIRATION FROM THE FIELD: SAN DIEGO WORKFORCE PARTNERSHIP IN CALIFORNIA EENTRY R In 1998, the San Diego Workforce Partnership and community employers established a focus group to

RISONER 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 One-Stop Career Centers and community organizations. AUCUS ON Upon completion of the program, participants earn a “Work 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. AYORAL M Source: Cindy Perry, (Director of Special Operations, San Diego Workforce Partnership), interview with Tim Michaels,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- INSPIRATION FROM THE FIELD: ated individuals obtain and retain jobs with advancement possibilities that lead to self-sufficiency, training programs NORTH LAWNDALE EMPLOYMENT and employer demands must be better matched. NETWORK AND ADVOCATE

To this end, work readiness training must be followed by HEALTHCARE PARTNERSHIP IN CHICAGO industry-specific training based on employer demands. “Potential employees must have the requisite skills and a The North Lawndale Employment Network solid understanding of a particular field to increase their (NLEN) 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 NLEN’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 Nutritional 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- AYORAL 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 OLICY training provider,” said Will Edwards, Director of the 12 trainees and two were placed in other jobs. Of the 12 individuals hired at Trinity, 11 still work there C

Workforce Solutions Unit for the Chicago Mayor’s Office ON AUCUS of Workforce Development. “This dialogue demands that after three years. One 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. RISONER successfully complete the training.”86 NLEN plans to replicate the program at Mount Sinai Hospital and Advocate Bethany Hospital. R EENTRY Source: Brenda Palms-Barber (Executive Director, North Lawndale Employment Network), interview with Julie Wilen,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 EENTRY 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 RISONER 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

AUCUS ON 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 AYORAL

M employed for over one year with a wood design company 32 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 33 Recommendation ORK Y EW N Rev. Henry Barlow Henry Rev. President, and Baptist Church Christ Tabernacle Pastor, Barlow also runs an Coalition. Rev. Ministers New City’s in collaboration with automotive technology training program Motor Company Ford Former back on the put prisoners are of members productive to be streets with nothing offered to be society, no are If there of benefit to them. that can offerorganizations alternatives to former prisoners, we will the same devastation continue to see been in the community as we have to eat, seeing. These individuals have to put have have to live somewhere, they can’t shoes on their kids’ feet, and faced with will be get a job. We no are continued tragedies if there plans or alternatives for former their prisoners to get a way out of criminal lifestyle.” “This is a forgotten about population. “This is a forgotten PPORTUNITIES IN O : IELD F MPLOYMENT E Promote and support transitional jobs programs. transitional and support Promote The Center for Employment Opportunities (CEO) is a non-profit agency that provides a agency that provides Opportunities Employment (CEO) is a non-profit The Center for immediate, (NWP) provides Project Work Neighborhood paid,CEO’s short-term employment 150 and has placed participants network with over employment an expansive CEO has developed ENTER FOR NSPIRATION FROM THE Source: www.ceoworks.org C I highly structured set of employment services to about 1,800 former prisoners returning to New York services to New set of employment prisoners returning to about 1,800 former structured highly supervision.City under community buildings, custodial services that perform to government crews work day-labor through maintain trails,nature paint classrooms, and clean up roadways. During this program, long-term jobs. with and interpersonal skills and helps them secure CEO staff works individuals on vocational CEO’s which it conducts work. agencies for it generates from revenue funded by is 90 percent program public and private sector employers. of its graduates find full-time jobs 60 percent Approximately months. to three within two of par- 15 percent that only Institute found Vera the A 1997 study by years. within three reincarcerated ticipants that CEO placed in jobs were To combat this situation, formerly incarcerated individuals incarcerated combat this situation, formerly To help to eliminate need to develop work experiences that in an environment these unknowns, and this should occur habits, learnthat allows them to develop good work from and skills. mistakes, and build their confidence Employers rely on their perceptions—and oftentimes on their perceptions—and Employers rely Many the hiring process. misperceptions—during that a former prisoner has the skills employers may doubt to succeed in the workplace. With and values needed prior employers look to a person’s other job candidates, or job performance, often contacting work experience recommenda- letters of employers or receiving previous have no individuals incarcerated tion. But most formerly be employers may Furthermore, work history. recent concerned contending with that these individuals are or family crises, addiction issues, emotional adjustments, and reliability which could undermine their productivity act as a powerful as an employee. These factors often disincentive to hiring former prisoners. Issue 34 MAYORAL POLICY CAUCUS ON PRISONER REENTRY limited English proficiency, and welfare recipients). tions (e.g.,individualswith disabilities,mentalillnesses, transitional jobsprograms toassisthard-to-serve popula- consequently, more publicfundinghasbeentargeted for Policymakers realize thebenefitsoftheseprograms, and employment. and experienceneededtoobtainsteady, unsubsidized ness andbasictraining,individualscangainvaluableskills assignments. Coupledwithcasemanagement,jobreadi- recently released prisonersintopaidworkexperience Theseprogramsand supportiveservices. rapidlyplace employment thatcombinesreal work,skilldevelopment, Transitional jobsprovide publiclysubsidized temporary ments foundpermanentunsubsidizedemployment. of theindividualswhocompletedshort-termworkassign- Mathematica PolicyResearch foundthat81to94percent employment andtrainingmodels.Astudyby programs are even more successfulthantraditional In fact,research has shownthatintensivetransitionaljobs tosociety.issues theseindividualsfaceupontheirreturn incarcerated individualswhileaddressing thepersonal because theyprovide real workexperiencetoformerly Transitional jobsprograms haveproven tobeeffective Solution 94 concentration of returning prisoners. concentration ofreturning Chicago, especiallyinneighborhoods withahigh transitional jobsprograms toseveralsitesthroughout fundingforexpandingthetwocurrent federal government The Cityshouldconsiderthe possibilityofusingstateor among participantsmakethemavaluableinvestment. high rateofjobretention andthelowrateofrecidivism While transitionaljobsprograms can beexpensive,the explore severaloptionsforexpandingthecurrent pilot. more ambitiouseffort isneededandtheCityshould Although Chicagoishometoafewemerging programs, a improved understandingofthejob search process. andan employment periodhadamarketableworkhistory not immediatelyhired attheendofsubsidized oped valuableworkexperience,andeventhosewhowere employers. Theseformerlyincarcerated individualsdevel- publicly subsidizedpaidworkexperiencewithprivate program forpeoplewithfelonybackgrounds using Development launchedapilottransitionaljobs In July2004,Chicago’s Mayor’s Office ofWorkforce Pennsylvania, NewYork, andWisconsin. ate instatesaround thecountry, includingWashington, Currently, more than40transitionaljobsprograms oper- “The waybusinessesare successfulis someone whodoesn’t.” ultimately beabetteremployeethan have acriminalrecord, theymay sentence. Eventhoughsomeonemay conviction nowbecomesalife of thatisanykindmajor goodbye. Andthesocialconsequence they findacriminalrecord, it’s today doabackground check,and,if additional risk.Mostemployers conviction, that’s sometimes an issue ofapotentialapplicantwith by minimizingrisk.Ifthere isan President oftheChicagoOffice, ComputersforSchools Willie Cade 96 95 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 35 they — Recommendation Solution for people with an opportunity Social enterprises offer to gain significant work experience in a criminal records practices and standard with business environment sensitive to their individual needs and person- procedures al circumstances. businesses within a Social enterprises usually are goods (e.g., soaps and entity that produce non-profit services (e.g., landscaping and street honey) or provide link that trade to a specific social cleaning) and directly strive for what is social enterprises mission. By and large, to as a “double bottom line” commonly referred deliver on both financial and social performance deliver on both financial and grants comes from Funding for social enterprises targets. get and generally the profits as well as business revenue, for case management channeled back into the organization and other social services. Foundation, originally founded in San The Delancey Street Francisco, California, for its has a national reputation success- as well as the innovative social enterprise ventures is the ful outcomes achieved by its participants. At its core belief that behavior can be changed in a structured, in which individ- supportive market-driven environment emphasized. and accountability are ual responsibility participation in the organization’s During an individual’s they work to achieve a high school two-year program, participants learn Afterwards, skills at equivalency degree. training schools: a moving and one of the Foundation’s service, and catering a restaurant a trucking company, sales, paratransit print and copy shop, wholesale and retail among others. services, and an automotive service center, Promote and support social enterprise initiatives. social enterprise and support Promote Lauri Alpern The Enterprising Kitchen Executive Director, to sustainable employment and are to sustainable employment the building blocks for self-sufficiency. training and participatingThrough world work experiences, in real (leader- individuals obtain job skills identify ship and problem-solving), and gaps in basic skills (reading 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 that is structuredenvironment and demanding, yet set up for them to succeed.” “Social enterprises are stepping stones stepping “Social enterprises are Issue and often For individuals leaving prison, the competitive may work environment of a structured nature unforgiving While not be conducive to their unique circumstances. to finding and maintaining a job, this dedicated many are formula for everyone. will not involve the same process a initially may require individuals Formerly incarcerated work setting as they acclimate to life out- supportive more of skills. side of prison and develop a new set 36 MAYORAL POLICY CAUCUS ON PRISONER REENTRY social enterprises. products delivered manufactured bythese andservices to-business andbusiness-to-businessnetworksfor Moreover, theCityshouldhelptocultivategovernment- developing ones. their businessoperationsaswellmentornewand should encourageexistingsocialenterprisestoexpand social enterprisesforthispopulation.TheCityalso to provide seedmoneytofosterthegrowth ofadditional individuals already exist.TheCityshould explore options specifically In Chicago,asmallnumberofsocialenterprises individuals. a similarmodeltohouseandtrainformerlyincarcerated independent lives. successfully graduatedfrom theprogram andare leading the organization, more than14,000individualshave receive food,housing,andasmallstipend.According to theresidentssupport theDelanceycommunity;inreturn, Most ofthefundsgeneratedbyDelanceybusinesses crews in2006. Cleanslatewillbeexpandingtooperatefour work permanent jobswithbenefitsintheprivatesector. Seven oftheoriginaltenCleanslateinternshave found Cleanslateachieved marked success. operation, Afteronly thefirstthree monthsof of the Auburn-Gresham community onChicago’s southside. teach themaboutworkplace expectations. andadetailedcurriculum andevaluation process have beenestablishedto as they perform theirtasks, learn criticalwork andlife Theparticipants skills mostly thosewithacriminalbackground. individuals, recycling programs tocommunity residents andbusinesses. andhelpstopromote Chicago’s provides lightlandscaping andsnow removal services; and vacantlots; coe 7 2005. October 17, withJulie interview Wile Eric Cleanslate), Weinheimer Program) (Executive andMarkCarroll CARA Director,The (President, Sources: C I SIAINFO THE FROM NSPIRATION ENLT IN LEANSLATE focused onhelpingformerlyincarcerated lasaei o-rftnihoho euiiainbsns htcen ieak,parkways, Cleanslate isanon-profit neighborhoodbeautificationbusinessthat cleanssidewalks, The pilotprogram launchedinJune 2005withonework crew focused onthecommercial streets Cleanslateemploys “difficult toplace” An outgrowth of Program inChicago, The CARA 97 The Cityshouldconsiderinvestingin C F IELD HICAGO : contractual opportunities. departmentstoassessotherappropriateshould survey vehicles. Usingthesetwoexperiencesasaguide,theCity preventative maintenanceandrepairs onCity young adultswithcriminalrecords, toperformlight Training Center, an automotivetrainingprogram for is contractingwiththeChicagolandYouth andAdult TheDepartmentofFleetManagement landscape services. low-incomeandhomelesspeople,toperform serving Christian IndustrialLeague,anon-profit organization of Transportation havecontractedwiththeChicago andtheDepartment The DepartmentofGeneralServices The Citycurrently hasafewsuchinitiativesunderway. thatitalready needs. services overlooked populationbycontractingforproducts or crucial workforce developmentopportunitiesforanoften- tices andenvironments. TheCitywouldbeproviding viduals, givingthemexposure tostandard businessprac- late intotrainingsupportforformerlyincarcerated indi- and efficiently. dollarswoulddirectly trans- Government by theCitytohelpdepartmentsoperatemore effectively for theCity, producing used goodsanddeliveringservices For instance,socialenterprisescouldqualifyasvendors n, AYORAL OLICY AUCUS ON RISONER EENTRY

M P C P R 37 Recommendation 99 After online users complete a short ques- After online users complete 98 EXAS T starting a business and a glossarystarting a business used of frequently business terms. The City, through the Department of Business Affairs and of Business Affairs the Department through The City, and the Center, Licensing, Small Business Assistance should expand Development, of Workforce Office Mayor’s specifi- resources its small business initiatives to provide individuals who for formerly incarcerated cally tailored in conjunction City, wish to become self-employed. The (IDOC), with the Illinois Department of Corrections to program Pre-Start IDOC’s should work through and to prisoners’ release, before such resources promote to consider encourage individuals leaving prison flexible alternativeself-employment as a viable, more to traditional employment. tionnaire regarding their business goals and their immedi- their business goals regarding tionnaire listings. generates customized resource ate needs, the website of a the City announced the creation In November 2004, which and Licensing, Business Affairs new Department of the several functions from plans to consolidate Planning and Development, and Departments of Revenue, new department License Commission. The the Mayor’s will essentially serve and partnership as a point of contact with licensing, regula- assistance for businesses, providing and business development. This tory requirements, online applications and licens- department plans to create extra support for start-up as well as provide ing renewals, became fully and existing businesses. The department operational at the end of 2005. ROGRAM IN P : IELD F NTREPRENEURSHIP E patent applications with the U.S. Patent and Trademark Office;three obtained patent applications with the U.S.Trademark prisoners have Patent and on a full-time basis. The Prison Entrepreneurship Program (PEP) is a non-profit organization that leverages the skills of organization that leverages (PEP) is a non-profit Program The Prison Entrepreneurship prisons.Texas PEP has engaged 120 prisoners in two guidance, Under PEP’s prisoners filed two Foster more opportunities for entrepreneurial ventures. for entrepreneurial opportunities more Foster RISON NSPIRATION FROM THE Source: Prison Entrepreneurship Program, Summary. Executive P I senior business executives to equip prisoners and former prisoners with entrepreneurial training. prisoners with entrepreneurial to equip prisoners and former senior business executives PEP’s include an in-prison business plan competition, initiatives key program, readiness work executive mentoring program, school and access to small business financing. entrepreneurship provisional seed investors;funding commitments from own run their prisoners currently former and three businesses Individuals seeking to become entrepreneurs may need may Individuals seeking to become entrepreneurs available resources, information about starting a business, the Small and encouragement. The City has established specifically an office Business Assistance Center (SBAC), succeed. SBAC designed to help small businesses business questions, such as answers to common provides and zoning regulations, permit and license requirements, posts useful website business inspections. SBAC’s and about funding sources such as information resources, as well as a guide on business development programs Self-employment allows an individual flexibility, freedom flexibility, Self-employment allows an individual barriers to and avoids institutionalized and control, mechanisms creating traditional employment. Therefore, for ventures to encourage and support entrepreneurial job more can provide individuals with criminal records models. opportunities than conventional employment Solution Many released prisoners confront multiple barriers that prisoners confront Many released to find employment, including compound their struggle little work experience, lack of job skills, limited education, substance abuse or other and stigma, hiring restrictions, these individuals, traditional employ- health issues. For feasible option. Since many of these ment may not be a (albeit in successful entrepreneurs individuals have been and they simply need to rechannel illegal enterprises), their abilities. redirect Issue 38 MAYORAL POLICY CAUCUS ON PRISONER REENTRY clients. from Disability orCertificatesofGoodConduct)fortheir expungement andrecord sealing,orCertificates ofRelief tice systemandobtaincrucial judicialremedies (e.g., know howtonavigatetheintricacies ofthecriminaljus- means forfuture employment.Theyalsomaynotfully (“rap sheet”)andmaymisinterpret whatsucharecord stand howtoread anindividual’s record criminal history ple, jobdevelopersandcasemanagersmaynotunder- perceived asnotwantingtoworkwith them.Forexam- working withformerlyincarcerated clients,andmaybe may notpossessthespecializedskillsorbeadept at In somecases,staff ateducationand employmentagencies appreciate theiruniquecircumstances. employment preparation orjobsearch, anddonot individuals, are notwell-equippedto assistwiththeir informed aboutthespecificneedsofformerlyincarcerated however, professionals intheseagenciesare notwell- state, andmultipleinterconnected barriers.Too often, standing oftheircriminalrecord, situation,emotional formerly incarcerated clientsinvolvesanuancedunder- employment assistanceuponreentry. Working with One-Stop Career Centers,andcommunity collegesfor zations, churches andotherfaith-basedorganizations, Many formerprisonersrely oncommunity-based organi- Issue ment agenciestobetterserveindividualswithcriminalrecords. Offer professional developmenttoexistingeducationandemploy- “My sonwasplacedinahalfwayhouse these lines. an innovativecurriculumwithvariousmodulesalong Criminal Records Collaborative,andhavealready devised Advocacy organizations inChicagohaveformedthe job developersconcrete toolsto help theirclients. the uniquecircumstances offormerprisoners,andgive job developersbetterunderstandtheprisonculture and to infusesensitivitytoward issuesinorder reentry tohelp These trainingsshouldencompassinteractiveworkshops formerlyincarceratedtailored toserving individuals. todesignandconducttrainingsspecifically reentry expertise inbothworkforce developmentandprisoner The Cityshouldcoordinate withprofessionals whohave economic self-sufficiency. obtain neededjobplacementa provide oneofthebestavenuesforreentering prisonersto Community-based educationandemploymentagencies Solution criminal justiceprocess, potentialjudicialremedies process,reentry coveringtopics suchasthestagesof workshop toeducatestaff aboutcriminalrecords andthe employment resource centers.Theyfacilitateda technical assistancetostaff ofnineLISC-funded Local InitiativesSupportCorporation(LISC)toprovide In 2004,theCityworkedwithCollaborativeand him togooutanddo wrong.” a job?Thatrightthere ispressuring going topayrent whenhedoesn’t have house askedhimtoleave.Howishe rent demandedofhim,andthehalfway longer afford eventhesmallmonthly It wasn’t longbefore hecouldno after prison,butcouldn’t findwork. Mother offormerly incarcerated son Carolyn Nance 100 ssistance ontheirroad to Recommendation MAYORAL POLICY CAUCUS ON PRISONER REENTRY 39 103 Recommendation Both of these processes require that the crim- require Both of these processes 104 Bill Conway Cameo Container Manager, Human Resource Although I may look at an I may look Although are if they record, individual’s their criminal honest about the criminal historybackground, a non-issue.” most often becomes Under Illinois law, some individuals are eligible to have eligible some individuals are Under Illinois law, or conviction historypart or all of their arrest or sealed expunged. “I value honesty the most. the most. value honesty “I According to Lisa Hampton, Senior Policy Associate of the to Lisa Hampton, Senior According to encourage work- Chicago Jobs Council, “Our goal is job seekers and employ- staff, development frontline force we However, ers to use the website as a basic resource. of this website to want communities to expand their use information to examine local needs and gaps in providing how servicesemployers and job seekers, and to consider available.” are get accessed and what supports locally inal history the be made confidential, essentially removing Sealing of public view. history criminal from individual’s access; public the information from protects records agencies. it is still available to law enforcement however, the agency, that the arresting Expungement requires and the courts Office, Attorney’s the State’s Office, Sheriff’s the records. physically destroy for sealing or expungement is complicated, The process time consuming, and potentially expensive. Applications must be filed with the local and state police, the State’s of Court and the Clerk of the Circuit Office Attorney’s takes over a year In some cases, the process Cook County. to complete. Expand access to and availability of legal resources to formerly of legal resources Expand access to and availability and sealing their individuals for assistance in expunging incarcerated criminal records. This training could easily be expanded to include could easily be This training 101 (e.g., expungement, sealing of records, reading a rap reading records, of sealing expungement, (e.g., popula- of working with this the challenges sheet), and tion. Thousands of Chicagoans have rap sheets with only minor misdemeanor convictions or with no convictions at all. was never the person where Rap sheets include arrests or charges later dismissed, that were charges charged, rap sheets These the person was found not guilty. where They and may be preserved indefinitely. public record are impact accessible to employers, and may significantly are prospects. employment an individual’s Issue of has a record Any person who has ever been arrested their criminal history (“rap sheet”). The state and federal governments compile this information into comprehen- the The Illinois State Police maintains sive repositories. and the Federal Bureau repository, criminal record state’s of Investigation maintains the federal one. The Illinois Department of Employment Security (IDES) The Illinois Department Jobs Council to develop with the Chicago has partnered who serve indi- staff for frontline and maintain a website records.viduals with criminal in The site was launched four sections: website and features October 2005 on IDES’ Clients” includes information on intake with (i) “Working (ii) and job retention; readiness, and assessment, job includes common mispercep- with Employers” “Working ways with criminal records, hiring people tions regarding employers, and descrip- to to demonstrate rehabilitation to employers tions of the benefits and incentives available (iii) “Resources” the formerly incarcerated; who hire and rap sheets, includes information on criminal records benefits and work occupational bans and waivers, public and help- a bibliography, supports, common terminology, information about ful links; and (iv) “RESP” includes IDES’ Reentry including Service Employment Program, and a contact list. workshop tools, presentations, any social service provider or economic development or economic serviceany social provider organization. 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 petition review process. The Illinois Prisoner Review backgrounds. They are unemployed 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 Attorney and Director of the Criminal Records Program, actions could be the first step on their road to employ- Cabrini Green Legal Aid Clinic ment, self-sufficiency and successful reentry into society. EENTRY R RISONER P AUCUS ON C OLICY P AYORAL 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.

When 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. With each day that regain control of her life. At the carry a severe sentence. While 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. “Now, AYORAL 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 OLICY 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 ON 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 Now, a crack cocaine addict for the first time in her life. She time and get back on the street. RISONER 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 EENTRY

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

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

MAYORAL POLICY CAUCUS ON PRISONER REENTRY 42 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 43 als in Cook County Jail.als in Cook This in courtagency arranged to Marvin to its care. released have him to obtain helped They in a large housing immediately house that North Side rooming meals. communal offered Once out of jail, managers visited case that to ensure him once a day as he was taking his medication build a as helped him well support in the network community. and is living moved He has now in a small apart-independently ment. managers still visit Case him daily. his He is following regime,treatment compliant with supervision and, in his words, “trying straight, to keep get a job, get a puppy, and stay He can now medication.” on my function in the community institutional care. without any five Since beginning this therapy ago,years Marvin has not been arrested, he has not been back to jail, not returned and he has state hospitals. to any

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

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 Marvin a chronic from has been suffering schizo- mental illness—paranoid of this because phrenia—and illness, he has been repeatedly justice in the criminal involved system. goes record His arrest back to 1969. He has been crimes 151 times for arrested theft,including retail criminal trespassing, battery,robbery, and public indecency. armed He has been hospitalized 33 times in state psychiatric facilities, additional plus multiple times in private psychiatric hospitals. While not on medication, Marvin nervous gets excessively and paranoid, and cannot function in society. contam- Fearing ination, he has stolen clothing rather than let a clerk handle the merchandise. peo- Fearing ple will hurt him, Marvin has been unpredictable, on at least one occasion attempting armed robbery. his illness,Before Marvin served Air Force,in the had his own apartment, and held a job as a stock clerk in a department store.onset of his illness, However, he began during the becoming suspicious and was places,afraid to go thinking harm him.strangers would As Marvin says,“I was confused, and too well.” adjust myself couldn’t bring himself couldn’t He simply others to help him with to allow 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 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 45 significant gap between the need for and the availability of the need for and the availability significant gap between services. exacer- basic health care Access issues often are bated for returning their prisoners who likely had while incarcerated. Medicaid benefits terminated not only returning prisoners. If But health concerns affect they appropriately, not managed are their health needs their family and the com- the well-being of also jeopardize at an elevated risk for falling They are munity at large. release, incarceration, into a destructive cycle of arrest, and rein- rearrest, deterioration, negative social outcomes, carceration. prisoners’ health issues—substance abuse, Addressing illness and infectious mental and physical health, chronic of successful reentry, diseases—is an essential component likelihood that they will find and keep jobs, the increasing positive, lasting social housing, and forge stable secure after release. with family and friends relationships 5 3 6 Up to 16 percent of Up to 16 percent 4 More than two-thirds of than two-thirds More Prisoners also have a high- 1 7

The use of drugs and alcohol is linked to 80 The use of drugs and alcohol is linked 2 Chapter 2: Health 2: Chapter Virtually all of these prisoners will return all of these prisoners bringing home, Virtually their health concerns with them, and they will face a range of obstacles as they make that adjustment. Health care smooth in facilitating a services play an important role despite Unfortunately, transition back to the community. community-based of Chicago’s growth the tremendous a still remains years, there safety net system in recent In 1997, prisoners constituted considerably less than one that total population. However, of the country’s percent nearly one-quarter of people living with HIV or year, of people with hepatitis C, and AIDS, nearly one-third were of those with tuberculosis than one-third more a prison or jail. from released Undeniably, there are individuals living behind bars are there Undeniably, that may not have because they have committed crimes Some of our treatment. had they received occurred people with institutions house more correctional nation’s health institu- mental mental illness than do our country’s mental is the largest tions; Cook County Jail, for instance, facility in the countryhealth care today. Serious mental health disorders such as schizophrenia, Serious mental health disorders and post-traumatic bipolar disorder, major depression, two to four times among prisoners are disorder stress higher than the general population. According to the Bureau of Justice Statistics, over 75 per- to the Bureau According of federal prisoners cent of state prisoners and 80 percent alcohol-involved. drug- or are By most measures, individuals in correctional facilities are correctional individuals in By most measures, illness, infectious disease, chronic struggling with than at levels far higher disorders addiction, and mental cultural of broad a number are There the general public. to these health challenges and factors that contribute such as people with criminal records, health disparities of of and employment status, lack low socioeconomic servicesadequate health care and racial discrimination. percent of crimes committed in the United States. of crimes committed in percent er incidence of asthma, high blood pressure and diabetes er incidence of asthma, high blood pressure than the general public. people in jail meet the criteria for substance dependence people in jail meet the criteria for substance or abuse. the nation’s prison population suffers from at least one from prison population suffers the nation’s is in need of treatment. and serious mental disorder 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, EENTRY

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

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 AUCUS ON

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 AYORAL

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 AYORAL 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 OLICY 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 ON 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 RISONER 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 EENTRY

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

EENTRY 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

RISONER 10 percent of state prisoners in 1997 reported receiving

P 40 percent of all first-time offenders have a history of 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 AUCUS ON 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

OLICY 27 substance abuse treatment beds for the estimated 27,000

P 1994. In Illinois, in 2000, 33 percent of former 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 AYORAL 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 positive outcomes.38 IDOC should dramatically increase INSPIRATION FROM THE FIELD: the availability of effective alcohol and substance abuse recovery programs, including detoxification services, SHERIDAN CORRECTIONAL education and counseling, self-help groups, and therapeu- CENTER IN ILLINOIS tic communities for minimum- or medium-security prisoners throughout the correctional system. In January 2004, the Illinois Department of Corrections (IDOC) 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 AYORAL 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 OLICY 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. ON AUCUS IDOC can significantly reduce recidivism by devoting the Loyola University professor David E. Olson 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 Criminal Justice Information Authority in June 2005 and found an overall recidivism rate of RISONER showed that parolees from Sheridan were reincarcerated at 7.7 percent. a rate nearly 50 percent lower than a comparison group of R EENTRY parolees.39 Sources: Zernike, Kate,“Helping Inmates Kick Drugs (and the Prison Habit),”The New York Times, June 26, 2005; Gateway Foundation, “Answers to Addiction” Newsletter, November 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

INSPIRATION FROM THE FIELD: THRESHOLDS CORRECTIONAL NETWORK IN ILLINOIS

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

EENTRY 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

RISONER equipment at some of its facilities around the city, along with Heartland Health Outreach 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. AUCUS ON

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.

AYORAL 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 Wilen,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, specifically connecting them with community services, released to parole.” would greatly increase their chances of receiving medical care post-release. Prisoners should leave with scheduled Dr. Carl Alaimo follow-up appointments to a community-based health Director and Chief Psychologist, Cermak Health Services’ 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. INSPIRATION FROM THE FIELD: In North Carolina, for instance, every prisoner has the name, address, and phone number of a provider and an CORRECTIONS AND 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 ILLINOIS 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 M

prisoners for their reentry by providing them AYORAL 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 OLICY that accompanies it, demands additional staff, time and health programs and other services. Over the resources. These tasks require extensive coordination of first five years of the initiative, 675 individuals C UU ON 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 RISONER 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/HIVCDP/ILL.htm; Rev. Doris EENTRY Green, (Director of Community Affairs, AIDS Foundation of Chicago), presentation, Chicago Mayoral 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 individuals received before and during their incarceration “For many people, Cook County Jail is —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 prison system. health care, and may be the only time 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 EENTRY

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

P insurmountable.”

Dr. Sergio Rodriguez

AUCUS ON Director, Cermak Health Services’ Medical Division, C Cook County Jail OLICY P AYORAL 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 INSPIRATION FROM THE 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. AYORAL 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. OLICY About 90 percent of prisoners involved in C

this program keep their medical appointments ON 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. RISONER

Source: Dr. Thomas Lincoln, Physician at Baystate Medical R

Center, presentation, Chicago Mayoral Policy Caucus on Prisoner EENTRY 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-

EENTRY 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

RISONER 56 P affected. of disability. Cash payments can resume after release; 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.

AUCUS ON or prison for a full calendar month—from the first of the 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 AYORAL

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 AYORAL benefits are reinstated. Other states are grappling with these same issues and have 67 developed innovative strategies to address them. For P OLICY 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 ON 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 RISONER 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 EENTRY 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 medications or none at all. Those released with conta- was at the gate the very day of dis- gious diseases risk infecting others within the community charge, someone that had the social if treatment is interrupted. Lack of treatment for drug or alcohol addiction may result in unemployment, criminal skills to help this person in society, then 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

EENTRY 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.

RISONER 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 AUCUS ON

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 AYORAL 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 AYORAL

To significantly reduce recidivism, community-based P health and treatment providers are integral to the OLICY equation. C UU ON 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 RISONER 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 EENTRY 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 INSPIRATION FROM THE FIELD: diverts valuable dollars that could be spent on outpatient POLICE CRISIS INTERVENTION substance abuse and mental health treatment programs. TEAMS IN TENNESSEE 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. Other 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: EENTRY

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

RISONER Tennessee, Police Department’s Crisis Intervention Team,” P Bulletin from the Field, Practitioner Perspectives (Washington, D.C.: U.S. Department of Justice, Bureau of Justice Assistance, 2000). AUCUS ON C OLICY P AYORAL 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 AYORAL 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 OLICY reducing arrest rates, decreasing mental health symptoms officers will more readily look 83 C and increasing quality of life. ON 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.” RISONER 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 EENTRY 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- INSPIRATION FROM THE FIELD: tions per person in the year before the mental health court PROPOSITION 36 IN CALIFORNIA diverted them to community-based treatment.86

CIT officers, specially trained in handing individuals with In the November 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 Office 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

EENTRY 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

RISONER 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. AUCUS ON 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 AYORAL 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 AYORAL P OLICY C UU ON AUCUS P RISONER R EENTRY

61 INSPIRATION FROM THE FIELD: WINNER’S CIRCLE IN ILLINOIS

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 Winners’ 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 Winner’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.

EENTRY 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 RISONER 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

AUCUS ON 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 AYORAL M

62 Margaret M. is a 55-year- old Latino woman. Margaret grew up on Chicago’s While 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. “No 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. “We moved altercation, Margaret shot her every class and every group ses- M

to California to start fresh.” It boyfriend. sion that she possibly could. AYORAL 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 OLICY 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 ON 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 RISONER “I wanted to escape the abuse out on the street. “Everyone from my boyfriend, so I decided was distant. One relative even R

to give up my jobs and move told me, ‘This has never hap- EENTRY back to Chicago.” pened in our family.’ No 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 AYORAL makes the difference for me. P OLICY C

UU ON AUCUS They help me avoid people, places and things and to love myself. P RISONER

R A lot of people loved me during this EENTRY 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. When 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 AYORAL 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 OLICY 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 ON AUCUS taken culinary classes in prison, were former addicts now in possible for he was hired as a cook. Sam recovery. “Once I saw my held this position for over a family members recovering, I P

me.” RISONER 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 EENTRY 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. AYORAL 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 OLICY released. Formerly incarcerated parents may experience together may be strained when a loved one becomes difficulties trying to reestablish a relationship with incarcerated.5 The imprisoned individual may feel angry, C children who had been left in the temporary custody of ON 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 RISONER weaken relationships.6 In spite of these troubling facts, today there is no concerted

effort to assist families of incarcerated individuals in R EENTRY 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.

EENTRY In New York and Texas, for instance, prisons employ R 9 Carolyn Nance “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 RISONER

P facilitate family visits and act as a first point of contact for 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 AUCUS ON

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

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

M ensure that families are in a better position to fully support 68 the reentry process. MAYORAL POLICY CAUCUS ON PRISONER REENTRY 69 ith Julie Recommendation and this can pose a 16 When the weather is bad, visitors When the weather 14 17 15 ALIFORNIA machines may be the only source of food. At some of food. the only source machines may be may not use cash, but instead are facilities, families institution the from $10 cash cards to purchase required to buy a bag of chips. C In Illinois, only a few prisons have “child-friendly” In Illinois, only a few prisons have visit with their children Elsewhere, visitation areas. For in the general visitation area. parent incarcerated may visiting children order, security and of safety, reasons parent incarcerated have to communicate with the Plexiglas screens, through must spend an additional 50 cents to store their coats in a 50 cents to store must spend an additional locker. tremendous psychological barrier for children who are psychological barrier for children tremendous physical through accustomed to connecting with a parent contact. ENTER IN C S ’ 11 : IELD ISITOR F V Once inside the institution, gen- 13 For example, visitors, even those from 12 UENTIN Q For those who do not have access to a car and For those who do not 10 San Quentin Visitor’s Center,Visitor’s San Quentin as House on the Hill, also known Centerforce, by is managed an services, childcare The House on the Hill provides visitors who an emergency clothing exchange for Improve visitation facilities and procedures to encourage increased to encourage procedures facilities and visitation Improve families and their prisoners between when appropriate, contact, visits. of prison the quality and to enhance incarceration during AN NSPIRATION FROM THE Sources: Centerforce/Friends Outside Information Sheet;Tara Regan (Children and Family Program Director,Sources: Program and Family Regan (Children Centerforce), Sheet;Tara Outside Information Centerforce/Friends interview w I S Wilen, 1, November 2005. organization that offers assistance to prisoners,organization that offers prisoners, former members of prisoners. and family denied a visit due to their clothing, are hospitality services and waiting areas, and transportation services unit to the visitor center. the processing local transportation centers and from from informa- It provides tion on local resources, general health and wellness, bus routes, hotels and car rentals. area The House the Quentin state prisoner to answer of a San in the life a video tracking a day on the Hill also presents visiting children. typical questions posed by Moreover, the actual prison visit itself can be a trying Moreover, at the institution unin- often arrive experience. Visitors in long lines before formed about the rules, and must wait forms and being processed filling out the requisite security. through Most of the 27 correctional institutions in Illinois are institutions in Illinois Most of the 27 correctional the City of miles from than 100 more located downstate Chicago. Issue for those with limited financial resources, visiting some of financial resources, for those with limited Prison visiting these prisons is virtually impossible. and permit visiting only on cer- restrictive schedules are with work tain days and at certain times, often conflicting of Justice Bureau and school schedules. A study by the between a prisoner’s Statistics found that as the distance the increased, home and the institution of incarceration of visitors steadily decreased. percent other states, may be turned away because they did not forms of lack, appropriate know to bring, and therefore personal identification. eral conditions often contribute to frustration. Vending eral conditions often contribute to frustration. 70 MAYORAL POLICY CAUCUS ON PRISONER REENTRY holiday programs visits. and overnight corner,exists forparent-child interaction,includingstory workshops andsupportgroups, avarietyofactivities Beyond literacyactivities, parent education,fostercare prison tokeeptheirchildren uptooneyearafterbirth. 365 daysayear. allowsmothersin Aprisonnursery incarcerated mothers.Awell-equipped playroom isopen leader initsprogressive approach tochildren andtheir Bedford, NewYork. Children’s CenteratBedford HillsCorrectional Facilityin One ofthemostnotableprograms formothersisthe included. important vantagepoint,andtheirexperienceshould be part becausetheyare notobjective.Buttheycanoffer an the conversation,inpartbecausetheyare youngandin that thoseaffected bytheproblem cannotcontributeto with children ofincarcerated parents. Itisoftenassumed dren. To bestdesignthesespaces, IDOCshouldconsult interaction betweenincarcerated parents andtheirchil- Visiting rooms shouldpromote informal,relaxed social other activitiesappropriate forchildren ofdiffering ages. These areas shouldincorporatetoys, books, games,and should beestablishedandmaintainedinallprisons. areasvending machines.Child-centered, supervised schedules. Healthysnacksshouldbeavailableinthe and children, takingintoaccountpublic transportation accommodate variedschedulesforadultfamilymembers hours toprovide arangeofdaysandtimesthatwould prisoners andfamilies.Prisonsshouldassessvisiting that promote positive,meaningfulinteractionbetween IDOC shouldexpandonvisitingprocedures andfacilities orientations forallfirst-timevisitors. Each institutionalsoshouldoffer andconductvoluntary aswelluponrequest fromthe Internet thedepartment. visitors. Inaddition,thismaterialshouldbeavailableon opportunity tomailthisinformationprospective organizations.service Prisonersshouldbegiventhe about nearbylodging,transportation,maps,andvisitor documentation,anddetails schedules, rules,necessary develop avisitorinformationsheet,includingvisitation importance. procedures, hours,conditions,pertinentrulesandtheir provide familieswithinformationaboutvisitation havedevelopedhandbooksthat Missouri andCalifornia, policies are inplace.Severalstates,suchasArizona, and policies,explainthereasons whytheserulesand more effectively informfamiliesaboutthevisitationrules The IllinoisDepartmentofCorrections (IDOC)should Solution 18 Each Illinoiscorrectional institutionshould 19 The Children’s Centerisanational also improve success. thechancesofreentry tion. Prisonvisitshelptosustainfamilyrelationships and ily canplaybothduringandaftertheperiodofincarcera- ter understandandappreciate theimportant role thatfam- safety precautions ifcorrections staff were trainedtobet- stressful andmore rewarding withoutcompromising valid tainly necessary. Still,familyvisitscouldbecomeless is aseriousproblem andstrictsecuritymeasures are cer- interactions forprisonersandtheirfamilies.Contraband rity limits,conduciveforpromoting positive,meaningful to create anoverallenvironment, withinreasonable secu- Finally, allcorrections departmentstaff shouldbetrained one-on-one timewiththeirfathers. visit theirfathers’rooms, eatlunch,andspendquality where children are escortedintothefacilityandallowedto children ofincarcerated fathersand“Children’s Day” prisoner visitors.PACT alsosponsorsasupportgroup for lodgingfor as wellahospitalitycenterandovernight Texas, provides inseveralfederalprisons similarservices Parents andChildren Together (PACT) inFortWorth, “We visitmydaughter-in-law inprison bonds betweenchildren andtheirincarcerated fathers. children’s andnurture visitingcentertohelppreserve the prison. Itprovides bothaparenting skillscourseanda for incarcerated fathersandtheirchildren atamen’s state sive program ofparenting educationandfamilyservices Westchester County, NewYork, wasthefirstcomprehen- FamilyWorks atSingCorrectional Facilityin mean asmuch.” touch her. Pictures andlettersdon’t mom. Theywanttoseeherand It meansalottothekidsvisittheir and giveherbighugs.Itissonice. When theyseeher, toher, theyrun up knowingthatshelovesthem. see herkids.Iwantthekidstogrow often. Iwantmydaughter-in-law to murder and shecurrently hascustodyofherfourgrandchildren Her daughter-in-law wassentencedto20years inprisonfor Theresa Powell 21 22 20 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 71 Given the dis- 27 Recommendation In addition to visitor centers and trans- 26 Jonathan Logan was sentenced to 35 years at Menard 17 years old; his brother Center Correctional Correctional Center to see my brother. Correctional to see my brother. Center It was verytook us seven It stressful. crowded a dirty, on hours to get there of the south side left from bus. The bus and we live on the Chicago at midnight, to take two buses had west side. We the bus. and two trains just to get to in the Someone went to the bathroom had to clean back of the bus. My mom it up.” “My mom and I went to Menard mom and “My Solution or eliminate the excessive IDOC should attempt to reduce rev- are phone calls. If there placed on prison surcharge they should be invested in these calls, enues derived from and servicesdirect to benefit families. New York visitor hospi- California have used this funding to provide to transport those bus program tality centers and a free a ride to family members who otherwise could not afford prisons. remote portation assistance, Illinois could use this pool of books, toys and games for visiting to purchase resources children. advanced technologies permit a wide array of Today’s long-distance communication—such as email, instant and videoconfer- messaging, videotaped correspondence Although encing—that should also be considered. security concerns may exist, some states, like California, Ohio and Maryland, ways to have found secure Texas, basic computer access to inmates. offer tance between many incarcerated individuals and their tance between many incarcerated innovative home communities, IDOC should explore who contact opportunities for relatives ways to provide especially those who may not have the means live far away, to travel. 25 The Florida study found that accepting 24 Facilitate contact between prisoners and their families during families and their between prisoners contact Facilitate methods increasing expense and the by decreasing incarceration communication. of long-distance 23 However, it is largely inmates’ families that bear this it is largely However, allowed to make only are since prisoners financial burden an institution are collect calls. Because all calls from under contract diverted to a single telephone company the paying party is department, with the corrections lower cost— unable to choose their own—and perhaps service provider. Issue to stay connected highly motivated are Even families that it simply impossible to may find to an imprisoned relative alternative the only facilities. Today, travel to correctional is telephone conversations. to personal visits pay to this is a costly alternative. In order Unfortunately, call and real-time like call recording for security measures imposes a high fee department monitoring, the corrections In 1998, the on telephone calls in and out of prisons. Florida governmentcommissioned a study to look at state and discovered policies on mail, visiting and phone access, (IDOC) made that the Illinois Department of Corrections col- 50 cents for every dollar call placed by a prisoner, one the course of the lecting an estimated $12–16 million over year. collect phone calls from a prisoner cost families an average a prisoner collect phone calls from of $69.19 per month. EENTRY R RISONER P AUCUS ON 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. AYORAL 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 AYORAL or cannot be found, the court bases the amount on the 31 parent earning minimum wage at 40 hours a week. P OLICY However, when a parent who owes child support is incar-

cerated, his or her wages can drop to as little as 25 cents C an hour.32 Despite the huge drop in earnings experienced ON 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 RISONER the amount is not reduced, and a substantial debt can accrue as interest builds on unpaid child support.34 R EENTRY

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 Lessons from the Father Reintegration Project should be Noncustodial father formerly incarcerated at 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, 40 child support obligations upon their release. 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, EENTRY

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

P them to obtain legitimate employment, and play a more positive and active role in their children’s lives. AUCUS ON C OLICY P AYORAL 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 AYORAL P OLICY C UU ON AUCUS P RISONER R EENTRY

75 INSPIRATION FROM THE FIELD: LA BODEGA DE LA FAMILIA IN NEW YORK

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, Neighborhoods, 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” (New 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.

EENTRY 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 RISONER 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

AUCUS ON 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

AYORAL 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. AYORAL

Fortunately, since the advent of the Women and Family P Services Division in 1999, the Illinois Department of OLICY Corrections (IDOC) has greatly expanded its efforts to C assist mothers with custody issues during their incarcera- ON 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 RISONER reunification plan, if any, is in place. If the plan calls for drug therapy or parenting classes before the mother can R reestablish custody of her child, the prisons typically EENTRY

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

EENTRY 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 RISONER

P to regain custody of children where termination of parental rights has occurred. AUCUS ON C OLICY P AYORAL 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 ceration of a parent can have a profound effect on child through the Mentoring Children of Prisoners Initiative.61 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 AYORAL and abuse and neglect issues. As a result, children of favorite part is going to the computer lab. 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 Positive intervention with children of incarcerated parents OLICY is essential to prevent criminal behavior from moving to They help me get my feelings out and let C the next generation. me talk about my dad [in prison]. My ON AUCUS sister and I have been coming here for a Solution

long time. My mom used to bring us to P RISONER 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 EENTRY and positive role models through mentoring programs. Diavanna Davis Research shows that mentoring is effective in putting, and 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.

INSPIRATION FROM THE FIELD: AMACHI IN PENNSYLVANIA EENTRY 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

RISONER 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. AUCUS ON

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. AYORAL M

80 Billie H. is a 41-year-old Billie grew up on the west side When 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.” When 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 Not 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- AYORAL 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- OLICY 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 ON 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 RISONER 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 EENTRY 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- Now, 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.” One 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 Narcotics 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

AYORAL 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

OLICY for support,” she says. “He is my My whole family supported me [AA] sponsor. He keeps our through everything.”

C family together. He is a recover-

UU ON 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 RISONER just keeping up with treatment and my programs. If I use another drug, I know the conse- R

EENTRY 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. When 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 With 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. Other 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 AYORAL P be the same person.” OLICY C UU ON AUCUS P RISONER

Shannon G. R EENTRY

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 AYORAL P OLICY C UU ON AUCUS P RISONER R EENTRY

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-

EENTRY 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 RISONER 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.

AUCUS ON 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. AYORAL M

86 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 87 Recommendation Because the name on the judgment In fact, some prisoners may actively 19 18 Many problems arise for prisoners as they attempt to arise for prisoners as they attempt Many problems identification. Most do not have the obtain valid state birth documents (e.g., passport, supporting requisite of residence) or proof Security card, certificate, Social also need to appear in Prisoners necessary to apply. a Secretaryperson at an Illinois of State facility to secure if not that is difficult, task state identification card—a person to do. Moreover, impossible, for an incarcerated prisoners usually do not discharge, many months before and they will be living post-release, know where Even after address. consequently cannot list a definite many prisoners may be living with family their release, frequently addresses members or friends, or may change not have utility until stable housing is found, and may typically used to bills and other forms of documentation of residence. establish proof many individuals further, complicate these problems To under false convicted and incarcerated arrested, are this fact to to reveal names, or aliases, and do not want staff. correctional impede their counselors’ efforts to obtain missing docu- impede their counselors’ efforts state the appropriate from ments that must be requested department (for a agency (for a birth certificate) or federal social security card). order issued by the sentencing court, also known as the issued by the sentencing order real court mittimus, may or may not be an individual’s on this name, the Secretary of State cannot rely paperwork. (e.g. child For many public policy reasons support obligations, liens, etc.), the Secretary of State their identity. needs individuals to prove individuals can obtain The quicker formerly incarcerated valid state identification, the sooner they can take the next steps necessary to facilitate their own successful reentry, of recidivism. the likelihood reducing thereby To achieve that To 16 This lack of identification may disrupt the whole This lack of identification may disrupt At the same time, the sooner a released prisoner the sooner a released At the same time, Ensure that prisoners have appropriate identification identification have appropriate that prisoners Ensure card) identification a state which to obtain with (or documents release. time of their at the 17 15 Research has consistently shown that the first six months consistently shown that the first six has Research reentry a decisive period for successful are after release is at its highest during this recidivism outcomes, and that time. Issue obtains employment, and some semblance of stability, the and some semblance of stability, obtains employment, less likely he or she is to recidivate. process of reentry before it has begun, making it virtually it has begun, of reentry before process looking for a job, impossible for a person to begin and a range of other critical services. housing treatment, Unfortunately, most prisoners are released without any released are most prisoners Unfortunately, found that only identification. In fact, the Urban Institute of prisoners returning to Chicago reported 22 percent on the day of their having any kind of photo identification release. stability and effectively function in society today—to function stability and effectively to sign a lease or medical care, apply for a job, to receive to get services individual must have at least at a bank—an one piece of accepted identification. 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

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

P account that the majority of Illinois prisoners are in prison for about one year.28 AUCUS ON C OLICY P AYORAL 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 AYORAL 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 OLICY 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 ON 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 RISONER income to offset the facilities’ operation costs, and are

required to save a portion of their earnings. This financial R EENTRY

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 EENTRY report to a parole agent on a regular basis. As incarcera- The role of a parole agent typically is to make certain that 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

RISONER 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 AUCUS ON 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 AYORAL support services.

M for 24 percent of all new Illinois prison admissions 36 90 in 2004. 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 AYORAL 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 OLICY 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 ON 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. RISONER 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.

43 R mistakes. For many years, parole agents have concentrated “That’s part of our job.” EENTRY 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 EENTRY

R be published and made available to the public via the Internet. Basic demographics about the released prisoners should be provided as well as employment and education RISONER

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 AUCUS ON

C when prisoners return to their communities. OLICY P AYORAL M

92 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 93 OUNT C ODE C IP Z EGEND L NMATES I <100100–200200–300300–400400–500500–1,0001,000 + 5 31 Area Community 6 0 6 10 5 Gage Park Clearing Lawn West Chicago Lawn Englewood West Englewood Greater Grand Crossing Ashburn Auburn Gresham Beverly Heights Washington Mount Greenwood Morgan Park O’Hare Edgewater South Chicago Burnside Calumet Heights Roseland Pullman South Deering East Side Pullman West Riverdale Hegewisch Garfield Ridge Archer Heights Brighton Park McKinley Park Bridgeport New City Elsdon West Washington Park Washington Hyde Park Woodlawn South Shore Chatham Park Avalon 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 Grand Boulevard Kenwood Near South Side Armour Square Douglas Oakland South Lawndale Side Lower West Loop West Garfield Park West East Garfield Park Side Near West North Lawndale Logan Square Humboldt Park Town West Austin Montclare Belmont Cragin Hermosa Avondale Albany Park Portage Park Irving Park Dunning Norwood Park Jefferson Park Forest Glen North Park North Center Lake View Lincoln Park Near North Side Edison Park Rogers Park Ridge West Uptown Lincoln Square 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 MAYORAL POLICY CAUCUS ON PRISONER REENTRY bulk offormerprisoners. exist toreinvest intheneighborhoods thatare hometothe from thoseinstitutions.Asitstands,few, ifany, initiatives equipped toreceive thegrowing influxofpeoplereleased people toprisonandjailare adequately prepared and munities whichsenddisproportionately large numbersof policymakers alsoneedtocontemplatewhetherthecom- without compromising publicsafety. Indoingso, possible tostemthegrowth oftheprisonpopulation sensitive endeavor. Policymakersneedtoconsiderifitis ing therightmeasures isacomplicated andextremely makes goodsense.Determiningtheansweranddevelop- whether thistypeofsubstantialfinancialinvestment leadersneedtoassess including Illinois,government As thefiscalcrisisintensifiesinstatesacross thecountry, unhealthy tothesameunchangedblock. years unstable,unskilled,untrained,uneducatedand offenses— them,onaverage,inlessthanthree andreturn —over halfofthesepeoplefornon-violentdrug incarcerate peoplefrom justonesingleblockinBrooklyn points out,societynowspendsamilliondollarsyearto budget item.Butasoneresearch studyinNewYork increased asfast,andoftenfaster, thananyotherstate Over thepastdecade,corrections expenditures have Issue July 2004. DYS population decreased from 2,600in May 1992 to1,800in felony-level youth. repetitive, more serious, andDYS isfocusing itstreatment andrehabilitative onthe efforts Institutionsare lesscrowded, ment. judgeseven have youthdiverting from toincrease DYS, thefundsavailable theopportunity locally. By treatment decisionsthatare appropriate andinthebestinterest oftheyouth andthecommunity. Thisensures thatlocaljudgesare free tomake (DYS) for thetreatment andcare ofyouthful offenders. of community-based optionstomeettheneedsofjuvenile offenders oryouth atriskofoffending. Itisafundinginitiative todevelop whichencouragesjuvenile courts arange Ohio wascreated inJuly 1993. ore www.dys.ohio.gov/RECLAIMOhio.html. Source: R I SIAINFO THE FROM NSPIRATION ECLAIM Explore optionstostimulatejusticereinvestment. sarsl,more youth currently are locally intheirtreat- where beingserved familiescanparticipate As aresult, eachOhiocountyreceives fundsfrom of theOhioDepartment YouthUnder theprogram, Services In response toagrowing needtoaddress overcrowding RECLAIM issuesinOhio’s juvenile institutions, O HIO F IELD : 46 “You canthinkofthemoney an actualspendingpolicy.” investment tobethoughtofas amount toenoughfinancial outto decisions, butitturns bunch ofindividual sions, thesewere theresults ofa at ayear’s ofprisonadmis- worth way.in adifferent .Lookingback funds—funds thatcouldbespent and criminaljusticeasapoolof [society] spendsonincarceration Director, JusticeMappingCenter Eric Cadora Recommendation MAYORAL POLICY CAUCUS ON PRISONER REENTRY 95 Julia Stasch and Catherine T. The John D. President, Vice MacArthur Foundation Institute has laid the foundation Institute has for a model reentry demonstration goal should be to lower Its project. and permit recidivism the savings in servicesto be invested to and enhance strong crime reduce community-based programs.” “The illuminating work of the Urban work illuminating “The The 49 50 Justice reinvestment is, Justice reinvestment 47 48 The State should explore ways to move in this direction. The State should explore the political will It must build momentum and generate criminal of the incentive structure to analyze the current justice system, and to suggest new ways of thinking A and reform. about crime and punishment, recidivism in prison-spending map of specific neighborhoods Chicago, and other parts of the state, would help to illu- minate these issues. It would demonstrate how much to compared money society is spending on incarceration how much money society is spending on education, drug and job training. The State mental health care treatment, of stakehold- group should then convene a representative ers to stimulate dialogue and attempt to develop scenar- to effectively incentive structures ios about different safe, and make Illinois communities recidivism reduce stable and economically viable places to live and work. The Council of State Governments has provided techni- The Council of State Governments has provided demonstrated a cal assistance to a few states that have public safety and bipartisan commitment to maintaining the design and through budget the corrections reducing initiatives. implementation of justice reinvestment Solution some redirect is to of “justice reinvestment” The goal on pris- now spends the $60 billion America portion of and physical resources the human ons to rebuilding parks facilities, care schools, health infrastructure—the devastated by high neighborhoods and public spaces—of levels of incarceration. however, more than simply rethinking and redirecting simply rethinking than more however, also about transferring accountability public funds. It is reinvestment to the local level. Justice and responsibility solutions to community-level seeks community-level problems. These states are creating maps of prison spending as a creating These states are The prison-spend- new way to look at the phenomenon. residents’ ing maps highlight the fact that community (usually in other money is being spent on incarceration better might be another, parts of the state) and that there dollars. way to spend those same criminal justice goal is to generate savings by moderating the growth of the growth goal is to generate savings by moderating some of the savings the prison population and to reinvest a disproportionate receiving in particular neighborhoods prisoners. number of released 96 MAYORAL POLICY CAUCUS ON PRISONER REENTRY Reforms withCitywideImpact gangs intheircommunity. Pushedfurther, peoplemay about vandalism,orthedisastrous effect ofdrugsand unfamiliar andperhaps controversial. Rather, peopletalk would beabletorebuild theirlives. Theissuesare prisonersarehow returning treated orwhetherthey incarcerated about individuals,nordotheyvoiceconcern formerly particular neighborhood mightfaceconcerning often thinkabouttheproblems thatsocietyortheir When thetopicofcrimedoescomeup,peopledonot no publicdiscussionofthisfact. neighbors andthecommunityatlarge. Yet there isalmost support. Thisaffects theindividualsthemselves,their daily basis,typicallywithlittleplanning,counselor Former prisonersreenter Chicagoneighborhoods ona Issue campaign. Design andconductacomprehensive awareness andoutreach and takeaproactive stancetoaddress them. them, needtoappreciate issues theimportance ofreentry so. Communitiesasawhole,andtheresidents within and willingenough—togivethemtheopportunitytodo act responsibly, thecommunitymustbestrong enough— threshold hurdle. to Whileformerprisonersmustlearn public’s perception, knowledgeand engagement.Itisa for successfulreentry, oneofthegreatest challengesisthe When itcomestocreating effective anddurablepathways from theseinstitutions. tions aboutprisonsandjailstheindividualsreleased colored bystigmaandfear. There are generalmisconcep- media. Andsometimes,unfortunately, theirperspectiveis sometimes justreflect backwhattheyseeorhearinthe Recommendation “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 enlisting broad support and input. salespeople and other successful 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 AYORAL 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 OLICY 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- ON 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 RISONER 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 EENTRY

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.

INSPIRATION FROM THE FIELD: Solution THE OSBORNE ASSOCIATION IN NEW YORK The City should develop an extensive community resource mapping system to identify organizations and programs in each Chicago community that serve formerly incarcerated The Osborne 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

EENTRY 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”

RISONER 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, AUCUS ON 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

AYORAL Family Resource Center,The Osborne Association),interview with

M Julie Wilen, November 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 AYORAL are homeless in the months before and after incarceration.55 In Chicago, approximately 1,200 former- P ly incarcerated individuals are discharged from state OLICY prisons to homeless shelters each year because they have

56 C no other place to go at the time of their release. ON AUCUS Homelessness, literally being back on the streets, makes it difficult to comply with parole conditions and contributes to the cycle of recidivism. P RISONER R EENTRY

99 INSPIRATION FROM THE FIELD: ST.LEONARD’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 Ministries), 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 EENTRY

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 RISONER

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

AUCUS ON 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,

AYORAL requires public housing authorities to evict certain foster stability, and promote public safety.

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- AYORAL 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 OLICY 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 ON 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. RISONER sands of people each year from entering homelessness directly from prison. R EENTRY

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 around housing developments for formerly incarcerated the revolving door syndrome of 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 EENTRY

R only six of Chicago’s 77 communities.70 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 RISONER 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

AUCUS ON forced to travel to multiple agencies beyond their need. 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-

AYORAL 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 AYORAL appointments.73 get back into society.” P

Some advocates believe that this model could be enhanced OLICY 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 ON 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, RISONER Associate Director of Chicago Legal Advocacy for Incarcerated Mothers (CLAIM). “When community R EENTRY

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

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

P Rather than looking at how much punishment has been 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 AUCUS ON

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

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

M and those same individuals ought to be involved in an 104 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 105 Valerie Leonard Valerie and member of North Lawndale resident North Lawndale Community Advocacy Team many people dealing with dealing many people reentryprisoner and can issues in the them to resources refer should be Our role community. and to facilitate discussion to advocate for educate people their family themselves or members who have been Our goal should incarcerated. be to look at alternatives, besides being behind bars, that can be implemented at the community level.” “Many community residents know residents community “Many The idea is The idea 83 HIO O : IELD F IRCLES IN C In Ohio, the Adult Parole Authority formed “Citizen Circles” to engage community residents in the residents to engage community “Citizen Circles” In Ohio, Authority formed Adult Parole the prison. from their release before told about the groups generally Prisoners are Residents volunteer 2005,As of July Authority in progress, were 18 Citizen Circles Adult Parole all seven representing ITIZEN NSPIRATION FROM THE Source: McMillan, Meta,http://www.citynewsohio.com/News/article/article.asp?NewsID=62899&sID=4 Circles lives in Cleveland,” “Citizen widen to help ex-offenders begin new 17, (accessed November Ohio, City News 2005). October 26, 2005, I C process of welcoming released prisoners back into their neighborhoods. released of welcoming process to serve on the circles, to participate and prisoners volunteer as well. All together, a plan to develop they help the individual become a healthy, productive, citizen. law-abiding meet on a regu- The Citizen Circles lar basis to discuss the individuals’ progress, plans, review interview applicants, new members admit new and to discharge both successful and unsuccessful participants. regions. For example, in Oregon, Deschutes County has adopted County Deschutes in Oregon, For example, justice corps.” of a “community the concept Through a restorative justice framework, the public is a restorative Through means of protection; and efficient an effective afforded held accountable for their actions and the are offenders the power of the commu- of any harm suffered; restoration and nity is harnessed strengthened so that bonds are because is reduced people feel safer; and recidivism meaningful opportunities to also afforded are offenders activities and make a develop skills, engage in productive sense of purpose and positive contribution for a renewed belonging in society. to mobilize people returning home from prison as agents prison people returningto mobilize from home passed Oregon In 1997, restoration. of community supervise County to that allowed Deschutes legislation juveniles—otherwise state prisons—in destined for These youth join with other community programs. and schools, housing to rehabilitate community residents and redevel- playgrounds, parks and and rebuild redesign social fabric and the physical infrastructure op and rebuild the program one year, Within of their own neighborhood. by 72 in state facilities youth incarceration reduced National Center to the high according a national percent, averaged The youth in the program for Juvenile Justice. service204 hours of community hours to four compared rate was four youth and their restitution for incarcerated peers. The City times higher than their incarcerated a experience and develop the Oregon should learn from with criminal pilot community justice corps for people records. 106 MAYORAL POLICY CAUCUS ON PRISONER REENTRY built. less populatedruraldistrictswhere prisonsoftenare populated urbanareas where mostprisonerslivetothe population figures shiftspoliticalpowerfrom thedensely state andfederalprisontoday, paddingelectoraldistricts’ uses ofdemographicdata.Butwith1.4millionpeoplein methodology pre-dates highincarceration ratesormodern the townsandcitieswhere theyactuallylived.This are heldforonlyashorttime—insteadofresidents from people as“residents” oftheprisons—locationswhere most A longstandingquirkincensusrulescountsincarcerated Issue earmarked forthepoor. also reap more thantheirfairshare offederaldollars prisoners asresidents ofprisondistricts,thesecounties haveinstateaffairs.otherwise Bycountingimpoverished the statelegislature andmore influencethanthey would strength in This givesdistrictswithprisonsundeserved Representatives andSenatorsfrom otherpartsofthestate. Chicago, andthenagainitincreases thenumberof ber ofRepresentatives andSenatorsfrom theCityof Chicago’s representation twice.First,itreduces thenum- Each Chicagoresident miscountedbythecensusdilutes legislative districts. count asconstituentswhenstatelegislatorsdrawup cannot evenvoteinIllinois;itisironic, then,thatthey population actuallyresides. Incarcerated individuals numbers failtoaccuratelyreflect where thestate’s butthisprinciple isdilutedwhencensus to government, Vote rule.Thisensures thateachresident getsequalaccess required underthe14thAmendment’s OnePerson each districtwillcontainthesamenumberofpeopleas data toredraw itslegislativedistrict boundaries sothat Each decade,theIllinoisstatelegislature usesU.S.Census federal funding. representation inSpringfield anditseligibilityforstate poses significantquestionsastoChicago’s proper tion. Thisisnotjustanissueofstatisticaltrivia;ratherit of prisonsare locatedandundercount Chicago’s popula- population ofcommunitiesinIllinoiswhere themajority As aresult, thecurrent census figures inflatethe 84 instead oftheirhomecommunities. currently countsincarcerated individualsasresidents oftheprisons Advocate forrevision ofthemethodologyU.S.Census,which population. tation inthecalculationofitsformerlyincarcerated Chicago’s communitiesshouldadvocateforfairrepresen- To grow anddevelopintohealthy, viablesettings, home communities. would enumerateprisonersasresidents oftheiractual version oftheCensusBureau’s redistricting datathat ofStatetocreatethe IllinoisSecretary aspeciallymodified Representative ArthurL.Turner in2005,wouldrequire 906, thePrisonerCensusAdjustmentAct,introduced by 2010 census.Onthestatelevel,passageofHouseBill Bureau couldsimplychangeitsprocedures before the either thefederalorstatelevel.Federally, theCensus census process. Thismethodologycanbemodifiedat cure whathasclearlybecomeatroubling flawinthe Counting prisonersattheirpre-prison addresses would Solution Recommendation MAYORAL POLICY CAUCUS ON PRISONER REENTRY 107

Thank you to all the interns and staff at the Mayor’s Office, the Mayor’s at to all the internsThank you and staff 2020— and Chicago Metropolis Ariel Capital Management, Sujata Bhat, Jonathan Bruner, Beres, Austin, Drew Dorcas Kris Mary Dyar, Ann Dunlay, Rebecca Curtis, Jennifer Laura Harris, Luba Golden, Irene Ekdahl, Jessica Fong, Ohs, Akilah Rogers, Angela Monica Na, Grace Kontorovich, Julia Suprock, Mark Schackmuth, Sadleir, Rudolph, Rudyard extra provided Maria Veljkovic—who Samantha Thomas, taking the way, points along at different sets of helping hands calls, chasing down particular citations, notes, making phone documents, duplicating the photocopying verifying sources, but it was always glamorous, hefty briefing binders. It wasn’t always essential. Lumpkin, Timothy Thank you to our team of writers—Ben their pas- and Julie Wilen—for Michaels, Alison Nemirow, they worked sion and perseverance. For several months, and diligently to help compile all the recommendations into the polished final report year the entire analysis from us get an initial that you hold in your hands. Ben helped gaps. Then Julie and Ali helped fill crucial foothold, and Tim everything together to craft the finished masterfully brought is embedded in every She page. product. his own work to Thank you to David Daskal for interrupting eye and sharp pen. give this material the benefit of his careful document better, His meticulous editing made the entire stronger. crisper, as Dialogue Groups, Thank you to the participants in the to be interviewed for our well as the people who agreed their time and sharing Stakeholder Perspectives, for investing a unique and valuable viewpoint their ideas. Each brought the to reflect wanted this final report to the conversation. We and the city, best thinking of concerned citizens throughout they helped us to achieve this goal. and their And to those individuals with criminal records, within these pages, loved ones, who find themselves reflected thank you for sharing your struggles with us. It takes let other and courage to let a stranger tell your story, and we hope that we’ve done you story, your strangers read of justice. some small measure Michelle Light Assistant to the Mayor for Reentry Initiatives of the Mayor Office

A Note of Thanks of Note A A Note of Thanks of Note A Thank you to Ariel Capital Management for their consider- food and our able financial support as well. Ariel covered to assume many costs that drink expenses and even offered that our whole process initially anticipate to ensure we didn’t are without a hitch. Their kindness and generosity went off appreciated. greatly Thank you to the Chicago Community Trust, the Richard H. the Richard Thank you to the Chicago Community Trust, Driehaus Foundation, the Joyce Foundation, the Polk Bros. for helping to Fund of Chicago Foundation, and the Woods report. this final some of the expenses for producing offset has made it a reality. Their belief in this project Thank you to the MacArthur Foundation for kindly paying all the travel expenses for our out-of-town guests. These guests added immeasurably to our dialogue, and we couldn’t assis- them to Chicago without the foundation’s have brought tance. Thank you to the Federal Reserve Bank of Chicago for gra- meeting space. It ciously allowing us to use their splendid we could listen and learn,was our Caucus home where ques- the fruits of our labors took tion and discuss, and where shape. Thank you to the Caucus members for their dedication and Thank you to the Caucus members for their insightful contributions, the Caucus wisdom. With a source They were evolved into something truly valuable. help influence the of inspiration, and that inspiration will debate on issues of prisoner reentry for years to come. Thank you to our two co-chairs, Roxanne Ward of Ariel Ward Thank you to our two co-chairs, Roxanne of Chicago Metropolis Capital Management and Paula Wolff both the big picture 2020. Roxanne and Paula focused on sharp intelligence and and the finer details. They offered their benefited from astute insight, and the Caucus always discerning guidance. They served questions and clearheaded gentle critics, and constant champions. models, as role with the two of them made work a pleasure. Working Our thanks first go to The Honorable Richard M. Daley, to The Honorable Richard Our thanks first go of Chicago, for having the vision and Mayor of the City so for been ignored this issue that has courage to address step to call the members of this Caucus long. Since his bold the country have around other elected officials together, begun to devote time and resources followed his lead and the challenges posed by the formerly to confronting incarcerated. Many people worked very hard to ensure the success of the to ensure worked veryMany people hard The information on Prisoner Reentry. Mayoral Policy Caucus not would this report contained in and recommendations without their leadership. have been possible 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 EENTRY

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

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

AUCUS ON 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 AYORAL 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 AYORAL P OLICY C UU ON AUCUS P RISONER R EENTRY

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

EENTRY 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

RISONER Ms. Jackie Robinson, three sons were formerly incarcerated 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

AUCUS ON 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

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

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

112 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 21 20 19 18 17 16 15 14 13 12 11 10 9 8 7 6 5 4 3 2 1 Introduction Endnotes http://www.idoc.state.il.us/subsections/reports/department_data/Department%20Data%202004.pdf. (accessed June16,2005). Illinois Department ofCorrections, “2004Departmental DataFactSheet”(Springfield, IL:IllinoisDepartmentofCorrections, 2 EST2002-08-17.pdf (accessedNovember11,2005). Alphabetically: July1,2001through July1,2002”http://www.census.gov/popest/archives/2000s/vintage_2002/SUB-EST2002/SUB- Census Bureau, Population Division,Table 8“IllinoisIncorporated PlacePopulationEstimatesandChange, Sorted (3) Rockford—151,068; (5)Joliet—118,423;(6)Peoria—112,670 and(7)Springfield—111,834.U.S. (4)Naperville—135,389; There are seven citiesinIllinoiswithpopulationsabove100,000persons: (1)Chicago—2,886,251;(2)Aurora—156,974; http://www.ojp.usdoj.gov/bjs/pub/pdf/ppus03.pdf (accessedNovember 11,2005),Table 8. Glaze, Lauren andSeri Palla,“Probation andParole intheUnitedStates,2003”(Washington, D.C.:Bureau ofJusticeStatistic 2003), 46. La Vigne, inIllinois”(Washington, NancyG.andCynthiaA.Mamalian,“APortraitofPrisoner Reentry D.C.:TheUrbanInstitute http://www.ojp.usdoj.gov/bjs/pub/pdf/pjim04.pdf (accessedNovember11,2005),Table 7. Harrison, PaigeandAllenBeck,“PrisonJailInmatesatMidyear 2004”(Washington, D.C.:Bureau ofJusticeStatistics,200 http://www.idoc.state.il.us/subsections/reports/department_data/Department%20Data%202004.pdf (accessedJune6,2005). Illinois DepartmentofCorrections, “2004DepartmentalDataFact Sheet” (Springfield,IL:IllinoisDepartmentofCorrections, 2 (accessed December1,2005). Illinois DepartmentofCorrections, 2005),http://www.idoc.state.il.us/subsections/reports/statistical_presentation_2004/defaul rectional systemwitharatedcapacityof32,609.IllinoisDepartmentCorrections, “StatisticalPresentation 2004”(Springf At theendofcalendaryear2004,adultprisonpopulationwas35.1percent overratedcapacity, totaling44,054inmatesin (accessed December1,2005),5. League, October2002),http://www.cul-chicago.org/72329633112722/lib/72329633112722/the%20vicious%20circle.pdf Street, Paul,“TheVicious Circle: Race,Prison,Jobs,andCommunityinChicago,Illinois,theNation”(Chicago,IL:Chicag http://www.idoc.state.il.us/subsections/reports/statistical_presentation_2003/part1.shtml#5 (accessedJune16,2005),Table 1. Illinois DepartmentofCorrections, “StatisticalPresentation 2003”(Springfield,IL:IllinoisDepartmentofCorrections, 2004) http://www.ojp.usdoj.gov/bjs/pub/pdf/ppus04.pdf (accessedNovember11,2005),1. Glaze, Lauren andSeriPalla,“Probation andParole intheUnitedStates,2004”(Washington, D.C.:Bureau ofJusticeStatistics http://www.ojp.usdoj.gov/bjs/pub/pdf/fssc02.pdf (accessedNovember11,2005). Durose, MatthewandPatrickLangan,“FelonySentencesinStateCourts,2002”(Washington, D.C.:Bureau ofJusticeStatistics,2 Community,” Introduction, http://www.reentrypolicy.org/report/introduction.php (accessedNovember11,2005). ofPrisonersto PolicyCouncil:ChartingtheSafeandSuccessfulReturn “ReportoftheRe-Entry Council ofStateGovernments, They AllComeBack:RethinkingPrisonerReentry Community,” Introduction, http://www.reentrypolicy.org/report/introduction.php (accessedNovember11,2005);Travis, Jeremy, ofPrisonersto PolicyCouncil:ChartingtheSafeandSuccessfulReturn “ReportoftheRe-Entry Council ofStateGovernments, http://www.ojp.usdoj.gov/bjs/reentry/releases.htm (accessedJune16,2005). TrendsU.S. DepartmentofJustice,Bureau ofJusticeStatistics,“Reentry intheUnitedStates,” criminal record” are usedinterchangeably. Throughout thisreport, words suchas“formerprisoner,” “released prisoner,” “formerlyincarcerated individual,”and“personw 1044.pdf (accessedNovember11,2005). Growth inPopulationContinues”(Washington, D.C.:TheSentencingProject, 2005),http://www.sentencingproject.org/pdfs/ Britain (145),Canada(116),Germany(97),France(88),andJapan(60)—are allsignificantlylower. atthetopoflistinWesternper 100,000personsplacesthiscountry world.Ratesofothernations—Russia(564),Gre 2003), http://www.ojp.usdoj.gov/bjs/pub/pdf/piusp01.pdf (accessedNovember11,2005),Figure 3.TheU.S.incarceration rateof Bonzcar, Thomas,“Prevalence ofImprisonmentintheU.S.Population,1974-2001,”(Washington, D.C.:Bureau ofJusticeStatisti 2003), http://www.ojp.usdoj.gov/bjs/pub/pdf/piusp01.pdf (accessedNovember11,2005),Table 1. Bonzcar, Thomas,“Prevalence ofImprisonmentintheU.S.Population,1974-2001,”(Washington, D.C.:Bureau ofJusticeStatisti enforcement, military, Indiancountry, andjuvenilefacilities. the UnitedStatesatyearend2004forstateandfederalprisonslocaljailsplusterritorialprisons,immigrationscus http://www.ojp.usdoj.gov/bjs/pub/pdf/p04.pdf (accessedNovember11,2005).Thisfigure includesthetotalincarcerated populat Harrison, PaigeandAllenBeck,“Prisonersin2004”(Washington, D.C.:Bureau ofJusticeStatistics,2005), http://www.ojp.usdoj.gov/bjs/glance/tables/corr2tab.htm (accessedJune16,2005). U.S. DepartmentofJustice,Bureau 1980-2003,” ofJusticeStatistics,“NumberPersonsunderCorrectional Supervision, Periodicals Online,October1996),http://www.lib.niu.edu/ipo/1996/ii961042.html (accessedJune16, 2005). Huppke, Rex.“Record toIllinoisStreets,” NumbersofEx-ConsReturn Calculation basedontaking50percent oftheprojected totalreleases for2005,or50percent of42,000. See also Wheeler, Charles,“It’s the‘gettoughoncrime’fallcampaignseasonagain”(DeKalb,IL: Illinois (Washington, D.C.:NationalInstituteofJustice,2000),NCJ181413. Chicago Tribune , June19,2005. See “New Incarceration Figures: toms ield, IL: , t.shtml s, 2004), , 2005), o Urban at 004) 004), 5), a cor- ith the the But 004), , ion in cs, cs, 724 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 113 e a e 6. t 5) for cs, rious 2001, 005), ” ,” , ), 3. See deny s, go in the sites t of cerated at 2000), 7. tamp ben- Jacobson, Michael, Prisoners Once Removed: The See also , Sept 28, 2000. ed. Jeremy Travis and Michelle Waul, Travis ed. Jeremy vol. 31, no. 3 (May/June 2003): 3-4. August 8, 2002, (New York, NY: New York University Press, 2005). Press, University New York NY: (New York, New York Times New York Families Left Behind: The Hidden Costs of Incarceration and Reentry Families Left Behind: The Hidden Costs of Incarceration The Economist, From Prison to Home: The Dimensions and Consequences of Prisoner Reentry Prison to Home: The Dimensions From , June 1, 2005. (cont.) (July/August 2005) http://www.prisonpolicy.org/news/zmagjulaug2005.shtml (accessed on November 11, 2005). (July/August 2005) http://www.prisonpolicy.org/news/zmagjulaug2005.shtml Chicago Tribune The Urban Institute webpage, http://www.urban.org/content/PolicyCenters/Justice/Projects/Projects.htm. webpage, http://www.ojp.usdoj.gov/reentry/learn.html#se of Justice Programs The United States Department of Justice, The Office and Illinois Department of Corrections, “2004 Departmental Data Fact Sheet” (Springfield, IL: Illinois Department of Correction and Illinois Department of Corrections, (accessed June 16, 2005). 2004) http://www.idoc.state.il.us/subsections/reports/department_data/Department%20Data%202004.pdf. federal laws passed in 1996 and 1998 allowed for public housing agencies to efits for anyone convicted of a felony drug charge; to four additional the program the first two states selected to test pilot the model. Based on those experiences, NIC expanded including Indiana, Michigan, North Dakota, and Rhode Island. The Transition from Prison to Community Initiative webpage, http://www.nicic.org/pubs/2002/017520.pdf. Missouri and Oregon wer Missouri and Oregon Prison to Community Initiative webpage, http://www.nicic.org/pubs/2002/017520.pdf. from The Transition NGA Center for Best Practices, “Issue Brief: NGA Prisoner Reentry Policy Academy” (NGA Center for Best Practices, January 5, 2 “Prison and Beyond: The Stigma That Never Fades,” See Illinois Quick Facts from U.S. Census Bureau, http://quickfacts.census.gov/qfd/states/17000.html (accessed November 11, 200 U.S. Census Bureau, See Illinois Quick Facts from Con Mass Incarceration Paul, “Race, Place, and the Perils of Prisonomics: Beyond the Big-Stick, Low-Road, and Zero-Sum Street, and a food s of welfare bill placed a lifetime ban on the receipt reform For instance, within the last decade, the 1996 welfare Justice, National Institute of Corrections (February 2002) http://www.nicic.org/pubs/2002/017272.pdf (accessed November 5, 2005 (FebruaryJustice, National Institute of Corrections 2002) http://www.nicic.org/pubs/2002/017272.pdf expla true, it would not even if that were crimes. But Americans commit more simple explanation for these statistics: African justice system and has been clearly documented. in the criminal that blacks endure treatment of disproportionate serious degree http://ojjdp.ncjrs.org/dmc/. D.C.: Th Later” (Washington, Years Black Americans and the Criminal Justice System: Five “Young Huling, Mark and Tracy Mauer, 1995), 1. Sentencing Project, of Justice Statisti D.C.: Bureau 1974-2001,” (Washington, of Imprisonment in the U.S. Population, Thomas, “Prevalence Bonzcar, 4. 3 and Figure (accessed November 11, 2005), Figure 2003) http://www.ojp.usdoj.gov/bjs/pub/pdf/piusp01.pdf Z Magazine activity”; and amendments to the Higher Education Act suspended the eligibility housing to anyone “engaged in any drug-related “Invisible Punishment: Block Housing, Education, Voting, Marc, See Mauer, student loans to anyone convicted of a drug offense. (accessed November 11, 2005). http://www.economist.com/world/na/displayStory.cfm?story_id=1270755 http://www.nga.org/portal/site/nga/menuitem.9123e83a1f6786440ddcbeeb501010a0/?vgnextoid=c223303cb0b32010VgnVCM100000 Idaho, Massachusetts, Michigan, New seven states—Georgia, teams from for proposals, 1a01010aRCRD. Following a national request invited to participate. Rhode Island, and Virginia—were Jersey, Senate Report 106-404: Departments of Commerce, Justice and the State, the Judiciary and Related Agencies Appropriation Bill, Justice and the State, the Judiciary and Related Agencies Appropriation Senate Report 106-404: Departments of Commerce, of Justice Statistics, 2005), D.C.: Bureau in 2004” (Washington, Harrison, Paige and Allen Beck, “Prisoners 10. (accessed November 11, 2005), Table http://www.ojp.usdoj.gov/bjs/pub/pdf/p04.pdf 11, of Justice Statistics, 2005), Table D.C.: Bureau in 2004” (Washington, Harrison, Paige and Allen Beck, “Prisoners is that there commentators argue (accessed November 11, 2005). Some scholars and http://www.ojp.usdoj.gov/bjs/pub/pdf/p04.pdf (Washington, D.C.: Urban Institute, 2003), http://www.urban.org/UploadedPDF/310882_families_left_behind.pdf (accessed June 7, 2003), http://www.urban.org/UploadedPDF/310882_families_left_behind.pdf D.C.: Urban Institute, (Washington, 2005), 2. and Family of Prisoners,” in “Prisoners Once Removed: The Children and Michelle Waul, Jeremy Travis, Population by Gender,” of Correctional of Justice Statistics, “Demographic Trends U.S. Department of Justice, Bureau (accessed July 1, 2005). http://www.ojp.usdoj.gov/bjs/glance/tables/cpgendtab.htm U.S. Department of Justice, Bureau of Justice Statistics, “Recidivism,” Reentry Trends in the United States, Reentry of Justice Statistics, “Recidivism,” Bureau U.S. Department of Justice, Trends 16, 2005). (accessed June http://www.ojp.usdoj.gov/bjs/reentry/recidivism.htm D.C.: The Urban Institute Reentry Cynthia A. Mamalian, “A Portrait of Prisoner Nancy G. and in Illinois” (Washington, La Vigne, of Justice Statistics, D.C.: Bureau Report (Washington, Special and Their Parents,” Children “Incarcerated Mumola, Christopher, M. Cincotta, and Amy L. Solomon, Elizabeth Jeremy, Travis, Urban League, 2002), http://www.cul-chicago.org/72329633112722/lib/72329633112722/the%20vicious%20circle.pdf (accessed 2002), http://www.cul-chicago.org/72329633112722/lib/72329633112722/the%20vicious%20circle.pdf Urban League, December 1, 2005), 3. Budget, “Illinois State Budge of Management and Revenue Fund. Office 5.2% of Illinois’ FY 2005 General represented Corrections 7, 2005), 1-8. (accessed July 2006,” http://www.state.il.us/budget/FY06%20Budget%20Book.pdf Book Fiscal Year of Prison Building on Crime is Weighed,” Butterfield, Fox, “Effect to Reduce Crime and End Mass Incarceration Downsizing Prisons: How Waul, Amy Solomon and Michelle Jeremy, Travis, (accessed June 16, 2005), D.C.: Urban Institute, 2001), http://www.csosa.gov/Olipa/newsinterest/prison_to_home.pdf (Washington, 2003), 50-51. Families and Communities, and Reentry on Children, Impact of Incarceration (accessed June 16, 2005). http://www.urban.org/pubs/prisoners/chapter1.html to be incar likely than other children six times more of prisoners are “children U.S. Senate. September 8, 2000, indicates that some point in their lives.” Quoted in “Services U.S. Departmen Issues in Corrections, for Families of Prison Inmates,” Special Focus: The Magazine for the Joint Center for Political and Economic Studies, Long, Ray and Christi Parsons, “Budget Buzzer Beater; State Democrats Push Plan Through; GOP Complains it is Full of Pork for Complains it is Full of GOP Plan Through; State Democrats Push Buzzer Beater; and Christi Parsons, “Budget Long, Ray Chicago,” IL: Chica Nation,” (Chicago, Illinois, and the Community in Chicago, Race, Prison, Jobs, and Circle: “The Vicious Paul, Street, 44 45 42 43 41 40 39 37 38 36 35 34 33 31 32 30 28 29 27 25 26 24 22 23 Introduction Introduction 114 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 7 6 5 4 3 2 1 Employment Chapter 1: 48 47 46 Introduction 20 19 18 17 16 15 14 13 12 11 10 9 8 http://frwebgate.access.gpo.gov/cgi-bin/useftp.cgi?IPaddress=162.140.64.21&filename=gg00117.txt&directory=/diskb/wais/data/gao http://frwebgate.access.gpo.gov/cgi-bin/useftp.cgi?IPaddress=162.140.64.21&filename=gg00117.txt&directory=/diskb/wais/data/gao “State andFederalPrisoners:Profile ofInmateCharacteristicsin1991and1997,”(Washington D.C.:GeneralAccountingOffice D?c109:1:./temp/~c1095Hg7vs, (accessed November10,2005).“SecondChanceActof2005,”S.1934.IS, “Second ChanceAct,”H.R.1704IH,109thUnitedStatesCongress, http://thomas.loc.gov/cgibin/query/D?c109:1:./temp/~c109Cn0Zn1, http://www.whitehouse.gov/news/releases/2004/01/20040120-7.html (accessedJune16,2005). Bush, George W., “2004StateoftheUnionAddress,” (speech,UnitedStatesCapitol,Washington 20,2004) D.C.,January Working Group, April12, 2005. Karen Scheffels, ExecutiveDirector oftheLiteracyCouncil,testimony atpublichearing,Governor’s CommunitySafety &Reentry school diploma. acertificate fromA personwhosuccessfullypasses theGEDtestearns theIllinoisStateBoard ofEducationthatisequivalent days). RogerWilliams, withJulieWilen, (Superintendent,SchoolDistrict 428),interview November14,2005. Education classand1,925ofthese individualscompletedtheclass(e.g.,achievedatleasta6.0on theTABE testaftereither 2004, SchoolDistrict428wasnot abletoprovide comparabledataaboutwaitlists.But8,394adult prisonerstookanAdultBas withSuperintendentLeAnnMiller”(unpublished notes,December17,2003).Oneyearlater,Lisa Hampton,“MeetingSummary in Roger Williams, with JulieWilen, (Superintendent,SchoolDistrict428),interview November 14,2005. School District428,“AnnualReviewofPrograms: FiscalYear 2004,”(Springfield,IL:IllinoisDepartmentofCorrections, 2004 2003), 35-36. La Vigne, inIllinois,”(Washington, NancyG.andCynthiaA.Mamalian,“APortraitofPrisoner Reentry D.C.:TheUrbanInstitu (accessed November17,2005),73. human_services_plans/hsp2000_4.pdf, Centers,” (Springfield,IL:IllinoisDepartmentofCorrections, 2000) http://www.idoc.state.il.us/subsections/reports/ Plan–FiscalYearsIllinois DepartmentofCorrections, “HumanServices 1998-2000:AdultInstitutionsandCommunity Correctional 2002), http://www.nifl.gov/nifl/policy/st_correction_02.html (accessedNovember17,2005). Tolbert, Michelle,“StateCorrectional EducationPrograms: StatePolicyUpdate,” (Washington, D.C.:NationalInstituteforLi & 2003,”(Chicago,IL:RooseveltUniversityandIllinoisDepartment ofCorrections, July2005). for Offenders toChicagoandCookCounty:PerformanceReportEmployment,Retention&Recidivism Study, Returning FY2002 EdReducesCrime.pdf (accessedAugust1,2005),16;Elliott,Michael,Margaret Haak,andWilliam Eppley, Pro “LifeSkillsReentry Recidivism Study,” (Lanham,MD:Correctional EducationAssociation,2001)http://www.ceanational.org/documents/ (Washington, D.C.:TheUrbanInstitute,2004);Steurer, StephenandLindaG.Smith,“EducationReducesCrime:Three-State (accessed November17,2005),4;LaVigne, Nancy, andChristyVisher, Home,” “ChicagoPrisoners’ExperiencesReturning Research andEvaluation,August1994)http://www.bop.gov/news/research_projects/published_reports/recidivism/oreprrecid87.pdf Harer, MilesD.,“RecidivismAmongFederalPrisonersReleased in1987,”(Washington, D.C.:FederalBureau ofPrisons,Office of 2004), 18. CenterforImpactResearch, Augus McKean, LiseandCharlesRansford, “Current StrategiesforReducingRecidivism,”(Chicago,IL: http://www.ojp.usdoj.gov/bjs/pub/pdf/cpus97.pdf (accessedNovember18,2005),Table 4.1. “Correctional PopulationsintheUnitedStates,1997”(Washington, D.C.:Bureau ofJusticeStatistics,2000), 2003), http://www.ojp.usdoj.gov/bjs/pub/pdf/ecp.pdf (accessedNovember17,2005),1. Harlow, Caroline Wolf, “EducationandCorrectional Populations,”SpecialReport(Washington, D.C.:Bureau ofJusticeStatistic Urban League,2002),6. Street, Paul,“TheVicious Circle: Race,Prison,Jobs,andCommunityinChicago,Illinois,theNation,”(Chicago,IL:Chica Urban League,2002),6. Street, Paul,“TheVicious Circle: Race,Prison,Jobs,andCommunityinChicago,Illinois,theNation,”(Chicago,IL:Chica ofSociology Journal better successthanyoungblackmenwithoutanycriminalrecord. Pager, Devah.2003.“TheMarkofaCriminalRecord.” Although, evenmore troubling are findingsbyDevahPagershowingthatyoungwhitemenwithcriminalrecords oftenexperienced no. 9(November2000),3. totheCommunity:Political,EconomicandSocialConsequences,” Petersilia, Joan,“WhenPrisonersReturn Division, 1990). Eisenberg, Michael,“Project RIO:Twelve monthfollow-up,”(Austin,TX:Texas DepartmentofCriminalJustice,Pardons andParo http://www.bls.gov/cps/cpsaat2.pdf (accessedNovember17,2005). U.S. DepartmentofLabor, Bureau ofLaborStatistics,“EmploymentStatustheCivilianNoninstitutionalPopulation,1940toD The Re-Entry PolicyCouncilwebpage,http://www.reentrypolicy.org/The Re-Entry Roger Williams, withJulieWilen, (Superintendent,School District428),interview November14,2005. School District428,“AnnualReviewofPrograms: FiscalYear 2004,”(Springfield,IL:IllinoisDepartmentofCorrections, 2004 (accessed July18,2005),Table III.1. (cont.) 108(5): 937-975. (accessed November10,2005). 109th UnitedStatesCongress, http://thomas.loc.gov/cgibin/query/ Sentencing &Corrections American 45or90 toahigh teracy, go go ), 42. ), 42. s, , 2000), ic te, ate,” gram les t MAYORAL POLICY CAUCUS ON PRISONER REENTRY 115 , 5- factor -6-3; bsec- on ne prior GED .org/ , 43. , 14. s are taff at taff ry man- cessed buse pro- ased Chicago, inois o-no work (Springfield, IL: The Positive Impact of Corrections Education on Recidivism and Employment, The Positive Impact of Corrections (cont.) Holzer, Harry, Steven Raphael, and Michael Stoll, “Employment Barriers Facing Ex-Offenders” (working Facing Ex-Offenders” and Michael Stoll, “Employment Barriers Steven Raphael, Harry, Holzer, See also City Colleges of Chicago, “The Center for Distance Learning,”City Colleges of Chicago, “The Center for Distance http://cdl.ccc.edu/, (accessed July 5, 2005). paper from the Urban Institute Reentry the Urban Institute May 19-20, 2003), 5. Roundtable Meeting, paper from Illinois Department of Corrections, 1997), 51. Illinois Department of Corrections, on April 1, 2005, at II(F)(2)(b). Student Assessment and Placement, effective information about the general CSSI initiative, see transport.php (accessed November 17, 2005). For more http://www.commerce.state.il.us/dceo/Bureaus/Workforce_Development/Resources/CSSI.htm. 2004) 2004,” (Springfield, IL: Illinois Department of Corrections, Fiscal Year School District 428, “Annual Review of Programs: (Washington of Prison Programming,” “The Practice and Promise Travis, Sarah, Daniel M. Mears, Glenn Dubin, and Jeremy Lawrence, (accessed August 10, D.C.: The Urban Institute, May 2002) http://www.urban.org/UploadedPDF/410493_PrisonProgramming.pdf 2005), 15. A Guide for the Formerly Job Opportunities: published “Winning The Illinois Department of Employment Security recently in Illinois,” which outlines occupations with the most job openings each year by education level and has trained s Incarcerated Ill of Policy, information. Sherri Moses, (Director Center on the use of its labor market and career the Sheridan Correctional October 19, 2005. Department of Employment Security), email interview with Julie Wilen, School District 428, “Annual Review of Programs: Fiscal Year 2004,” (Springfield, IL: Illinois Department of Corrections, 2004) 2004,” (Springfield, IL: Illinois Department of Corrections, Fiscal Year School District 428, “Annual Review of Programs: Programs 04.10.108 for all School District Academic and Vocational Administrative Directive Illinois Department of Corrections, can be found at http://www.workforceboardsmetrochicago for the northeast region The Critical Skill Shortages Initiative reports Illinois Department of Corrections, “Human Services Plan–Fiscal Years 1998-2000: Adult Institutions and Community Correctional “Human ServicesIllinois Department of Corrections, Plan–Fiscal Years 2000) of Corrections, Centers,” (Springfield, IL: Illinois Department August 2, 2005), 73. (accessed http://www.idoc.state.il.us/subsections/reports/human_services_plans/hsp2000_4.pdf 1998-2000: Adult Institutions and Community Correctional “Human ServicesIllinois Department of Corrections, Plan–Fiscal Years 2000) of Corrections, Centers,” (Springfield, IL: Illinois Department (accessed August 2, 2005), 73. http://www.idoc.state.il.us/subsections/reports/human_services_plans/hsp2000_4.pdf Illinois. 94th General Assembly. Public Act 094-0128 (July 7, 2005), Illinois. 94th General Assembly. (accessed November 18, 2005). http://www.ilga.gov/legislation/publicacts/fulltext.asp?Name=094-0128 McKinnis, City Colleges of Chicago), meeting with Leonard Malcolm X Adult Learning Center, (former director, Lizette Richardson August 15, 2005. Education, Illinois Council on Vocational September 2000), 20. September 2000), 20. specific periods of time in which such inmate is engaged full-time in substance a tion (a) of this Section by any inmate during a by the Department . . . shall be multiplied by provided industrygrams, correctional or educational programming assignments, on or after that date.” 730 ILCS 5/3 participation August 11,1992 and 1.50 for program participation before of 1.25 for program (ac Asked Questions,” http://www.idoc.state.il.us/subsections/faq/default.shtml “Frequently Illinois Department of Corrections, August 2, 2005). incre received (4) who (i) has previously time under this paragraph good credit “No inmate shall be eligible for the additional Nancy G. and Cynthia A. La Vigne, at least once before. has been incarcerated of the prison population Just over 25 percent 21. D.C.: The Urban Institute, 2003), 33, Figure Mamalian, “A Portrait of Prisoner Reentry in Illinois,” (Washington, Illinois Department of Corrections, “Governor’s budget for Department of Corrections increases public safety, strengthens reent strengthens public safety, increases budget for Department of Corrections “Governor’s Corrections, Illinois Department of under paragraph (2.1) of su accumulated and retained that the good conduct credit shall also provide “The rules and regulations “Low rates of job retention can also be traced to the types of jobs that ex-offenders with little formal education and little-t with little formal education jobs that ex-offenders can also be traced to the types of “Low rates of job retention Lisa Hampton, “Meeting Summary with Superintendent LeAnn Miller” (unpublished notes, December 17, 2003). One year later, in “Meeting SummaryLisa Hampton, One year later, December 17, 2003). (unpublished notes, LeAnn Miller” with Superintendent in enrolled prisoners were But 5,504 adult data about waitlists. comparable able to provide District 428 was not 2004, School Department of Annual Report,” (Springfield, IL: Illinois of Communications, “2003 Office Corrections, Illinois Department of 2003), 138. December Corrections, classes, and 1,170 passed the GED exam. Roger Williams, (Superintendent, School District 428), interview School (Superintendent, Wilen, with Julie exam. Roger Williams, 1,170 passed the GED classes, and 14, 2005. November many ex-offender and the stigma of their criminal background, to. Because of their lack of experience relegated experience are Work: Svenja, “Reducing Recidivism Through Heinrich, mobility.” and temporaryconcentrated in low-wage jobs with no upward of Illinois at Cities Institute, The University IL: Great (Chicago, for Employment of Ex-Offenders,” Barriers and Opportunities 2005 http://www.idoc.state.il.us/subsections/news/archive/2005/200 Feb. 16, monitoring,” news release, agement and sex offender 17, 2005). (accessed November SexOffenderReentry.shtml served than o or (ii) has previously more under this paragraph (4) and has subsequently been convicted of a felony, good credit 730 ILCS 5/3-6-3. facility.” adult correctional sentence of imprisonment for a felony in an 39 37 38 35 36 34 33 30 31 32 29 27 28 26 25 24 23 22 21 Chapter 1:Chapter Employment 116 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 46 45 44 43 42 41 40 Employment Chapter 1: 55 54 53 52 51 50 49 48 47 Illinois Department of Corrections), interview withBenLumpkin,August15,2005. Illinois DepartmentofCorrections), interview can walkintoashopandgetanapprenticeship.” DebbieDenning(DeputyDirector, DepartmentofWomen andFamilyServices, graduate, andsomewomenare takingtheirstateboards before theyare evenreleased, sowhentheygetbacktothecommunity, t have aGEDtoparticipate,andwhichcouldbecompletedinfourmonths.Denningcommentsthat“today, 100percent ofthewomen District 428launchedaprogram totrainfemaleprisonersbecomenailtechnicians—acourseinwhichwomenwouldnotneed take thestateboards, andalotofwomenare notinprisonlongenoughtocompletetheprogram.” Becauseofthis,in2003,Sc GED whononethelesshaveskillsthatcouldleadtojobs,”andmanyprograms “havesomanyhoursofworkexperiencebefore youc trainings andemployment.DebbieDenning,thedivision’s DeputyDirector, noted“there are somewomenthatwillnever getthei GEDrequirement,tional trainingforitsfemaleprisoners:themandatory thelengthofvocationalprograms, andthedisparity The IDOCWomen Divisionhastakentheleadinthisarea byworkingtocircumvent andFamilyServices manyofthebarrierstovo withMichelleLight,September13,2005. Partnerships, SaferFoundation),interview warehousing, constructiontrades,lightmanufacturingandhospitality. JodinaHicks,(Vice President ofPublicPolicyandCommu County. IDOCthenworkedwithspecificgroups todevelopahalf-dozenvocationaltrainingprograms, includingtransportationa openings annuallyinthegeographicregion andthesurrounding towhichmostSheridaninmateswouldreturn—Chicago Cook legislative orgeneralpracticebarrierstohiringpeoplewithcriminalrecords, andfinally, generatinglarge numbersofentry specifically forindustriesthatwouldbewillingtohire peoplewitheducationlevelssomewhere between6thand8thgrade,wit Chicago-area jobmarkettodeterminewhichindustrieswere mostlikelytohavejobsforpeopleleavingprison.Theylooked In preparation forthereopening ofSheridanCorrectional Centerin2004,forinstance,theSaferFoundation conductedastudy correspondence with MichelleLight,July2005. Relief from Disability foralready released individuals.Rochelle Perry, (Acting Director ofPublic Policy, SaferFoundation), the completionand forwarding ofthe applicationtothePRBaspartof theparole process; and(4)trainedparole on theCertif facilitated trainingofallincarcerated individualsontheCertificatesofRelieffrom DisabilityduringPre-Start, andstarte separate letterdescribingtheCRD through theirmanagementinformationsystemduringaninmate’s orientationtothefacility; 2004. ButbyDecember2004,IDOChad(1)trainedwardensin January andstaff onCRD process; (2)integratedthedistribution According littleworkhadbeendonebyIDOCtoimplement thelawimmediatelyafteritwentintoe totheSaferFoundation,very powertorefusebasis ofdiscretionary toissueorre-issue alicense,permit,orotherprivilege. become aproductive memberinsociety. Judicial,administrative,licensing,orotherbodiescanstillrely upontheconviction not apardon anditdoesnoterasetherecord ofacriminalconviction. Itsimplytestifiesthatthestatebelievesindivi It’s importanttonote thathavingeithercertificatedoesnotguaranteeanindividualwillbegrantedalicenseorjob. ties.htm (accessedAugust3,2005). Judicial Circuit Court,“CertificateofRelieffrom Disabilities,”http://www.19thcircuitcourt.state.il.us/self-help/other/reli 1,2004)http://www.ilga.gov/legislation/publicacts/fulltext.asp?name=093-0207(January (accessedAugust3,2005);Nineteenth cient periodoftimehaspassed,dependingonthenature andleveloftheoffense. SeePublicAct093-0207,93rd GeneralAssem Review Board istheonlybodythatcanissueaCGC.There isawaitingperiodandtheapplicationwillbeconsidered onlyifa individual iftheyhavenomore thanonefelonyconviction, spenttimeinprison,andare nownolongerincarcerated. ThePris issued bythePrisonerReviewBoard atthetimeofrelease. Incomparison,CertificatesofGoodConduct(CGC)canbeissuedto issued byaCircuit Court,eitheratthetimeofsentencingorlaterby application.Ifthepersonhasbeenincarcerated, aCR not matterifthatindividualspenttimeinprisonaspartoftheirsentence.Ifthepersonhasbeenincarcerated, aCRD Certificates ofRelieffrom Disabilities(CRD)canbeissuedtoanindividualiftheyhavenomore thanonefelonyconviction. August 3,2005). 1,2004),http://www.ilga.gov/legislation/publicacts/fulltext.asp?Name=093-0914&GA=093Public Act093-0914,(January (accessed http://www.ilga.gov/legislation/publicacts/fulltext.asp?name=093-0207 (accessedAugust3,2005);Illinois.93rd GeneralAssemb Illinois. 93rd GeneralAssembly. 1,2004), PublicAct093-0207(January Glenn Martin,(Co-Director, NationalHIRENetwork),email correspondence withMichelleLight,November10,2005. Institute, 2004),9. Samuels, PaulandDebbieMukamal,“AfterPrison:RoadblockstoReentry,” (NewYork, NY: LegalActionCenter, OpenSociety Licensure Policiesasrelated toEmploymentforEx-Offenders,” (Chicago,IL:TheSaferFoundation,September 2002). Council ofAdvisorstoReduceRecidivismThrough Employment,“AReviewoftheStateIllinoisProfessional andOccupational Licensure Policiesasrelated toEmploymentforEx-Offenders,” (Chicago,IL:TheSaferFoundation,September 2002). Council ofAdvisorstoReduceRecidivismThrough Employment,“AReviewoftheStateIllinoisProfessional andOccupational Corrections, December2003),12. Illinois DepartmentofCorrections, Office ofCommunications,“2003AnnualReport,”(Springfield,IL:IllinoisDepartment Corrections, December2003),12. Illinois DepartmentofCorrections, Office ofCommunications,“2003AnnualReport,”(Springfield,IL:IllinoisDepartment 2005), 15. D.C.: TheUrbanInstitute,May2002),http://www.urban.org/UploadedPDF/410493_PrisonProgramming.pdf (accessedAugust10, Lawrence, Sarah,DanielM.Mears,GlennDubin,andJeremy Travis, “ThePracticeandPromise ofPrisonProgramming,” (Washington liosCretoa nutisAna eotF19 Srnfed L IllinoisDepartmentofCorrections), 21. Illinois Correctional IndustriesAnnualReportFY1998(Springfield,IL: IllinoisDepartmentofCorrections), 21. Illinois Correctional IndustriesAnnualReportFY1998(Springfield,IL: Sue Hoffer, (Spokesperson,IllinoisDepartment ofFinanceandProfessional withTim Regulations),interview Michaels, August 3, (cont.) ef_of_disabili- d toassistwith dual can A certificateis personal -level D canbe can be Itdoes asthe icates of between suffi- (3) h no oner hool of the ly. an 2005. bly, nity hey r nd ffect of a ca- an , MAYORAL POLICY CAUCUS ON PRISONER REENTRY 117 t ts e , te, ton, loy- 7, and t) re quali- n 28, 04 to te, te, iminal cation nal blic lves to 3rd he clerk’s l that the unty to r See 93-0207 Director of Director October 12, 2005, B3. Los Angeles Times, (cont.) Romney, Lee, “A Call to Let Felons Start Fresh: San Francisco Supervisors Urge Deletion of the Question about Prior San Francisco Supervisors Lee, “A Call to Let Felons Start Fresh: Urge Romney, See Tammi Kessel, (Assistant Bureau Chief, Illinois State Police), interview with Tim Michaels, August 19, 2005. Chief, Illinois State Police), interview Kessel, (Assistant Bureau with Tim Tammi at www.napbs.com. this study can be found from The results Sherri Moses, (Director of Policy, Illinois Department of Employment Security), interview with Julie Wilen, October 7, 2005. Security), interview Illinois Department of Employment Wilen, with Julie of Policy, Sherri Moses, (Director Delaware. SB #229. 142nd General Assembly. 1st session, June 22, 2004. 1st session, June SB #229. 142nd General Assembly. Delaware. The Safer Foundation, the Legal Action Center and local advocacy groups have been working on these issues. and local advocacy groups The Safer Foundation, the Legal Action Center www.rapsheets.com and www.marketwire.com. and www.marketwire.com. www.rapsheets.com 2005. internet site claims that its criminal directory for less than $30 apiece. The records. now encompasses 170 million criminal fy as racial discrimination. “Policy Guidance on the Consideration of Act of 1964,” Notice N-915, 2 (Feb. 4, 1987); Equal Employment Opportunity Commission, VII of the Civil Rights Act of 1964,” Notice N-915-061, 2 (Sept. 7, 1990). Title in Employment Decision under Records Arrest checks or asking about prior convictions during job interviews, it does give individuals with cr conducting background ers from qualifications in the application, get beyond the initial paperwork their an opportunity to present and sell themse backgrounds an employer. Public Job Applications,” Felonies from 2005. The City of San Francisco took a bold step recently as elected officials unanimously passed a resolution urging the city and co urging unanimously passed a resolution as elected officials The City of San Francisco took a bold step recently and Community Partnerships, Safer Foundation), interview of Public Policy President with Ben Lumpkin, May 5 Jodina Hicks, (Vice Equal Employment Opportunity Commission, “Policy Statement on the Issue of Conviction Records under Title VII of the Civil Righ under Title Records Equal Employment Opportunity Commission, “Policy Statement on the Issue of Conviction “Study Finds FBI Criminal Database Search Ineffective for Employment Background Checks,” National HIRE Network newsletter, for Employment Background Ineffective “Study Finds FBI Criminal Database Search October 2005, 1-2. with Michelle Light, email correspondence Employment Law Project), National Justice Senior Fellow, Maurice Emsellem, (Soros November 10, 2005. African-Americans and Hispanics, a particularly to the EEOC, statistics show that members of certain minority groups, According processing and needed funding to set up a database to maintain application information. Rochelle Perry, (Acting Director of Pu (Acting Director Perry, information. Rochelle maintain application set up a database to needed funding to and processing with Michelle Light, July 2005. Safer Foundation), personal correspondence Policy, 2003), 40. 2003), 40. December 2004), 3. September Security), interview Illinois Department of Employment Julie Wilen, with (State Bonding Coordinator, Patricia Rusoff, th checks over firm named Rapsheets.com began selling national criminal background In 1997, for instance, a small Memphis-based (January release 20, press Safety,” Workplace Checks to Ensure Conducting Background Increasingly “SHRM Finds Employers Are (accessed November 18, 2005). 2004) http://www.shrm.org/press_published/CMS_007126.asp crimi the EEOC advises employers not to use higher rate than whites. Therefore, and convicted at a disproportionately arrested exclude people of color and consequently because such use may disproportionately as an absolute bar in hiring decisions records emp does not prevent public employment applications. Although this resolution delete the question about prior convictions from La Vigne, Nancy G. and Christine Visher, “Chicago Prisoners’ Experiences Returning Home,” (Washington, D.C.: The Urban Institu Returning “Chicago Prisoners’ Experiences Home,” (Washington, Nancy G. and Christine Visher, La Vigne, (Washing Program” Development Specialists Training Workforce “Administrative Guide: Offender National Institute of Corrections, La Vigne, Nancy G. and Cynthia A. Mamalian, “A Portrait of Prisoner Reentry in Illinois,” (Washington, D.C.: The Urban Institu “A Portrait of Prisoner Reentry Nancy G. and Cynthia A. Mamalian, (Washington, in Illinois,” La Vigne, D.C.: The Urban Institu “A Portrait of Prisoner Reentry Nancy G. and Cynthia A. Mamalian, (Washington, in Illinois,” La Vigne, Currently, CRDs only apply to 18 of the 57 occupational licensing statutes with stipulations related to criminal history. PA 0 PA history. to criminal statutes with stipulations related CRDs only apply to 18 of the 57 occupational licensing Currently, any qualitative descriptions of how the state could conclude that an applicant was indeed “rehabilitated.” The PRB did not fee The PRB was indeed “rehabilitated.” that an applicant the state could conclude descriptions of how any qualitative to handle appli administrative person an needed to hire definition. They also on the direction enough provided statute language Cour County Circuit the state (Honorable Paul Biebel in the Cook is only one judge across there the Safer Foundation, According t by summarily rejected were applications applications. Two Disability motions for Certificate of Relief from who has reviewed denied. Many and two were approved were and considered—two filed Four applications were information. for insufficient office (Acting Perry, the legislation enacting the certificates. Rochelle of not even aware districts were clerks in other municipal with Michelle Light, July 2005. Safer Foundation), personal correspondence Public Policy, i a report Regulations (IDFPR) developed and Professional Foundation, the Illinois Department of Finance to the Safer According January 1, 20 from records individuals with criminal applications from of licensure February and processing the receipt 2005 on denied 1 application, applications, of which they issued 16 licenses, 24 During that period, IDFPR received November 30, 2004. Safe of Public Policy, (Acting Director CRDs. Rochelle Perry, pending. None of the 24 applicants had had 7 applications still Public Act 093-020 General Assembly. occupations. Illinois. 93rd 093-0914 adds 3 additional applies to 15 occupations, and PA (accessed August 3, 2005); Illinois. 9 (January 1, 2004) http://www.ilga.gov/legislation/publicacts/fulltext.asp?name=093-0207 Act 093-0914, (January Public 1, 2004) http://www.ilga.gov/legislation/publicacts/fulltext.asp?name=093- General Assembly. 0914&GA=093 (accessed August 3, 2005). 1. D.C.: U.S. Department of Justice, August 2004), According to the Safer Foundation, the Prisoner Review Board the Prisoner Review the Safer Foundation, to According (PRB) was concernedwithou “rehabilitated” deeming applicants about Foundation), personal correspondence with Michelle Light, July 2005. with Michelle Light, July correspondence Foundation), personal 77 76 75 74 72 73 70 71 68 69 67 65 66 63 64 61 62 59 60 58 57 56 Chapter 1:Chapter Employment 118 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 84 83 82 81 80 79 78 Employment Chapter 1: 96 95 94 93 92 91 90 89 88 87 86 85 Frequent?” (Chicago,IL:Project Match,2005),http://www.pmatch.org/rp_update_apr_ofive.pdf (accessedAugust9,2005). Wagner, SuzanneL.,CharlesChang, andToby Herr, “AdvancementAmongProject MatchParticipants:HowFar?Fast? withJulieWilen,Security), emailinterview October19,2005. tance, resume preparation, SherriMoses,(Director referrals ofPolicy, andfollow-upservices. IllinoisDepartmentofEmploym matches. Thisprogram isstillbeingfullydevelopedtoprovide assessment,jobskillsmatching,readiness andjobsearch Liaison istrainedtoassistindividualswithcriminalbackgrounds intheirjobsearch andworkdirectly withemployerstofaci Program”Service (RESP)atall52localIDESoffices across thestate,includingChicagoWorkforce Centers.Ateachoffice improve delivery, service Employment theIllinoisDepartmentofEmploymentSecurity(IDES)recently launchedanew“Reentry Ricki Lowitz,(Program Officer, withBenLumpkin,April20,2005.However, LocalInitiativesSupportCorporation),interview t newsletter, November2005,1-4. Love, Margaret Colgate,“StateLawsLimitingConsiderationofConvictioninEmploymentandLicensure,” NationalHIRENetwork or stateprison,intojobs.Itwas signed intolawonJuly18,2003,butnomonieshaveeverbeenappropriated tofundthispr Corrections mayestablishapilotprogram toplacehard-to-employ persons,includingpersonswhohavebeenreleased from acoun Illinois. 93rd GeneralAssembly. Public Act093-0208(July18,2003).This bill pr http://www.transitionaljobs.net/Resources/Downloads/TJProgramsRealJobsWagesSuccess.pdf (accessed November17,2005). National Transitional JobsNetwork,“Transitional Jobs:RealJobs,Wages, RealSuccess,”April2005, Policy Research, Inc.,2002),x. Kirby, Gretchen etal.,“Transitional JobsPrograms: SteppingStonestoUnsubsidizedEmployment,”(Princeton,N.J.:Mathemati October 11,2005. their release. BarbHerber, (InterimWOTCCoordinator, withJulieWilen, Illinois DepartmentofEmploymentSecurity),interview program. Anadditional330incarcerated individualswere certified whilestillinprisontoassistthemlookingforemploym whowere employedandwhoseemployers requestedcategory certificationtoreceive credits undertheWork OpportunityTax Credit From October2004toJune2005,theIllinoisDepartmentofEmployment Securitycertified579individualsunderthe“ex-felon” 2005. Patricia Rusoff, (StateBondingCoordinator, withJulieWilen, IllinoisDepartmentofEmploymentSecurity),interview September (accessed November17,2005). http://www.uses.doleta.gov/wotcdata.asp See U.S.DepartmentofLabor, EmploymentandTraining Administration,“WhatistheWork OpportunityTax Credit?” (accessed November17,2005). http://www.ides.state.il.us/pdf/employers/fidelitybond.pdf InsuranceforYour Employees,” See “FederalBonding: Program,”Prisoner Reentry (Washington, 2004),15. D.C.:TheUrbanInstitute,January Solomon, AmyL.,MichelleWaul, AshleyVan NessandJeremy Travis, “OutsidetheWalls: ANationalSnapshotofCommunity-Based Program,”Prisoner Reentry (Washington, 2004),14. D.C.:TheUrbanInstitute,January Solomon, AmyL.,MichelleWaul, AshleyVan NessandJeremy Travis, “OutsidetheWalls: ANationalSnapshotofCommunity-Based 4,2006. with MichelleLight,January LindaKaiser, (ExecutiveDirector, ChicagoWorkforce Board), correspondence employment informationandoccupationalprojections. CWBchosetheseindustriesbasedonacombinationoflabormarketdynamics, occupations keytoourlocal(andregional) economy. Since2002,theChicagoWorkforce Board (CWB) hastargeted theseindustriesasnotablehighgrowth pitality, tourismandretail. Examples wouldbehealthcare, manufacturing,transportation,warehousing andlogistics,technology, financeandinsurance, 2005. Will Edwards, (Director ofWorkforce SolutionsUnit,Mayor’s Office ofWorkforce with Ben Lumpkin,May Development),interview 2005), 4. “Big Shoulders,BigChallenges:Preparing Chicago’s Workforce fortheNewEconomy,” (Chicago,IL:ChicagoJobsCouncil,Septem One model, 1998), http://newfederalism.urban.org/html/anf25.html (accessedNovember18,2005). and JenniferDickemperHicks,“JobProspects forWelfare Recipients:EmployersSpeakOut,”(Washington, D.C.:TheUrbanInsti http://urbaninstitute.org/UploadedPDF/410803_PositiveRole.pdf (accessedNovember18,2005);Regenstein,Marsha,JackA.Meyer, from RoundtableMeeting,March theUrbanInstituteReentry 20-21,2002), Holzer, (workingpa J.,StevenRaphael,andMichaelStoll,“CanEmployersPlayaMore PositiveRoleinPrisonerReentry?” Harry IL: Project Match,1990). Olson, Lynn, LinneaBerg, andAimeeConrad,“HighJobTurnover AmongtheUrbanPoor:TheProject MatchExperience”(Chicago, with JulieWilen, October 24,2005. already atestingandscoringsitefor [www.act.org/workkeys/overview/prod.html] thatisusedbyseveralstatestodeterminepreparedness. TheCityCollegesofChica States ofNewYork, NewJersey, FloridaandWashington. Anotheroptionforworkreadiness assessment isACT’s Institute forLiteracy[www.nifl.gov.eff.html] initiallytoguideandimprove adultliteracyprograms, andiscurrently beingp locations across now, thecountry includingtwositesinIllinois.Anothermodel, Diane Williams, (President, SaferFoundation),emailcorrespondence withMichelleLight,October17,2005. “Work Certified” [www.workcertified.org] wasoriginallydeveloped byaWorkforce Board inFloridabutisuseddifferent (cont.) Workkeys . LindaKaiser, (ExecutiveDirector, ChicagoWorkforce Board), emailcorrespondence Equipped fortheFuture ovides that the Departments of Human Services and ovides thattheDepartmentsofHuman Services was developedbytheNational Workkeys ogram. iloted inthe litate job assis- , aRESP ent after ent ty jail ca 28, o per go is hos- tute, ber 5, MAYORAL POLICY CAUCUS ON PRISONER REENTRY 119 1- au , the onth erly , n, 1999). ted ore than ore ers, such een h a simi- 47, no.3 al their aw, which aw, March 2002, March 2002, March March 2002, March of criminal records sealing Crime & Delinquency , August 3, 2003. The Daily Herald March 24, 2001. March “Summary of 20 ILCS 2630/5 as Amended by P.A. 93-210, P.A. 93-211, 93-210, P.A. “Summary ILCS 2630/5 as Amended by P.A. of 20 See Illinois Issues, The Health Status of Soon-To-Be-Released Inmates: A Report to Congress, The Health Status of Soon-To-Be-Released Inmates: A Report to Congress, The Health Status of Soon-To-Be-Released The Health Status of Soon-to-be-Released Inmates: A Report to Congress, for felony convictions. for felony convictions. (cont.) expungement Harrison, Paige M. and Allen J. Beck, “Prisoners in 2003,” (Washington, D.C.: Bureau of Justice Statistics, 2004). of Justice Statistics, 2004). D.C.: Bureau Harrison, Paige M. and Allen J. Beck, “Prisoners in 2003,” (Washington, also Dr. Nader Tobia (Medical Director, Stateville Reception and Classification Center), interview with Ben Lumpkin, August 9, 2005. (Medical Director, Nader Tobia Dr. Keith, “Checking Up on Prison Health Care,” Ryan, Dr. Nader Tobia (Medical Director, Stateville Reception and Classification Center), interview with Ben Lumpkin, August 9, 2005. (Medical Director, Nader Tobia Dr. Stateville Reception and Classification Center), interview with Ben Lumpkin, August 9, 2005. (Medical Director, Nader Tobia Dr. Peterson, Eric, “Why inpatient treatment for mentally ill is dwindling,” Peterson, Eric, “Why inpatient treatment See 2005), 5. Stateville Reception and Classification Center), interview with Ben Lumpkin, Aug. 9, 2005. (Medical Director, Nader Tobia Dr. Mallik-Kane, Kamala, “Returning Home Illinois Policy Brief: Health and Prisoner Reentry” (Washington, D.C.: The Urban Institute Mallik-Kane, Kamala, “Returning Home Illinois Policy Brief: Health and Prisoner Reentry” (Washington, Services” at Urban Institute ReentryAnno, B. Jaye, “Prison Health Care (working paper presented Roundtable Meeting, December 1 National Commission on Correctional Health Care, National Commission on Correctional Cermak Health Services, of Health Services), Cook County Bureau email correspon- Chief Operating Officer, Jack Raba (Former Dr. October 19, 2005. dence with Julie Wilen, Ditton, Paula M., “Mental Health and Treatment of Inmates and Probationers,” (Washington, D.C.: Bureau of Justice Statistics, D.C.: Bureau (Washington, of Inmates and Probationers,” Ditton, Paula M., “Mental Health and Treatment Health Care, National Commission on Correctional Health Care, National Commission on Correctional Karberg, Jennifer and Doris James, “Substance Dependence, Abuse, and Treatment of Jail Inmates, 2002,” (Washington, D.C.: Bure of Jail Inmates, 2002,” (Washington, Dependence, Abuse, and Treatment Jennifer and Doris James, “Substance Karberg, A National Snapshot of Community-Based “Outside the Walls: Travis, Ness and Jeremy Asheley Van Waul, Michelle Solomon, Amy, D.C.: The Urban Institute, 2004), 49. (Washington, Reentry Programs” “Health-Related Issues in Prisoner Reentry,” M., CherylHammett, Theodore and Sofia Kennedy, Roberts (2002): 390-409. November 29, 2005). (accessed http://www.ncchc.org/stbr/Volume1/Health%20Status%20(vol%201).pdf 12, 2002), 5. Mumola, Christopher, “Substance Abuse and Treatment, State and Federal Prisoners, 1997,” (Washington, D.C.: Bureau of Justice D.C.: Bureau Federal Prisoners, 1997,” (Washington, State and “Substance Abuse and Treatment, Mumola, Christopher, Statistics, 1999), 1. of Justice Statistics, 2005), 1. November 29, 2005), xi. (accessed http://www.ncchc.org/stbr/Volume1/Health%20Status%20(vol%201).pdf November 29, 2005), xi. (accessed http://www.ncchc.org/stbr/Volume1/Health%20Status%20(vol%201).pdf Lisa Hampton, (Senior Policy Associate, Chicago Jobs Council), interview with Tim Michaels, August 29, 2005. interview Policy Associate, Chicago Jobs Council), Lisa Hampton, (Senior with Tim at http://www.ides.state.il.us/ExOffenders/. The website can be accessed October 31, 2005. interview Policy Associate, Chicago Jobs Council), Lisa Hampton, (Senior with Julie Wilen, “Chicago Small Business Assistance Center,” http://egov.cityofchicago.org/city/csbac/home.do (accessed August 13, 2005). (accessed http://egov.cityofchicago.org/city/csbac/home.do Assistance Center,” “Chicago Small Business Margaret Soffin, (Attorney and Director of Criminal Records Program, Cabrini Green Legal Aid Clinic), interview Cabrini Green with Julie Wile Program, (Attorney of Criminal Records and Director Soffin, Margaret illiterate people have high school equivalency degrees; 1,000 participants have graduated with a diploma from the state accredi the state a diploma from have graduated with 1,000 participants equivalency degrees; have high school illiterate people October 11, 2005. In Illinois, there is no is In Illinois, there “Department Overview,” http://egov.cityofchicago.org/city/webportal/portalEntityHomeAction.do?entityName=Business+Affairs+and+ “Department Overview,” Licensing&entityNameEnumValue=147&Failed_Reason=Invalid+timestamp,+engine+has+been+restarted&com.broadvision.session.ne 17, 2005). (accessed November w=Yes&Failed_Page=%2fwebportal%2fportalEntityHomeAction.do First Defense Legal Aid, Legal Aid Clinic, Chicago Jobs Council, included the Cabrini Green Collaborative The Criminal Records Legal Aid Clinic, 2005. State laws which apply to 93-1084,” Chart published by Cabrini Green and P.A. The Delancey Street Foundation, “Main Page,” http://www.eisenhowerfoundation.org/grassroots/delancey/ (accessed November 17, (accessed “Main Page,” http://www.eisenhowerfoundation.org/grassroots/delancey/ Foundation, Street The Delancey low-income Foundation: over 1,500 Delancey Street the work of the through have been achieved following outcomes 2005). (The form trade; over 10,000 trained in the construction individuals have been participants and 800 have been built by housing units three-year vocational program; and the program has moved about 10,000 violent gang members away from gangs). 10,000 violent gang members away from has moved about and the program program; vocational three-year and the Safer Foundation. Center on Poverty Law, Shriver National Sargent to file a petition to se In 2004, Illinois passed a law allowing people General Assembly. by the been considered have recently misdemeanor arrest and conviction records. Illinois. 93rd General Assembly. PA 93-0211 (January 1, 2004). Effective January 93-0211 (January 1 1, 2004). Effective PA General Assembly. Illinois. 93rd and conviction records. misdemeanor arrest being convicted, if the conviction has b without has been acquitted or released 2004, this law authorized sealing if the person reversed, or if a certain period of time has passed after the person has completed their supervision or if a certain period of time has passed after the person has completed their reversed, l or the sentence. A new after going throug abuse and prostitution sealing of convictions for Class 4 felony drug on June 1, 2005, addresses took effect individuals with m 93-1084 (January 1, 2004). Under the new law, PA General Assembly. Illinois. 93rd lar petition process. one felony cannot seal their records. And in any case, law enforcement authorities may still access the records; so can employ still access the records; authorities may And in any case, law enforcement one felony cannot seal their records. within a m must pass a drug test to seal drug records People seeking by law to check backgrounds. required as schools, who are years after the conviction. least three the sealing. Applicants must also wait at and authorities can protest of the request, 17 14 15 16 12 13 10 11 8 9 6 7 4 5 3 1 2 Chapter 2: Health 105 103 104 101 102 99 100 98 97 Chapter 1:Chapter Employment 120 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 29 28 27 26 25 24 23 22 21 20 19 18 Health Chapter 2: 44 43 42 41 40 39 38 37 36 35 34 33 32 31 30 Community, Olson, DavidE.,RebeccaJuergens andStevenP. Karr, http://www.idoc.state.il.us/subsections/reports/statistical_presentation_2003/part1.shtml (accessedJuly19,2005),Figure 3. Illinois DepartmentofCorrections, “StatisticalPresentation 2003”(Springfield,IL:IllinoisDepartmentofCorrections, 2004) (accessed July19,2005). Blagojevich, Rod,“StateoftheStateAddress” (speech,Springfield,Illinois,March 12,2003),http://www.illinois.gov/gov/sos 12, 2002),6. RoundtableMeeting,December1 (workingpaperpresentedAnno, B.Jaye,“PrisonHealthCare atUrbanInstituteReentry Services” 12, 2002),6. RoundtableMeeting,December1 (workingpaperpresentedAnno, B.Jaye,“PrisonHealthCare atUrbanInstituteReentry Services” 2005). National CommissionsonCorrectional HealthCare, “Accreditation,” http://www.ncchc.org/accred/index.html, (accessedJuly30, Prisoner Reentry, September22,2004). R. ScottChavez, Vice President ofNational CommissiononCorrectional Health Care (presentation, ChicagoMayoralPolicy Caucus with BenLumpkin,August10,2005. Haymarket Center), interview Individuals leavingCookCounty Jailtypicallyare givennomedicationatall.Dr. DanLustig (AssociateDirector ofClinical Nancy LaVigne andChristyVisher, Home”(Washington, “ChicagoPrisoners’Experiences Returning D.C.:TheUrbanInstitute,200 In Chicago,a2004studyfound that fully81percent tothecitydidnothavehealthinsurance.Castro, ofprisonersreturning Institute, 2004),12. Castro, Jennifer, NancyLaVigne andChristy Visher, Home”(Washington, “ChicagoPrisoners’ExperiencesReturning D.C.:TheUr Delaware (presentation, ChicagoMayoralPolicy CaucusonPrisonerReentry, September22,2004). Robert Hooper, StrategicSolutionsforPublicSafety, clinicianwhodeveloped Key-Crest SubstanceAbuseTreatment Program in “Progress ReportonSheridan,” Institute, 2005),1. Winterfield, LauraandJenniferCastro, HomeIllinois PolicyBrief:Treatment “Returning Matching”(Washington, D.C.:TheUrba WorkingCommunity Safety&Reentry Group, October6,2005. Melody Heaps(President, Treatment forSafeCommunities),remarks madeatCommissionmeeting,Governor’s Alternatives (accessed September29,2005). http://www.nami.org/Template.cfm?Section=By_Illness&template=/ContentManagement/ContentDisplay.cfm&ContentID=13693 National AlliancefortheMentallyIll,“DualDiagnosisandIntegrated Treatment ofMentalIllnessandSubstanceAbuseDisorder and SubstanceUseDisorders inJails,”(Delmar, NY: PolicyResearch Associates,2002). National GAINSCenterforPeoplewithCo-OccurringDisorders intheJusticeSystem,“ThePrevalance ofCo-OccurringMentalIlln See also Ditton, PaulaM.,“MentalHealthandTreatment ofInmatesandProbationers,” (Washington, D.C.:Bureau ofJusticeStatistics, http://www.icjia.state.il.us/public/pdf/Criminal%20Justice$20Plan/StateCriminalJusticePlan.pdf (accessedDecember7,2005),60. “Criminal JusticePlanfortheStateofIllinois,”June2001, stance abusetreatment, andjustover3,100treatment bedsare available.”SeeIllinoisCriminalJusticeInformationAuthority “IDOC dataindicatesthat57percent ofadultmaleoffenders and63percent offemaleadultoffenders inprisonare inneedof Community, Olson, DavidE.,RebeccaJuergens andStevenP. Karr, Statistics, 1999). Mumola, Christopher, “SubstanceAbuseandTreatment, StateandFederalPrisoners,1997,”(Washington, D.C.:Bureau ofJustice July 19,2005). program participants,” Program:Reentry nationalexpertscommendprogram forpromising earlyresults showingreduction incrimeandrecidivism among ofSheridanNationalModelDrugPrison& Blagojevichmarksone-yearanniversary Illinois DepartmentofCorrections, “Governor Community, Olson, DavidE.,RebeccaJuergens andStevenP. Karr, November 15,2005). program participants,” Program:Reentry nationalexpertscommendprogram forpromising earlyresults showingreduction incrime andrecidivism among ofSheridanNationalModelDrugPrison& Blagojevichmarksone-yearanniversary Illinois DepartmentofCorrections, “Governor Petersilia, Joan, recidivism.htm (accessedJuly12,2005). TrendsU.S. DepartmentofJustice,Bureau ofJusticeStatistics,“Reentry intheUS:Recidivism,http://www.ojp.usdoj.gov/bjs/r Petersilia, Joan, information.asp?instchoice=she (accessedJuly19,2005). Illinois DepartmentofCorrections, “SheridanCorrectional Center,” http://www.idoc.state.il.us/subsections/facilities/ Harrison, PaigeM.andAllenJ.Beck,“Prisonersin2003,”(Washington, D.C.:Bureau ofJusticeStatistics,2004). (Chicago, IL:IllinoisCriminalJusticeInformationAuthority, 2004),2. (Chicago, IL:IllinoisCriminalJusticeInformationAuthority, 2004), 2. (Chicago, IL:IllinoisCriminalJusticeInformationAuthority, 2004), 2. When PrisonersComeHome:Parole andPrisonerReentry When PrisonersComeHome:Parole andPrisonerReentry IDOC News, IDOC News, (cont.) Answers toAddiction http://www.idoc.state.il.us/subsections/news/archive/2005/2005-Sheridan1YrAnniv.shtml (accessed http://www.idoc.state.il.us/subsections/news/archive/2005/2005-Sheridan1YrAnniv.shtml (accessed newsletter publishedbytheGatewayFoundation,November2, 2005. Impetus andimplementationoftheSheridanCorrectional CenterTherapeutic Impetus andimplementationoftheSheridanCorrectional CenterTherapeutic Impetus andimplementationoftheSheridanCorrectional CenterTherapeutic (New York: Oxford UniversityPress, 2003),48. (New York: Oxford UniversityPress, 2003),48. speech.cfm Services, , , eentry/ Jennifer, sub- 1999). ,”

4), 3. n ban 1- 1- on ess MAYORAL POLICY CAUCUS ON PRISONER REENTRY 121 on on ng , 82 , poli- ” with with aid 2004); federal ates of People the to le for entive) pon , 2005). for SSI, d amount ), 28. rtant legal (cont.) Dr. Dan Lustig (Associate Director of Clinical Services, Director Dan Lustig (Associate Haymarket Center), interview with Ben Lumpkin, August 10, 2005. Dr. of Clinical Services, Director Dan Lustig (Associate Haymarket Center), interview with Ben Lumpkin, August 10, 2005. Dr. John Fallon (Coordinator of Demonstration Projects, Thresholds), interview Thresholds), with Ben Lumpkin, June 15, 2005. Projects, of Demonstration John Fallon (Coordinator interview Thresholds), with Ben Lumpkin, June 15, 2005. Projects, of Demonstration John Fallon (Coordinator 20 Ill. Adm. Code 107.20 (2005). 20 Ill. Adm. Code 107.20 Services, of Clinical Dan Lustig (Associate Director Haymarket Center), interview 2005. with Ben Lumpkin, August 10, Dr. http://www.idoc.state.il.us/subsections/reports/statistical_presentation_2003/2003StatisticalPresentation.pdf (accessed July 19 http://www.idoc.state.il.us/subsections/reports/statistical_presentation_2003/2003StatisticalPresentation.pdf this information is sent within 30 days of $400 when The institution receives birth, confinement dates and other information. arrival, and $200 if it is sent within 90 days. 42 U.S.C. § 1382(e)(1)(I) as amended by Public Law 104-193 (SSI inc prisoner’s and 42 U.S.C. § 402(x), as amended by Public Law 106-170 (SSDI incentive). 2005), 3. Section 1631(m) of the Social Security Act, 42 U.S.C. § 1383(m). at POMS SI 00520.900, and cy.ssa.gov/poms.nsf/lnx/0500520900 May 25, 2004. Homelessness” Memo to State Medicaid Directors, Chronic 2002). for Mental Health Law, D.C.: Judge David L. Bazelon Center (Washington, Incarceration.” Release from Prison: Four State Case Studies. for People with Mental Illness Released from Access to Medicaid and SSI/SSDI “Ensuring Timely Council of State Governments, 2005). (Lexington, KY: with Julie Wilen, Chicago Department of Public Health), email correspondence Program, of Substance Abuse (Director Kelvy Brown facilities, recovery homes and treatment available, residential is readily October 17, 2005 (although outpatient drug treatment have lengthy waiting lists). methadone maintenance programs Richard Guzman (Manager, Office of Reentry Management and Placement Resource Unit, Illinois Department of Corrections), email Unit, Illinois Department of Corrections), of Reentry Management and Placement Resource Office Guzman (Manager, Richard October 11, 2005. with Julie Wilen, correspondence & Medicaid Services). Centers for Medicare “Endi Group, of Disabled and Elderly Health Programs Glenn Stanton (Acting Director Access to Benefits for Individuals with Psychiatric Disabilities u “Building Bridges: An Act to Reduce Recidivism by Improving Mallik-Kane, Kamala, “Returning Home Illinois Policy Brief: Health and Prisoner Reentry” (Washington, D.C.: The Urban Institute Mallik-Kane, Kamala, “Returning Home Illinois Policy Brief: Health and Prisoner Reentry” (Washington, Operations Manual System (“POMS”) (available online at the SSA website, http:// See the Social Security Administrations Program procedure is for SSI, but when jails or prisons have a pre-release for SSDI as there procedure is actually no pre-release There Illinois Department of Corrections, “Statistical Presentation 2003” (Springfield, IL: Illinois Department of Corrections, 2004 2003” (Springfield, IL: Illinois Department of Corrections, “Statistical Presentation Illinois Department of Corrections, d of prisoners’ names, Social Security numbers, monthly reports with SSA to provide Jails and prisons can enter into agreements Prisoner Reentry, September 22, 2004). September 22, Prisoner Reentry, 2005). (accessed November 29, follow-up studies some of the original plans [e.g., conducting 3, 2005 (although DataLink is still active, Ben Lumpkin, August cut back due to lack of funding). have been recidivism] of reducing determine effectiveness September 22, 2004). Prisoner Reentry, services. and medical have for both mental health care entitlement that people with mental illness An individual can be eligib can qualify. those in financial need It is a “means-tested” program—only of income and resources. adjusted by the periodically Benefit amounts are by Social Security. covered SSI even if they have never worked in employment government. “For main sources: three as it pertains to SSI, SSDI and Medicaid is derived from The following information describing the law they can also use them to help SSDI recipients. Chris Koyanagi (Policy Director, Judge David L. Bazelon Center for Mental Health Law), email correspondence with Michelle Light Judge David L. Bazelon Center for Mental Health Law), email correspondence Chris Koyanagi (Policy Director, R. Scott Chavez, Vice President of National Commission on Correctional Health Care (presentation, Chicago Mayoral Policy Caucus (presentation, Health Care of National Commission on Correctional President R. Scott Chavez, Vice Chicago with Medical or Mental Impairments (presentation, on Offenders Office Correctional the Texas of Director Dee Wilson, September 22, 2004). on Prisoner Reentry, Mayoral Policy Caucus the most impo that pays medical bills for eligible people. It is probably Medicaid is a joint federal-state assistance program Security Income (SSI) and Social Security Disability two programs—Supplemental The Social Security Administration administers too disabled to work. SSDI is for payments to men and women who are monthly income-support Income (SSDI)—which provides with limite SSI is for people to qualify. taxes for at least 10 years in order people who have worked and paid Social Security Public Act 094-0182, 94th General Assembly (July 12, 2005), http://www.ilga.gov/legislation/publicacts/fulltext.asp?Name=094-01 Public Act 094-0182, Cermak Health Services’ and Chief Psychologist, Carl Alaimo (Director Health Division, Cook County Jail), interview Mental Dr. R. Scott Chavez, Vice President of National Commission on Correctional Health Care (presentation, Chicago Mayoral Policy Caucus Chicago (presentation, Health Care on Correctional of National Commission President Vice R. Scott Chavez, Cermak Health Services’ Chief Psychologist, and (Director Carl Alaimo, Jail), interview Division, Cook County Mental Health Dr. August 3, 2005. Ben Lumpkin, November 17, 2005. An Explanation of Federal Medic Jail to Community: from to Successful Transition with Serious Mental Illness: Finding the Key What 2001); “Arrested? D.C.: Judge David L. Bazelon Center for Mental Health Law, Rules” (Washington, and Disability Program L. Bazelon Center for Mental Health Law, D.C.: Judge David Go to Jail or Prison” (Washington, You Benefits if Happens to Your in the Justice System, “Maintaining Medicaid Benefits for Jail Disorders National GAINS Center for People with Co-Occurring Associates, 2004). Policy Research NY: (Delmar, and Substance Abuse Disorders” Detainees with Co-Occurring Mental Health 70 68 69 67 65 66 63 64 62 61 59 60 57 58 55 56 54 52 53 51 49 50 47 48 45 46 Chapter 2:Chapter Health 122 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 81 80 79 78 77 76 75 74 73 72 71 Health Chapter 2: 91 90 89 88 87 86 85 84 83 82 4 3 2 1 Family Chapter 3: “Getting Off theMerry-Go-Round,” Army (SantaMonica,CA:DrugPolicyResearch Center, RAND,1994). Rydell, C.PeterandSusanS.Everingham,“Controlling Cocaine,”prepared fortheOffice ofNationalDrugControl PolicyandU. acute traumaticdistress). ple, ofHaymarket’s substance-abusingclients,68percent suffer from acutementaldistress, and44percent havebeendiagnosed Dr. withBenLumpkin,August10,2005(Forex HaymarketCenter),interview DanLustig(AssociateDirector ofClinicalServices, their Families,”April24,2001,12. IssuesandtheirImpactonPeoplewithDevelopmentalDisabilities andSupports:HistoricalPerspectives,Contemporary Services Ben Lumpkin,August3,2005.See Dr. MentalHealthDivision,CookCountyJail),interview CarlAlaimo(Director andChiefPsychologist,CermakHealthServices’ Subcomittee,” October27,2005. MemotoallCommissionersofCookCounty, Illinois:“ReportoftheHealthandHospitalsPublic Harris, Michelle. of Treatment Programs, CookCountyState’s Attorney’s Office), emailcorrespondence with Julie Wilen, 9,2006. January “State’s Attorney’s DrugSchoolProgram HighlightsandOutcomeData,”updated continuously, provided byMarkKammerer (Director with JulieWilen, November 1,2005. Albert J.Pizza,LCSW(ClinicalSupervisor, Treatment forSafeCommunities,MentalHealthCourtProgram), Alternatives intervie with JulieWilen, November 10,2005. Team(Crisis Intervention Coordinator andMentalHealthDisabilitiesLiaison,ChicagoPoliceDepartment),emailcorresponde Team,Presentation byChicagoPoliceDepartmentCrisisIntervention Research andDevelopment Division.LieutenantJeffry Murphy (Director ofTreatment Programs, CookCountyState’s Attorney’s Office), emailcorrespondence withJulieWilen, November10,20 “Drug Treatment Programs Report:ImpactofRAPonSubsequentCriminalActivity,” June29,2005,provided byMarkKammerer (accessed November16,2005),1. Law, 2001),http://www.bazelon.org/issues/criminalization/factsheets/pdfs/pre-booking_diversion.pdf “Pre-Booking Diversion:LawEnforcement DiversionPrograms” (Washington, D.C.:JudgeDavidL.BazelonCenterforMentalHealth with JulieWilen, November 10,2005. Team“Crisis Intervention Program Report,”provided byOfficer Loaiza,ChicagoPoliceDepartment, emailcorrespondence Rosemary withJulieWilen,Department), interview onOctober24,2005. TeamLieutenant Jeffry Murphy(CrisisIntervention Coordinator andMentalHealthDisabilities Liaison,ChicagoPolice Hart-Poll.pdf (accessedAugust18,2005),11. 2002,http://www.soros.org/initiatives/justice/articles_publications/publications/hartpoll_200Open SocietyInstitute,February Peter D.HartResearch Associates,Inc.,“ChangingPublicAttitudestoward ofFindings,”T theCriminalJusticeSystem:Summary release, March 3,2003,http://www.iadda.org/survey.pdf (accessedAugust18,2005). findsIllinoisvotersbelieveaddictionisapublichealthissue,” Illinois AlcoholismandDrugDependenceAssociation,“Survey “Summary.” Lynch, JamesandWilliam Sabol,“DidGettingTough onCrimePay?”(Washington, D.C.:TheUrbanInstitute,1997)under websiteathttp://consensusproject.org/projects/fiscal/fact_fiscal_implicationsState Governments (accessedonNovember18,200 Meanwhile, Thresholds onlycostsaround $26perday. the expenseofarrest andbooking.Theyalsospentabout1,800fewerdaysinpublicpsychiatrichospitals,forsavingsof$500 pants studiedspentapproximately 2,200dayslessinjailthantheyearpreceding theirparticipation,forsavingsof$70 pe Information availableathttp://www.thresholds.org/jailtables.asp. DuringayearintheThresholds program, the30program pa For example,theThresholds PostCare Program approximately canonlyserve 40peopleperyear. John Fallon(Coordinator ofDemonstrationProjects, withBenLumpkin,June15,2005. Thresholds), interview John Fallon(Coordinator ofDemonstrationProjects, withBenLumpkin,June15,2005. Thresholds), interview Terrence withBenLumpkin,May5, 2005. Johnson,interview See www.gainscenter.samhsa.gov/pdfs/spotlight/TCE_grantee_Spotlight.pdf. Institute ofJustice, 2004),1. Bobbit, Mikeand MartaNelson,“TheFront Line:Building Programs (NewYork, thatRecognizeFamilies’ RoleinReentry” NY: Ver Institute, 2004),8. Castro, Jennifer, NancyLaVigne andChristy Visher, “ChicagoPrisoner’s Home” (Washington, ExperiencesReturning D.C.:The Urb chapter. significant otherswhoare connectedtoafamilynetwork.Butwewillusethereference to“family”asourshorthandthroughou always bedeterminedbykinship orbloodline.Itmayincludefathers,mothers,grandparents, children, siblings,cousins,frie We recognize thatfamiliesmaytakemanydifferent formsandhavemanydifferent meanings.“Family,” broadly defined,maynot Shapiro, Carol, “Coming Home: BuildingonFamilyConnections,” (cont.) Catalyst also Illinois CoalitionforPeoplewithDisabilities,“AReportonIllinois’CommunitySystemof newsletter publishedbytheSaferFoundation,Winter 2005. See also Criminal Justice/MentalHealthProject coordinated bytheCouncilof The Corrections ManagementQuarterly vol. 5,no.3(2001): 52-61. r dayplus news 20201/ nds, and perday. rtici- t this 5). with w S. with and he am- nce 05. a an MAYORAL POLICY CAUCUS ON PRISONER REENTRY 123 is-

. nes” ad no .: et al.,” of with 001

grams in e, 2000), 4, 2005); vol. 5, no. 3 (2001): 52-61. From Prisons to Home Conference Prisons to Home From (2002), Survey of Inmates in State and Federal Correctional Survey of Inmates in State The Fourth North American Conference on the Family The Fourth North American Conference Maintaining Family Contact When a Family Member Goes Maintaining Family Contact When a Family Member Goes Maintaining Family Contact When a Family Member Goes Maintaining Family Contact When a Family Member Goes Maintaining Family Contact (Tallahassee, 1998), http://www.fcc.state.fl.us/fcc/reports/ (Tallahassee, 1998), (Tallahassee, 1998), (Tallahassee, (Tallahassee, 1998), (Tallahassee, The Fourth North American Conference on the Family & The Fourth North American Conference Osborne Today The Corrections Management Quarterly The Corrections (cont.) (Quebec City, Canada: October 10-12, 1993) http://www.fcnetwork.org/4thnorth/someone.html (accessed November 5, Canada: October 10-12, 1993) http://www.fcnetwork.org/4thnorth/someone.html (Quebec City, (Quebec City, Canada: October 10-12, 1993) http://www.fcnetwork.org/4thnorth/children.html (accessed November 5, (accessed November October 10-12, 1993) http://www.fcnetwork.org/4thnorth/children.html Canada: (Quebec City, 1997, conducted by the Bureau of Census, 2000 (54 percent of prisoners from homes within 50 miles of their prison had homes of prisoners from of Census, 2000 (54 percent 1997, conducted by the Bureau Gail T. Smith (Executive Director, Chicago Legal Advocacy for Incarcerated Mothers), interview with Ben Lumpkin, June 15, 2005. Chicago Legal Advocacy for Incarcerated Smith (Executive Director, Gail T. Shapiro, Carol, “Coming Home: Building on Family Connections,” “Coming Carol, Shapiro, visits. See O’Brien, Patricia and Robin Bates. “Formerly Incarcerated Women’s Recidivism and Reintegration” (Washington, D.C Reintegration” (Washington, Recidivism and Women’s visits. See O’Brien, Patricia and Robin Bates. “Formerly Incarcerated (accessed November 1, 2005). National Institute of Justice, 2003), http://www.uic.edu/jaddams/college/research/womens.html Florida House of Representatives, Justice Council, Committee on Corrections, Justice Council, Committee on Corrections, Florida House of Representatives, Justice Council, Committee on Corrections, Florida House of Representatives, Corrections 2005). & Corrections 2005). than women who h after release less likely to be arrested child, or mother were a partner, found that women who had visits from Justice Council, Committee on Corrections, Florida House of Representatives, Access and Telephone to Prison: An Examination of State Policies on Mail, Visiting, Contracts and Commissions.” family/famcont.html (accessed, July 18, 2005), under “Exhibit 12: Telephone Corp, MCI Telecommunications Invision Telecom, State of Illinois, AT&T, Center for Constitutional Rights, “Docket: Arsberry v. July 15, 2005). (accessed http://www.ccr-ny.org/v2/legal/justice/justiceArticle.asp?ObjID=Yfs9J0lfmx&Content=79 Access and Telephone to Prison: An Examination of State Policies on Mail, Visiting, (accessed July 18, 2005), under “Findings.” http://www.fcc.state.fl.us/fcc/reports/family/famcont.html Access and Telephone to Prison: An Examination of State Policies on Mail, Visiting, (accessed, July 18, 2005), under “Findings.” http://www.fcc.state.fl.us/fcc/reports/family/famcont.html “FamilyWorks Mends Ties Frayed or Broken by a Father’s Incarceration,” Incarceration,” by a Father’s Frayed or Broken Mends Ties “FamilyWorks for Men in Prison,” Programs Parenting Come Home To: Debra, “Someone To Key, at Chicago of 166 women exiting prison in 2 at the University of Illinois study in Illinois conducted by researchers One recent Roulet, Elaine, “The Children’s Centre—Bedford Hills Correctional Facility,” Facility,” Hills Correctional Centre—Bedford Roulet, Elaine, “The Children’s Sister Pat Davis (Assistant Director of Women’s Programming, Prison and Family Ministry, Lutheran Social Services of Illinois), Prison and Family Ministry, Programming, of Women’s Sister Pat Davis (Assistant Director website at http://www.idoc.state.il.us/subsections/ information, please access the Illinois Department of Corrections For more visitationrules/visitation.pdf. Friends of Inmates” (Phoenix, AZ: Arizona “Information Handbook for Family Members and Arizona Department of Corrections, (accessed August 9, 2005); Missouri 2003), http://www.azcorrections.gov/IFFL/GB.htm#VISITATION Department of Corrections, http://www.doc.m MO: Missouri Department of Corrections), City, “For Family and Friends” (Jefferson Department of Corrections, Facilities, 30 percent their prison had visitors and merely within 50 to 100 miles from homes of prisoners from visitors, while 44 percent their prison had visitors). miles from homes between 101 and 500 prisoners from Lutheran Social Services of Illinois), Prison and Family Ministry, Programming, of Women’s Sister Pat Davis (Assistant Director August 4, 2005. interview with Alison Nemirow, Illinois), personal communication Hillside, Church, (Lutheran Chaplain, Northern Illinois District Office/Lutheran Lori Wilbert August 23, 2005. Alison Nemirow, Lutheran Social Services of Illinois), Prison and Family Ministry, Programming, of Women’s Sister Pat Davis (Assistant Director August 4, 2005. interview with Alison Nemirow, August 4, 2005. interview with Alison Nemirow, Guideli (accessed August 9, 2005); California “Inmate Visiting Corrections, Department of souri.gov/division/constser/FFWeb.mht Twenty-four out of Illinois’ 27 adult correctional centers (89%) are more than 100 miles away from Chicago by car. Illinois Chicago by car. away from than 100 miles more (89%) are centers out of Illinois’ 27 adult correctional Twenty-four 1 (accessed July “IDOC facilities,” http://www.idoc.state.il.us/subsections/facilities/default.shtml Department of Corrections, of Prisons, Bureau of Justice Statistics and Federal Bureau U.S. Department of Justice, Finn, Peter, “Addressing Correctional Officer Stress: Programs and Strategies,” (Washington, D.C.: National Institute of Justic D.C.: National Institute and Strategies,” (Washington, Programs Stress: Officer Correctional “Addressing Finn, Peter, on Corrections, Justice Council, Committee Florida House of Representatives, Hairston, J. Creasie Finney, “Prisoners and Families: Parenting Issues During Incarceration,” During Incarceration,” Issues Parenting and Families: “Prisoners Finney, Creasie Hairston, J. 2004, Paper Series, September Sage Foundation Working Family Life,” Russell Marriage, and Bruce, “Incarceration, Western, 22, 2005), 14-5 (accessed August http://www.russellsage.org/publications/workingpapers/incarcerationmarriagefamilylife/document (Washington, D.C: January D.C: 2002), 47. 30-31, (Washington, (accessed July 15, 2005), 2. http://www.ncjrs.org/pdffiles1/nij/183474.pdf, Access and Telephone of State Policies on Mail, Visiting, to Prison: An Examination Pro 18, 2005), under “Chapter 9: Innovative Family (accessed, July http://www.fcc.state.fl.us/fcc/reports/family/famcont.html 14, 2005). (accessed July www.mapquest.com Directions,” Mapquest.com, “Driving (Sacramento, CA: California 2003), http://www.corr.ca.gov/CDC/PDFs/InmateVisitingGuidelines.pdf of Corrections, Department (accessed August 9, 2005). Other States.” http://www.osborneny.org/newsletter.pdf (accessed November 5, 2005). (accessed http://www.osborneny.org/newsletter.pdf 26 24 25 23 22 21 20 19 16 17 18 15 13 14 12 11 10 9 7 8 5 6 Chapter 3:Chapter Family 124 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 43 42 41 40 39 38 37 36 35 34 33 32 31 30 29 28 27 Family Chapter 3: 57 56 55 54 53 52 51 50 49 48 47 46 45 44 out anappropriately safeplanforthechildren onherown, andtheyendupinanunsafesituation). found likelytobethecase.Sometimes,theseeventsmaycross (e.g., itcouldbethatamomhasbeenarrested andjustcouldn single momordadgoestojailprison.DCFSisonlyinvolved whensomeonereports abuseandneglect,orneglecti incarcerated. ti DCFSonlytakeschildren forsubstantiated cases ofabuseandneglect;theagencydoesnotgetinvolvedevery Institute Press, 2004),http://www.urban.org/pubs/prisoners/ (accessedAugust26,2005),Chapter1. 6 (2000),http://www.financeproject.org/Publications/heidijune2.htm (accessedAugust11,2005),under“Background.” forIncarceratedSachs, Heidi,“SupportServices andReleasedNonCustodialParents,” 6 (2000),http://www.financeproject.org/Publications/heidijune2.htm (accessedAugust11,2005),under“PolicyQuestions.” forIncarceratedSachs, Heidi,“SupportServices andReleasedNonCustodialParents,” http://www.clasp.org/publications/cs_funding_072605.pdf (accessedAugust11,2005). Turetsky, Vicki, “TheChildSupportProgram: AnInvestmentthatWorks,” CenterforLawandSocialPolicy, July2005, Pearson, Jessica,“BuildingDebtWhileDoingTime: ChildSupportandIncarceration,” (accessed July8,2005). Cave, Damien.“JailhouseNet,” 2000), 7. Mumola, Christopher, “Incarcerated Children andTheirParents,” SpecialReport(Washington, D.C.:Bureau ofJusticeStatistics apeutic communitydrugtreatment program forfemalepre-trial CookCountyJail detaineesatvariousstagesofpregnancy. their homeseacheveningtocare fortheirfamilies.TheSheriff’s MOMProgram ObjectivesManagementProgram) (Maternity isa The Sheriff’s FemaleFurloughProgram (femaledayreporting) enableswomenwhoare incarcerated toleave thefacilityandretur withJulieWilen,County Jail),interview October24,2005. The followingdescriptionwasprovided byTerry McDermott(Executive Director, DepartmentofWomen’s Cook JusticeService, withBenLumpkin, Aug.15,2005. Department ofCorrections), interview The followingdescriptionwasprovided byDebbieDenning(Deputy Director, DepartmentofWomen Illinois &FamilyServices, who is correspondence withJulieWilen, November4,2005.Itisimportanttonotethattherequired reunification process relates to Andrea email Ingram(ChiefofStrategicPartnershipsandInformation,IllinoisDepartmentChildren andFamily Services), 2002). Every DoorClosed:Barriers FacingParents withCriminalRecords Hirsch, AmyE.,Sharon M.Dietrich,RueLandau,PeterD.Schneider, Ackelsberg, Irv JudithBernstein-Baker, andJosephHohenste and Communities,” Travis, Jeremy, AmySolomonandMichelleWaul, “Background Paper:TheEffect ofIncarceration onChildren, Families andReentry of prisonersandtheircaregivers.) work.org/cpl/CPL101-Introduction.html resource (ThisInternet provides 19free information sheetsforpeopleworkingwithchil Family andCorrections website,“Introduction Network-Children ofPrisonersLibrary toChildren ofPrisoners,”http://www.fcnet Travis, Jeremy andMichelleWaul, Pearson, Jessica,“BuildingDebtWhileDoingTime: ChildSupportandIncarceration,” Center forPolicyResearch, 2004). Davis, Lanae,EstherAnnGriswold,JessicaPearsonandNancyThoennes,“FatherReintegrationProject: FinalReport”(Denver, CO withAlisonNemirow, interview and FamilyServices), August11,2005. Karen Newton-Matza(Co-ManagerofCommunityOutreach, DivisionofChildSupportEnforcement, IllinoisDepartment ofHealthcare http://www.ncoff.gse.upenn.edu/briefs/brennerbrief.pdf (accessedAugust11,2005),1. Brenner, Eric,“FathersinPrison:AReviewoftheData,”NationalCenteronFatherandFamiliesBrief,1998, bin/query/F?c104:1:./temp/~c104PYXk8Y:e323953 (accessedAugust11,2005). Personal ResponsibilityandWork OpportunityReconciliationActof1996,H.R.3734,http://thomas.loc.gov/cgi- Shapiro, Carol, “ComingHome:BuildingonFamilyConnections,” Pearson, Jessica,“BuildingDebtWhileDoingTime: ChildSupportandIncarceration,” Pearson, Jessica,“BuildingDebtWhileDoingTime: ChildSupportandIncarceration,” Pearson, Jessica,“BuildingDebtWhileDoingTime: ChildSupportandIncarceration,” Pearson, Jessica,“BuildingDebtWhileDoingTime: ChildSupportandIncarceration,” Leonhardt, David,“AsPrisonLaborGrows, SoDoestheDebate,” Pearson, Jessica,“BuildingDebtWhileDoingTime: ChildSupportandIncarceration,” Federal Resource Center forChildren ofPrisoners website,http://www.cwla.org/programs/incarcerated/ Gail T. Smith(Executive Director, ChicagoLegalAdvocacyforIncarcerated withBenLumpkin,June15,2005. Mothers), interview Gail T. Smith(ExecutiveDirector, ChicagoLegalAdvocacyforIncarcerated withBen Lumpkin,June15,2005. Mothers),interview United StatesCongress. 1997.AdoptionandSafeFamiliesActof105thCongress. PublicLaw 105-89. Paula Davis(Co-Founder, with AlisonNemirow, Sankofa),interview August3,2005. already in statecare atthetimethataparent isincarcerated. Achilddoesnotcomeintostatecare From PrisonstoHomeConference (cont.) Salon.com Prisoners OnceRemoved:TheChildren andFamiliesofPrisoners , July13,2000,http://dir.salon.com/tech/feature/2000/07/13/prison/index.html?sid=890736 (Washington, 30-31,2002),xix. D.C.:January (Philadelphia, PA: Inc.,May CLASPandCommunityLegalServices, New York Times, The Corrections ManagementQuarterly March 19,2000. Welfare NetworkIssueNote Information Welfare NetworkIssueNote Information Judges’ Journal Judges’ Journal Judges’ Journal Judges’ Journal Judges’ Journal Judges’ Journal Judges’ Journal (Washington, D.C.:TheUrban 43, no.1(2004):7. vol. 43,no.1(2004):9. vol. 43,no.1(2004):9. vol. 43,no.1(2004):8. vol. 43,no.1(2004):7. vol. 43,no.1(2004):6-8. vol. 43,no.1(2004):7. vol. 5,no.3(2001):56. because a momordadis vol. 4,no. vol. 4,no. me a a child ’t figure , n to - dren s ther- in, : MAYORAL POLICY CAUCUS ON PRISONER REENTRY 125 t n; ew ew e, ry was ent ve a Bill. sed m the ton r 24-36 nths of . -3. other e people from corners : San dren of dren s, clergy, in te, 2003), 51. e, 2003), 46. e, 2003), 46. e, 2003), 46. think (New York, NY: Russell Sage Foundation, NY: (New York, (New York, NY: Oxford University Press, 2003), 196. University Press, Oxford NY: (New York, Imprisoning America: The Social Effects of Mass Incarceration Imprisoning America: The Social Effects (cont.) When Prisoners Come Home: Parole and Prisoner Reentry When Prisoners Come Home: Parole Christine Rothwell (Program Director, Illinois Going Home Program), interview with Julie Wilen, October 28, 2005. interview with Julie Wilen, Illinois Going Home Program), Director, Christine Rothwell (Program October 28, 2005. interview with Julie Wilen, Illinois Going Home Program), Director, Christine Rothwell (Program October 28, 2005. interview with Julie Wilen, Illinois Going Home Program), Director, Christine Rothwell (Program La Vigne, Nancy G. and Cynthia A. Mamalian, “A Portrait of Prisoner Reentry in Illinois,” (Washington, D.C.: The Urban Institu Nancy G.La Vigne, and Cynthia A. Mamalian, “A Portrait of Prisoner Reentry in Illinois,” (Washington, D.C.: The Urban Institute, 2005), 2 (Washington, “Chicago Communities and Prisoner Reentry,” and Jill Farrell, Christy, Visher, Visher, Christy, and Jill Farrell, “Chicago Communities and Prisoner Reentry,” (Washington, D.C.: The Urban Institute, 2005), 1 D.C.: (Washington, “Chicago Communities and Prisoner Reentry,” and Jill Farrell, Christy, Visher, Unit, Illinois Department of Corrections). Research Planning and by Steven Karr (Manager, Unpublished data provided Petersilia, Joan, Richard Guzman (Manager, Office of Reentry Management and Placement Resource Unit, Illinois Department of Corrections), intervi Unit, Illinois Department of Corrections), of Reentry Management and Placement Resource Office Guzman (Manager, Richard and lines on a map. It consists of people as much as brick and mortar. It is made up of neighbors, colleagues, family, friend It is made up of neighbors, colleagues, family, much as brick and mortar. and lines on a map. It consists of people as 2004), 139. D.C.: The Urban Institut “Chicago Prisoners’ Experiences Returning Home” (Washington, Nancy G. and Christine Visher, La Vigne, intervi Unit, Illinois Department of Corrections), of Reentry Management and Placement Resource Office Guzman (Manager, Richard with Ben Lumpkin, April 28, 2005. with Ben Lumpkin, April 28, 2005. The likelihood of rearrest is highest during the period immediately following release—30 percent of arrests occur within six mo of arrests percent is highest during the period immediately following release—30 The likelihood of rearrest “Prisoner Reentry and Community Policing: Strategies for Enhancing Public Safety” (working paper from the Urban Institute Reent the Urban Institute “Prisoner Reentry Strategies for Enhancing Public Safety” (working paper from and Community Policing: Mary Pattillo and others, eds., (acces Abstract,” http://www.ojp.usdoj.gov/reentry/sar/pdf/wp1_il.pdf U.S. Department of Justice, “Illinois Going Home Program La Vigne, Nancy G. and Cynthia A. Mamalian, “A Portrait of Prisoner Reentry in Illinois,” (Washington, D.C.: The Urban Institut Portrait of Prisoner Reentry Nancy G. and Cynthia A. Mamalian, “A in Illinois,” (Washington, La Vigne, D.C.: The Urban Institut Portrait of Prisoner Reentry Nancy G. and Cynthia A. Mamalian, “A in Illinois,” (Washington, La Vigne, D.C.: The Urban Institut Portrait of Prisoner Reentry Nancy G. and Cynthia A. Mamalian, “A in Illinois,” (Washington, La Vigne, children to be incarcerated at some point in their lives.” Quoted in “Servicessome point in their lives.” at Special Issues of Prison Inmates,” for Families to be incarcerated children States Capitol, Washing (speech, United of the Union Address” “2003 State W., of prisoners. Bush, George intended for children 18, 2005). (accessed July D.C., January 2003), http://www.whitehouse.gov/news/releases/2003/01/20030128-19.html 28, of Health & Human Services, and Families website, http://www.acf.hhs.gov/grants/open/HHS-2004-ACF- Administration for Children ACYF-CU-0001.html. parents. incarcerated it is not defined solely by street But, viewed broadly, area. that “community” is often determined by geographic recognize We we that form a loose social network. For us, in the context of reentry, businesses, institutions associations, organizations, return and most influential in an individual’s by most affected of people who are “community” is best viewed as the collection viewing community as thos are individual. We formerly incarcerated to the is fluid and relative therefore, prison. Community, who ha who can be impacted by the returning prisoner, impact the returning prisoner, who have the ability and means to directly in the outcome. clear stake and vested interest Roundtable Meeting, May 12-13, 2004), 5. July 12, 2005). occu and eight percent occur 12-24 months after release, 15 percent after release, occur within 6-12 months 14 percent release, See “Prisoner Reentrymonths after release. for Enhancing Public Safety” (working paper fro and Community Policing: Strategies December 2004), 3. Goode, W. Wilson Jr. and Thomas J. Smith, “Building From the Ground Up: Creating Effective Programs to Mentor Children of Priso to Mentor Children Programs Effective Up: Creating the Ground J. Smith, “Building From and Thomas Jr. Wilson Goode, W. The Mentoring Center website, “About Us” http://www.mentor.org/about_us.html and The Child Welfare League of America website, League of America and The Child Welfare website, “About Us” http://www.mentor.org/about_us.html The Mentoring Center “Main Page” http://www.cwla.org/programs/incarcerated/ A Bill of Rights” (San Francisco, CA Parents: and Nell Bernstein, of Incarcerated Gretchen “Children See, for instance, Newby, Big Brothers and Big Sisters of Metropolitan Chicago, “Our Program Works!” http://www.bbbschgo.org/program.html (accessed Augus http://www.bbbschgo.org/program.html Works!” Chicago, “Our Program of Metropolitan and Big Sisters Big Brothers of that money one-third about $450 million for mentoring programs; Bush talks President Union Address, In the 2003 State of the see the U.S. Departm of Prisoners Initiative, the Mentoring Children about the funding opportunity through information For more United States Senate. 2000. Departments of Commerce, Justice and the State, the Judiciary and Related Agencies Appropriation the Judiciary Justice and the State, Appropriation and Related Agencies of Commerce, Senate. 2000. Departments United States likely than more six times are of prisoners that “children Report indicates 106-404. This Senate Senate Report 106th Congress. (February of Corrections Justice, National Institute U.S. Department of 2002), Corrections, (accessed November 5, 2005). http://www.nicic.org/pubs/2002/017272.pdf 12, 2005). chil on behalf of should be recognized 2003) which sets forth eight rights that Parents, Francisco Partnership for Incarcerated http://www.ppv.org/ppv/publications/assets/ July 2005), Public/Private Ventures, The Amachi Model” (Philadelphia, PA: 2005). 185_publication/pdf (accessed November 14, Urban Institute, Reentry May 12-13, 2004), 5. Roundtable Meeting, 18 19 16 17 13 14 15 11 12 9 10 6 7 8 3 4 5 2 Chapter 4: Community Safety 1 64 62 63 61 60 59 58 Chapter 3:Chapter Family 126 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 30 29 28 27 26 25 24 23 22 21 20 CommunitySafety Chapter 4: 45 44 43 42 41 40 39 38 37 36 35 34 33 32 31 2005). Illinois CompiledStatutes.15ILCS335/4and335/12.(http://www.ilga.gov/legislation/ilcs/ilcs.asp, accessedNovember October 27,2005. Roberta Fews(DeputyDirector, Programs withJulieWile IllinoisDepartmentofCorrections), interview andSupportiveServices, October 27,2005. Roberta Fews(DeputyDirector, Programs withJulieWile IllinoisDepartmentofCorrections), interview andSupportiveServices, PA 92-240. Unified CodeofCorrections. SeeIllinoisHouseofRepresentatives. 2001.IllinoisIdentificationCard Act.92ndGeneralAs Effective 1,2002,HouseBill2011(enactedasPublicAct92-240)madechangestotheIllinoisIdentificationCard January Act 2003). La Vigne, inIllinois,”(Washington, NancyG. and CynthiaA.Mamalian,“APortrait ofPrisonerReentry D.C.:TheUrbanInstitu inIllinois,” (Washington,G. andCynthia A. Mamalian,“APortraitofPrisoner Reentry D.C.: TheUrbanInstitute,2003), 46. “During 2001,97percent ofallmen andwomenreleased from tocommunitiesinIllinois.”LaVigne, Illinoisprisonsreturned Na Where FelonsLive,” Sullivan, Julie,“KeepingTabs onOffenders; CommunityCorrections Officers inSome PartsofSpokaneWork intheNeighborhood Programs,”Prisoner Reentry (Washington, D.C.: TheUrbanInstitute,2004),130. Solomon, AmyandMichelleWaul, AsheleyVan Ness,Jeremy Travis, “OutsidetheWalls: ANationalSnapshotofCommunity-Based October 14,2005. fields.Veronica orsocialservice service Ballard (FormerDirector, CookCountyOffice ofAdultProbation), withJu interview are andfollowuptoensure received. needed services services, Manyprobation andresource officers havecollegedegrees inh probationers canobtainhelp.Theresource officers workinconjunction withprobation officers torefer individualstocommun Currently, theCookCountyOffice ofAdultProbation employsresource officers whoidentifyorganizations inthecommunitywher (accessed November14,2005). http://www.idoc.state.il.us/subsections/assistant_director/Press%20Paper%20—%20Operation%20Spotlight%20(march%202005).doc Illinois DepartmentofCorrections, Office ofCommunications,“Operation Spotlight”(Springfield,IL:December2003), Programs,”Prisoner Reentry (Washington, D.C.:TheUrbanInstitute,2004),129. Solomon, AmyandMichelleWaul, AsheleyVan Ness,Jeremy Travis, “Outside theWalls: ANationalSnapshotofCommunity-Based 2003), 22. La Vigne, inIllinois,”(Washington, NancyG.andCynthiaA.Mamalian,“APortraitofPrisonerReentry D.C.:TheUrbanInstitu http://www.idoc.state.il.us/subsections/reports/department_data/Department%20Data%202004.pdf (accessedNovember15,2005). Illinois DepartmentofCorrections, “2004DepartmentalDataFactSheet”(Springfield,IL:IllinoisDepartmentofCorrections, 2 2001), http://www.ojp.usdoj.gov/bjs/pub/pdf/tsp00.pdf (accessedNovember11,2005),Table 2. Hughes, Timothy, DorisWilson andAllenBeck,“Trends inStateParole, 1990-2000,”(Washington, D.C.:Bureau ofJusticeStatis 2003), 21. La Vigne, inIllinois,”(Washington, NancyG.andCynthiaA.Mamalian,“APortraitofPrisonerReentry D.C.:TheUrbanInstitu Lumpkin, Aug.15,2005. Debbie Denning(DeputyDirector, DepartmentofWomen withB IllinoisDepartmentofCorrections), interview andFamilyServices, Illinois(Carbondale),andWestPeoria, Southern Side(Chicago). The eightATCs are: Crossroads (Chicago),Decatur, FoxValley (Aurora), Jessie“Ma”Houston(Dixmoor),NorthLawndale(Chicago 2003), 43. La Vigne, inIllinois,”(Washington, NancyG.andCynthiaA.Mamalian,“APortraitofPrisonerReentry D.C.:TheUrbanInstitu Office ofStateIDCard ofState,IllinoisSecretary ofSecretary Programs andPoliciesfor Prisoner Re-Entry, May2005. through facilitytoobtaintheiridentificatio ofState,theindividualsare theSecretary takentoanIllinoisDriverServices documentstoobtainastateidentificationcard.assist theminobtainingthenecessary Through pre-arrangement andafterbeing successful program withtheCookCountyDepartmentofCorrections BootCampformore thanthree years.BootCampstaff members It maybepossibleforIDOCtohelpfacilitatethispersonalappearancerequirement. ofState’s TheSecretary Office hasmaint http://www.idoc.state.il.us/subsections/reports/department_data/Department%20Data%202004.pdf (accessedJune6,2005). Corrections, “2004DepartmentalDataFactSheet”(Springfield,IL:IllinoisDepartmentofCorrections, 2005), The averageadultprisonsentenceis4.1years,andthestayonly1.1years.SeeIllinoisDepartmento copy, proof ofaddress (e.g.,acheckorpieceofmailwithaddress), ofStatefacili $20andmustpersonallygotoaSecretary October 27,2005.First-timeapplicantsforstateidentificationcards needavalidSocialSecuritycard, abirthcertificate Roberta Fews(DeputyDirector, Programs withJulieWile IllinoisDepartmentofCorrections), interview andSupportiveServices, October 27,2005. Roberta Fews(DeputyDirector, Programs withJulieWile IllinoisDepartmentofCorrections), interview andSupportiveServices, Visher, Christy, andJillFarrell, “ChicagoCommunitiesandPrisonerReentry,” (Washington, D.C.:TheUrbanInstitute,2005), Illinois CompiledStatutes.730ILCS5/3-14-1(e).(http://www.ilga.gov/legislation/ilcs/ilcs.asp, accessedNovember14,2005). Illinois CompiledStatutes.730ILCS5/3-14-1(e).(http://www.ilga.gov/legislation/ilcs/ilcs.asp, accessedNovember14,2005). Travis, Jeremy, “ButTheyAllComeBack:RethinkingPrisonerReentry,” (Washington, D.C.:NationalInstituteofJustice,2000) The SpokaneSpokesman-Review, (cont.) June 19,1998. n cards. See or certified ty. f lie Wilen, sembly. ained a uman 005), 43. , 3. and the cleared ity 14, te, te, te, te, n, n, n, n, tics, ncy e ), en MAYORAL POLICY CAUCUS ON PRISONER REENTRY 127 : 19 te, ty f an , or pdf very ve in hat is a the the the Income ervise a ition is also ify indi- ntified.” subsidies Criminology & Public Criminology & Public Occasional Papers Series Vol.3, No.3 Papers Series Vol.3, Occasional No.3 Papers Series Vol.3, Occasional Ideas for an Open Society Ideas for an Open Society Ideas for an November 16, 2004, 2. November 16, 2004, , November 16, 2004. , November Village Voice, Village Village Voice Village (cont.) definition, as set forth in the Stewart B. McKinney Homeless Assistance Act of 1987, defines “homeless” as “an definition, as set forth in the Stewart B. McKinney Homeless Assistance Act of 1987, defines vol. 3, no. 2 (2004): 139-160. vol. 3, no. 2 (2004): 139-160. McKinney See http://www.edenir.org/rover_moms.html See http://www.edenir.org/rover_moms.html Gonnerman, Jennifer, “Million Dollar Blocks,” “Million Dollar Blocks,” Gonnerman, Jennifer, See the Reentry http://www.reentrymediaoutreach.org/. Campaign website, Media Outreach National Gonnerman, Jennifer, “Million Dollar Blocks,” “Million Dollar Jennifer, Gonnerman, targeted to help former prisoners. It’s also possible that both the new Statewide Rental Support Program and the Chicago Low Rental Support Program also possible that both the new Statewide to help former prisoners. It’s targeted individuals. with formerly incarcerated Fund could be used to assist households Housing Trust Ellen Sahli, and Rick Guzman, October 12, 2005. for their supervision. its investment in these types of operating of responsibility IDOC should increase share assumes a large Currently, IDOC pays a small number of local organizations, like St. Leonard’s Ministries, just under what it costs IDOC to sup like St. Leonard’s IDOC pays a small number of local organizations, Currently, The Louisiana,” January 2004 http://www.csgeast.org/pdfs/justicereinvest/LAjustreinvestmentreport.pdf (accessed October 5, 2005); (accessed Louisiana,” January 2004 http://www.csgeast.org/pdfs/justicereinvest/LAjustreinvestmentreport.pdf Council of State Governments, Space,” April 2005 Capacity to Reduce Crime and Save Prison “Building Community December 1, 2005). (accessed http://www.csgeast.org/pdfs/justicereinvest/KSSummit41805Final.pdf Policy Policy 7, Rights), http://homeless.cued.uic.edu/facing_homelessness.pdf, (accessed November Heartland Alliance for Human Needs & Human 2005), 16. D.C.: The Urban Institu “Chicago Prisoners’ Experiences Returning Home,” (Washington, Nancy G. and Christine Visher, La Vigne, December 2004), 3. with Michelle Light Plan to End Homelessness, Chicago Department of Housing), meeting Administrator, Elizabeth Benito (Projects and who has a primary t nighttime residence and adequate nighttime residence individual [or family] who lacks a fixed, regular, ide an institution with no subsequent residence from those individuals about to be evicted or released but it includes similar, (Chicago, IL: Mid-America Institute on Pover See “Facing Homelessness: A Study of Homelessness in Chicago and in the Suburbs,” but housing and other social services for the parolees not only provide In return, the organizations given number of parolees. Council of State Governments, of the Re-Entry “Report Charting the Safe and Successful Return Policy Council: of Prisoners to f Admission and Eviction Standards Regarding on the Federal Laws Guide for Public Housing Officials “Safe at Home: A Reference the the housing needs of various populations and simultaneously address to help address In dealing with this enormous pressure Stephen Metraux and Dennis P. Culhane, “Homeless Shelter Use and Reincarceration Following Prison Release,” Following Culhane, “Homeless Shelter Use and Reincarceration Stephen Metraux and Dennis P. Prison Release,” Following Culhane, “Homeless Shelter Use and Reincarceration Stephen Metraux and Dennis P. o in Chicago and in the Suburbs,” (Chicago, IL: Mid-America Institute on Poverty “Facing Homelessness: A Study of Homelessness Council of State Governments, of the Re-Entry “Report Charting the Safe and Successful Return Policy Council: of Prisoners to meeting of Corrections), Unit, Illinois Department of Reentry Management and Placement Resource Office Guzman (Manager, Richard Benito, October 12, 2005. with Michelle Light, Ellen Sahli, and Elizabeth (November 2003), 2. (November (November 2003), 2. 2005); Council of State Governments,(accessed October 5, a Justice Reinvestment Initiati “Options for Policymakers Considering Institute for Policy Policing in Chicago” (Chicago, IL: Hartnett et al, “Public Involvement: Community Susan Skogan, Wesley, 2000), 17. September Northwestern University, Research, D.C. Employment” (Washington, to Offender Approach Clearinghouse: A Comprehensive Corrections State’s “Washington Finn, Peter, Council of State Governments, of the Re-Entry “Report Charting the Safe and Successful Return Policy Council: of Prisoners to 7, 2005) and Policy Statement (accessed November http://www.reentrypolicy.org/report/introduction.php Introduction Community,” (accessed November 7, 2005). “Housing” http://www.reentrypolicy.org/report/ps19-housing.php#2-anchor (accessed November 7, 19 “Housing” http://www.reentrypolicy.org/report/ps19-housing.php#2-anchor Policy Statement Community,” 2005). (accessed November 7, 19 “Housing” http://www.reentrypolicy.org/report/ps19-housing.php#2-anchor Policy Statement Community,” 2005). Fall 2004). Legal Action Center, NY: (New York, People with Criminal Records,” policies that disqual the country public safety concerns, have drafted overly broad real public housing authorities across some “No Second Chance: People with Criminal viduals who pose little or no risk to the general health and safety of the community. 2004). Watch, Human Rights NY: Denied Access to Public Housing,” (New York, Records sleeping accommodation. . . . The HUD defin institution, or public or private place not designed for regular temporary shelter, (accessed November of Heartland Alliance for Human Needs & Human Rights), http://homeless.cued.uic.edu/facing_homelessness.pdf 7, 2005), 4. Council of State Governments, “Building Bridges: From Conviction to Employment. A Proposal to Reinvest Corrections Savings in Reinvest Corrections to Conviction to Employment. A Proposal Council of State Governments, “Building Bridges: From Open Society Institute, U.S. Programs, “Justice Reinvestment,” “Justice Reinvestment,” Institute, U.S. Programs, Open Society “Justice Reinvestment,” Institute, U.S. Programs, Open Society Employment Initiative, One Year Later,” February 2004 http://www.csgeast.org/pdfs/justicereinvest/BuildingBridgesReportUpdate. Later,” One Year Employment Initiative, 16, 2005), 10-11. (accessed on November National Institute of Justice, 1999), http://www.ncjrs.org/pdffiles1/174441.pdf 67 66 64 65 63 62 61 60 58 59 56 57 55 54 52 53 50 51 48 49 46 47 Chapter 4:Chapter Safety Community 128 MAYORAL POLICY CAUCUS ON PRISONER REENTRY 84 83 82 81 80 79 78 77 76 75 74 73 72 71 70 69 68 CommunitySafety Chapter 4: /26mon3.html). Editorial, “PhantomConstituentsintheCensus,” 3, no.3(November2003),5-6. also See http://www.co.deschutes.or.us/go/government/departments/juvenile-community-justice/community/community-justice-corps. http://www.icjia.state.il.us/public/index.cfm?metaSection=Publications&metaPage=RestorativeJustice. See theIllinoisCriminalJusticeInformationAuthority’s RestorativeJusticeResource Centerwebpage with BenLumpkin,April28,2005. Richard Guzman(Manager, Office ManagementandPlacementResource ofReentry Unit,IllinoisDepartmentofCorrections), intervi 2003), 60. La Vigne, inIllinois,”(Washington, NancyG.andCynthiaA.Mamalian,“APortraitofPrisonerReentry D.C.:TheUrbanInstitu 2003), 46. La Vigne, inIllinois,”(Washington, NancyG.andCynthiaA.Mamalian,“APortraitofPrisonerReentry D.C.:TheUrbanInstitu WorkingSafety &Reentry Group, March 14,2005. Jackie Reed(FounderandExecutiveDirector, Westside HealthAuthority)remarks madeatpublichearing,Governor’s Community 2005). Community,” PolicyStatement19“Housing”http://www.reentrypolicy.org/report/ps19-housing.php#2-anchor (accessedNovember7, ofPrisonersto PolicyCouncil:ChartingtheSafeandSuccessfulReturn “ReportoftheRe-Entry Council ofStateGovernments, Pranis, Kay, “EngagingtheCommunityinRestorativeJustice”(Washington D.C.:U.S.DepartmentofJustice,June1998),1. “RestorativeJusticeOnline”webpagehttp://www.restorativejustice.org/intro/tutorial/.See PrisonFellowshipInternational “RestorativeJusticeOnline”webpagehttp://www.restorativejustice.org/intro/tutorial/.See PrisonFellowshipInternational “RestorativeJusticeOnline”webpagehttp://www.restorativejustice.org/intro/tutorial/.See PrisonFellowshipInternational “RestorativeJusticeOnline”webpagehttp://www.restorativejustice.org/intro/tutorial/.See PrisonFellowshipInternational Zehr, Howard, “RestorativeJustice:TheConcept,” Zehr, Howard, “RestorativeJustice:TheConcept,” Joanne Archibald (AssociateDirector, ChicagoLegalAdvocacyforIncarcerated withBenLumpkin,May20,200 Mothers),interview Niuris Ramos(LeadCommunityOrganizer, withBenLumpkin,July7,2005. NearNorthwestNeighborhood Network),interview Open SocietyInstitute,U.S.Programs, “From PrisonstoParksinOregon,” (cont.) New York Times, Corrections Today, Corrections Today, September 26,2005,(www.nytimes.com/2005/09/26/opinion December 1997,vol.59,issue7. December 1997,vol.59,issue7. Ideas forAnOpen Society OccasionalPapersSeriesvol. the te, te, See 5. ew CITY OF CHICAGO • RICHARD M. DALEY,MAYOR