Mayoral Policy Caucus on Prisoner Reentry
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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 AUCUS ON 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 Introduction The Reality of Reentry Every year, the United States sets two prison records—one Following national trends, Illinois has seen its prison popu- we talk about and one we don’t. lation soar in the last 30 years. Between 1970 and 2003, the Illinois prison population increased by more than 500 Most Americans are quite familiar with our penchant for percent, from 7,326 to 43,418 prisoners.11 To keep up with putting people into prison. The number of individuals this growth, the state built an average of one new prison incarcerated in state and federal correctional institutions has every year between 1980 and 2000.12 Yet Illinois prisons risen exponentially in the past three decades. In 1980, are more overcrowded today than they were in 1980; more there were just over 300,000 people in state and federal than 44,000 prisoners are housed in facilities designed for prisons; in 2003, there were nearly 1.4 million people.1 The 32,000.13 Illinois currently has 27 correctional facilities, total now exceeds 2.2 million when you combine state and seven work camps, two boot camps, and eight adult transi- federal prisons with local jails and other types of confine- tional centers operating throughout the state and employs ment.2 According to the federal Bureau of Justice Statistics, 14,000 staff to oversee the secure detainment of the state’s about 5.6 million adults have served time in state or feder- convicted prisoners.14 al prison.3 If this current rate remains unchanged, nearly one in 15 persons born in 2001 will be imprisoned during Meanwhile, Illinois has seen its prison exits rise as well. M 4 his or her lifetime. Within just a few years, from 2000 to 2003, the number of AYORAL people released from Illinois state prisons jumped from But most Americans have typically paid little or no attention 28,876 to 35,372—an increase of more than 22 percent.15 P to people coming back from prison.5 At least 95 percent of Approximately 53 percent of prisoners (15,488 individuals) OLICY all state prisoners will be released at some point.6 This year, released from all Illinois prisons in 2001 returned to the 16 C our country’s prisons will release nearly 650,000 individuals, City of Chicago alone. Based on current estimates, more AUCUS ON an increase from 170,000 in 1980.7 This number does not than 21,000 will have settled within the city limits in even include the millions who will finish up jail terms.8 2005.17 As the Chicago Tribune recently pointed out, that is And they all go in and come out faster than most Americans enough “to fill the United Center, about 10 city bus loads P realize; the average felony sentence is approximately three rolling in each week.”18 RISONER years.9 The use of probation and parole has exploded to correspond with these statistics; more than 4.1 million indi- Add up all the people under correctional supervision in R viduals were on probation and another 765,000 were on Illinois—those behind bars, on probation, or on parole— EENTRY parole at the end of 2004—almost a three percent increase and the figure would surpass 244,000.19 If they were all in just one year.10 placed in one location, it would be the second largest city in the state.20 3 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 poten- tial 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 correc- tional institution, by itself, does not necessarily deter former prisoners from getting into trouble again.