University of New Institute for Social Research

Prepared for: State of and Second Chance Center October 2008 Paul Guerin, Ph.D.

For a full discussion of findings please read the full report. Report in Brief:

Copies of the full report of the study, Second Chance Center Preliminary Second Chance Center Preliminary Study Process Evaluation Study are available from the Institute for Social Research at: Research Overview treatment that would inhibit them from http://isr.unm.edu/cara/reports.html participating in the program and offenders In July 2007 the Institute for Social must have a verifiable Preliminary Findings Research at the University of New problem. Eligible offenders should have a Mexico received funds from N.M. minimum six-month sentence or have that Highlands University to study the much time remaining on a sentence to be • SCC should clinically screen referred offenders Second Chance Center in Bernalillo eligible. County New Mexico. These funds were and clinically assess SCP Modules admitted offenders. allocated to N.M. Highlands University Courses for the Second Chance Program in SB Orientation • Α clinical assessment 190 (FY 2006). Drug Communication should include a diagnosis Rehabilitation Sauna Detox and criteria for a placement This study focused on a process Module Advanced Communication A Advanced Communication B level of care. evaluation using research methods Study Skills Study Skills common for this type of study. Process Module • Clinical assessments evaluations are aimed at understanding should be conducted by a Self-Respect 1 how programs operate and are necessary licensed clinician. Self-Respect Self-Respect 2 before conducting an outcome evaluation Module Self-Respect 3 Way to Happiness • According to the Urban that focuses on effectiveness. While we Institute contains recognize the controversy surrounding Changing Conditions of Life many elements of effective the Second Chance Center our process Life Skills Module Ups and Downs Potential Trouble Source Handling cognitive behavioral evaluation was not shaped or guided by therapy. Reintegration Transition Preparedness this controversy. Module Life Review

• Best practices and the Program Description The Second Chance Program consists of five results of this study should core modules, the be used to inform policy decisions regarding the The Second Chance Center (SCC) is Module, the Study Skills Module, the Self funding and implementation designed as a secure, long-term, Respect Module, Life Skills Module, and the of programs serving rehabilitation facility. Typically, Reintegration Module. The first four criminal justice offenders in defendants who are facing a six months modules are delivered in the facility and the New Mexico including the to a year sentence, probation/parole Reintegration Module begins in the facility Second Chance Center. violators, or those in an early release/ and is continued post release to reintegrate transition program can be referred to the successful offenders back into their • SCC needs to refine the facility by the judiciary. communities. length of the program and

reject referrals violating The Second Chance Program is a non- eligibility criteria. The Center is designed to house criminal justice offenders with substance abuse medical, social rehabilitation model using a problems and according to program manualized treatment approach and does not Continued... materials excludes sex offenders and use licensed counselors or therapists. Much most violent offenders. Eligible of the program is based upon Criminon and offenders cannot currently be receiving methods. The Second Chance mental health treatment or medical Program does not use traditional

treatment that is based primarily on Continued… Admitted Students by Judicial District counseling and nor does it use medications • SCC should define such as or buprenorphine. Judicial District Count % acceptable charges for 1st Judicial District 13 7.8 referrals and reject referrals The SCC receives its students from 2nd Judicial District 30 20.8 that do not meet eligibility judicial referrals and accepts referrals for rd criteria. persons who are either incarcerated or 3 Judicial District 5 3.5 facing incarceration. Referrals to the SCC 4th Judicial District 20 13.9 • The SCC is the only secure are accepted from state, magistrate, 5th Judicial District 20 13.9 residential treatment facility in the state. municipal, metropolitan, federal, and tribal 6th Judicial District 2 1.4 courts. Individuals not involved in the 7th Judicial District 2 1.4 • In approximately one year criminal justice system can also be referred th to the SCC. 8 Judicial District 26 17.4 from discharge 3 program th graduates (8.6%) were 9 Judicial District 12 8.3 th arrested for new crimes and Program Numbers 10 Judicial District 0 0.0 8 (22.9%) were arrested on th 11 Judicial District 1 0.7 technical probation violations. th The program opened in September 2006 12 Judicial District 1 0.7 th • Additional analyses should be and through mid-May 2008, 482 offenders 13 Judicial District 4 2.7 conducted comparing the had been referred, 147 had been accepted Tribal 5 3.5 technical violation rates and as students, and 105 students had been Out of State 2 1.4 re-arrest rates of successful discharged from the program. In mid-May Private 1 0.7 students with unsuccessful 2008, 42 offenders were students in the students. program. Almost one-third of the accepted students

were in the program as a result of a • The SCC should maintain Offenders were referred to the Center by all employ files that include work probation violation (i.e. stopped reporting, 13 Judicial Districts and 5 New Mexico histories, resumes, and job failed to comply, etc.). DWI offenses made Native American tribes (Jemez, Navajo, interviews. up the next largest category of offenses Sandia, San Juan, and Ohkay Owingeh). (16.5%), followed by property offenses At least one offender was accepted from 11 • Only after the program has (13.7%) drug offenses (13.7%), violent of the 13 Judicial Districts and 5 New been fully implemented can offenses (12.9%), public order offenses an outcome study be Mexico Native American tribes. The (10.8%), and traffic offenses (0.7%). conducted to study its largest number of students was accepted Charges were unknown in 5 cases, 2 cases effectiveness. from the Second Judicial District (30), were out of state, and one case was a private followed by the Eighth Judicial District citizen. The program took a wide variety of • There has been limited (26), and the Fourth and Fifth Judicial independent research offenses from fairly minor public order District with 20 referred students each. published in peer reviewed offenses to more serious violent offenses. journals on the Narconon These four judicial districts accounted for drug rehabilitation program almost two-thirds of all admitted students. Crime Categories The Eleventh Judicial District Court and • Despite the geographic the Twelfth Judicial District Court each Crime Category Count % dispersion of graduates, SCC had one referral accepted, and the Tenth Violent 17 12.4 should make additional efforts Judicial District Court did not have either to reintegrate offenders back of its’ two referrals accepted. Both Property 19 13.7 into the community. students listed as “out of state” were Drug 18 12.9

sentenced to the program from out of state DWI 23 16.5 ·• Surveyed students felt they courts and were privately paying for the are not being prepared Public Order 15 10.8 adequately for reintegration. program. The single private student was not involved in the criminal justice system. Traffic 1 0.7

Target Audience Fifty-three different judges referred the 141 Probation Violation 46 33.1

New Mexico legislators and accepted students (this number does not include the private student, 2 out of state legislative staff; the Second Students who completed the program students, or 3 students missing this Chance Center; State and local comprised 35% of the students who were government officials; and information) with three judges accounting discharged from the program during the criminal justice practitioners and for 21% of the students. researchers. study period and on average spent differences between discharge status for opiates and alcohol addiction almost 215 days in the program and on and recidivism. This means students medications are under utilized in the average took 12 courses. Students who who completed the program were no criminal justice system. were released from the program spent more likely to have a new arrest or the second highest average number of probation violation than a student who Research has shown untreated days in the program (192.4 days) and resigned from the program or was substance abusing offenders are more took 6.3 courses. This was followed by released. While there were no likely to relapse to drug abuse and students who were medically statistically significant differences a return to criminal behavior. This can discharged (average length of stay larger percent of students who bring about re-arrest and re- 120.1 days and 3.3 courses), students completed did not pick up a new arrest incarceration, jeopardizing public health who were terminated (average length of or probation violation when compared and public safety and taxing criminal stay 114.1 days and 3.9 courses), and to students who were released or justice system resources. Treatment students who resigned (average length resigned. offers the best alternative for of stay 82.2 days and 2.9 courses). interrupting drug use.

Discharge Status Drug Use and Crime Evidence Based Practices Average Discharge Course Count % Length According to a 2005 publication by the Status Count of Stay federal Center for Substance Abuse There is research evidence that some Treatment (CSAT) there is strong types of programs targeting criminal Completed 35 35% 214.7 12.0 empirical evidence substance abuse justice involved offenders do better than Medical 16 16% 120.1 3.3 treatment reduces crime. Additionally, other programs. In 2006 the Discharge researchers from the Treatment Washington State Institute for Public Released 16 16% 192.4 6.3 Research Institute at the University of Policy (2006) conducted an assessment Pennsylvania (2005) found substance of 291 evaluations of all types of adult Resigned 17 17% 82.2 2.9 abuse treatment, results in significant corrections programs; including drug Terminated 16 16% 114.1 3.9 reductions in crime and alcohol/drug courts, sex offender treatment use as well as improved ability to programs, and boot camps. Of the A survey administered to program staff function in health and social areas. programs for drug-involved offenders and students, designed to measure the More intensive treatment is needed for drug courts reduced recidivism by social climate of correctional programs offenders who are in a recurring cycle 10.7% compared to treatment-as-usual like the SCC, found students felt they of crime and drug abuse. Rather than groups, in-prison therapeutic are not being prepared adequately for focusing on populations of sporadic communities with community aftercare reintegration. users of illegal drugs, it may be more reduced recidivism by 6.9%, and in- effective for criminal justice programs prison therapeutic communities without A review of security staff and program to focus their resources on preventing community aftercare reduced recidivism staff files was completed to document continued drug abuse by high-use by 5.2%. Drug treatment in the qualifications of staff. Because (CSAT, 2005). community reduced recidivism by employee files were incomplete we 12.4% and drug treatment in jail were not able to report this information. According to the National Institute for reduced recidivism by 6%. The study Drug Abuse (NIDA) a history of drug also found general and specific Preliminary Recidivism use does not in itself indicate the need cognitive-behavioral treatment for drug abuse treatment. Offenders programs for the general offender In an approximately one year period who meet drug dependence criteria population reduced recidivism by 8.2%. three students (8.6%) who completed should be given higher priority for Overall, the general conclusion reached the program picked up new charges treatment than those who do not. Less by the study was some adult corrections (Burglary, DWI 3rd, and Aggravated intensive interventions that may include programs work and some do not and Assault), 8 students (22.9%) had self-help groups may be appropriate for resources should be focused on technical probation violations, and 24 offenders who are not drug dependent. evidence based programming and students (65.7%) did not have a NIDA also notes medications can be an ineffective programming should be probation violation or new charge. important component of effective drug avoided. A preliminary analysis that collapsed abuse treatment for offenders because new charges and probation violations medications allow the bodies of The recently completed report by New into one category (recidivism) and offenders to function normally while Mexico Governor Richardson’s Task compared recidivism to discharge status being treated. According to NIDA, Force on Prison Reform (Bigelow, found no statistically significant despite evidence of their effectiveness 2008) recommends a more concerted 3 Evaluation Methodology The evaluation study design of the Second Chance Center focuses on a process evaluation. This is necessary to accurately document the development and implementation of the program. The process evaluation is focused on how the program has been implemented and how it operates and how current practices impact the delivery of the program. To complete our study we reviewed electronic referral records for offenders referred and accepted into the program for the study period. We also reviewed files that included admission information, course participation information, compliance information, and. Each student’s court case was also reviewed to fill out court information collected from program files as well as to complete a preliminary review of probation violations and new cases filed. Staff employee files were reviewed and a survey of program staff, security staff, and students was conducted. We also reviewed available program records and conducted a review of available literature. effort to coordinate state resources and free lives. Our review of available Wood, Deborah. Narconon Drug Abuse improve the infrastructure to treat the literature does not support this view. Prevention Program Evaluation. Evaluation of widespread substance abuse and There has been limited independent the Narconon Drug Abuse Prevention Program, prepared for the Department of behavioral health needs of individuals research published in peer reviewed Education by the California Healthy Kids involved in the criminal justice system. journals on the Narconon drug Resource Center. (2005) Further, the report echoes the need noted rehabilitation program. Much of the above to support and fund services and literature cited by Narconon is on the SCC Response to this Brief treatments that are evidence based and drug prevention program and most is not supported by research. independent research published in peer The Second Chance Program (SCP) would reviewed journals. like to thank the ISR for its evaluation of our A recent report by the Urban Institute program during our initial pilot. Though few programs in the State have been evaluated (LaVigne, Naser, and Owens, 2006) on The results of this study as well as other in this manner, SCP wanted independent Criminon noted the Criminon program information regarding best practices feedback to provide the best possible contains many elements of effective should be used to inform policy and service to the State. cognitive behavioral therapy. The report decisions regarding the funding and notes that perhaps the single deficit of the implementation of programs serving There is no other program like this in the Criminon program is it does not formally criminal justice involved offenders in State. Due to security concerns Judges are reluctant to sentence their multiple offenders address the continuity of care from prison New Mexico including the Second to community rehab programs. All but two to the community. Chance Program. referrals to SCP were multiple offenders. We are the only program in the State which A recent evaluation study of a Narconon References provides Judicial Districts long-term rehabilitation in a secure setting, a medium- drug abuse prevention program in security jail facility. To keep costs low Bigelow, J. Governor Richardson’s Task Force California noted the Narconon drug enough for the criminal justice system, SCP on Prison Reform Increasing Public Safety in rehabilitation methodology does not uses a manualized approach, addressing New Mexico Before, During and After reflect widely accepted medical and both substance abuse issues as well as Incarceration: New Directions for Reform in criminal behavior thus keeping delivery at a scientific evidence and some information New Mexico Corrections. (2008) is misleading because it is overstated or lower per person cost than therapist driven does not distinguish between drug use Cecchini, M. and LoPresti, V. Drug residues treatment. Since our referrals would have gone to jail or prison at a higher cost, we and abuse (Wood 2005). Cecchini store in the body following cessation of use: Impacts on neuroendocrine balance and have provided a viable and cost effective (2007) in her review of the Hubbard behavior – Use of the Hubbard sauna regimen to alternative to traditional sentencing. An detoxification method notes this method remove toxins and restore health . Medical evaluation by the Urban Institute concluded holds promise and that at present, much Hypotheses , Volume 68 , Issue 4 , Pages 868 - that the manuals align with what is “best more is unknown than is known 879i (2007) practice” in the criminal justice system. regarding long-term drug retention and Center for Substance Abuse Treatment.. As part of our pilot assessment, SCP has effects and this subject deserves careful Substance Abuse Treatment for Adults in the refined our initial screening procedures.; evaluation given its potential Criminal Justice System. Treatment improved the reintegration module including implications for drug abuse prevention Improvement Protocol (TIP) Series 44. (2005) a GED; added more drug education; and will institute many current recommendations and rehabilitation. LaVigne, N.; Naser, R. and Owens, C. The from the ISR. Criminon Program Evaluation: Phase I. Urban According to Narconon International the Institute Justice Policy Center (2006) SCP Guarantee: Any graduate who re- Narconon Program has one of the highest Treatment Research Institute at the University of offends will be taken back by SCP at no success rates in the field of drug Pennsylvania. Economic Benefits of Drug new cost to the government. rehabilitation with outside studies Treatment: A Critical Review of the Evidence for showing 75% of the graduates going on Policy Makers. (2005) to lead stable, ethical, productive drug-