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Windham School System and Other Prison Education Programs

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Windham School System and Other Prison Education Programs DOCUMENT RESUME ED 361 477 CE 064 357 TITLE Schools behind Bars: WindhamSchool System and Other Prison Education Programs.A Performance Review. INSTITUTION MGT of America, Inc., Tallahassee,FL. SPONS AGENCY Texas State Comptroller of PublicAccounts, Austin. PUB DATE Dec 92 NOTE 605p. PUB TYPE Reports Evaluative/Feasibility (142) Tests/Evaluation Instruments (160) EDRS PRICE MF03/PC25 Plus Postage. DESCRIPTORS Adult Education; *CorrectionalEducation; *Cost Effectiveness; Costs; EducationalAdministration; Educational Certificates;Educational Environment; Educational Facilities; EducationalFinance; High School Equivalency Programs;Money Management; Personnel Management; Prisoners;*Program Effectiveness; *ProgramImprovement; Secondary Education; State Programs;Student Certifiêation IDENTIFIERS *Texas ABSTRACT This report presents resultsof a performance review undertaken to develop recommendationsfor improving the effectiveness of the Windham School System (WSS) and educationalprograms in the four privately operated prison units in Texas. (WSSprovides educational programs for inmateswho do not possessa high school diploma.) Chapter 1 is an introduction.Chapters 2-4 providean overview of the Texas corrections education program, methodologyfor assessing WSS and contracts with the two privatecorporations providing educational services, and results of surveys ofwardens, principals, professional educationstaff, inmates, and employers. Chapter 5 examines program effectiveness. Chapters 6-11contain the review of each of six systems of prison educationoperations: organization and management,educational delivery, financial management, personnel managementand development, technology management, and administrative and operational services.Each chapter describes the current situationand provides the following: findings (exemplary (1) programs and opportunities for improvement);(2) recommendations; (3) cost savings; and (4) implementationstrategies. Chapter 12 summarizes the costs and cost savings thatare recommended. Appendixes include onsite audit instruments,survey results, standards for adult and juvenile correctionaleducation programs, technology managementrecommendations, and list of recommendations for the TexasPrison Education System. (YLB) *********************AA****************************************** Reproductions supplied by EDRS * are the best that can be made from the original document. *********************************************************************** A Peiformance Review SCHOOLS BEHIND BARS: 'TMIND''Am Sd tOOL SYSTFV AND OTHER PRISON EDUCATION PROGRAMS ,11INPr 11 .411I1=5M U S DEPARTMENT OF EDUCATION Improvernen PERMISSION TO REPRODUCE THIS c)th, e du, at.onei Resea,n and MATERIAL HAS BEEN GRANTED BY E DUCA DONAL RI SOURCESINFORMATION C F N If R (ERIC; tedroduced as h.s 4101 ..men1 has men .ht. coson ohganaabdn 01,Q,nahnd .1 made to ,ITorOve Mo-ho changes have h.eer Ppcodu, hor p0,01, 01 (of op,r,ons mated .n Ihhsde<1.1 "...en? do rwl hocessahif,epresent offic,a. TO THE EDUCATIONAL RESOURCES CCL Fh ons.t.oh Phhry INFORMATION CENTER (ERIC) JOHN SHARP TEXAS COMPTROLLER OF PUBLIC ACCOUNTS BEST COPY AVAILABLE TEXAS PERFORMANCE REVIEW MANAGEMENT AND PERFORMANCE REVIEW OF THE TEXAS PRISON EDUCATION SYSTEM SUBMITTED TO: JOHN SHARP TEXAS COMPTROLLER_ OF PUBLIC ACCOUNTS SUBMITTED BY: MGT OF AMERICA, INC. in association with MARK D. CORRIGAN NEAL & & ASSOCIATES AND ASSOCIATES DECEMBER 1992 3 Table of Contents PAGE EXECUTIVE SUMMARY 1.0 INTRODUCTION 1-1 2.0 OVERVIEW OF THE TEXAS CORRECTIONS EDUCATION PROGRAM ...2-1 2,1 Background 2-1 2.2 Funding and Expenditures 2-6 2.3 Organization 2-9 2.4 Student Inmates 2-10 2.5 Programs 2-15 2.6 Student Inmate School Time 2-20 2.7 WSS Instruction 2-20 2.8 Privately-Operated Prisons 2-21 3.0 METHODOLOGY 3-1 3.1 Overview 3-1 3.2 Methodological Steps 3-2 3.3 Scope of Work Limitations 3-10 3.4 Preparing the Audit Report 3-11 4.0 RESULTS OF THE SURVEYS 4-1 4.1 Wardens, Principals, and Professional Staff Surveys 4-2 4.2 Inmate Survey 4-16 4.3 RIO Client Employer Survey 4-18 5.0 AUDIT OVERVIEW AND FINDINGS AND RECOMMENDATIONS RELATED TO PROGRAM EFFECTIVENESS 5-1 5.1 Overview of Six Systems Examined 5-1 5.2 A Major State Crisis 5-2 5.3 Hard Questions About the Effectiveness of Corrections Education Must Be Asked 5-3 5.4 Impact of Education on Employability and the Rate at Which Inmates Return to Prison 5-7 5.5 Integration of Education and Other Treatment Programs 5-24 5.6 Relationships Between Vocational Education and Prison Industry Programs 5-26 5.7 Relationships Between Windham and the Schools in the Privately-Managed Units 5-29 5.8 Project RIO 5-32 5.9 Corrections Education in Other States 5-35 MGT of Anwica, Table of Contents PAGE 6.0 FINDINGS AND RECOMMENDATIONS RLEATED TO ORGANIZATION AND MANAGEMENT 6-1 6.1 Introduction 6-1 6.2 Governance and Administration 6-1 6.3 Rules, Policies, and Administrative Procedures 6-32 6.4 School Manage. nent 6-37 7.0 FINDINGS AND RECOMMENDATIONS RELATED TO EDUCATIONAL DELIVERY 7-1 7.1 Introduction 7-1 7.2 Educational Delivery System 7-1 7.3 Educational Programs 7-14 7.4 Student Assessments 7-38 7.5 Program Evaluation Process 7-48 7.6 Student Tracking and Records 7-57 7.7 Student Services 7-69 8.0 FINDINGS AND RECOMMENDATIONS RELATED TO PLANNING, BUDGETING AND FINANCIAL MANAGEMENT 8-1 8.1 Introduction 8-1 8.2 Planning and Budgeting 8-1 8.3 Accounting, Cost Performance, and Cash Management 8-21 8.4 Internal and External Auditing 8-32 9.0 FINDINGS AND RECOMMENDATIONS RELATED TO PERSONNEL MANAGEMENT AND DEVELOPMENT 9-1 9.1 Current Personnel Administrative Structure 9-2 9.2 Personnel Policies and Procedures 9-9 9.3 Personnel Records 9-18 9.4 Hiring of Educational Personnel, Affirmative Action, and Compensation 9-20 9.5 Staff Development 9-30 9.6 Performance Assessment 9-38 5 MGT ol Airmdca, Inc. Table of Contents PAGE 10.0 FINDINGS AND RECOMMENDATIONS RELATED TO TECHNOLOGY MANAGEMENT 10-1 10.1 Current Environment 10-1 10.2 Findings 10-13 10.3 Recommendations 10-29 10.4 Financial Impact 10-37 10.5 Implementation Strategies 10-37 11.0 FINDINGS AND RECOMMENDATIONS RELATED TO ADMINISTRATIVE AND OPERATIONAL SERVICES 11-1 11.1 Introduction 11-1 11.2 Facility Operations 11-1 11.3 Space Management and Utilization 11-8 11.4 Construction and Expansion Planning 11-20 11.5 Custodial Maintenance & Energy 11-31 11.6 Assets Inventory and Management 11-33 11.7 Purchasing 11-36 11.8 Warehousing 11-41 11.9 Safety and Security 11-45 12.0 SUMMARY OF POTENTIAL COSTS AND SAVINGS FROM MGT RECOMMENDATIONS 12-1 12.1 Introduction 12-1 12.2 Summary of Potential Public Unit Costs and Savings 12-1 12.3 Summary of Potential Private Unit Savings 12-2 APPENDICES Appendix A - On-Site Audit Instruments Appendix B -Warden, Principal, and Professional Staff Surveys Appendix C -Student Inmate Surveys Appendix D -RIO Client Employer Surveys Appendix E - Corrections Education Association Standards Appendix F -Technology Management Recommendations, Implementation Strategies, and Financial Impact Appendix G -List of Recommendations for the Texas Prison Education System MGT of America, Inc. EXECUTIVE SUMMARY 7 Executive Summary EXECUTIVE SUMMARY On June 22, 1992, the Texas Comptroller of Public Accounts contracted with MGT of America, Inc., in association with Mark D. Corrigan Associates and Neal & Associates, to conduct a management and performance audit of the Windham School System (WSS). The goal of the Comptroller in conducting this audit was to provide "Better Education through Cost Efficiency".To achieve this goal, the Comptroller required the following scope of work: Determine whether sufficient and correct administrative and support resources are available for the educational process. Ensure adequate resources so as to not impair the educational process. Ensure that these resources are utilized in the most effective and cost efficient manner. Composition of Management Review Team Because of the unique nature of the Windham School System (WSS), the 19- member team that conducted the management and performance review was a well- balanced mix of national experts in the fields of education and corrections. MGT of America, one of the nation's most experienced firms specializing in education system audits, joined forces with Mark D. Corrigan Associates, a national leader in corrections research, planning, and technical consultation, and Neal and Associates, a Texas firm thoroughly familiar with the operations of Texas state government.All three firms assigned their most senior-level personnel to the team that conducted this management and performance review with the State Comptroller.All findings and recommendations were carefully reviewed by both corrections and educational professionals prior to inclusion in this final report. MGT of America, Inc. Page Executive Summary Time Schedule of Review The management and performance audit was completed between June 22 and September 25, 1992. During this period, the audit team assessed the central operations of the WSS in Huntsville and audited the educational programs in 20 of the 36 public units throughout the state, as well as the four privately-operated units.The major activities were scheduled and accomplished as displayed in exhibit A. Scope of Work As stated by the Comptroller's Office, the overall objective of the performance review was to develop recommendations for improving the effectiveness of the Windham School System and educational programs in the four privately-operated prison units. Windham operates within the Texas Department of Criminal Justice (TDCJ)an umbrella organization which was formed in 1990 with the consolidation of the Texas Department of Corrections, Board of Pardons and Paroles, and the Adult Probation Commission. Unlike other school districts, Windham is subject to TDCJ as well as Texas Education Agency (TEA) requirements. Issues such as the administrative structure and programmatic responsibilities of TDCJ were beyond the scope of this audit.For this reason, our audit leaves unaddressed an important set of issues regarding the improvements in efficiency and effectiveness that can result from a greater integration of TDCJ's inmate service programs, including education. We believe that these important issues should be examined.
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