Commonwealth of Massachusetts Executive Office of Public Safety Department of Correction Governor’s Commission on Corrections Reform Major Recommendation #13 Dedicated External Female Offender Review Kathleen M. Dennehy Commissioner August 1, 2005 Dedicated External Female Offender Review Table of Contents 1. Executive Summary Page 3 2. Subgroup A Review Page 7 3. Subgroup B Review Page 57 4. Subgroup C Review Page 99 5. Subgroup D Review Page 151 6. Subgroup E Review Page 197 ` 2 Executive Summary The circumstances and conditions surrounding the death of a high profile inmate, former priest John Geoghan, resulted in an investigation that called for a more extensive review of our Department’s policies and procedures. As a result, on October 17, 2003, Governor Mitt Romney established a Commission on Corrections Reform. The Commission, chaired by former Attorney General Scott Harshbarger, convened and conducted a comprehensive review of the Department of Correction. Over the next eight months, the Commission met and conducted a review of our Department’s Governance, Operations and Security, and Programs and Reintegration. On June 30, 2004, the Commission published a report of their findings. The report outlined eighteen major recommendations. In response, the Department of Correction conducted a feasibility review and developed a strategic implementation plan for each recommendation. Subsequently, a Department of Correction Advisory Council was established by Executive Order of Governor Romney. The Advisory Council was established to work with and advocate for the Department of Correction during the implementation of these recommendations. Our Department was pleased to learn that one of the eighteen major recommendations called for a review of the unique issues pertaining to female offenders in our custody. Soon thereafter, we began working with the Advisory Council to shape the scope of the study and to put together a one-time review panel of policymakers and stakeholders to conduct the review. Female Offender Population Female offenders and their crimes are different from their male counterparts. They have gender specific issues that significantly impact their potential for successful reentry. Creating an environment which provides these women with opportunities to address their issues is much more difficult because MCI-Framingham, the state’s only committing facility for women in Massachusetts, is overcrowded and continues to experience substantial growth each year because of its diverse population. The population is made up of county awaiting trial and probation detainees; federal detainees; county, out-of-state, and state sentenced inmates; and civil commitments. During fiscal year 2004, 4,233 women were admitted to and 4,266 women were released from MCI-Framingham. In fact, the female offender population actually turns over six times per year. More than two-thirds of the admissions were detainees or civil commitments and more than half of the other one-third were house of correction inmates. The Dedicated External Female Offender Review The Dedicated External Female Offender review panel convened for the first time on March 14, 2005. The membership broke into five subgroups made up of stakeholders and policymakers and DOC support staff. The subgroups were assigned to assess Overcrowding, Booking and Admissions, Gender-Specific Medical Needs, Operations, Resources and Practices, Family Connections, Reentry, Treatment, and Fiscal Support. The subgroups “hit the ground running”, met bi-weekly, tripled their membership, conducted site visits, invited other policymaker and stakeholders to attend meetings, collected documentation and researched best practices. On August 1, 2005 each subgroup submitted its ` 3 findings and recommendations. The following are some of the panel’s major findings and major recommendations: Overcrowding; Booking and Admissions. Major Findings: The issues of overcrowding, programming, warrant clearing, family connections and reentry are directly related to housing county women. Progress is being made on the separate facility in Western Massachusetts, which will house women from Hampden and adjacent counties. This supports the finding that, given the proper resources, counties can house their own women. There is an increase in the number of women civilly committed to MCI-Framingham for substance abuse issues (without criminal charges). These women are not receiving treatment. Those women who are civilly committed with criminal charges do receive treatment but do so with convicted inmates. A standard tool for assessing civil commitments is needed. The diverse population of detainee, county, state, federal and civilly committed female offenders affects the ability to offer effective programming and services. Major Recommendations: Return pretrial detainees and sentenced house of correction inmates to their respective counties. Reopen detox centers throughout the Commonwealth, including secure and non-secure beds, with specific attention being paid to offering community-based services. Review the need for alternative sentencing options for female offenders (at the time of sentencing). Gender-specific medical needs of female offender population. Major Findings: Geographic segregation disproportionately negatively affects the health status and health care opportunities of female offenders in Mass. Majority of female offenders have trauma-related histories that negatively impact their health status and their successful utilization of health care services. Insufficient quality assurance and lack of quality improvement efforts across many of the health-related services areas impacting female offenders. Major recommendations: DOC should progressively establish more local and regional correctional program options for women. ` 4 The DOC should restructure its mission, staff training, and clinical and other female offender protocol management and habilitation programs to assure that they are trauma-informed and well-integrated. The DOC through Executive Branch consultation should determine appropriate options regarding establishing state health care quality assurance oversight of DOC medical and related services. Operations; Resources and Practices Major Findings: There is insufficient and inappropriate space for women prisoners who require segregation and isolation. There is insufficient staff to respond to prisoners’ questions and concerns in a timely manner. The perception is held that a significant number of staff were problematic. Major Recommendations: Create transitional unit at MCI-F for women with mental illness, who should not service close custody time. Reinstitute Unit Management. (3 positions recommended) Conduct formal survey of both staff and prisoners to improve staff-inmate interaction and improve gender-specific training. Reduce overcrowding and expensive transportation problems by studying the returning of prisoners who are awaiting trial and serving county sentences back to county facilities. Make significant improvements in maintenance and operations. Fill staff vacancies. Family Connections; Reentry Major Findings: Positive community involvement is important. Adequate case management services around parenting and family connections strengthens potential for successful reentry. Fostering positive relationships via community members, counselors or mentors strengthens potential for successful reentry. ` 5 Major Recommendations: Strengthen communication between the community and the state agencies; educate staff on gender-specific family issues and the important of family connections. Analyze staffing patterns. Develop and implement mentoring and other programs that promote positive relationships. Develop and implement partnerships with the community and develop in-reach strategies. Treatment; Fiscal Support: Major Findings: Female offenders need a comprehensive curriculum to meet their unique needs. Female offenders need more literacy instruction and special education instruction. There is a lack of good links to Adult Education and Workforce Development programs subsequent to release. Major recommendations: Detainee awaiting trial and civil commitments should not be housed at MCI-Framingham. Female offenders should be housed closer to their respective communities. Reentry planning should begin as early as possible. Good parenting skills must be taught and emphasized. Gender-specific job development must be implemented. There should be portability for Adult Basic Education, English as a Second Language, job readiness and workforce development programs to Community Colleges. There needs to be an increase in the number of Special Education/Literacy teachers. The number of volunteers programs aimed at teaching and rebuilding socialization skills needs to be expanded. Conclusion In the detailed report which follows, the members of the Dedicated External Female Offender Review panel set forth their assessment of the nine major objectives. They identify minor and major problems with supporting data and propose remedies with short-term and long- term strategies. What they accomplished in less than four months in their comprehensive review of female offenders in our Department’s custody can take years to do and then still not be done. Our Department recognizes and is very appreciative of the dedication, hard work, and commitment from the members of the Dedicated External Female Offender Review Panel. We will continue to value the relationships we have built