Innovative and Evidence-Based Apporaches to Recidivism Reduction and Reentry [Corrections Today]

As a nation, prison populations continue to grow and recidivism rates remain high. During the last two decades, this trend has garnered the attention of academics as well as state and federal leaders. Research has led to the development of "best practice" standards that have guided the development of programming and services to address offender recidivism. Corrections and communities alike have worked to develop a continuum of services to address reentry needs. Certainly, the first few days and weeks are critical to ensuring that reentrants have a successful reintegration process.

The "low-point" in correctional programming was in the mid-1970s when leading criminologist Robert Martinson released his influential review of correctional programs - declaring that "nothing works" when it comes to offender rehabilitation. Over time, a number of researchers - such as Ted Palmer, Paul Gendreau and Don Andrews - criticized the assumptions and empirical research of the "nothing works" doctrine. Palmer reanalyzed the same data utilized by Martinson and came to a different conclusion: Some things do work. Other studies followed to support Palmer's seminal work, and so began the rebirth of rehabilitative efforts, spawning more empirical research and evaluation concerning the implementation of effective offender programming. Since then, research has shown repeatedly that offenders who only receive criminal sanctions are much more likely to recidivate than offenders who also receive a continuum of services to address pro-criminal attitudes and addictions1

The challenge, however, is in implementing and sustaining a continuum of effective, evidence-based programming and services. The Oklahoma Department of Corrections (ODOC) has worked diligently to develop partnerships with concerned citizens, volunteers and state agencies to maximize available resources to provide effective programs and services to address the risk factors and needs of the offender population. As the concept of reentry continues to evolve and budgets continue to tighten, opportunities to develop new partnerships with individuals, agencies and philanthropic organizations around reentry needs have presented themselves. ODOC currently has three distinct operational reentry projects that focus on transitional services for specific populations. This article will provide an overview of these reentry services that will be useful and encouraging to others as they work toward practices that reduce recidivism and increase public safety.

Second Chance Act Reentry Programming and Services

The passage of the 2008 Second Chance Act (SCA) officially announced the nation's interest in evidence-based practices in the area of offender reentry and recidivism reduction. The subsequent grants provided a funding stream by which many states and local entities have worked to implement evidence-based practices around reentry services for offenders returning to communities across the nation. ODOC was a successful applicant for SCA adult demonstration grant funds and began providing reentry services in 2010 to high-risk/high-need offenders returning to the Oklahoma City area. Four to six months of facility-based programming is provided to offender-based assessed areas of need to address substance abuse, lifeskills/financial preparedness and vocational training. Based on assessed areas of need, offenders are placed into programmatic services. Once an offender discharges, programmatic and transitional services are available to the offender for up to 12 months in the community. Transitional housing and transportation assistance are examples of services accessible to reentrants once they are released. Substance abuse treatment and cognitive restructuring programs are available both pre- and post-release.

SCA participants have the ability to work with a transition coordinator to develop a thorough transition plan prior to release. The transition coordinator solicits input from the offender, program providers, facility staff and family members to develop the transition plan. The transition plan accounts for each offender's strengths and weaknesses, and provides a roadmap that the offender can use to employ the skills that have been learned from the facilitybased programming.

The SCA reentry program was also designed to assign an ODOC probation officer to the project. This probation officer works with facility and program staff members to prepare the offender for release and supervision. Upon release, this officer assumes the supervision duties of the reentrant in the community. To date, this position has supervised more than 30 offenders as they transition from the facility to a period of community supervision. Through this unique transition to supervision, much of the anxiety associated with meeting the supervising officer is alleviated. This process has led to more successful collaboration between officers and probationers, resulting in less anxiety and stress associated with the first meeting between the two.

As of March 2013, 234 offenders have participated in the SCA reentry project. To date, only six have returned to prison. In cooperation with the Bureau of Justice Assistance, SCA grantees are participating in a random assignment study to determine the effectiveness of these reentry activities. The SCA reentry project has led to new and expanded partnerships with the Oklahoma Department of Mental Health and Substance Abuse Services (ODMHSAS), the Oklahoma Department of Career and Technology Education and the city of Oklahoma City.

Collaborative Mental Health Reentry Program

In 2007, ODOC and ODMHSAS implemented a Collaborative Mental Health Reentry Program (CMHRP). ODMHSASfunded staff positions are located in correctional facilities with the greatest number of offenders with serious mental illnesses. The program is staffed by integrated services discharge managers (ISDM), co-occurring treatment specialists and a program coordinator. The ISDMs serve as part of the ODOC institutional mental health treatment team to create and implement an individualized treatment plan, including reentry planning for offenders with serious mental illnesses. The program includes community-based Reentry Intensive Care Coordination Teams (RICCT) to improve the transition of reentering offenders with serious mental illnesses. RICCT staff meet with offenders a minimum of 90 days before their projected release dates from prison and work with the offender in the community until he or she has adjusted to life following incarceration.

ODOC and ODMHSAS have partnered to create a dynamic collaborative reentry program to improve the transition of incarcerated offenders with serious mental illnesses into appropriate community-based mental health services. Increased access to community-based mental health outpatient treatment services is associated with positive outcomes - such as less utilization of inpatient hospitalization, higher rates of employment and lower reincarceration rates. Long-term findings document improvements in Med- icaid enrollment, employment rates and reincarceration rates. As such, CMHRP improves public safety, resulting in cost savings. Cost savings are achieved through fewer consumers receiving inpatient hospitalizations and lower reincarceration rates. Overall, these findings support and add credibility to the belief that when offenders' needs are effectively and adequately met in the community, there are successful outcomes and recovery is attainable.

Several positive outcomes have been noted concerning this project. CMHRP participants were almost six times more likely to be enrolled in Supplemental Security Income or Social Security Disability Insurance at ODOC release than the baseline comparison group of offenders who did not participate in the program, allowing for immediate services upon discharge. The service engagement rates for CMHRP clients were also six times higher than the baseline comparison group. CMHRP clients were 39 percent more likely to be employed three years following ODOC release and received 80 percent fewer inpatient admissions than the baseline comparison group. Inpatient hospitalizations decreased from 8.7 percent to 2.4 percent, while outpatient service utilization increased from 55.1 percent to 89.1 percent. Lastly, and perhaps most telling, the three-year reincarceration rates for CMHRP clients were more than 40 percent lower than the baseline comparison group. In 2012, CMHRP was awarded a Council of State Governments Innovation Award. Also in 2012, the Substance Abuse and Mental Health Services Administration awarded ODMHSAS a threeyear, $1.2 million-expansion of the program.

Battle Buddies

Most recently, ODOC has turned its attention toward the reentry needs of veterans. Through the help and leadership of retired Maj. Gen. Rita Aragon, Oklahoma secretary of military and veterans affairs, a concentrated effort is being made to develop a system of support and services for incarcerated veterans, both while incarcerated and upon reentry into the community.

The Oklahoma secretary of military and veterans affairs has been an avid advocate for the development and implementation of specialty courts with a docket focusing on veterans. Under the leadership of Aragon, a focus group of wardens, security officers and members of veterans' organizations met and designed a program very similar to the veterans' court, called the "Battle Buddies" program. Battle Buddies is staffed completely by volunteer veterans. Their service is provided at no cost to the state or citizens of Oklahoma. The program assigns a veteran volunteer who will be a "battle buddy" to the offender veteran. The Battle Buddies system has stringent admission criteria and training for its volunteers. The program is designed to help veteran offenders to be successful upon release by providing an avenue for support and mentorship.

The program encourages veteran offenders to form veterans groups and to provide support for each other while still incarcerated. Each veterans group supports one another by listening. The battle buddies encourage incarcerated veterans to engage and give back to the community. One veterans group crochets American flags for the families of service men and women who have died in battle.

Through ongoing mentorship, the volunteers encourage incarcerated veterans to join a veterans' service organization and a religious or spiritual organization upon release so that they are surrounded by others who have served and understand what the offender veteran has gone through. The Battle Buddies program endeavors to assist offender veterans in finding employment and suitable housing upon release. They also assist with helping navigate the registration process with the Veterans Administration in order to attain all available benefits.

Conclusion

Programs and services are the frontline of recidivism reduction - a common theme and necessary element of success in bridging the gap between release from prison and services in the community. ODOC has had measurable success with linking releasing offenders to programs and services that can continue to address needs post-incarceration. The ODOC staff cannot accomplish successful reentry of offenders by themselves. As evidenced by the partnerships mentioned throughout this article, state agencies, volunteer groups, nonprofit organizations and prison ministries must unite to provide the necessary services and support to reduce barriers and promote the acceptance of ex-offenders back into the community. Through the combined efforts of all involved parties, successful reentry of offenders is achieved and greater public safety is ensured.

As of March 2013, 234 offenders have participated in the SCA reentry project. To date, only six have returned to prison.

ENDNOTE

1 New Zealand Department of Corrections. Historical background; The "what works?" debate. Retrieved from http://www. corrections.govt.nz/research/the-effectiveness-of-correctionaltreatment/historical-background.html.

Justin Jones is director of the Oklahoma Department of Corrections. Clint Castleberry is programs administrator for the Oklahoma Department of Corrections.