147TH INTERNATIONAL SENIOR SEMINARPARTICIPANTS’
PAPERSPARTICIPANTS’ PAPERSCOMMUNITY INVOLVEMENT IN OFFENDER TREATMENT:
COUNTRY REPORT – JAMAICA

Joyce Stone*

I. INTRODUCTION
Jamaica, like many developing countries, is faced with its own challenges. Noted among them are highunemployment, a weak economy and high incidences of crime. However, violent crimes have become oneof the most pressing concerns for Jamaicans. It has had a negative impact on all spheres of society and has
been cited as a significant factor in the low levels of Gross Domestic Product (GDP) recorded by Jamaica
over the years. (Vision 2030 Jamaica/National Development Plan, p. 99) The tentacles of crime, which claw
their way into every community, negatively affect every individual, either directly or indirectly, and present avalid argument in support of community involvement in the treatment of offenders.
Jamaica’s National Development Plan gives consideration to the multiplicity of complex issues surrounding
national security, particularly the relationship between law enforcement agencies and communities. The
strategies outlined in the plan propose to reform and modernize the law enforcement system, and to strengthen
the capacity of communities to participate in creating a safe and secure environment. The aim is to foster
greater collaboration among civil society, the private sector and government in implementing and financing thestrategies (Extract, Vision 2030).
This paper will: present a brief overview of the Department of Correctional Services and prisons in Jamaica;
attempt to explain the current situation of community involvement in offender treatment; outline the possible
field of services in which the community can be involved; and propose realistic measures which can be utilized
to increase community involvement in the treatment of offenders.

II. DEPARTMENT OF CORRECTIONAL SERVICES
The Department of Correctional Services (Jamaica) is an arm of the Ministry of National Security and was bornout of the amalgamation of the prison services, juvenile facilities and probation unit in 1975. The Department isheaded by a Commissioner, whose responsibility is to ensure that government’s policy directions for convicted
offenders are effectively carried out. He is assisted by a Deputy Commissioner for Custodial Services and a
Deputy Commissioner for Human Resource/Community Services. The Mission Statement of the department
is a key reminder of the tasks to be accomplished and reads thus: “To contribute to the safety and protection ofsociety by keeping offenders secure and facilitating their rehabilitation and reintegration as law abiding citizens,
while developing a professional and committed staff.”
The Department of Correctional Services is guided by: The Corrections Act, The Child Care and Protection
Act, The Parole Act, and the amended Criminal Justice (Reform) Act which gives legal powers to courts forCommunity Sentencing. There are 16 probation offices, eight adult institutions and four juvenile facilities
in Jamaica. Correctional facilities are classified according security level: maximum, medium and low. The
present prison population averages approximately 4,560 inmates daily, with only a small number of females
incarcerated.
A review of prison conditions in Jamaica will reveal excessive overcrowding, a large number of inmates
who are uneducated and unskilled, limited educational and vocational training programmes for inmates, old* Superintendent, Department of Correctional Services, Ministry of Justice, Jamaica.

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and deteriorating physical structures, staff shortages and dwindling financial resources.
As custodians of offenders, custodial managers are cognizant that most, if not all, inmates in correctional
facilities will one day return to open society. Therefore, it is important that the bond between correctional
institutions and the community remains strong and unbroken for the successful rehabilitation and eventual
reintegration of inmates into open society.

III. CURRENT SITUATION OF COMMUNITY INVOLVEMENTIN OFFENDER TREATMENT
Community involvement in Jamaica during the past was usually limited to contributions of cash and kindwhich supported the welfare needs of inmates and the provision of vocational and educational training. However,in recent years there has been an increase in the number of organizations and individuals who are volunteering
their time and skills towards the treatment of offenders.
Community contributions can be classified into three broad areas: educational/vocational training, welfare
needs, and purposeful activities. The main contributors who support the government’s effort towards thetreatment of offenders are the private sector and nongovernmental organizations, international organizations,religious and faith-based groups, individual volunteers and family members of convicted inmates.

A. Family Units Providing Emotional and Physical Support
The family unit is recognized as one of the strongest pillars of the support system in penal facilities,
and cannot be overlooked, because of the emotional and physical support it provides for the treatment ofoffenders. Family visits are regular and are significantly increased during holiday seasons. Although no
research has been carried out in our penal facilities, it is noted that inmates who receive consistent family
support general show improved behaviour and are the least likely to reoffend.
Increased family involvement is encouraged through the hosting of bi-annual ‘Family Days’ on the groundsof some institutions. This provides the opportunity for incarcerated inmates to interact and bond with theirchildren, a situation which otherwise would not be allowed.
Research by: Hairston (1988: 1991), Dowden and Andrews (1999), Slaght (1999), have pointed to theimportance of family support and its positive impact on individuals, during and after incarceration. According
to Harriston (2001), questions are being raised about the impact of imprisonment on children and families
and the extent to which families might be resources and assets, rather than liabilities, in promoting safer,
resourceful communities.

B. Private Sector and Non-governmental Organizations’ Involvement
Members of private sector organizations give much needed, but limited, contributions towards treatment
of offenders. Many correctional institutions are located in urban areas in the midst of big businesses, whereneeds are quite visible. However, only a few private sector organizations contribute in any meaningful way
to the treatment of offenders. The level of contributions from the private sector may be influenced by thehigh incidences of violent crimes committed by offenders and its adverse effects on society.
Total contributions from external stakeholders in 2007 was valued at JA$32,791,525. Donations are usuallyof kind, such as food items, hygiene kits, computer equipment and bedding.
1. Inmates’ Public Work Programme
One area of community involvement that receives some support from the private sector is the Inmates’
Public Work Programme, dubbed ‘Highway 2000’ . The programme utilizes the skills of inmates to maintainthe aesthetic appeal of public spaces. Teams of inmates are tasked with maintaining one of the country’s
major highways, and the National Heroes Park, where the remains of some of Jamaica’s national heroes andformer Prime Ministers are laid to rest. Due to the success of the programme it was extended in 2007 to
five of the country’s fourteen parishes.
The inmates’ work programme not only provides meaningful activities for inmates, but it also creates anopportunity for them to give back to the community. While a vacuum exists for greater contribution from the162

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private sector, the support for the programme is viewed as a step in the right direction.
2. Food for the Poor – Donations, and Provision of Housing and Welfare
Contributions from non-governmental organizations towards offender treatment are significant. Of theJA$32,791,525 mentioned above, JA$29,274,178 was donated by the non-profit organization, Food for the Poor
(DCS Annual Report, 2007). It is to be noted that the overall amount indicated above does not capture the total
assistance provided by Food for the Poor.
In addition, Food for the Poor provides assistance to ex-prisoners to assist in their reintegration. Assistanceis given in the form of housing structures, tools and equipment. Except for rehabilitation grants provided bygovernment, which will be mentioned later, Food for the Poor is the only organization which provides welfare
support to ex-offenders.
3. Athletes – Sports as a Vehicle for Change
The use of cricket to help disadvantaged children turn away from a life of crime was first conceived by
Mr. Mikey Thompson, a Jamaican cricket coach who grew up in North London. It was introduced into theprisons by the Courtney Walsh Foundation in 2009. Courtney Walsh was a successful fast bowler on theWest Indies Cricket Team and is one of cricket’s stalwarts. He and his team conduct coaching clinics forinmates at the Tower Street Adult Correctional Centre. Certificates are issued to inmates who successfullycomplete the programme, and those who have excelled have been recruited by cricket clubs upon theirrelease.
4. Students Expressing Truth – Capacity Building
Students Expressing Truth (SET) is the brainchild of Mr. Kevin Wallen, a motivational speaker. The concept
is geared towards channelling inmates’ capacity and leadership skills into purposeful activities, while moulding
them into becoming responsible citizens. It was first introduced at the Tower Street Adult Correctional Centre
and has since been expanded to the Fort Augusta and St. Catherine Adult Correctional Centres and Rio Cobre
Juvenile Facility.
The SET programme involves a group of inmates who are selected from among their peers to be rolemodels for the wider prison population. The group is closely supervised by correctional officers and acoordinator who provides guidance and support. A Board is appointed and committees formed to manage
the group’s activities. A popular committee established at all institutions is the Sports Committee whichorganizes competitions such as domino, netball and in-house football. SET members meet once monthly andat each session a topical issue is discussed. Members are given training in peer counselling, mediation andconflict resolution.
The SET programme at the Tower Street Adult Correctional Centre also operates the FREE FM (Fostering
Rehabilitation, Education and Entertainment) Radio Station which is aired within the confines of the institution,
but can heard on the worldwide web. The radio station disseminates useful information and provides healthy
and responsible entertainment for the general population.
5. Religious Volunteers
The chaplaincy unit was established as a support service in the Department of Correctional Services
and as a means of broadening its scope to achieve a more effective and efficient rehabilitation programme.
In addition to the provision of counselling and spiritual nurturing, chaplains assist custodial managers tocoordinate activities of church groups and other faith-based organizations.
Religious volunteers give significant contribution to the treatment of offenders through spiritual counsellingand provision of welfare items to the neediest of inmates. Regular religious services are conducted by local
church groups, and in 2007, 65 inmates from five institutions responded to the (Christian) Gospel throughwater baptism.

C. International Cooperation
1. Multi-faceted Approach by the Department for Individual Development, the UK
The Department for International Development (DFID), a department of the UK government, has taken
a multi-faceted approach to offender treatment and is currently facilitating developmental training courses
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and seminars for persons working in the department.
Beneficiaries of the courses include Administrators from the department’s head office, Probation Aftercare
Officers and Senior Correctional Officers. One of the main areas of training is the International Standards for
the Treatment of Prisoners to which Jamaica is a signatory at the United Nations Convention. In addition todevelopmental courses, the organization is improving the infrastructural capacity of the department to make it
more effective.
DFID also funded repairs to buildings. Correctional personnel benefited from a refurbished staff collegewith an improved environment more conducive to learning. Skill areas for inmates were expanded andretooled, the hostel, which is a halfway home for inmates was refurbished, and a visitors’ waiting area wasbuilt at the Tower Street Adult Correctional Centre.
2. ‘Hush the Gun’ - Combining Literacy with Skills Training‘Hush the Gun’ is a behaviour modification programme sponsored by The Canadian International Development
Agency (CIDA). It is aimed at quieting the guns in violent communities and was introduced at the Tower Street
Adult Correctional Centre in 2007. The programme targets illiterate and unskilled inmates and combines literacy
and skill training to equip inmates for the job market upon their release. The programme is being supplementedby Springboard, a component of DFID.

D. Volunteerism Helping to Improve Accountability
A team of volunteers from a wide cross section of society offers their services in time and effort aimed
at ensuring transparency and accountability in correctional institutions. These volunteers are appointed tocommittees referred to as the Board of Visitors and are legislated by the Corrections (Board of Visitors)
Regulations, 1991 to inspect correctional facilities (juvenile/adult), and to hear and intervene into complaints
made by inmates. Annual reports are then submitted to the Minister of National Security.
Judges and magistrates are also encouraged to make at least one yearly visit to penal facilities, but thisrarely happens.

E. Consultative Approach in Decision Making
The community services unit within the Department of Correctional Services deals expressly with
community corrections. The unit supervises offenders who are given non-custodial sentences to reduce
reoffending, thereby assisting offenders’ integration into society. Parole Aftercare Officers attached to theunit investigate and prepare Social Enquiry Reports for Courts and Parole Board, prior to a sentencing
hearing or parole consideration.
Community responses form an integral part of Social Enquiry Reports and require community participation
in a consultative capacity. Information supplied by the community includes: victim’s views about the crimecommitted and feelings toward the offender, attitude and behaviour of offender prior to incarceration, andlikelihood of the offender reoffending if he returns to society. Participation of community members in thisdecision-making process can also be a means of encouraging community members to exert social pressure toencourage ex-offenders to conform to acceptable standards.
Figures taken from the Department of Corrections Annual Report, 2008 shows a total of 8,451 reports
completed in 2008, a 9.2% increase over the previous year.

F. Community Service Order
Community Service Orders (CSO) given to non-violent offenders provide an alternative to custodial
sentencing and require fewer resources. The cost to government is significantly lower to maintain noncustodial clients when compared to custodial clients. With already dwindling financial resources, savings
can be diverted towards rehabilitation programmes. Figures show that in the year 2008 to 2009 it cost the
government approximately JA$776,723 less per annum to maintain each non-custodial client (DCS Annual
Report, 2008 p. 15).

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Table 1

Inmates$863,786.50 per annum

Juveniles$764,286.68 per annum

Remandees$570,323.52 per annum

Non Custodial Clients$87,063.77 per annum

Cost of Maintaining Custodial and Non-Custodial Clients: 2008 − 2009

“Many offenders, including those who are drug addicted, may be dealt with in a more efficient, humane andeconomic manner” (Day, 2007). A CSO is multi-faceted as it holds offenders accountable for the harm they
have caused to the community; provides communities with human resources that can improve the quality oflife in public environments; and helps offenders develop new skills through supervised work activities. CSOs
assist the ‘at-risk’ juvenile population into becoming productive citizens and living a more meaningful life. It isalso well suited in preventing first time offenders from being admitted to correctional institutions and coming
into contact with so-called ‘hardened’ criminals, as well as the reduction of recidivism.
In 2007, 793 Community Service Orders were issued by the courts in Jamaica (DCS Annual Report, 2007).

IV. POSSIBLITIES AND OBSTACLES
A. Possible Fields of Services in which the Community can be Involved
1. Introduction of Advisory Committees
A number of jurisdictions, including Australia and Canada, introduced advisory and consultative committees
to develop and foster links with the local community on a range of matters, or to build community links andaddress public concerns with respect to prison security and prison management. (Record of the 20th APCCA).
It was reported that this approach reaped success; therefore it could be further examined by the Jamaican
government with a view to having retired senior managers from DCS volunteering their services on the board.
Former employees of the Department are recommended because of their wealth of experience and as a meansof exercising quality control.
2. Extending Social Agencies Assistance
The successful reintegration of offenders into society is sometimes hampered by lack of social support
systems. As a means of social investment, social welfare organizations should extend the benefits of the
National Health Fund and PATH Programme to offenders upon the first six months of their release.
3. Certification of Training Programmes
A large number of incarcerated inmates are from a low socio-economic background, uneducated and unskilled.
Programmes of rehabilitation in confined environments must be geared towards assisting offenders in improving
their social status in life. Using a popular adage, “teach a man to fish, and feed him for life – give him a fish, andfeed him for a day” .
Educational programmes and skills training offered in the institution include, but are not limited to, computer
courses, carpentry, welding and woodwork. The certification of candidates upon successful completion of thecourses will improve the effectiveness and efficiency of these training programmes. Certification, though not an
end in itself, offers that important link to improving offenders’ marketability, thereby increasing their chances in
the job market. Collaboration between DCS and the Human Education and Resource Training/National Training
Academy (HEART/NTA) provides such an opportunity.
4. The Role of the MediaThe role of the media is critical to information sharing and should be harnessed as a partner in the rehabilitation
process, and in helping to change public perception. However, managers of Correctional Services must also
develop marketing strategies that can assist in changing public attitudes towards offenders.

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B. Obstacles to Community Involvement
1. High Level of Fear and Stigma
Several factors impinge on government’s effort at mobilizing community support in the treatment ofoffenders. Of significance are the stigmas attached to the high level of fear of offenders in society, and ageneral lack of trust in rehabilitated inmates. Despite the majority of offenders not returning to prison, many
persons remain skeptical of reformed inmates.
The steady increase in the incidences of violent crime in the country has heightened this fear. In 2008,of a total of 1,849 inmates admitted to penal facilities, 515 were reoffenders. The rate of recidivism in 2008
stood at 28%, an increase of 7% over the previous year (See Tables 2 and 3 below).

(i) Recidivism
The Department of Correctional Services currently measures recidivism based on the number of times
that an offender re-enters its care and custody having been brought before the court and sentenced to acorrectional facility. Aware of the need to be consistent with international practice, a review is underway toredefine the indicators. The review will take into consideration, among other things, a time frame during
which an offender is considered to have reoffended.
Table 2

Recidivism by Age and Institution – January to December 2008
TOWER STREET A.C.C

ST. CATHERINE A.C.C

FORT AUGUSTA A.C.C

1st 2nd 3rd 4th Total 1st 2nd 3rd 4th Total 1st 2nd 3rd 4th Total
Under 17

0

0

0

0

0

0

0

0

0

0

0

0

0

0

GRAND
TOTAL

0

0

17 – 20

4

0

0

0

4

8

0

0

0

8

0

0

0

0

0

12

21 – 25

16

3

0

0

19

36

6

1

0

43

0

0

0

0

0

62

26 – 30

16

4

0

1

21

28

10

9

2

49

0

2

0

0

2

72

31 – 35

6

6

3

7

22

37

16

17

1

71

1

0

1

1

3

96

36 – 40

15

8

2

6

31

37

10

19

5

71

0

0

0

0

0

102

41 – 45

2

2

2

5

11

21

13

24

7

65

8

0

1

0

9

85

46 & Over

4

2

2

5

13

29

15

19

8

71

2

0

0

0

2

TOTAL

63

25

9

24

121

196 70

89

23

378

11

2

2

1

16

86
515

Table 3REOFFENDERS ADMITTED TO ADULTSEXINSITUTIONS BY SEX 2004 - 2008
2004

2005

2006

2007

2008

MALE

628

437

487

371

499

FEMALE

5

8

9

11

16

TOTAL

633

445

496

382

515

Reoffending Rate

29%

24%

24%

21%

28%

Five hundred and fifteen (515) reoffenders were admitted in 2008, an increase of 133 or 35% more than2007 (382). The age cohort 21−45 accounted for 332 or 64% reoffenders.
The reoffending rate has increased from 21% in 2007 to 28% in 2008.
2. Public Image
A poor public image of prisons and prisoners remains one of the greatest challenges in the ability to
attract community support. This image is often encouraged by a media slanted towards sensationalism,
which often neglects to highlight positive aspects of incarceration. Media coverage of activities in prison isusually limited to escapes, riots, violent deaths or controversial situations. Negative media coverage doesvery little to promote community involvement.

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3. Competitive Environment
The challenges are further heightened in a competitive environment where community involvement in thetreatment of offenders must compete with more attractive causes such as children, the elderly, and physicaland mentally challenged groups.
In a country where unemployment is high, employers become even more reluctant to engage the servicesof ex-convicts. The situation for the offender is further worsened in a recession, where resources are negatively
impacted.

V. MEASURES TO ENHANCE COMMUNITY INVOLVEMENT
IN THE TREATMENT OF OFFENDERS
A. Increasing Public Awareness through ‘Corrections Week’
The Department in its effort to improve its public image and strengthen the link between institutions andcommunity has dedicated the last week of October each year as ‘Corrections Week’ .
Activities are conducted throughout the week help to increase public awareness and minimize negative
perceptions held by the public, while providing a platform to encourage and foster greater community
involvement. Highlights of the week include: a church service, panel discussion, debate competition, sports
day, award function and an exposition which showcases a wide variety of items produced by inmates. Items
are sold to the public and proceeds used to support rehabilitation programmes.
But, more significantly to the display and selling of items, is the unconscious, but emotional link which
it forges between the producers and buyers with heightened interest between inmates and the wider
community.

B. Rehabilitation Grants
The government, in recognizing the difficulties inmates experience in reintegrating into theircommunities, provides welfare assistance in the form of rehabilitation grants. These are given to inmates
who are released from prison and have exhibited interest and the necessary skills required to become selfsufficient.
C. Restorative Justice
Global trends are pointing towards the concept of Restorative Justice as a useful strategy for increasing
community involvement, while reducing the level of crime. Managers of Correctional Services must consider
the value and benefits of this new strategy, as the way forward.
VI. CONCLUSION
Community involvement has long been recognized by the government of Jamaica as an important element
for the prevention of crime, and the successful rehabilitation and integration of offenders.
The challenge however, though not insurmountable, is to identify, motivate and harness the commitmentof stakeholders to contribute their time, resources and efforts into assisting offenders to lead productive
lives. According to Marcus Day, 2007 “...the fight against crime is not just a matter for professionals
employed by the state, but also for elected politicians, local authorities and the voluntary sector”.

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REFERENCES
Day, M (2007). A Manual for the implementation of community service Orders in the Caribbean, CDARI
Press, Castries.
Department of Correctional Services (Jamaica) Report, 2008, p. 50.
Dowden, C., & Andrews, D. A. (1999). What works for female offenders: A meta-analytic review. Crimeand Delinquency , 45(4), 438-452.
Hairston, C. F. (1988). Family ties during imprisonment: Do they influence future criminal activity?
Federal Probation , LII(1), 48-52.
Hairston, C. F. (1991a). Family ties during imprisonment: Important to whom and for what? Journal of
Sociology and Social Welfare , XVIII(1), 87-104.
Hairston, C. F. (Paper 2001). Prisoners and Families: Parenting Issues During Incarceration.
Slaght, E. (1999). Family and offender treatment focusing on the family in the treatment of substanceabusing criminal offenders . Journal of Drug Education, 19(1), 53-62.
Record of the 20th APCCA, http:www.apcca.org/Pubs/20th/agenda3.htm 25/11/2010168