U.S. Department of Justice

National Institute of Corrections
U.S. Department of Justice

National Institute of Corrections

320 First Street, NW

Washington, DC 20534

Morris L. Thigpen

Director

Thomas J. Beauclair

Deputy Director

Virginia A. Hutchinson

Chief, Jails Division

Robbye Braxton-Mintz

Project Manager

National Institute of Corrections

www.nicic.gov
PROGRAMS AND

ACTIVITIES

Tools for Managing

Inmate Behavior

Mark D. Martin

Richard J. Kaledas

June 2010

NIC Accession Number 024368
This document is supported by cooperative agreement #08J66GJX0 from the National Institute of Corrections, 

U.S. Department of Justice. Points of view or opinions stated in this document are those of the authors and 

do not necessarily represent the official opinion or policies of the U.S. Department of Justice.
Contents | iii

Foreword ...............................................................................................................v

Acknowledgments ........................................................................................vii

Chapter 1. The Value of Keeping Jail 

Inmates Productively Occupied .............................................................. 1

Chapter 2. The Administrator’s Role in 

Supporting Inmate Programs and Activities .................................. 5

Conveying the Importance of Activities and Programs ............................ 5

Establishing the Vision ................................................................................... 6

Establishing Goals for Inmate Activities and Programs ............................ 6

Identifying and Engaging Stakeholders....................................................... 9

Overcoming Barriers to Program Implementation................................... 12

Demonstrating Administrative Commitment........................................... 18

Summary......................................................................................................... 21

Chapter 3. Planning, Implementing, and 

Evaluating Activities and Programs ................................................... 23

Describing the Problem ................................................................................ 23

Assessing Inmate Needs............................................................................... 24

Setting Goals and Defining Objectives....................................................... 25

Selecting and Implementing Program Activities...................................... 26

Evaluating the Program................................................................................ 32

Summary......................................................................................................... 42

Chapter 4. Inmate Activities and Programs ................................... 43

Key Decisions in Selecting and Implementing a Program...................... 44

Determining the Complexity and Cost of a Program .............................. 46

Contents 
iv | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Bibliography ...................................................................................................... 77

Appendix A. Worksheets ........................................................................... 81

Appendix B. Logic Model Flowchart .................................................. 97

Appendix C. Program Examples ......................................................... 101

Appendix D. Program Resources ....................................................... 107

Appendix E. Resources Produced by the 

National Institute of Corrections ........................................................113
Foreword | v

V

iolence, vandalism, and unsanitary conditions prevail in many jails nationwide, and they frustrate jail practitioners who must ensure the safety 

and security of inmates, staff, and the public. These conditions often result 

from insufficient attention to inmate behavior management, though over 

the past 25 years, important lessons about managing and controlling inmate 

behavior have emerged. One lesson is that a jail cannot control inmate behavior by focusing primarily on physical containment. Although physical 

security measures such as locks, steel doors, security glass, and alarm systems 

remain essential, a jail must actively manage inmate behavior to achieve a 

safe, clean, and secure environment.

Keeping inmates productively occupied through inmate programming 

provides a powerful incentive for inmates to maintain positive behavior. 

Programs offer something constructive for inmates to do or learn, meaning 

there is less time for negative behaviors to become management problems 

for staff. Programs contribute to making staff work environments safer, with 

reduced threats of violence and hostility. They offer opportunities for selfimprovement, possibly helping inmates function more productively in their 

communities upon release. Finally, there is likely to be a cost benefit: it can be 

less costly to implement programs in the long run than to constantly replace 

broken showerheads, repaint graffiti-ridden walls, or pay overtime for staff 

responding to inmate disturbances.

Effective jail program planning integrates an assessment of jail and inmate 

needs with evidence-based programs. These programs fall into three distinct 

categories: activity-focused, reformative, and reintegration. Activity-focused 

programs further the primary goals of keeping inmates busy while they are 

in custody. Reformative programs provide inmates with knowledge and skills 

to address personal needs. Reintegration programs prepare inmates for their 

return to the community as productive citizens.

This manual offers practical information and guidance on planning and 

implementing inmate programs. It provides a logic model for developing 

and assessing the programs. It includes activity-focused, reformative, and 

Foreword
vi | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

reintegrative program examples with varying levels of complexity and resources, including those that are free and easy to implement. In the manual, 

there are steps an administrator can take to provide leadership and support as 

well as overcome barriers to inmate programming. 

This manual not only will provide guidance to practitioners on improving inmate programs, but will also demonstrate that even with minimal resources, 

correctional professionals can plan, implement, and evaluate programs while 

realizing the benefits of improved inmate behavior. 

Morris L. Thigpen

Director

National Institute of Corrections
Acknowledgments | vii

P

rograms and Activities: Tools for Managing Inmate Behavior was written 

under the direction of the National Institute of Corrections (NIC). Special 

thanks go to Virginia Hutchinson and Robbye Braxton-Mintz at NIC for 

their leadership and assistance in developing this document. Thanks also 

to Donna Ledbetter and Janet McNaughton at Lockheed Martin Corporation, 

who took the document from draft stage to final publication.

In developing this document, the authors surveyed several jails to gather 

information about programs and activities and their contributions to managing inmate behavior. The authors express appreciation to the following 

individuals from those jails who responded to the survey and shared their 

observations: 

Michael Caron, Programs Director, and Shannon Murphy, Reentry Director

Douglas County Correctional Facility, Lawrence, KS

Randy Demory, Captain

Kent County Correctional Facility, Grand Rapids, MI

Sue Yankovich, Sergeant

Boulder County Jail, Boulder, CO

David Kiesner, Captain

Outagamie County Jail, Appleton, WI

Joseph P. Lynch, CJM, Jail Administrator

Auglaize County Correctional Center, Wapakoneta, OH

Teresa Mattox, Jail Administrator

Giles County Sheriff’s Department, Pulaski, TN

Mark Sabin, Jail Administrator

Montcalm County Jail, Stanton, MI

Laurie Stolen, Contracts and Inmate Services Director

Larimer County Detention Center, Ft. Collins, CO

Acknowledgments
viii | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Linda Zundel, Sr. Social Worker and Laura McKune, Deputy Director of 

Support Services

Louisville Metro Department of Corrections, Louisville, KY

Ron Bergee, Assistant Superintendent

Ramsey County Correctional Facility, Maplewood, MN

This document provides guidance on the development and implementation of 

jail programs and activities and highlights examples of the types of programs 

in place in jails across the country. NIC encourages readers interested in learning more about inmate programming and behavior management to review 

the list of NIC resources included in the appendixes and visit NIC’s website 

(www.nicic.gov) for a more complete description of publications and technical 

assistance available on this subject.

Mark D. Martin

Richard J. Kaledas
Chapter 1. The Value of Keeping Jail Inmates Productively Occupied | 1

P

eople do not often associate being productive with serving a jail sentence. 

Yet many jail officials recognize that keeping inmates productively occupied is a means to managing inmates’ behavior while they are in jail. 

Most people have heard the old saying, “Idle hands and idle minds are 

the devil’s workshop.” Jail staff have a similar saying: “We keep them busy or 

they keep us busy.” Idleness and boredom in jail can lead to a wide range of 

negative behaviors. Jail staff can manage these behaviors better or avoid them 

entirely if they can reduce inmate idleness by introducing productive activities in the jail.

The National Institute of Corrections (NIC) has identified the following six 

essential elements of an effective inmate behavior management plan:1

1. Assessing risks and needs.

2. Assigning inmates to housing.

3. Meeting inmates’ basic needs.

4. Defining and conveying expectations for inmate behavior.

5. Supervising inmates.

6. Keeping inmates productively occupied.

The first element requires gathering information about the risks and needs of 

inmates to determine whether they are fit for confinement, how to manage 

them while they are in intake, and how to manage them while they are in jail. 

In its inmate behavior management program,2 NIC defines risk as a measure 

of how dangerous an inmate is to himself/herself and others, and the likelihood that the inmate will attempt to escape. Need is a measure of an inmate’s 

The Value of Keeping

Jail Inmates Productively

Occupied 1

1

 M. Martin and T. Rosazza, Resource Guide for Jail Administrators (Washington DC: U.S. Department of Justice, 

National Institute of Corrections, 2004).

2

 Contact the National Institute of Corrections or visit its website at www.nicic.gov to learn more about its inmate 

behavior management resources, including a weeklong training program specifically devoted to the topic.
2 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

WHAT HAPPENS WHEN STAFF DO NOT 

MANAGE INMATE BEHAVIOR EFFECTIVELY?

The following are among the negative inmate behaviors that 

administrators attending NIC inmate behavior management 

training and workshops typically list:

Vandalism of jail property.

Stealing.

Disruption.

Violation of the rules.

Loudness.

Abusiveness.

Rudeness.

Fighting.

Assault against staff.

Inappropriate sexual 

behavior.

Manipulation of staff and 

other inmates.

Attempts at self harm.

Gambling.

Intimidation.

Passing of contraband.

Attempted escape.

Hoarding food.

Crafting weapons.

physiological and psychological requirements 

for well-being. The assessment of risks and 

needs lays the foundation for inmate behavior 

management. Jail staff use the results from the 

assessment to classify inmates and to determine 

how best to manage their behavior and meet 

their basic needs. 

The second element is to assign inmates to 

housing according to an established housing 

plan. The results of the risks and needs assessment are the basis for housing assignment. 

The third element in an inmate behavior management plan is to meet inmates’ basic needs, 

including physical, safety, and social needs. 

Inmates, like all people, seek ways to meet their 

needs, but if the jail does not meet those needs, 

they will find ways to meet them on their own 

terms. Jails that allow this to happen often experience high levels of negative inmate behavior. 

The fourth element is to define and convey 

expectations of behavior to inmates. Inmates 

usually do not disappoint jail staff who expect 

them to be uncooperative, violent, and manipulative. However, experience shows that staff can 

influence inmates to behave positively if they 

set high expectations, convey those expectations 

to inmates both directly (e.g., through formal 

orientation and handbooks) and indirectly 

(e.g., through respectful treatment of inmates, 

maintenance of clean and orderly facilities, and 

modeling of other desirable behaviors) and 

ensure that inmates have the means to comply. 

The fifth element of the inmate behavior management plan is supervising inmates to hold 

them individually accountable for their behavior. This requires staff presence in inmateoccupied areas and staff interaction with 

inmates. The goal is to obtain positive inmate 

behavior by treating inmates fairly and through 

staff interaction using effective skills in 

decisionmaking, problem solving, communication, and motivation. 

The sixth element is keeping inmates occupied 

with productive activities that focus on positive behavior. When jail staff provide structured 

activities, the activities occupy inmates’ time in 

ways that contribute to the overall goals of the 

inmate behavior management plan.

Once established, the six elements of the inmate 

behavior management plan elicit inmate behavior that conforms to a jail’s expectations of 

acceptable behavior. Although there is value in 

implementing individual elements, jails derive 

the greatest benefit from incorporating all six 

elements into a comprehensive plan.

This document focuses on the sixth element 

of an effective inmate behavior management 

plan: keeping inmates productively occupied. 

Jail officials’ typical justification for providing 

programs is to improve inmates’ chances of 

reintegrating successfully into society or to decrease recidivism. At a more fundamental level, 
Chapter 1. The Value of Keeping Jail Inmates Productively Occupied | 3

however, providing inmates with productive 

activities supports one of the primary goals of a 

jail: to manage inmate behavior. 

This document is a guide for jail administrators, 

program staff, and others interested in planning and implementing inmate activities and 

programs. It is just one small step in a larger, 

complex effort to manage inmate behavior better in jails. This document is a source for:

■ Developing specific goals related to inmate 

programming.

■ Exposing readers to new approaches and 

practices.

■ Inspiring ideas for new programs or enhancing current efforts.

■ Planning, developing, and implementing 

programs.

■ Identifying key components necessary to 

support programming.

■ Educating stakeholders about the value of 

productive activities.

PROVIDING OPPORTUNITIES FOR PRODUCTIVE ACTIVITIES: 

ONE JAIL’S EXPERIENCE

The staff at one medium-sized jail struggled as inmates in the housing units continually exhibited negative behaviors, including drawing graffiti on the walls, destroying county property, acting out with violence, and disrespecting 

staff. The jail administrator noted that these behaviors occurred even though staff locked down inmates for much 

of the day, with portions of the lockdown resulting directly from the negative behavior that inmates exhibited when 

they were in the dayrooms. On further reflection, the administrator began to realize that inmates had no activities to 

occupy themselves with while they were in the dayrooms or confined in their cells. As a consequence, she began to 

explore some preliminary, cost-effective strategies that the jail could institute to address the negative behavior. She 

decided to introduce board games into the housing units. This decision led to discussion about possible resistance 

both from within the agency as well as outside the agency; however, the administrator moved forward. 

At a reasonable cost, the jail introduced board games into the housing units, and the administrator immediately 

noticed a reduction in unwanted behavior. Inmates could access their assigned dayroom and participate in activities 

to occupy their time productively, reducing much of inmates’ negative behavior and decreasing the amount of lockdown the jail used. The activities also became an incentive for positive behavior when inmates returned to their cells 

during scheduled lockdown times. The administrator attributed these benefits directly to the introduction of simple 

board games into the housing units, a strategy accomplished at little financial cost.
Chapter 2. The Administrator’s Role in Supporting Inmate Programs and Activities | 5

F

ew jails can successfully implement or sustain inmate activities or programs without sufficient support from the jail administrator. Indeed, the 

level of administrative commitment is a key predictor of success or failure 

for initiatives like these. The jail administrator demonstrates his/her 

support for inmate activities and programs by:

■ Conveying the importance of activities and programs in the overall 

operation of the jail and, particularly, in managing inmate behavior. 

■ Establishing the vision to help jail staff and others see the value and effect 

of productive activities and programs for inmates.

■ Establishing goals for inmate activities and programs. 

■ Identifying and engaging stakeholders whose support and/or involvement 

is critical to establishing or maintaining desired activities and programs.

■ Overcoming potential barriers to successful implementation and securing 

needed resources. 

■ Demonstrating, by word and deed, the ongoing administrative commitment needed to implement and sustain activities and programs over time.

Conveying the Importance of

Activities and Programs

Although designated program staff may be responsible for developing and 

implementing inmate activities and programs, the administrator should view 

inmate programming as part of the jail’s overall inmate behavior management strategy, not as a separate, unrelated function. Providing staff with a 

broad vision not only gives them guidance but also validates the importance 

of programming in supporting a jail’s overall inmate behavior management 

plan. This vision, or “big picture” perspective, is essential in planning and 

implementing new activities and programs that help manage inmate behavior 

and meet inmates’ needs. 

The Administrator’s Role in

Supporting Inmate Programs

and Activities 2
Planning and Leadership

When planning and implementing inmate activities and programs we consider the 

impact it will have on our overall inmate behavior program, as well as any unintended 

consequences, focusing on the goal . . . to improve inmate behavior.

—Dave Kiesner, Captain 

Outagamie County, WI

Effective leaders recognize the need to inspire the organization to support and 

commit to the vision. Remember: “The leader can’t keep the hill if no one but the 

leader is around to defend it.”

—Sheriff Jerry Clayton 

Washtenaw County Sheriff’s Department, MI

6 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

It is the administrator’s responsibility to 

ensure that newly planned inmate activities 

and programs support a jail’s inmate behavior 

management goals and objectives. Once a jail 

establishes new inmate activities and programs, 

the administrator must continue to provide direction and demonstrate support to ensure that 

these activities and programs remain a viable 

element of the jail’s overall strategy and that 

the jail integrates them into its overall inmate 

behavior management plan. Simply put, the 

administrator should stress programming as 

another opportunity to validate the importance 

of inmate behavior management. 

Establishing the Vision

The jail administrator must create a vision, or 

statement of a jail’s direction and goals, of the 

role that activities and programs play in inmate 

behavior management. The vision should be 

clear and compelling and should inspire staff 

commitment to its achievement. Without an articulated vision, programs can become random, 

inefficient, and ineffective. The jail administrator should use the vision to keep jail staff and 

program providers focused on meeting inmate 

behavior management goals. 

The jail administrator should include productive activities and programs in a strategy designed to realize the vision and achieve desired 

inmate behavior management outcomes. When 

jails implement inmate programs without a 

strategy, such programs are likely to struggle 

against the inertia that often exists when there is 

no common vision. The results are predictable, 

with separate, competing programs proceeding in their own direction rather than in concert 

with other programs and jail functions. Instead, 

programs should embrace a unified approach 

toward a goal. With proper vision, programming can reach its full potential in supporting 

inmate behavior management. 

Establishing Goals for Inmate 

Activities and Programs

Goals are essential to the development of effective inmate programming. They describe the 

outcomes a jail hopes to achieve if it realizes its 

vision, and they establish priorities for the activities and programs that a jail should implement. 

They also provide a basis for program planning and a means to assess the current state of 

both inmate behavior management and inmate 

programming. A jail with little or no programming may need to start with basic programs 

before progressing to more complex or costlier 

ones. Jails that already have a range of activities 

and programs may decide to focus additional 

programming on meeting specific inmate needs 

or addressing particular behavior issues.

Types of Inmate Behavior 

Management Programs

Programs that support better inmate behavior management come in three distinct types: 
Examples of Activity Programs

Knowing that active recreation programs such as volleyball, basketball, and circuit 

training allow inmates the most immediate and productive outlet to relieve their 

energy and stress, the program unit in the Larimer County, CO, Detention Center 

maintains a minimum of 3 hours of these active recreation programs per week for 

each housing area. In addition, recreation staff are required to facilitate a minimum 

of six active recreation tournaments each year. During tournament weeks, inmate 

behavior is seen to improve noticeably for those involved in the activities.

Chapter 2. The Administrator’s Role in Supporting Inmate Programs and Activities | 7

activity, reform, and reintegration. The first 

type, activity, includes programs that keep inmates busy while in custody (e.g., work, board 

games, recreation). The second type, reformative programs, includes programs that provide 

inmates with knowledge and skills they require 

to address their personal needs (e.g., education, substance abuse treatment, wellness care, 

life-skills training). The third type, reintegrative 

programs, includes programs specifically designed to provide inmates with assistance and 

information to prepare them for community 

reentry. 

Activity Programs

A great deal of benefit lies in simply keeping 

inmates occupied. Many jails face the problems 

of property damage, graffiti, disruptive behavior, and noisy housing units. Research consistently identifies idleness as a major contributor 

to negative inmate behavior.1 The absence of 

productive activities leaves inmates to their 

own devices to alleviate boredom. Making 

those activities available to inmates contributes 

to a well-managed facility. 

Reform Programs

The goal of reformative programming is to 

better identify and meet specific needs common 

to the inmate population. Inmates, as a group, 

tend to be less educated and possess lower 

literacy levels than the nonincarcerated 

population. They cite behavior problems, 

academic problems, or boredom as their reason 

for leaving school twice as often as those in the 

general population.2

 These education deficits, 

coupled with addiction problems, poor health 

practices, and related issues, make inmates a 

target population for reform programs. 

Reintegration Programs

Reintegrative programming addresses the link 

between incarceration and community reentry. 

As jails struggle with overcrowding, they often 

become more interested in programs designed 

to address issues that lead to reoffending and 

recidivism. Reintegration programs help resolve 

issues such as unemployment or inadequate 

housing that typically hinder successful reentry. 

Although a jail may initiate reintegrative programming while inmates are in jail, these services often continue once inmates leave the jail. 

For example, a common barrier to successful 

reintegration is an inmate’s relapse to substance 

abuse after release; therefore, when the inmate 

returns to the community, his/her reintegration 

programs would include continued substance 

abuse treatment.

Although reintegration programs primarily 

prepare inmates for release, they can have a 

significant effect on inmate behavior and the 

level of violence in a jail, as shown in exhibit 

2-1. After Auglaize County Correctional Center 

1 M. Martin and T. Rosazza, Resource Guide for Jail Administrators (Washington DC: U.S. Department of Justice, National Institute of 

Corrections, 2004).

2

 Caroline W. Harlow, Education and Correctional Populations, Bureau of Justice Statistics Special Report (Washington, DC: U.S. 

Department of Justice, Office of Justice Programs, Bureau of Justice Statistics, 2003).
EXHIBIT 2–1. SERIOUS INCIDENTS IN AUGLAIZE COUNTY CORRECTIONAL CENTER

Fights Disturbances Use of Force Staff Assaults

NUMBER OF INCIDENTS

0

5

10

15

20

25

30

1999 2000 2001 2002 2003 2004 2005 2006

YEAR

8 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

in Wapakoneta, OH, implemented reentry programming for inmates in 2003, it experienced 

an 80-percent reduction in the number of serious incidents in the facility.

Overlap of Program Types

The three types of programming and their associated goals obviously overlap. All potentially 

affect the other and have the potential to affect 

inmate behavior. Much of this overlap can be 

positive, with many successful programs

contributing to more than one goal. For example, when staff involve inmates in reform 

programs, the inmates are engaging in activities that keep them productively occupied. 

Similarly, recreational activity programs can be 

reformative because they also educate inmates 

about healthy living.3

 Reformative programs 

that address educational needs provide inmates 

with essential skills they will use upon returning to the community. The continuity of services 

associated with reintegration programs may 

enhance the effectiveness of reform programs 

by linking inmates to related programs in the 

community.

The overlap may also have negative consequences. Jails that do not provide sufficient 

activity programs and focus solely on reform 

or reintegration programs may suffer from 

inmates who attend those programs solely to 

occupy their time. Inmates participating in 

programs for which they have little need or 

interest are a drain on scarce resources and have 

the potential to become distractive by acting 

out due to their low motivation. Although some 

inmates may receive some indirect benefit from 

attending such programs, it may be better for 

the jail to provide them with activity programs 

instead and focus reformative programming on 

inmates who actually need it. 

Continuum of Activities and Programs

Establishing goals around the three types 

of programming provides a foundation for 

prioritizing needs, articulating realistic objectives, and outlining a continuum of program 

offerings. Jails with little or no programming 

may begin by focusing on goals related to activity programs and then expand their options 

by implementing reformative programs. Jails 

successful in activity-related and reformative 

3

 Frank Schmalleger and John O. Smykla, Corrections in the 21st Century (New York: McGraw-Hill, 2009).
Reintegration Programs: How They Work

Reentry release plan programming is available to sentenced inmates in the Douglas 

County, KS, Detention Center. This includes a reentry intake, risk/needs assessment, 

and development of a community-based release plan. The release plan connects inmates to needed community interventions, such as housing and employment referral 

services; substance abuse, mental health and physical health appointments; support 

persons, including case management; financial resources and benefits including Supplemental Security Income (SSI) and Social Security Disability Insurance (SSDI) and/or 

general assistance, medical cards, and food stamps; and court-ordered requirements 

along with obtaining needed legal identification (state identification, birth certificates 

and Social Security cards). Pretrial inmates may benefit from resources and guidance 

from the reentry program, including resource information and applications and legal 

identification.

Value of Reform Programs

We have seen inmates who were very hard to manage begin to analyze their actions before reacting. Examples would be antisocial individuals who now think before 

reacting in negative ways. We have seen inmates who, in time of crisis, react negatively; now they use the tools taught in evidence-based and cognitive skill classes and 

resolve without violence.

—Sgt. Sue Yankovich

Boulder County Detention Center, CO

Chapter 2. The Administrator’s Role in Supporting Inmate Programs and Activities | 9

programming may further their options by 

implementing reintegration programs. Once a 

jail has established its programming goals, the 

next step is to establish objectives to guide the 

development, implementation, and evaluation 

of programs in a strategic, efficient manner. 

Chapter 3 discusses setting goals and objectives 

and evaluating goal achievement in further 

detail. 

Identifying and Engaging 

Stakeholders

As administrators develop their vision and related goals for inmate activities and programs, 

it is important that they begin to identify and 

engage key stakeholders. Some stakeholders 

may provide critical input during program 

development, while others will have a 

significant role in ensuring successful program 

outcomes. It is helpful to distinguish between 

stakeholders who are internal and external to 

the jail. Internal stakeholders include inmates, 

staff, and the sheriff or other agency executives. External stakeholders include governing 

boards, funding sources, service organizations, 

and members of the community. By engaging both internal and external stakeholders, 

the administrator will create an initiative that 

acknowledges and embraces the involvement of 

all parties with a stake in the desired outcomes. 

In addition to winning the support of the 

stakeholders described above, jail administrators must look at their own environment to 

determine if there are other potential stakeholders. The following are examples of other stakeholders and their possible interest in inmate 

programming:
Value of Productive Activities: Another View

Active and leisure recreation programs would most likely prove to be the most effective inmate behavior management strategy. Although we do not have anything more 

empirical than the self report of officers who work in the pods, when inmates have 

the opportunity to attend recreation, they come back to the pod easier to manage, 

they are less stressed, they get in less fights and they are overall happier.

—Laurie Stolen,

Contracts and Inmate Services Director

Larimer County Detention Center, CO

10 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

■ Jail inspectors looking for compliance with 

programming-related standards. 

■ Vendors interested in contracting with the 

jail to provide programs for inmates.

■ Labor unions interested in the effect of 

inmate programming on their members and 

their work.

Administrators should identify all potential 

stakeholders early in the program planning process, not only to identify sources of support, but 

also to prevent problems later. Once the administrator has identified all potential stakeholders, 

he/she should then determine which of these 

key stakeholders he/she must engage at each 

stage of the program implementation process. 

Experience has shown in jails throughout the 

country that failure to identify and correctly engage stakeholders may create substantial barriers that are difficult or impossible to overcome. 

Communication with stakeholders regarding 

the vision, goals, and expected outcomes of 

inmate activities and programs needs to occur 

early and often. This approach will assist the 

administrator in identifying potential resources 

and avoiding potential barriers.

Aligning Jail and 

Stakeholder Interests

In determining the type of activities and 

programs to implement, administrators must 

consider and respond to stakeholder beliefs and 

interests. For example, administrators may hesitate to implement or enhance activity-related 

programming if their sheriff, governing board, 

or community philosophically opposes providing inmates with activities that they consider 

frivolous. Similarly, some stakeholders may object to offering reform or reintegration programs 

based on a perspective that it is not the role of 

the jail to rehabilitate. Regardless of the validity 

of these views, the administrator must acknowledge them. It is then up to the administrator to 

develop a strategy to change opposing views or 

realign the jail’s vision with what is realistically 

achievable. Failure to do so leaves the administrator struggling to implement programs 

without the support of key stakeholders. 

On the other hand, administrators may find 

a high degree of support among stakeholders 

for particular types of inmate activities. For 

example, the administrator may contact a local 

school district or community college for assistance in developing a general educational 

development (GED) program but find that, due 

to available grant funding, the providers have a 

strong interest in offering an even more comprehensive array of educational programming 

than originally envisioned. 

Indeed, stakeholders may initiate action around 

inmate programming and become the impetus 

for change. Administrators must be open to 

these opportunities and be ready to take advantage of the support they may offer. An inmate 

programming initiative in a jail in Boulder 

County, CO, illustrates this point. In 1996, the 

Boulder County sheriff expressed an interest in 

reducing inmate idleness. Responding to that 

interest, jail staff developed an initiative that 
Gaining Key Stakeholder Support: One Jail’s Experience

The administrator of a facility was concerned about introducing activities into the 

jail because of statements made by the sheriff opposing activities for inmates. The 

administrator demonstrated how activities could be used to manage inmate behavior and showed that introducing activities provided staff with the tools they needed 

to assist in better managing inmate behavior within the facility. Once the sheriff 

understood the importance of activities in managing behavior within the facility, he 

became much more supportive. In this case, the administrator was able to allow the 

sheriff to make a more informed decision on the matter, resulting in the activities 

being supported at the highest level.

Chapter 2. The Administrator’s Role in Supporting Inmate Programs and Activities | 11

people grew to know as the “Productive Day” 

program.4

 Although the jail has since replaced 

that program, Productive Day clearly established a priority for incorporating productive 

activities into the jail routine. 

Getting the Support of 

Internal Stakeholders

The support of internal stakeholders is essential to implementing inmate programming successfully and achieving overall programming 

goals. Indicators of support include inmates 

who attend, use, and appropriately value the 

programs; staff who contribute ideas to, develop, direct, and actively work to implement 

the programs; and a sheriff who acknowledges 

the productivity of the programs. As many 

experienced administrators have discovered, 

strong internal support, coupled with adequate 

resources, will go a long way in creating a climate conducive to effective programming. On 

the other hand, staff resistance to programming 

or low attendance and lack of active participation on the part of inmates may reflect a failure 

to acknowledge the role of staff and inmates as 

stakeholders in the program planning process. 

Accordingly, a sheriff’s failure to recognize 

positive programs or provide needed resources 

may indicate his/her lack of support. 

Getting the Support of 

External Stakeholders

Although strong internal support is critical, 

it may not be enough alone to establish and 

maintain successful inmate programming. Few 

jails have sufficient internal resources to support inmate programs effectively. This is where 

external stakeholders such as the governing 

board or other funding entities play a vital 

role in providing support and resources. As 

administrators begin to implement or enhance 

activity-related programming, they may need 

to secure funding to obtain required materials 

(e.g., books, board games, recreational equipment). Administrators will require other types 

of equipment and resources (e.g., program 

staff, computers, space, vehicles) to implement 

reformative or reintegrative programming. In 

many jails, inmate activities and programs must 

be supported by the jail’s funding source. Such 

support involves providing not only required 

financial resources, but also philosophical 

support. Without both, inmate activities and 

programs will be difficult to implement or 

maintain. 

Other external stakeholders commonly associated with inmate programming include service 

organizations and the community. Both have 

a critical role in supplementing an agency’s 

4

 Charles Pringle, “Boulder County Program Promotes ‘Productive Day’” (Washington, DC: U.S. Department of Justice, National Institute of 

Corrections, 1998), www.nicic.gov/Library/period144, accessed December 6, 2009.
12 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

internal support and resources. Many jails 

depend on community members and service 

organizations to donate time and/or materials 

(e.g., books, board games, reading materials) to 

support activity programs. Collaboration with 

external stakeholders is even more evident in 

reform and reintegration programs. Support 

and resources often come from service organizations and community members and may 

include the participation of individuals with 

particular skills, credentials, or expertise (e.g., 

teachers, mental health professionals, substance 

abuse treatment workers) and the provision of 

necessary equipment (e.g., computers, specific 

literature). 

In addition to providing direct support and 

resources, stakeholders are a source of expertise 

regarding what programs may be most effective 

with inmates. Stakeholder input is extremely 

valuable in prioritizing, selecting, and aligning 

programs with desired outcomes.

Another important role for external stakeholders is providing support for inmate activities 

and programs outside the jail. For example, 

many jails use work programs at worksites in 

the community. Without support from external 

stakeholders, these programs would not function. Jails must stay abreast of opportunities 

to link with others who can provide support. 

Such links may be especially important for

jails seeking to implement reintegration programs. Because continuity of service is an 

important element in these programs’ success, 

jails must form appropriate partnerships with 

providers of services that can continue within 

the community. 

Overcoming Barriers to 

Program Implementation

Despite administrators’ best efforts, they may 

have to overcome common barriers to effective inmate programming, including lack of 

appropriate staffing, lack of suitable space, 

scheduling challenges, lack of financial and related resources, resistance from staff and others, 

and insufficient knowledge of inmate needs.5 By 

acknowledging the potential for such barriers, 

administrators can develop strategies to reduce 

or eliminate their effect. 

Overcoming Lack of 

Appropriate Staffing

Lack of appropriate staffing may be a major barrier to inmate programming. Staffing 

needs vary depending on the type of activity 

or program that a jail proposes to implement. 

Appropriate staffing means having not only the 

right number of staff available, but also staff 

with the right qualifications. Certain programs, 

such as cognitive-behavioral programs, GED 

classes, and faith-based programming, require 

persons with specific experience, knowledge, or 

credentials (i.e., degrees, training, or certifications) to present those programs. Larger jails 

typically have designated program staff while 

smaller jails may need to identify a staff person 

who will have the additional responsibility of 

coordinating inmate programs with outside 

providers. It is always important for an administrator to understand fully the level and type of 

a jail’s staffing need as he/she develops a plan 

to address staffing barriers.

As jail administrators search for ways to meet 

the need for additional or specialized program 

staff, their relationship with external stakeholders is critical. The jail’s budget is unlikely to be 

able to absorb the costs of additional program 

staff. Fortunately, many social service agencies, 

service organizations, and community members 

have a strong interest in providing services 

to those in need, and jails often contain large 

numbers of their target populations. By identifying the proper external stakeholders, jails 

can often secure appropriate staffing for inmate 

programs. 

5

 M. Martin and T. Rosazza, Resource Guide for Jail Administrators (Washington DC: U.S. Department of Justice, National Institute of 

Corrections, 2004).
Coordinating Reintegrative Programming With Case Managers

Through a grant that the Auglaize County, OH, Correctional Center obtained from 

the Ohio Department of Criminal Justice Services, Community Connection for Ohio 

Offenders (a branch of Alvis House, a private nonprofit organization that operates 

halfway houses and provides residential and nonresidential treatment programs to 

offenders and others in the community) provides a case manager who works 35 

hours a week in the facility. The case manager reviews the files of all inmates and 

determines what programming would best benefit each inmate. He then directs the 

inmates into the appropriate programs. He also serves as a liaison with the courts, 

probation and parole offices, community agencies, and potential employers to assist 

offenders with finding employment, housing, and appropriate community services 

(such as continued counseling, Alcoholics Anonymous, or anger management) when 

they need them.

Chapter 2. The Administrator’s Role in Supporting Inmate Programs and Activities | 13

Volunteers and interns are also excellent sources 

of program staff. Administrators must remain 

open to potential relationships with local 

colleges or universities, community agencies, 

service organizations, religious organizations, 

and other appropriate service providers that 

may have an interest in jail programming. 

Existing jail custody staff can be resources 

for program staff. Jails can benefit from staffdirected activities. Jail custody staff can properly facilitate many programs during their daily 

duties, creating an excellent opportunity for 

custody staff to have purposeful interaction 

with inmates while keeping inmates productively occupied. This interaction has the added 

benefit of allowing jail officers to realize the role 

of programs in an overall inmate behavior management strategy. Chapter 4 discusses many 

opportunities for staff-directed activities. 

Overcoming Lack of

Suitable Space

Lack of suitable space in a jail is another barrier to inmate programming. Many organized 

programs require classrooms or other specialized types of spaces outside the inmate housing 

units. Therefore, space is always scarce, and in 

many jails, separate program space is difficult 

to obtain. Creative solutions may repurpose or 

reconfigure existing space. For example, some 

jails use areas originally intended for programs 

as storage space. However, understanding the 

importance of both storage and program space, 

a jail could relocate storage items to another 

area or otherwise efficiently store the materials 

in some type of designated storage system. This 

would allow the jail to reclaim the program 

space for its intended purpose. 

Another possibility is using the dayrooms in 

housing units for programs. This strategy not 

only addresses space issues but also may reduce 

the need for jail staff to escort inmates to and 

from programs. In particular, staff can effectively manage many activity-related programs 

in the housing unit. 

Yet another strategy may be to designate specific housing units as program units. Jails can then 

link programs with their housing plans, further 

promoting a systemic approach to inmate behavior management. Under this approach, jails 

assign eligible inmates to housing units where 

staff conduct programs appropriate to inmate 

needs. This eliminates space concerns and is a 

powerful incentive for inmates to behave positively in the hopes of moving to such a housing unit. Some jails have pursued this strategy 

further, obtaining buildings outside of the main 
14 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

jail to expand programs geared toward specific 

goals. A jail in Kent County, MI, for example, 

renovated a building adjacent to the main jail to 

develop a Community Reentry Center, which 

focuses on reintegrative programming. Many 

other jails have used this strategy to create work 

farms, satellite facilities, and so forth, providing space for programs targeted appropriately 

to selected inmates. Being aware of potential 

opportunities to secure additional program 

space helps administrators address the barrier 

of insufficient space when planning and implementing inmate activities and programs. 

Overcoming Scheduling 

Challenges

Closely related to staffing and space is the 

barrier of scheduling. As noted earlier, when 

jails implement programs, those programs may 

make additional demands on the jail, including the need to share space and staff resources 

with existing programs and other jail functions. Administrators should consider program 

scheduling in relation to a jail’s overall schedule 

and search for opportunities to shift programming so that the overall schedule benefits. Such 

a shift may distribute staff and space requirements more equitably, eliminating the tendency 

to schedule all programming during highactivity periods. Inmate behavior management 

is a 24-hour responsibility, and with effective 

scheduling, productive activities and programs 

can support that responsibility. Often, program 

providers can adjust individual activities or 

functions to accommodate the scheduling realities of a jail. An administrator can also determine those activities or functions that cannot be 

rescheduled, adjusting the schedule to accommodate those activities (such as shift changes, 

court lineups, meals) that the jail cannot move.6

Overcoming Lack of Financial 

and Related Resources

The lack of adequate resources beyond the need 

for staff and space is yet another barrier. When 

examining resources, jail management must 

first identify what the jail will need based on 

the programs it will implement. Activity-related 

programs may require only basic equipment 

such as board games or recreational equipment 

that a jail can buy at very little cost. Reform and 

reintegration programs may require more specialized or additional resources that will have a 

more substantial effect on a budget. For example, reformative programming may require the 

use of computers, specialized books, notebooks, 

or other supplies. Regardless of the vision and 

goals, outcomes will be successful only if an 

administrator identifies sufficient resources and 

they are realistically obtainable. Jails that attempt to institute programs without the ability 

to obtain the proper resources are destined for 

failure from the start.

Look for No-Cost and Low-Cost 

Activities and Programs

As administrators examine the relationship

between resources and programming, it is 

important that they remember that jails can 

provide many programs at little or no cost. As 

identified earlier, staff-directed activities and 

programs can be low-cost and extremely 

beneficial. Recognizing the link between productive activities and effective inmate behavior 

management, an administrator may be able to 

enhance programming by leveraging resources 

in the jail without seeking additional funds. 

One large jail was able to implement various programs credited with allowing staff to 

manage inmate behavior better, and it did so 

without the need for additional staff and with 

6

 D. Liebert and R Miller, Staffing Analysis Workbook for Jails, Second Edition (Washington DC: U.S. Department of Justice, National Institute of Corrections, 2003). This NIC publication includes information on developing and working with activity schedules as a means to make 

the most efficient use of staff, facilities, and related resources.
Chapter 2. The Administrator’s Role in Supporting Inmate Programs and Activities | 15

limited financial effect.7 Constant attention to 

identifying low-cost programs will often reveal 

opportunities that would otherwise be easy to 

overlook. In addition, focusing on the positive 

effects that programming has on inmate behavior may help administrators develop priorities 

in allocating resources. This is particularly 

important when local economic conditions may 

make it difficult for jails to obtain new resources 

to support inmate programs.

Considering Both Internal 

and External Resources

If an administrator identifies the need for additional financial resources, many jails can access 

inmate welfare funds or other sources of internal funding to purchase needed items. Aside 

from tapping internal resources, an administrator may also benefit from actively seeking 

partnerships with external stakeholders. Many 

service organizations and community members 

will donate resources if they recognize that a 

program is consistent with their own goals. 

As such, it is incumbent on administrators to 

educate stakeholders and keep them informed 

of potential needs. Jails commonly identify 

and communicate particular needs to the right 

external stakeholders and receive offers of support. Administrators must carefully identify 

and articulate their needs because it is often 

easier to receive donations of items or services 

than to receive direct financial resources. 

Using Available Resources Wisely

Administrators must view resources as valuable 

commodities that they must use efficiently and 

effectively. As previously noted, however, some 

activity-related, reform, and reintegration programs will overlap. In some ways, this can be 

beneficial, but administrators must also recognize the potential it creates for the duplication 

of services. For example, supporting multiple 

variations of an educational program is inefficient unless the programs have a logical and 

relevant relationship. Without this relationship, 

the programs may be effective in keeping inmates 

occupied, but inefficient in educating inmates. 

Reformative and reintegrative programs in 

particular require a high level of resources. By 

identifying duplicative efforts, an administrator may preserve resources by shifting needed 

materials from one program to another. Such a 

shift will provide a greater benefit to and better 

support for a jail’s goals. A jail should support 

programs that supplement each other and the 

jail’s associated goals. A jail should not dedicate 

substantial resources to programs that are essentially competing with each other.

Programs that are ineffective in supporting an 

agency’s goals or that inmates rarely use are 

another drain on limited resources. Such programs are targets for elimination, so an administrator can shift their resources to other, more 

effective programs. Before taking such action, 

however, an administrator should always assess 

the program to determine if it is ineffective because of program design or some other systemic 

problem. For example, program screening and 

referrals may occur so long after admission 

that they negatively affect program attendance. 

Jurisdictions may release inmates before they 

have the opportunity to complete a program 

or only days after screening has begun. When 

examining the effectiveness of programming, 

an administrator must be diligent in determining the true cause of unsatisfactory results to be 

able to respond appropriately.

Overcoming Resistance From

Staff and Others

Resistance to the development or enhancement 

of inmate programming by staff and external 

and internal stakeholders is another barrier. 

7

 Vanessa St. Gerard, “Best in the Business: Psychologist Leads Effort to Manage Inmate Behavior Through Innovative Programs,” Corrections Today 66(July):12, 2004.
16 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Although the lack of adequate resources may 

be an issue when first implementing a program, 

resistance can crop up at any time, causing a 

slow and inevitable end to the project. Although 

stakeholders’ motives for resistance may stem 

from many causes, one common reason is a lack 

of understanding. Research shows that failure 

to communicate with and educate appropriate 

stakeholders often results in failure to gain their 

support. When stakeholders fully understand 

the vision and related goals of programs, they 

are more likely to support them. Often, how an 

administrator communicates a message determines his/her success in gaining support. By 

tying the importance of inmate programming 

to an agency’s overall inmate behavior management plan, an administrator can clearly present 

the programs as an integral contribution to 

the overall result. A better-managed inmate 

population, with all of its associated benefits, 

has value to a broad range of people. 

Analyzing Staff Resistance

Staff support has already been identified as a 

critical component in effective inmate programming, but at times staff may also serve as a 

formidable source of resistance. Staff resistance 

can be subtle or overt, but either form must be 

effectively addressed or the program is doomed 

to failure. The entire project may never get off 

the ground, or it will not be able to sustain itself 

for long. At one time or another, many staff 

have faced a change that they did not support 

and simply waited for the project to lose steam 

so things could return to “the way we always 

have done it.” 

Inmate programming requires administrators to 

be fully prepared to acknowledge the potential 

for staff resistance and develop a strategy to 

address this barrier. In developing a strategy to 

address staff resistance, administrators must accurately diagnose the cause of the resistance to 

be able to respond to it more effectively. Some 

staff may initially provide resistance because 

they do not possess the proper skill set necessary for a change in their responsibilities. 

Others may simply not support the idea of 

inmates having access to programs, identifying a conflict with perceived security requirements. Still others may feel they are already 

overworked and programming will only add to 

their workload. 

Correctly identifying the reasons for resistance 

will prove valuable in developing the correct 

solution. Administrators must determine if 

overcoming the resistance requires additional 

tools or resources, training, or supervision. 

Although it is important for the administrator 

to get to the root cause of the resistance, a few 

common strategies have proved effective in reducing staff resistance to inmate programming. 

Such strategies include training, communication, and pilot testing. Each strategy on its own 

may not overcome resistance, but together they, 

along with proper supervision, provide some 

preliminary approaches to minimizing staff 

resistance.

Finding Common Ground in Garnering Support for Programs and Activities

I have found that the concept of providing productive activities for inmates is something that everyone supports no matter where they are at on the correctional philosophy continuum. Those who tend towards a “just deserts” approach are won over 

by the image of inmates working all day instead of just playing cards or watching TV, 

while those who lean more towards a rehabilitation model envision inmates completing their GEDs or engaging in substance abuse therapy. Either way, the inmates are 

active, occupied, and their behavior is being successfully managed.

—Capt. Randy Demory

Kent County Detention Center, MI
Chapter 2. The Administrator’s Role in Supporting Inmate Programs and Activities | 17

Overcoming Staff Resistance 

With Training

Training needs are typically associated with 

implementing new programs. If an aspect of 

inmate programming requires staff to perform 

a new function, training may be necessary to 

provide staff with new skill sets. Particular staff 

may have to use a new assessment instrument 

introduced to refine the needs assessment process, and therefore require training on the new 

instrument. Still other staff may require

enhanced training in communication and 

inmate management skills as they are more 

frequently involved in direct contact with inmates. If their need for knowledge and skills is 

not addressed, staff are often left to feel they are 

not capable of fulfilling their responsibilities, or 

worse, they are immediately overwhelmed with 

a negative set of circumstances to which they 

are not prepared to respond.

Training also provides an opportunity for 

staff to be exposed to new thoughts and ideas 

regarding inmate programming while in a safe 

learning environment. This is an opportunity 

for staff to connect programs with an overall inmate behavior management plan and to clearly 

identify the resulting benefits. Often, such 

training can include arranging for a group of 

key staff to tour another facility that does an exemplary job with programming. Other training 

may include an overview of the program, and 

perhaps an introduction of any new program 

staff or volunteers. Providing such training 

gives staff an opportunity to better comprehend 

the vision and goals of programming and link 

them with inmate behavior management. Staff 

tend to support those things they understand.

Overcoming Staff Resistance With 

Communication

Communication is another important component in overcoming staff resistance. Although 

the need for communication with the administrator is critical, some agencies have not fully 

developed effective communication among 

staff. Clear and open communication between 

program staff (in-house or volunteer) and security staff can reduce resistance substantially. 

Program staff can better understand the needs 

and practices of security staff, and security staff 

have an opportunity to better understand the 

needs and expected outcomes of program staff. 

Additionally, it is important for program staff 

to communicate with each other so they work 

toward supplementing, as opposed to supplanting, each other. Such communication may go a 

long way toward minimizing resistance caused 

by groups of staff attempting to operate in a 

vacuum. When all parties understand that they 

have a role in promoting positive inmate behavior, resistance will decline accordingly.

Overcoming Staff Resistance With 

Pilot Testing

Pilot testing can be beneficial for many reasons, 

but may be particularly helpful in overcoming 

staff resistance. Demonstrated success will often 

result in further success. For this reason, administrators may consider implementing a particular inmate program as a pilot test. The test may 

be limited to a specific housing unit within the 

facility or may be slated for evaluation after being in operation for a designated period of time. 

Administrators are also able to closely manage 

and monitor the pilot test to better ensure it is 

proceeding correctly. This allows programming 

to be introduced incrementally, with success 

being the biggest foe of resistance. It is difficult 

Training as a Strategy to Overcome Staff Resistance

 A short training session was held at the Montcalm County, MI, jail with all correctional staff that outlined how the programs would work and explained how the 

programs, if properly administered, would make every officer’s job easier and safer.
18 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

to resist something that is proven to be effective 

and efficient in obtaining the desired outcomes. 

Most people want to be part of a winning team, 

and people often look to past performance as an 

indicator of future success.

Summary

By addressing resistance, administrators promote better understanding among staff of 

the need for and importance of inmate programming, allowing staff to be more involved 

in supporting such programming. Instead of 

quickly dismissing programs as a detriment, 

staff will recognize their value. Once the atmosphere turns from that of resistance to support, 

the administrator has taken a giant step forward in promoting productive activities.

Overcoming Insufficient 

Knowledge of Inmate Needs

A final barrier to effectively implementing 

inmate activities and programs is insufficient 

knowledge of inmate needs. Jails must have a 

system of effectively assessing inmate risks and 

needs to support inmate programs and activities. Commonly, jails are faced with high rates 

of admissions and short lengths of stay, both of 

which make it more difficult to obtain information about specific inmates. Acknowledging 

these circumstances reinforces the need for an 

early and effective needs assessment. Developing an effective program needs assessment is 

discussed further in chapter 3. 

Demonstrating 

Administrative Commitment

The importance of administrative commitment has been a constant theme in describing 

the support necessary for productive inmate 

programming. Stakeholders, both internal and 

external, are interested not only in the direction 

or vision of the jail, but also in the perceived 

importance of particular operations. By clearly 

demonstrating a commitment to inmate activities and programs, an administrator promotes 

a clear sense of priority and direction that will 

prove critical in obtaining the desired program 

outcomes.

When all stakeholders are clear that the administrator has a strong interest in a particular operation or initiative, they tend quickly to adopt 

the same sense of importance. This develops a 

strong foundation for stakeholders to develop a 

sense of priority in providing involvement and 

support. For example, staff want to make sure 

they have their administrator’s support when 

taking on a new initiative, particularly if there is 

a need to change current operational practices. 

The administrator’s commitment to the changes 

gives staff a clear indication of the importance 

of the initiative. It is just as important to demonstrate such commitment to external stakeholders, including those that provide resources. 

Funding authorities often must be convinced 

of the value of new initiatives before committing the funding or other resources needed to 

implement the initiatives. The administrator’s 

willingness to go before funding authorities to 

make a compelling case for needed resources 

is a clear indication of his/her commitment 

to inmate activities and programs. When the 

Communication as a Strategy to Overcome Staff Resistance

Program providers and security staff in the Auglaize County, OH, Correctional Center 

exchange information regarding concerns about particular inmates. Benefits include 

reduced violence within the facility and more productive inmates being released into 

the communities the facility serves.
Chapter 2. The Administrator’s Role in Supporting Inmate Programs and Activities | 19

importance of programs as part of an overall 

inmate behavior management strategy is clearly 

articulated, it provides stakeholders with the 

opportunity to view these activities from a 

broader perspective beyond just another unconnected function of the jail. 

Administrative commitment is something that 

can be demonstrated several different ways, 

and requires a combination of words and actions. To be effective, commitment must include 

involvement and support coupled with a clear 

demonstration of communication, competency, 

and collaboration.

Demonstrating Involvement and 

Support for the Program

Clearly, by setting the vision, the administrator 

demonstrates some level of commitment. As 

the administrator continues to be involved in 

implementation, obtaining resources, providing 

direction, and conducting followup evaluations, 

the commitment to inmate activities and programs becomes clear to all. Stakeholders will 

look not only at what an administrator conveys 

verbally, but also at what he/she does to demonstrate commitment to the project. Stakeholders quickly identify those who simply “talk the 

talk” and those who “walk the walk.”

A positive and supportive presence is an 

important tool that successful administrators 

have learned to use not only to declare their 

commitment but also to actively demonstrate 

it. This is certainly not intended to imply administrators need to be involved in every 

step or process, but their presence emphasizes 

to stakeholders that they are truly interested 

in the programs. Stakeholders look for 

administrative commitment not only during 

initial stages of implementation but throughout 

the process until the program is firmly established. In some instances, programs have been 

introduced with a high level of administrative 

commitment that began to wane after some 

initial short-term success. Absent ongoing 

support, subtle changes occurred that caused 

the program to slowly decline until it was no 

longer successful. In situations such as this, it is 

unlikely that external stakeholders will want to 

commit additional resources to a program that 

is not getting internal support. Likewise, staff 

and other internal stakeholders will lose enthusiasm for the program, accelerating its decline.

It is often helpful for administrators to think 

about demonstrating commitment as driving a 

car. When the car is stopped at a stop sign, the 

driver must exert pressure on the accelerator 

pedal to begin the forward movement, but once 

the car reaches the desired speed, the process 

changes. Instead of increased pressure on the 

accelerator, the driver reduces pressure but 

never removes his/her foot from the accelerator, instead applying only enough pressure to 

maintain the desired speed. Stakeholders will 

continue to look for commitment, and administrators are best served by remembering the 

importance of demonstrating this commitment 

in order to implement and sustain successful 

inmate programs. 

Communication

Not only is it important to recognize the importance of involvement; communication is 

another necessary component in demonstrating 

Increasing Staff Understanding of the Value of Inmate Programs

You know you are getting close to the finish line when more and more of the 

officers recognize the value of productive activities and begin to implement them

on their own.

—Capt. Randy Demory

Kent County Detention Center, MI
20 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

administrative commitment to effective inmate 

programs. As already identified, the administrator’s vision and related goals must be clearly 

communicated to those involved. Although it 

is important for the administrator to provide 

the overall vision, during implementation it 

also becomes important to effectively communicate a clear and consistent direction. When 

the administrator provides such direction, staff 

come to better understand the specific tasks or 

functions required to support desired outcomes 

related to programming, and funding sources 

come to know what resources are needed. 

Stakeholders are often reluctant to support 

something they do not understand, and they 

are not able to perform effectively or provide 

appropriate resources when they do not know 

what is expected of them.

Another characteristic of communication that 

must not be overlooked is the benefit from 

communication that flows in both directions. 

Administrators need accurate and reliable 

feedback. Without it, effective evaluation 

becomes difficult. As discussed in chapter 3, 

effective implementation of inmate activities 

and programs requires a process of evaluation. 

An effective evaluation requires communication 

with both internal and external stakeholders. 

For example, accurate and reliable feedback 

from inmates is necessary to evaluate activities 

and programs effectively. Equally important is 

conveying the results of evaluations to external 

stakeholders, including funding sources, who 

will use the information to decide how to allocate future resources. An effective evaluation 

process demonstrates administrative commitment, as stakeholders quickly recognize that 

their efforts are being monitored and reviewed 

as part of a systematic procedure.

In addition, timely feedback often identifies 

minor issues that, if addressed quickly, will not 

escalate to a major issue threatening the success of a particular program. Clear and accurate 

communication is a component that requires 

little cost to implement, but lack of successful communication can result in huge losses to 

programming.

Competency

Aside from communication, stakeholders look 

for competency from the administrator. Usually, 

stakeholders do not expect complete technical 

competency from an administrator, but they 

do expect some level of understanding about 

the program. More importantly, administrators 

must demonstrate a high level of competency in 

program implementation and problem solving. 

This is particularly important when the vision requires the introduction of programming 

that has not been used in the facility before. 

By being competent, the administrator sets a 

standard of confidence and performance that 

other stakeholders will appreciate and strive 

to emulate. Setting a standard of competence 

adds clear expectations for all and improves the 

chance for overall success. 

FACILITY CASE STUDY

A facility was able to more effectively deliver mental 

health services by centralizing the location of those inmates 

who would most benefit from those programs and then providing targeted training to staff on how to manage the day-to-day 

activities of the unit better. The same facility created “The 

Adult Living Program,” which allows older inmates to live in 

a specific unit while expecting strict attendance and setting 

high performance standards in reformative-based programs 

offered in that unit. By examining all resources, including the 

strategic use of existing housing units and staff, the facility 

was able to enhance the overall inmate behavior management 

plan cost effectively.
Chapter 2. The Administrator’s Role in Supporting Inmate Programs and Activities | 21

Collaboration

The administrator must also promote collaboration, encouraging all stakeholders to 

acknowledge their role in accomplishing the 

common goal of effective programming to support inmate behavior management. Staff expect 

administrators to provide necessary resources, 

assist in overcoming barriers, and solve problems that may arise. Service organizations want 

to be recognized as important contributors to 

the project. By fulfilling these obligations, the 

administrator demonstrates a desire to work 

with stakeholders in achieving the desired 

outcomes.

The administrator should also strive to develop 

an environment in which stakeholders feel 

they are allowed to operate within established 

guidelines without being stifled. Allowing 

stakeholders to operate independently within 

established guidelines enables them to feel a 

sense of competence and confidence. For example, volunteers from the community who are involved in programming expect clear guidelines 

while performing their duties, but also want 

to demonstrate their own particular expertise. 

Stakeholders want to feel that they are part of a 

team that is accomplishing something productive rather than being people whom the administrator does not treat as capable and competent 

partners. Promoting collaboration encourages 

involvement, thereby reducing resistance and 

increasing the likelihood of positive outcomes.

Summary

By recognizing the importance of inmate programming, the administrator has taken the first 

step in creating a culture that embraces and 

supports such programs. The process continues 

with developing a clear vision with associated 

goals and desired affects that will serve as the 

foundation for programming. The administrator must then identify those programs that 

support the stated goal and develop an effective 

strategy to implement such programs. Implementation must include an evaluation component to validate the outcomes of programming, 

including a reduction in negative inmate 

behavior. The administrator must also develop 

an effective process to sustain successful programs, resisting the tendency for programming 

to backslide.

Administrators must fully appreciate that their 

support and commitment will substantially 

influence the success or failure of planning and 

implementing inmate activities and programs. 

They must be prepared to identify and work 

with key stakeholders and address barriers that 

A Mentoring Success Story

Perhaps the most inspiring specific case is that of an ex-offender with an extensive criminal history, including violent crimes, who was incarcerated in the Douglas 

County, KS, Detention Center. This person was one of the first to have an opportunity 

to meet with a prospective mentor 6 weeks prior to release. This activity helped him 

develop the confidence and trust to reach out for help and essential support at rough 

times after his release. He has since returned to the facility to co-facilitate one of our 

key cognitive behavior change classes, which we call “Stinking Thinking.” Not only 

have we been able to reinforce this one ex-offender’s positive changes, but his powerful example has also proved invaluable in reaching other inmates with insights and 

inspiration to change their own behavior choices. 
22 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

arise. Administrators must develop and display 

their sense of commitment, including their ability to communicate, degree of competency, and 

willingness to collaborate. Only through such a 

systematic and thorough approach will administrators be able to develop the support needed 

for implementation and maintenance of effective programming. 

When developing priorities in jail operations, 

administrators must remember the common 

thread in the jail’s mission. All jails, regardless 

of size, budget, design, or location, are responsible for managing inmate behavior. Productive 

programming is a necessary element in an effective inmate behavior management plan. Reducing inmate idleness and boredom has a strong 

correlation with improving inmate behavior, 

which should be the goal of every correctional 

administrator. Administrators must avail themselves of every possible opportunity to manage 

inmate behavior more effectively, including the 

use of productive inmate programming. 
Chapter 3. Planning, Implementing, and Evaluating Activities and Programs | 23

A

successful inmate behavior management strategy includes 

a methodology for planning, implementing, and evaluating 

activities and programs in a jail, and includes the 

following:

■ Describing and acknowledging the problem in an effort to promote a 

common understanding of the issues that the jail programs will address

and recognize their effect on the jail. This includes getting buy-in from

leadership, staff, and external stakeholders on the value of inmate 

activities and programs in managing inmate behavior.

■ Assessing the need for inmate activities and programs, including the 

process for collecting and analyzing data trends to anticipate the needs 

of inmates, from the perspective of both the inmates and jail operations.

■ Setting goals and measurable objectives for inmate activities and 

programs that address the needs of both the inmates and jail operations. 

■ Selecting and implementing activities and programs that address identified 

behavior management issues and contribute to achieving the goals set by 

the jurisdiction for both the inmates and jail operations. 

■ Evaluating activities and programs in terms of their quality and success 

in reducing negative inmate behavior. 

Describing the Problem 

An initial step in developing new programs and activities as part of an inmate 

behavior management strategy is for an administrator to clearly define and 

describe the inmate behavior problems that he/she hopes to change with the 

new programs and services. The behavior problems may first come to the jail 

administrator’s attention in any number of ways, including direct observation, inmate complaints, or written reports that indicate ongoing problems 

Planning, Implementing, 

and Evaluating Activities 

and Programs 3
24 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

with particular behaviors. The description 

should explain both the inmate behavior problems that the programs will address and the 

consequences of the programs for the effective 

operation of the jail. The problem description 

should answer the following questions:

■ What inmate behavior problems is the jail 

experiencing, and how do they affect jail 

operations?

■ What is the scope of inmate behavior problems, and how do they affect various segments of the inmate population?

■ What factors contribute to inmate behavior 

management problems?

■ Who are the target groups in the inmate 

population?

■ What changes or trends are occurring that 

may affect the type or scope of inmate behavior management problems?

A description of the problem should include 

an analysis of the level and scope of negative 

inmate behavior among various segments of the 

inmate population and its effect on jail operations. Behavior problems may vary among 

different custody levels and classifications, 

as will the types of productive activities a jail 

may choose to implement based on inmates’ 

risks and needs. A jail also must not overlook 

the financial costs of negative inmate behavior. Inmate vandalism and disregard for the 

jail, its equipment, and its furnishings increase 

replacement and repair costs. Injuries to staff 

or inmates may increase medical and staffing 

costs. An analysis of these costs further supports the need to have activities that redirect 

negative inmate behavior. See the completed 

Sample Program Initiative Planning Worksheet 

in appendix A for an example of a statement 

of the problem. The example describes several 

behavior problems of concern.

Assessing Inmate Needs 

Once there is a clear, concise statement of the 

problem, the next step is to assess the needs 

of the inmate population. The first element of 

effective inmate behavior management is to 

assess the risks and needs of inmates at various 

times while they are in custody. Individually, 

risk and needs assessments guide decisions 

regarding housing, care, supervision, and program participation for each inmate. For a jail, 

risk and needs assessment data are an excellent source of information that serves four key 

purposes:1

1. Identifying inmates’ prevalent needs and 

providing insight into the underlying reasons or factors contributing to their behavior. 

2. Identifying the level of support, responsibility, and training that jail staff and providers 

need to work with inmates. 

3. Helping staff be efficient and cost-effective in 

matching programs and services to inmate 

needs.

4. Allowing staff to see the trends of a jail 

population’s needs.

Consider the screening instruments that jails 

currently use to assess risks and needs at intake. 

They likely include screens for custody, medical information, mental health, suicide risk, and 

perhaps social stability factors such as residence, family, employment, or education. The 

aggregate data from these types of screens can 

yield a wealth of information about the needs of 

the inmate population and what programs and 

activities may be of value in addressing those 

needs. Some jails may have these screens online 

as part of their jail inmate management system. 

If so, it may be possible to use relevant data elements from the screens to establish a database 

of inmate needs. Otherwise, jail staff may have 

to draw a sample of the data from paper copies 

1

 J. Mellow, D. Mikamal, S. LoBuglio, A. Solomon, and J. Osborne, The Jail Administrator’s Toolkit for Reentry (Washington, DC: U.S.

Department of Justice, Office of Justice Programs, Bureau of Justice Assistance, 2008), http://nicic.gov/Library/023068, accessed

December 6, 2009. 
Chapter 3. Planning, Implementing, and Evaluating Activities and Programs | 25

of completed screens and enter it onto a spreadsheet for analysis. After completing the initial 

needs assessment, a jail should establish a process to review data from the assessment screens 

periodically to track changes and trends.

Jails can also use jail incident data to justify the 

need for implementing new productive activities for inmates and to plan what programs and 

activities the jail will offer. Analysis of incident 

data (reports of incidents, disciplinary action, 

misconduct, etc.) can highlight trends and provide a profile of the types of negative behaviors 

staff may want to address, what segments of the 

inmate population are exhibiting the majority of the negative behaviors, and under what 

circumstances. It is important to understand the 

variance of these contributing factors among 

the various segments of the inmate population. 

This is one of the first steps in defining target 

populations and tailoring programs and activities to address their unique needs.

Inmate surveys are a third method that administrators can use to gather information about 

inmate needs and preferences. Inmates may 

complete written surveys, exit interviews, 

participate in inmate focus groups, or some 

combination of the three. The Sample Program 

Initiative Planning Worksheet in appendix A 

provides a brief summary of the needs of both 

the inmate population and the jail with regard 

to the statement of the problem.

Setting Goals and 

Defining Objectives 

The next step in developing or expanding 

productive activities in a jail is to develop goals 

and objectives for the effort. A goal expresses 

the overall mission or purpose of an initiative. 

The goals of an initiative guide its development. One goal may be to increase safety and 

order in a jail through the reduction of negative 

inmate behavior. The jail should link the goal 

to its overall inmate behavior management 

strategy (recall the six elements of inmate behavior management described in chapter 1). It 

should not exist in isolation; rather it should be 

a logical extension of the jail’s overall approach 

to managing inmate behavior. An example of a 

goal statement is to “increase safety and order 

among the general inmate population while 

providing opportunities for inmates to address 

individual needs.”

Objectives are statements describing the results 

a jail would like to achieve and how it will 

achieve those results. Good objectives are specific and measurable. Well-written and clearly 

defined objectives are important because they:

■ Set program priorities.

■ Aid in monitoring progress toward achieving 

goals.

■ Set targets for accountability.

A well-written and clearly defined objective is 

SMART: Specific, Measurable, Achievable and 

Ambitious, Relevant, and Time-bound.2

Specific—It identifies a specific event or 

action that will take place.

Measurable—It quantifies the amount of 

change a jail hopes to achieve.

Achievable and Ambitious—It is realistic 

given the available resources and plans for 

implementation, yet challenging enough to 

accelerate program efforts.

Relevant—It is logical and relates to the 

program’s goals.

Time-bound—It specifies a time by which 

the objective will be achieved.

Here is an example of a SMART objective:

Increase the percentage of eligible inmates 

participating in the jail’s general educational 

2

 S. Ladd and J. Jernigan, Evaluation Guide: Writing SMART Objectives (Washington, DC: U.S. Department of Health and Human Services, 

Centers for Disease Control and Prevention, undated), www.cdc.gov/dhdsp/state_program/evaluation_guides/pdfs/smart_objectives.pdf,

accessed December 6, 2009.
26 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

development (GED) program from 20 percent 

to 50 percent in 2010.

The objective is specific because it identifies 

a defined event (i.e., participation in the GED 

program). The objective is measurable because 

it specifies a baseline and quantity of change 

in the level of participation (i.e., from 20 percent 

to 50 percent). The objective is achievable because it is realistic given the time and resources 

available, and it is ambitious because it would 

be a significant accomplishment to more than 

double participation. The objective is relevant

because it relates to the goal of increasing safety 

and order among the general inmate population while providing opportunities for inmates 

to address individual needs. The objective is 

time-bound because it specifies a time by which 

the jail will achieve its objective (i.e., by the end 

of 2010).

There are two general types of objectives: process and outcome. Process objectives describe 

program activities. They specify the actions a 

jail plans to take and are useful in measuring 

program implementation. Outcome objectives 

are the intended results of program activities 

and they are often divided into short-term, 

intermediate, and long-term objectives. In the 

context of behavior management goals, they 

quantify the effects of implementing a program 

in a jail. They generally state who will achieve 

how much of what outcome by when. “Who” 

is a population, “how much” is a percentage 

or target amount, and “by when” denotes the 

month(s), year(s), or other period after the 

program begins in which the jail hopes to have 

achieved its desired result. See the Sample Individual Program Implementation Worksheet in 

appendix A for examples of short-term, intermediate, and long-term objectives associated 

with the goal of increasing “safety and order in 

the general inmate population while providing 

opportunities for inmates to address individual 

needs.”

Objectives must link logically to each other. For 

one long-term objective, there may be several 

intermediate outcome objectives. Similarly, 

there may be several process objectives for 

each short-term outcome objective. See “Linking Program Goals With Process and Outcome 

Objectives” for examples of process and outcome objectives specific to the goal of increasing 

safety and order in a general inmate population. These examples assume that baseline data 

collected to identify the nature and extent of a 

problem in a jail indicated that a disproportionate level of problem behaviors among the general inmate population was adversely affecting 

the safety and order of the facility. 

Selecting and Implementing 

Program Activities 

Program activities describe what the program 

is actually doing to increase safety and order in 

the facility. 

Determining Program Activities 

Determine what inmate activities and programs 

will help a jail achieve its goals and objectives. 

For example, productive activities to promote 

safety and order in a facility might include unsupervised and supervised activities designed 

to reduce the idleness and boredom that often 

lead to inappropriate behavior. They might also 

include more structured programs designed to 

help inmates address personal needs while in 

jail or to assist in their successful return to the 

community. Indeed, some types of programs 

and activities may serve all three purposes: 

activity-focused, reformative, and reintegrative. 

Chapter 4 describes a variety of programs a jail 

may want to consider. 

It is important in program planning to describe 

the different activities that a jail will implement, determine how they relate to each other 

and to overall behavior management goals, and 

identify the steps or actions the jail must take to 

implement the activities. People often describe 

program implementation in a series of process 

objectives. The Sample Individual Program 

Implementation Worksheet in appendix A 
Chapter 3. Planning, Implementing, and Evaluating Activities and Programs | 27

LINKING PROGRAM GOALS WITH PROCESS AND OUTCOME OBJECTIVES

The following set of examples shows how a well-thought-out program plan links the ultimate goal of the program to 

measurable, specific process objectives for implementing the program and short-term, intermediate, and long-term 

outcome objectives. 

PROGRAM GOAL 

Increase safety and order in the inmate general population.

EXAMPLES OF PROCESS OBJECTIVES 

Process objectives link closely to well-planned program 

activities. Program activities should also link to a jail’s 

overall inmate behavior management plan to maximize the 

plan’s effectiveness.

Strategy: Increase opportunities for inmates to participate 

in unstructured and structured activities.

• By February 2011, survey inmates to determine their 

interest in various types of unstructured and structured activities.

• By March 2011, conduct a meeting with housing unit 

officers to establish a plan for increasing the level of 

unstructured and structured activities and reducing 

inmates’ idle time.

• By April 2011, purchase or secure donations of the 

board games and card games that are both suitable 

for use in the housing unit and are among the selected 

game choices preferred by inmates on the inmate 

surveys.

• By December 2011, conduct at least two supervised 

activities monthly in each housing unit.

Strategy: Implement reform and/or reintegration programs 

to help inmates develop improved personal/behavioral 

skills that will enable them to function more effectively in 

jail and return successfully to the community.

• By February 2011, review aggregate inmate risk and 

needs assessment data and survey inmates to determine the types of reform and reintegration programs 

they need the most.

• By March 2011, identify resources needed to implement selected reform and reintegration programs 

and identify potential providers.

• By May 2011, develop the program model, format, 

content, and eligibility requirements.

• By June 2011, secure needed resources and negotiate 

arrangements with the providers selected to present 

the programs.

• By July 2011, present information to inmates about 

the program and initiate initial program offering.

• By December 2011, achieve a 50-percent utilization 

rate based on program capacity.

EXAMPLES OF OUTCOME OBJECTIVES 

Examples of Short-Term Objectives 

The short-term objectives should focus on the changes 

in competencies, skills, and attitudes needed to achieve 

the changes in behaviors or environment identified in the 

intermediate objectives. 

Strategy: Increase inmate competencies and social 

skills and reduce inmate idleness.

• Increase the proportion of general population inmates 

participating in unstructured activities during scheduled free time from X percent in 2011 to Y percent in 

2012.

• Increase the proportion of general population 

inmates participating in structured activities 

from X percent in 2011 to Y percent in 2012.

• Increase the proportion of eligible general 

population inmates participating in organized reform 

and reintegration programs from X percent in 2011 

to Y percent in 2012.
28 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

describes significant activities associated with 

implementing a literacy program as a strategy 

to improve inmate behavior.

Identifying and Securing 

Program Resources 

Resources necessary to implement inmate programs and activities include money, staff, time, 

materials, equipment, and space. Availability of 

these resources may affect the scope of programs that a jail can offer, the facilities or space 

the programs can use, and the ability of staff 

to deliver the programs in the jail. A jail may 

need to seek out resources in innovative ways 

when there are limits on critical resources such 

as funding or staffing. Therefore, as previously 

indicated in chapter 2, a jail should clearly 

identify the resources it needs to implement a 

program during its planning stages. The NIC 

publication Budget Guide for Jail Administrators: 

Beyond Budget Allocation—Sources of Funding

and Services3

 provides numerous potential resources available at little or no cost to a jail. For 

LINKING PROGRAM GOALS WITH PROCESS AND OUTCOME OBJECTIVES (CONTINUED)

• Decrease the percentage of inmates returning to jail 

for a new offense within 30 days of release from X

percent in 2011 to Y percent in 2012. 

Examples of Intermediate Objectives 

The intermediate objectives should focus on the change in 

behaviors or environment that should lead to achieving the 

long-term objectives.

Strategy: Establish positive inmate behavior as the norm 

in the general population.

• Reduce the rate of rule violations (number of violations/average daily population [ADP]) among inmates 

in the general population from X in 2011 to Y in 2013.

• Increase the time in the daily schedule in which inmates have the opportunity to participate in structured 

activities and programs from X hours in 2011 to Y hours 

in 2013.

• Increase the proportion of general population inmates 

who receive formal incentives for positive behavior 

from X percent in 2011 to Y percent in 2013.

Examples of Long-Term Objectives 

The long-term objectives should focus on the overall 

results or benefits of having a safe and orderly facility. The 

assumption here is that the long-term effect of properly 

implementing the initiative would be a reduction in the 

amount and severity of misbehavior, along with a corresponding reduction in jail costs associated with such 

behavior.

Strategy: Keep inmates occupied with productive

activities.

• Reduce repair and replacement costs due to inmate 

vandalism and misuse from $X in 2011 to $Y in 2014.

• Reduce medical costs resulting from inmate injury 

from fights or other misbehavior from $X in 2011 to $Y

in 2014.

• Reduce the rate of serious incidents (number of 

incidents/ADP) involving inmates in the general 

population from X in 2011 to Y in 2014.

• Increase the proportion of inmates in the general 

population who never receive a sanction for a major 

rule violation while in custody from X percent in 2011 

to Y percent in 2014.

3

 M. Martin, Budget Guide for Jail Administrators: Beyond Budget Allocations—Sources of Funding and Services (Washington, DC: U.S. 

Department of Justice, National Institute of Corrections, 2002), http://nicic.gov/Library/017627, accessed December 6, 2009. Other helpful 

publications from NIC are also available through the NIC Information Center or the NIC website, www.nicic.gov.
Chapter 3. Planning, Implementing, and Evaluating Activities and Programs | 29

example, jail staff can reach out to other agencies to use the services they provide. A partial 

list of such agencies includes:

■ Colleges—interns, recreation programming, 

assistance in program planning and 

evaluation.

■ County extension—life skills programs.

■ County roads department—public works 

projects for inmates.

■ Libraries—books and reference materials, 

education programs.

■ Parks and recreation department—public 

works projects for inmates.

■ Schools—teachers, educational materials, 

equipment, tutoring.

■ Social services—counseling, life skills, 

support for basic needs. 

■ Workforce development— job readiness 

training, placement assistance.

Many segments of the community are also willing to donate goods, time, or services to the jail. 

These include civic groups, religious groups, 

professional groups, and individual citizens. A 

partial list of the types of resources available in 

most communities includes:

■ Business and civic groups—donations, advocacy for the jail with funding authorities.

■ Businesses—donations of equipment, supplies, expertise.

■ Charities—donations of clothing, goods, and 

rehabilitative services for inmates. 

■ Local chapters of health services organizations—donations of health education materials, volunteer services, health education 

programming.

■ Local foundations—grants funds.

■ Religious and faith-based groups—religious 

programming, counseling, visitation, 

tutoring, assistance to inmates’ families.

■ Self-help groups—counseling, support 

groups.

■ Service clubs—equipment donations.

■ Trade associations—equipment, technical 

expertise, and job training donations.

Many organizations in the private sector—

both for-profit and nonprofit—are also potential 

resources for jail programming. These organizations are likely providing behavioral health, 

education, and support services to other vulnerable populations in the community. They likely 

had many of the inmates in the jail as clients 

prior to their incarceration. Although it may be 

difficult for a jail to secure funding to help inmates access these services in the jail, they are a 

vital link to the community and a great resource 

for reintegrative programming.

Using Logic Models to Link 

Program Implementation With 

Planning and Evaluation 

There are three stages of program development: 

planning, implementation, and evaluation. 

Logic models4 link program inputs (identified 

in planning) and activities (carried out 

in implementation) to outputs and program 

outcomes (the subject of evaluation). Logic 

models are tools that a jail can use to 

(1) identify the short-term, intermediate, 

and long-term outcomes for a program; (2) link 

those outcomes to other outcomes and to program activities; (3) select indicators to measure; 

and (4) explain to decisionmakers how the program will work and what it will achieve over 

time. Exhibit 3-1 illustrates a basic programs 

logic model flow. 

4

 P. McCawley, The Logic Model for Program Planning and Evaluation (Moscow, ID: University of Idaho Extension, undated), www.uiweb.

uidaho.edu/extension/LogicModel.pdf, accessed December 6, 2009.
30 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Elements of a Logic Model 

Inputs are the resources that go into a program. 

Inputs for programs that keep inmates productively occupied may include:

■ Direct and in-kind funding.

■ Staffing.

■ Volunteers and community agencies/

organizations.

■ Equipment.

■ Materials.

■ Space

Activities are the events that occur during a 

program. Sample activities that are part of a 

program targeting inmates with educational 

deficits include:

■ Establishing criteria for literacy programs.

■ Identifying and selecting a service provider.

■ Establishing agreements with a service 

provider.

■ Recruiting, selecting, and training teachers/

volunteers.

■ Designating space and procuring needed 

equipment.

■ Procuring program materials.

■ Scheduling program classes.

■ Identifying inmates eligible to participate.

■ Enrolling inmates and starting classes.

■ Monitoring progress.

Outputs are the direct products of program 

activities. The following are examples of 

outputs of a program that targets inmates with 

educational deficits:

■ A written implementation plan.

■ Number of classes held.

■ Number of inmates participating.

■ Average grade-level increase in reading and 

writing skills.

Outcomes are the intended results or benefits of 

a program. Short-term outcomes are the immediate results and often focus on the knowledge, 

attitudes, and skills gained by a target audience. 

The following are examples:

■ Increased literacy skills.

■ Number of inmates completing a GED 

program. 

■ Improvements in decisionmaking and 

interpersonal skills.

■ More positive outlook on current situation 

and future opportunities.

EXHIBIT 3-1. BASIC PROGRAM LOGIC MODEL FLOW

Inputs

Activities Output Short-term

Outcome

Intermediate

Outcome

Long-term

Outcome

Goal
Chapter 3. Planning, Implementing, and Evaluating Activities and Programs | 31

Intermediate outcomes include behavior 

changes and changes in norms. The following 

are examples:

■ Increased participation in activities and 

programs.

■ Reduced incidence of negative behavior.

■ Expectation of positive behavior as the norm 

among the inmate population and staff.

■ Increased capacity of inmates to self-manage 

their behavior.

Long-term outcomes are the results a program 

achieves over time. The following are examples:

■ Decrease in the number and severity of 

behavior-related incidents resulting in harm 

to inmates or staff.

■ Decrease in the amount of contraband and 

vandalism in the jail.

■ Increase in the level of sanitation in the jail.

■ Decrease in recidivism. 

See appendix A for an illustrated example of 

how a jail might organize its inputs, activities, 

outputs, and outcomes in the Sample Individual Program Implementation Worksheet.

Linking the Program Components

in a Logic Model 

When drafting a logic model, a jail should first 

determine its goal then assess its program inputs (resources) and decide on activities. Then it 

must consider the implications. Ask, “If the jail 

does this, then what will happen?” For example:

■ If a jail provides opportunities for inmates to 

engage in productive activities, then the activities will reduce inmate idleness, boredom, 

and associated negative behaviors.

■ If a jail provides opportunities for inmates 

to address their current personal needs, the 

inmates will feel better about themselves and 

gain improved social and behavioral skills.

■ If a jail provides opportunities for inmates 

to prepare for their return to the community, 

the inmates will be less likely to return to jail 

on a new offense.

■ If a jail keeps inmates productively occupied, 

the jail will be calmer and quieter, and the inmates will be more compliant with jail rules.

This exercise helps a jail think through the 

logic of what it is trying to accomplish given 

its investment of resources in a specific set of 

activities.

After a jail decides on the various components 

of its logic model, it should arrange them in 

logical order, from left to right as illustrated in 

exhibit 3-1.

Once a jail has constructed its logic model, the 

jail should examine it carefully and ask the following questions:

■ Does each step relate logically to the other? 

■ Are steps missing that disrupt the logic of the 

model? 

■ Once the jail implements the model, could 

someone assess whether the program is 

doing what it needs to do to implement the 

desired change? 

Logic models can be broad or specific. They 

can link to each other to express how various 

elements of the programs connect. A jail could 

prepare a set of logic models to represent multistrategy efforts. Logic models are a useful tool 

in planning inmate activities and programs 

because they link goals and objectives with 

activities, outputs, and outcomes. Furthermore, 

they provide a visual representation of the 

program that helps stakeholders understand a 

proposed program’s purpose, the resources it 

will need, the activities it will conduct, and its 

capacity to effect change. Appendix B features 

a sample logic model for the goal of increasing 

safety and order among the inmate general 

population.
32 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Evaluating the Program 

A key component of program development is 

evaluation, the systematic process of collecting 

and analyzing information about a program or 

some aspect of a program to be able to make 

necessary decisions about the program. In 

developing the evaluation plan, a jail administrator must:

■ Reach agreement regarding the purpose of 

the evaluation both internally with the jail’s 

leadership and staff and externally with 

stakeholders, such as the funding authority. 

■ Select the evaluation model that the jail 

will use.

■ Decide on the evaluation questions that the 

model must answer.

■ Develop a plan for data collection and 

tracking.

■ Develop a plan for data analysis.

■ Develop a plan for communicating the 

results.

■ Designate responsibility for program monitoring and evaluation.

The overall evaluation design should outline 

the process the evaluation will follow, the questions the evaluation will investigate, what the 

evaluation will measure, what methods the 

evaluation will use, what will be done with 

the information, and how the results will be 

disseminated. 

Determining the Purpose

of the Evaluation 

In developing a plan to evaluate an activity or 

program, a jail administrator should first consider 

the purpose of the evaluation. The purpose may 

be, for example, to improve an existing program, 

assess a program’s effectiveness, or demonstrate 

to funding authorities what a program has accomplished with the resources provided. There are 

three types of evaluations—formative, process, 

and outcome evaluations—each of which serves 

different purposes.5

Formative evaluations are typically useful during the development of a new program. These 

evaluations help assess program strategies, 

materials, activities, and resources to ensure 

that the program concept is sound, meaningful, 

and appropriate for the target population. Jails 

can use the results from this type of evaluation 

to help make changes in a program and correct 

problems, thereby maximizing the potential 

for success before the jail fully implements 

program activities. Formative evaluations are 

also useful when a jail is adapting an existing 

program for use with a different target population, helping to ensure that the strategies, 

materials, and activities are appropriate for the 

new target population. Jail program staff, for 

example, might conduct a formative evaluation 

to decide whether a particular program such as 

anger management, which may be targeted to 

offenders incarcerated for domestic violence, 

could work for other offender groups.

Process evaluations assess the delivery of a 

program once the program goes into operation. Jails generally use the findings from these 

evaluations to make program adjustments or 

improvements. The evaluation results can also 

yield information needed to enhance program 

consistency across staff members, among 

shifts, or over time. In addition, the jail administration can use the information collected in 

process evaluations over a set funding period 

to document to the funding authority and other 

external stakeholders how it spent funds for the 

program.

Process evaluations attempt to answer the 

questions, “What does the program do?” and 

“How is the program doing it?” Jails may use a 

process evaluation to help improve newer 

5

 Tobacco Technical Assistance Consortium, Evaluation Planning, www.ttac.org/power-of-proof/eval_planning/index.html, accessed 

December 6, 2009.
Chapter 3. Planning, Implementing, and Evaluating Activities and Programs | 33

programs. Process evaluations focus on the 

links between the inputs, activities, outputs, 

and outcomes of a program as described in its 

logic model to see if a jail implemented the program according to plan and if it achieved the 

desired results. They help determine:

■ Whether the program reaches its intended 

audience.

■ Which program operations work and which 

do not.

■ What program settings (housing unit, classroom, multipurpose room, etc.) appear to 

be most appropriate and useful for meeting 

inmate needs.

■ How different program components interact 

and fit together to form a coherent whole.

■ Which strategies are successful in encouraging inmate participation and involvement.

Process evaluations document how well a jail 

has implemented a program, and a jail should 

conduct them periodically throughout the 

duration of the program. Process evaluations 

assess whether a jail has appropriately allocated 

inputs or resources and whether it is implementing activities as planned. They identify 

strengths, weaknesses, and areas that need improvement. Following are some examples of the 

type of performance indicators that a process 

evaluation measures:

■ The number of inmates participating in programs or activities.

■ The number of activities and meetings.

■ Characteristics of the inmates participating in 

the activities.

■ The staffing for activities and programs.

■ The amount of money a jail spends on program activities.

■ The number of inmates successfully completing programs.

■ The number of training sessions conducted 

for staff or volunteers.

Outcome evaluations assess the effects or 

outcomes of a program. There are three types 

of outcome evaluations; short-term, intermediate, and long-term. A short-term outcome 

evaluation measures the effect a program has 

on its target audience shortly after implementation. Short-term outcome evaluations seek to 

measure changes a program creates in a target 

population’s knowledge, attitudes, beliefs, or 

behaviors and to show the degree to which a 

program is meeting its immediate objectives. 

For example, jail staff will look for positive 

indicators of changes in the overall behavior 

of inmates and climate of the housing unit in a 

short-term outcome evaluation. Intermediate 

outcome evaluations link short-term and longterm outcomes and assess continuing progress 

toward achieving program goals. Jails may use 

this type of evaluation to measure changes in 

individual behaviors, group norms, or the environment. Jails generally use long-term outcome 

evaluations, also known as summative evaluations, to assess how well a program is meeting 

its stated goals and to summarize what has 

occurred. This type of evaluation allows jails to 

learn from their program successes and failures 

so staff can incorporate what they have learned 

into improving the program or creating more 

effective new programs. The evaluations also 

provide evidence of success for use in making 

future funding requests. 

Outcome evaluations attempt to answer this 

question: “What difference are the jail’s efforts 

making?” Outcome evaluations help identify 

the immediate, short-term, and long-term 

impacts of an established program and determine its effectiveness. This type of evaluation 

assesses program results and whether the program has achieved its objectives. The evaluation 

may include both expected and unexpected 

results. A jail should conduct outcome evaluations only after a program has been active long 

enough to produce measurable results.
34 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

The following discussion provides an example 

of short-term, intermediate, and long-term 

outcomes for a particular program. As noted 

above, short-term outcomes may be changes 

in knowledge, skills, or attitudes of inmates 

participating in the programs or activities. For 

example, short-term outcomes of an animal care 

program implemented as a strategy to increase 

safety and order in a jail may include having inmates learn basic pet-handling responsibilities, 

including walking, cleaning of shelter, feeding, 

watering, grooming, and cleanup. 

Intermediate outcomes link short- and longterm goals, An intermediate outcome in an 

animal care program might be that participating inmates become more empathetic to the 

needs of others, become less self-absorbed in 

their situation, and act more responsibly. Corresponding behavior may become self-sustaining 

and the norm for the jail environment.

Long-term outcomes reflect the ultimate goal of 

a program. A long-term outcome in an animal 

care program would be a reduction in the costs 

and harm to the jail, inmates, and staff due to 

negative, noncompliant inmate behavior and 

fewer incidents of inmate misconduct.

For an animal control program implemented 

with the goal of increasing safety and order 

in a jail, an outcome evaluation might assess 

whether:

■ Participating inmates exhibit increased 

knowledge and awareness of the needs of 

shelter animals and how to care for them 

(short-term outcome).

■ Participating inmates show changes in behavior and an increased level of concern for 

others (intermediate outcome).

■ The jail experiences fewer serious behaviorrelated incidents among inmates (e.g., fights, 

self-harm, property damage) (long-term 

outcome).

■ The jail, inmates, and staff experience less 

harm or damage (e.g., costs, injury) resulting 

from negative inmate behavior (long-term 

outcome). 

Selecting an Evaluation Model 

Although there are various traditional evaluation designs ranging from experimental to 

observational, less-traditional approaches may 

be appropriate and feasible for evaluating the 

effectiveness of activities and programs (given 

limited resources and, possibly, expertise). A 

goal-based evaluation model,6 for example, 

uses program goals as the standard for evaluation. With a goal-based model, evaluation 

planning focuses on the activities, outputs, and 

outcomes established in the program’s design 

to determine what performance indicators to 

select and measure. Thus, the logic model for a 

program is its foundation for evaluation. Jails 

can measure progress toward objectives in the 

early stages of a program to document achievements and ensure accountability. This gives 

evaluators the flexibility to adapt evaluation 

strategies if significant changes in the inputs 

and activities of a program occur (as might 

often be the case given the transitory nature 

and unpredictability of the jail population). The 

evaluation design a jail selects will influence the 

timing of the data collection, how it analyzes 

data, and what conclusions it can draw from the 

analysis. A collaborative approach to evaluation planning involving security staff, program 

providers, evaluators, and policymakers will 

help ensure the appropriateness and utility of 

the evaluation design.

Determining Evaluation Questions 

Evaluation questions indicate those things a 

jail wants to learn, such as whether the jail did 

what it said it was going to do and whether the 

jail achieved the change it wanted to see. Evaluation questions typically focus on adherence to 

6

 C. Namara, A Basic Guide to Program Evaluation (Minneapolis, MN: Authenticity Counseling, 2002), available online from the Free

Management Library, www.managementhelp.org, accessed December 6, 2009.
Chapter 3. Planning, Implementing, and Evaluating Activities and Programs | 35

a program’s design during implementation, the 

degree to which the program attains its objectives, the program’s effect on participants, and 

the program’s effect on the organization. 

A process evaluation of a program to increase 

the literacy levels among eligible inmates, for 

example, might seek to answer questions such 

as these:

■ Did the jail conduct a survey to determine 

the level of need for and interest in the 

program?

■ Did the jail establish eligibility criteria for the 

literacy program?

■ Did the jail allocate funding and in-kind 

resources?

■ Did the jail identify and select a service 

provider?

■ Did the jail establish an agreement with the 

service provider?

■ Did the jail recruit, select, and train teachers/

volunteers according to plan?

■ Did the jail designate adequate space for the 

program?

■ Did the jail procure essential equipment and 

furnishings?

■ Did the jail procure program materials?

■ Did the jail add program classes to the master activity schedule?

■ Did the jail identify and alert inmates who 

were eligible to participate in the program?

■ Did the jail conduct the literacy classes as 

planned?

■ How many of the eligible inmates actually 

attended classes?

■ How many eligible inmates completed the 

program?

These are straightforward questions that, if 

answered, ensure that the jail implements the 

program as planned and is reaching the target 

population. If the jail monitors the results of 

questions like these throughout the duration of 

the program, it can make midcourse changes as 

needed to keep the program on track.

An outcome evaluation of the same type of 

program, on the other hand, may answer the 

following types of questions:

■ Did participating inmates exhibit increased 

literacy skills? Can they read better? (shortterm outcome)

■ Did participating inmates use newly learned 

literacy skills to gain the knowledge and 

abilities they might require to address other 

personal needs? (intermediate outcome)

■ Were participating inmates successful in 

returning to the community? (long-term 

outcome)

In selecting evaluation questions, it is important to identify the evaluation users, determine 

what is important for them, and then tailor the 

evaluation questions to address their needs. 

A jail should also consider the feasibility, in 

terms of availability and cost, of obtaining the 

data it would need to answer the questions. 

The Sample Program Evaluation Worksheet 

in appendix A shows examples of process and 

outcome questions for evaluating an inmate 

literacy program.

Collecting Outcome Data 

An important element of the evaluation 

process is collecting and analyzing data on 

the key outcomes the jail will measure. The 

written measurable objectives established in a 

program design, the outcomes established in a 

logic model, and selected evaluation questions 

become the basis of the outcomes. Keep in mind 

that, in process evaluations, an outcome is really an output. Outputs are the direct products of 

program activities, often measured in terms of 
36 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

the amount of work accomplished, such as the 

number of sessions conducted or the number of 

inmates participating in an activity.

Collecting Qualitative and 

Quantitative Data 

Both quantitative and qualitative data are 

useful in program evaluation; therefore, a jail 

should consider collecting both types of data. 

Quantitative data are measured and expressed 

in numbers. They can be tallied and presented 

in percentages, averages or ranges, and in tables 

or graphs. Qualitative data typically express information in words and describe elements of a 

program and the attitudes and behaviors of the 

inmates before, during, and after their participation in the program. Evaluators may present 

qualitative data in narrative form, but they may 

also express the data in numbers showing the 

breakdown of responses into particular categories. In a jail program, the number of inmates 

participating is an example of quantitative data, 

while staff perceptions of a change in attitude 

of an inmate following participation in the 

program might be a qualitative element that is 

important to collect.

Determining Outcome Indicators 

Once a jail determines the outcomes it must 

measure, it must then select its indicators. 

Indicators are specific, observable, and measurable data elements that show the progress a 

program is making toward achieving a specified outcome.7

 For example, the percentage of 

inmates who have received a sanction for a rule 

violation while in custody is an indicator that 

jails can use to measure the long-term outcome 

of decreased incidence of negative inmate 

behavior in the jail. Key points about selected 

indicators include the following:

■ There should be at least one indicator for 

each outcome.

■ The indicator must be focused and relevant 

and must measure some important dimension of the outcome.

■ The indicator must be clear and specific 

about what it will measure.

■ The indicator should measure progress 

the program makes toward achieving 

the outcome.

Exhibit 3-2 provides examples of outcomes, 

indicators, and data sources for programs 

designed to increase facility safety and order by 

providing inmates with activities and programs 

to keep them productively occupied.

The evaluation plan should indicate the timeframe in which the jail expects to collect its 

data. Depending on the type of data a jail needs, 

collection can take a few days or a few months. 

It is important that a jail be realistic about how 

long it will take to collect the data and the 

resources that it will require. Data collection 

should be feasible given the time and resources 

available for the task.

Data Sources and Methods of 

Collection 

There are four basic ways to collect evaluation 

data: document review, observation, interview, 

and survey.8 Using a combination of these 

sources, if possible, will lend validity to evaluation findings. A document review can provide 

information about program participants’ level 

of participation; characteristics; changes in 

knowledge, skills, and behavior; and the jail’s 

overall progress in implementing a program. 

Some records may already exist in a jail’s

records management system. It may be necessary to create other records specifically for 

documenting specific aspects of the program. 

Exhibit 3-3 lists records and documentation 

7

 H. Hatary, T. van Houten, M. Plantz, and M. Greenway, Measuring Program Outcomes: A Practical Approach (Alexandria, VA: United Way 

of America, 1996). 

8

 Sally L. Bond, Sally E. Boyd, and Kathleen A. Rapp. Taking Stock: A Practical Guide to Evaluating Your Own Programs (Chapel Hill, NC: 

Horizon Research, Inc., 1997), www.horizon-research.com/reports/1997/stock.pdf, accessed December 6, 2009.
Chapter 3. Planning, Implementing, and Evaluating Activities and Programs | 37

EXHIBIT 3-2. EXAMPLE OF OUTCOMES, INDICATORS, AND DATA SOURCES FOR

THE GOAL OF INCREASING FACILITY SAFETY AND ORDER THROUGH PRODUCTIVE

ACTIVITIES FOR INMATES

Short-Term Outcomes Short-Term Indicators Data Sources

Increased proportion of general 

population inmates participating

in unstructured activities.

Percentage of inmates participating 

in unstructured activities.

• Housing unit logs.

• Activity logs.

Increased proportion of general 

population inmates participating

in structured activities.

Percentage of inmates participating 

in structured activities.

• Housing unit logs.

• Activity logs.

Increased proportion of eligible 

general population inmates 

participating in organized reform 

and reintegration programs.

Percentage of inmates participating 

in organized reform and reintegration programs.

• Activity logs.

• Program attendance.

Decreased percentage of inmates 

returning to jail for a new offense 

within 30 days after release.

Number of inmates returning to jail 

for a new offense within 30 days 

after release.

• Admissions log.

Intermediate Outcomes Intermediate Indicators Data Sources

Reduced rate of rule violations. Number of rule violations divided

by the average daily population 

(ADP).

• Incident reports.

Increased time in the daily 

schedule for structured 

programs and activities.

Amount of time allocated for 

structured programs and 

activities.

• Facility master schedule.

Increased proportion of general 

population inmates who receive 

formal incentives for positive 

behavior.

Number of inmates who receive 

incentives for positive behavior.

• Housing unit logs.

• Behavior reports.

Long-Term Outcomes Long-Term Indicators Data Sources

Reduced repair and replacement 

costs due to inmate vandalism 

and misuse.

Amount of repair and maintenance 

costs due to inmate vandalism and 

misuse.

• Budget reports.

Reduced medical costs resulting 

from inmate fights or other 

misbehavior.

Amount of medical costs 

resulting from inmate fights or 

other misbehavior.

• Budget reports.

Reduced rate of serious incidents 

involving inmates in the general 

population.

Number of serious incidents 

divided by the ADP.

• Incident reports.

• Census reports.

Increased proportion of inmate 

population with clean behavior 

records.

Percentage of inmates without

a sanction for a major rule 

violation.

• Disciplinary reports.
38 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

that may serve as sources of data to collect for 

evaluation.

Observation is another means of collecting data 

about a program. As described in the section 

above, data analysis should have both quantitative and qualitative elements. Although written 

records are a good source of data for quantitative analysis, they do not tell the whole story. 

Program attendance, for example, may relate 

to something other than interest in a program. 

It could be that inmates are simply bored and 

looking for something to do. Observation can 

yield a wealth of information about how well a 

program is working and the extent to which it 

engages and involves participants. For observation to be an effective data source, observers 

must know what to look for. For example, an 

observer looking for indicators of participants’ 

interest in a particular program may consider 

the following:9

■ What proportion of inmates in the program 

are actively participating? What are they 

saying?

■ How do they look? Are they distracted, 

bored, or are they listening with interest?

■ How much personal experience do the inmates bring to the discussion?

■ Do the inmates seem excited about the topic? 

A checklist or form to record observations may 

be a useful tool that can help observers look for 

behaviors that relate to the program objectives 

and desired outcomes. 

Interviews are yet another source of data for 

evaluation. Structured interviews that follow 

a prepared set of questions are typically most 

effective in getting data in a consistent form for 

analysis. Interviewing staff, program providers, 

volunteers, and others in addition to the inmate 

participants gives a broader perspective that 

may be more useful in an analysis. In addition 

to individual interviews, focus groups are a 

good way to get information from more people 

in a short amount of time.

Conducting surveys is another method of collecting data for evaluation. Evaluators gather 

survey data through the use of written questionnaires. Questionnaires with closed-ended 

questions, such as multiple-choice questionnaires, are useful in gathering quantitative

evaluation data from a target group. For 

example, a needs/interest survey of inmates 

conducted as part of a formative evaluation 

can help jails determine what types of activities and programming may be most beneficial. 

Questionnaires with open-ended questions, on 

the other hand, may produce richer responses 

better suited to qualitative analysis.

EXHIBIT 3-3. RECORDS AND DOCUMENTS TO USE AS DATA SOURCES

Existing Records Existing Records

• Risk and needs assessments and other 

classification information.

• Jail logs.

• Incident and disciplinary reports.

• Activity schedules.

• Jail census reports.

• Volunteer training logs.

• Service provider agreements.

• Budget reports.

• Need/interest surveys.

• Program attendance logs.

• Participant demographic information sheets.

• Participant progress reports.

• Test results.

9

 Sally L. Bond, Sally E. Boyd, and Kathleen A. Rapp. Taking Stock: A Practical Guide to Evaluating Your Own Programs.
Chapter 3. Planning, Implementing, and Evaluating Activities and Programs | 39

Time and level of effort are major considerations in determining the types of data to collect 

for evaluation. Use of internal versus external 

evaluators is also a factor. Some advantages of 

having external evaluators collect data may be 

that jail staff view them as being more impartial 

and jail staff do not have to take time from their 

other duties. The main disadvantage may be 

the cost. 

Analyzing Data 

Once a jail completes data collection, the process of data analysis begins and the effects of a 

program emerge. A basic tool for analyzing data 

is descriptive analysis.

10 Evaluators use descriptive statistics to present the basic features 

of the data collected. Descriptive analysis may 

be as simple as summing or averaging results 

or taking a large set of data and presenting it 

in a manageable form. In a process evaluation, 

statistics will likely be relatively straightforward. Descriptive information should be presented objectively, in quantitative terms where 

possible, as illustrated in exhibit 3-4. 

Inferential analysis is another tool for analyzing data. A jail may use this type of analysis 

to infer conclusions beyond the results of the 

raw data alone. In an outcome evaluation, 

evaluation questions may focus on the effects 

of particular program activities and seek to establish whether there is a relationship (and how 

strong) between a program and its intended 

results. For example, jail program staff may 

want to see whether inmate participation in a 

behavior modification program correlates to a 

subsequent reduction in the level of property 

damage in a housing unit. A simple inferential 

analysis is possible using statistical functions on 

spreadsheet programs with the data that the jail 

collects. Enlisting the aid of statisticians may 

be necessary for a more complex analysis of 

this nature.

Regardless of the tools a jail uses in analyzing 

its data, the analysis should include interpretation of the results. Interpretation puts the 

results in context and allows those who review 

the data to draw conclusions. The analysis 

should provide stakeholders with conclusions 

10 William M. Trochim, The Research Methods Knowledge Base, 2nd ed., www.socialresearchmethods.net/kb, accessed

December 6, 2009. 

EXHIBIT 3-4. GED PROGRAM MONTHLY ATTENDANCE ATTENDANCE

0

5

10

15

20

25

30

35

40

Jan. Feb. Mar. Apr. May Jun. Jul. Aug. Sep. Oct. Nov. Dec.

MONTH

36

32

30

26

24

18

22 21

24

36

22

18
40 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

about the program, including lessons learned 

and recommendations for improvement. 

Communicating the Results

of the Evaluation 

In developing a plan for communicating the 

results of a program evaluation, a jail should 

think about the following:

■ With whom does the jail need to share the 

results?

■ What information do they need?

■ How should the jail communicate the 

information? 

A jail should make the evaluation results available to the stakeholders in a program, particularly those who are likely to be key users 

of the information. Stakeholders, as indicated 

in chapter 2, may include the sheriff, jail staff, 

funding authorities, program partners, inmates, 

and the community. 

A jail does not need to share all evaluation 

results with all stakeholders, however. The 

sheriff and governing board, for example, are 

more likely to be interested in the bottom line—

whether the program works and whether it 

produces a good value for the investment. Staff 

and program managers, on the other hand, may 

need to know detailed implementation results 

to be able to identify needed program improvements. It is important to understand what 

amount and type of information each stakeholder desires in order to provide information that 

meets their needs. Exhibit 3-5 presents a model 

for tailoring evaluation questions to answer the 

concerns of various groups of jail stakeholders.11

The primary use of evaluation information is 

to provide feedback for program improvement. 

The evaluation information should help jail 

program staff determine the extent to which 

a program is meeting its stated objectives and 

whether it is contributing to overall behavior 

management goals. Therefore, a jail should 

frame evaluation information in terms of the 

intermediate indicators and desired outcomes 

it defines in the logic model at the beginning 

of a program. A jail can communicate much of 

the evaluation information that staff receive, 

particularly from formative and process evaluations, in the early stages of the planning process 

and during implementation. This information 

may also be communicated informally among 

the key internal stakeholders. More formal 

methods may be necessary for communicating 

evaluation information to external stakeholders 

and interested parties. 

Methods for formally communicating evaluation information include full written reports, 

executive summaries, briefing papers, slide presentations, media releases, and Internet postings. The methods a jail uses to communicate 

the evaluation results depend on the audience 

and what information that audience desires. 

Providing a full report, for example, might help 

key program staff design program improvements. Conversely, an executive summary 

with information on the cost-effectiveness of a 

program might be sufficient for the sheriff and 

funding authorities. A slide presentation may 

be the most effective way to communicate program results to program partners, community 

organizations, and other policymakers. A strong 

evaluation report includes the following:12

■ Subject program description.

■ Statement about the evaluation questions 

and the purpose of the evaluation.

■ Description of actual data collection methods 

a jail uses.

11 W.K. Kellogg Foundation, Logic Model Development Guide: Using Logic Models to Bring Together Planning, Evaluation, and Action

(Battle Creek, MI: W.K. Kellogg Foundation, 2004), www.wkkf.org/knowledge-center/Resources-Page.aspx, accessed December 6, 2009.

12 A. Baker and B. Bruner, Evaluative Thinking, Bulletin 6 – Using Evaluation Reports (Cambridge, MA: Bruner Foundation), 

http://brunerfoundation.org/ei/docs/EvaluativeThinking.bulletin.6.pdf, accessed December 6, 2009.
Chapter 3. Planning, Implementing, and Evaluating Activities and Programs | 41

■ Summary of key findings (including tables, 

graphs, vignettes, quotes, etc.).

■ Discussion or explanation of the meaning 

and importance of key findings.

■ Suggested action steps.

■ Next steps for the program and the 

evaluation.

■ Issues for further consideration.

Stakeholders use the evaluation results for 

various purposes, some of which have timelines and deadlines of their own. For example, 

EXHIBIT 3-5. EXAMPLES OF EVALUATION QUESTIONS TO USE 

WITH JAIL STAKEHOLDERS

Audience Typical Questions Evaluation Use

Jail program 

staff and 

program 

partners

• Is the jail reaching the target population?

• Are the inmates satisfied with the program?

• Is the jail running the program efficiently?

• How can the jail improve the program?

Programming decisions and 

day-to-day operations.

Inmate 

participants

• Did the program help me?

• Did I find it interesting and worthwhile?

• Is the program suited for the target population?

• What would improve the program for others?

Decisions about continuing

participation.

Sheriff and jail 

administration

• Whom does the program serve?

• What difference has the program made?

• Is the program reaching its target population?

• What do staff and participants think about the program?

• Is the program worth the cost and effort?

Decisions about commitment and support.

Knowledge about the 

utility and feasibility of a 

program’s approach.

Governing 

authority/

funders

• Is the jail achieving what it promised?

• Is the program working?

• Is the program worth the cost?

Accountability and future 

funding decisions.

Community • Does the program contribute to community well-being 

and safety?

• Is the program cost-effective?

Decisions about support.

Source: Adapted from W.K. Kellogg Foundation, Logic Model Development Guide: Using Logic Models to Bring Together Planning, 

Evaluation, and Action (Battle Creek, MI: W.K. Kellogg Foundation, 2004) p. 40, www.wkkf.org/knowledge-center/Resources-Page.aspx,

accessed December 6, 2009.

governing boards and grant agencies may have 

deadlines for submitting funding requests. A 

jail should provide evaluation information, to 

the extent possible, to intended users in time for 

it to meet their needs. 

Responsibility for Program 

Monitoring and Evaluation 

The evaluation plan should identify individuals 

who will be responsible for program monitoring and evaluation activities. The evaluation 

team may include jail staff and program partners. The assignment of responsibility will 
42 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

ensure that key tasks are not overlooked and 

the individuals understand their roles in the 

process.

Summary 

Implementing inmate activities and programs 

that reduce negative inmate behavior in the jail 

is more likely to be successful if those activities 

and programs are the product of careful planning. Successful programs bring about change, 

and jails build those programs on the basis of 

solid knowledge of what works and a clear understanding of the jails’ needs and desired outcomes. Most jail administrators know what they 

want—a jail that is safe, clean and quiet—and 

they may even know what they want to do to 

achieve that goal. What is often missing is how 

to get there. This chapter provides a methodology for program planning, implementation, and 

evaluation that jail administrators can use in 

providing inmate activities and programs as a 

positive element of an inmate behavior management plan. The list below presents the steps in 

planning and implementing a program:

■ Describe the problem—Clearly and succinctly explain the problems you hope to 

address. 

■ Assess inmate needs—Assess the needs of 

the inmate population and the jail that are 

contributing to the problem. 

■ Establish goals and objectives—Establish 

goals and objectives for the program that 

describe the desired outcomes and provide 

direction for staff and other key stakeholders. 

■ Determine program activities—Identify the 

inmate activities and programs you want to 

implement and the steps necessary to implement the activities. 

■ Identify required resources—Resources 

needed to implement inmate programs and 

activities may include money, staff, time, 

materials, equipment, and space.

■ Design the program—Effective programs 

link the problem to the intervention (inputs, 

activities, and outputs) and the result (outcome). Logic models are excellent program 

planning and evaluation tools.

■ Implement the program—Implement the 

desired activities and programs, monitoring 

the implementation and tracking results.

■ Evaluate the program—Collect and analyze 

key data to assess progress toward meeting 

desired outcomes. Use the evaluation information to improve the program and demonstrate the effectiveness of the jail’s approach.

Program evaluation is a critical element of the 

process. Evaluation does not need to be complicated or costly but needs to be well thought 

out and considered from the very beginning of 

program planning. Key steps in organizing the 

evaluation process include the following:

■ Reaching agreement on the purpose of the 

evaluation.

■ Selecting the evaluation model to use.

■ Deciding on the evaluation questions to 

answer.

■ Developing a plan for data collection and 

tracking.

■ Developing a plan for data analysis.

■ Developing a plan for communicating the 

results.

■ Designating responsibility for program 

monitoring and evaluation.

Chapter 4 describes a range of inmate activities 

and programs that a jail can implement as a 

means to reduce negative inmate behavior. Administrators are encouraged to use the program 

planning and evaluation tools described in this 

chapter to achieve the most benefit from the 

programs in managing inmate behavior.
Chapter 4. Inmate Activities and Programs | 43

T

he range and types of inmate activities and programs 

that a jail may develop to help reduce negative inmate 

behavior include:

■ Work inside the housing unit.

■ Work outside the housing unit.

■ Unstructured activities inside the housing unit.

■ Structured activities inside the housing unit.

■ Organized programs inside the housing unit.

■ Organized programs outside the housing unit.

This guide presents specific examples of activities and programs in the pages 

that follow. Each example briefly describes the activity or program and includes information on delivery methods, required resources, implementation 

examples and tips, and suggested information to collect for program evaluation. Appendix C, Program Examples, indexes the program examples by 

subject, type (activity, reform, reintegration), complexity, and cost. 

The program descriptions in this chapter represent a compilation of the 

programs and activities that jails across the country have used. Appendix D, 

Program Resources, references the specific jails participating in the survey 

on program and activity use and implementation in jails. For the survey 

respondents who reported using a particular product or program, this guide 

includes information on websites that have more information about the 

products and programs.

Inmate Activities 

and Programs 4
44 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Key Decisions in Selecting 

and Implementing a Program

There are some broad questions to consider 

when deciding whether to implement any specific program. The sections below address those 

questions in detail.

Why?

As discussed in chapter 3, a goal expresses 

the overall purpose for a program initiative, 

and objectives are statements that describe the 

results a jail hopes to achieve and outlines how 

it plans to achieve those results.

■ Why does the jail want to implement activities and programs? 

■ What does the jail hope to achieve by implementing a program? 

■ What are the jail’s goals and objectives?

What?

As discussed in chapter 2, three types of 

programs support effective inmate behavior 

management:

■ Activity—Programs designed to keep inmates actively and productively engaged.

■ Reform—Programs designed to provide inmates with knowledge and skills to address 

current personal needs.

■ Reintegration—Programs designed to 

provide inmates with assistance and information to help them prepare to return to 

the community.

All three program types support effective inmate behavior management. A jail may choose 

to have a mix of programs designed to meet its 

goals and objectives. 

■ What activities does the jail currently 

provide?

■ Will the proposed activity help the jail 

achieve its stated goals and objectives?

Who (Inmates)?

An integral part of selecting an activity or 

program for a jail is knowing which inmates 

will be able to take advantage of the program 

and what the needs and interests of those inmates are. This will help the jail select activities 

and programs that inmates are more likely to 

use.

■ Which inmates will be eligible to attend the 

program? 

■ Will the program be available to all inmates 

or to certain classifications of inmates only? 

■ Does the program require screening of inmates based on need, length of stay, or other 

criteria? 

■ Does participation in the program require 

a referral from a specified individual or 

agency? 

■ If access to the program is restricted, is the 

process to select participants documented 

and fair? 

■ Do excluded groups have alternate access to 

the activity or information? If not, has the jail 

clearly articulated its reasons and are they 

defensible?

 Who (Staff)?

As those who most likely will implement the 

proposed activities and programs, staff must be 

aware of and become champions of the implementation. Such support will reduce internal 

resistance. 
Chapter 4. Inmate Activities and Programs | 45

■ Who will provide the activity? 

■ Does the program require a leader or 

instructor? 

■ Who is an appropriate leader—a volunteer, 

security staff, program staff, staff from another agency, or a paid provider? 

■ For programs not requiring a leader, who is 

responsible for obtaining, distributing, and 

monitoring program materials? 

■ Does the program require security supervision in addition to a program leader or 

instructor? 

■ Does the program require ongoing coordination in addition to a program leader or 

instructor?

When?

The scheduling of an activity or a program’s 

implementation may affect a jail’s ability to secure external support, monetary resources, and 

staff and inmate backing. In addition, programs 

requiring appropriated funds may be subject to 

state and local budget cycles.

■ When is an appropriate time to schedule the 

program? 

■ What other activities affect the scheduling of 

this program? 

■ When is the designated leader or instructor 

available to administer the program?

■ What annual application or renewal deadlines must the program meet?

Where?

If a jail is to implement an activity or program, space must be available for leaders and 

participants inside the jail. Programs with 

external locations must address security and 

transportation issues while meeting other 

program-specific criteria.

■ What space does the jail need for the activity 

and/or for storage of program materials? 

■ Can the activity take place inside an inmate 

housing area or is separate space required?

How?

Different jails may need to implement an activity or program differently than other jails. A jail 

should consider its own access to resources or 

its ability to secure new ones.

■ What are the specific details and processes 

for providing the activity? 

■ What materials and equipment does the jail 

need; how will the jail obtain, monitor, and 

store its equipment? 

■ What is the minimum or maximum number 

of inmates who can attend the program? 

■ Will the jail repeat the program for different 

housing areas or groups of inmates? 

■ If the jail is using volunteers to administer 

the program, has the jail oriented the volunteers to the jail and do they understand their 

role in supporting security?

■ Is the process for volunteers entering the jail 

smooth and stress-free? 

■ Will the jail need to escort inmates to and 

from a program area? 

■ Is there a process for documenting inmate 

attendance at the program?

By answering these questions during the 

program planning process, a jail will increase 

the chances for successful implementation of a 

program and for achieving its overall goal for 

the program.
46 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Determining the Complexity 

and Cost of a Program

Determine the complexity of a program by 

evaluating five elements:

1. The materials and equipment a jail needs 

for the program and how difficult they are to 

obtain.

2. The space a jail needs for a program.

3. Whether the program will need a program

leader and the training a program leader will 

need. 

4. The supervision staff that a jail may require 

apart from a program leader.

5. The active, ongoing coordination that a 

program will require to continue.

Determine the cost of a program by evaluating 

the cost of materials and equipment and the 

cost of providing a program leader. The different elements of complexity and cost will present 

different levels of challenge to each jail. Programs provided outside of a jail, for example, 

may also have additional costs for transportation, security, or nonjail staff involved in the 

program. Therefore, a program may be more or 

less complex and costly to deliver, depending 

on the needs of each jail. 
Chapter 4. Inmate Activities and Programs | 47

Adult Basic Education 

Subject: Education

Type: Reform

Goal: Provide adult basic education (ABE) classes in the jail.

Program Description ABE is education for adults—from those with limited 

or no formal schooling to those without a high school 

diploma—that teaches reading, writing, and math skills.

Program Delivery Methods • Group classes.

• One-on-one tutoring sessions.

• Self-study materials.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• ABE textbooks 

and workbooks.

• Assessment 

instruments. 

• Computer-based 

assessment tools.

• Classroom/multipurpose room.

• Separate space in a 

dayroom.

• Trained instructors.

• Community volunteers.

• College interns.

• Local school districts.

• Colleges/universities.

• Literacy organizations.

• State departments of 

education.

How It Works 

The jail asks inmates coming into the jail about the highest grade level they achieved in school. The ABE coordinator/

teacher then conducts a formal assessment for interested inmates who report completing less than the 9th grade. 

Based on the assessment, inmates attend classes in basic reading, writing, and math skills several times each week. 

Because the education levels of inmates may vary widely, instructors must prepare to respond to individual needs. 

One-on-one tutoring sessions and self-study materials are also available. The jail conducts reassessments to measure 

progress.

Tips for Successful Implementation 

• Encourage inmates to participate by making individual contact with eligible inmates.

• Small jails can combine ABE and general educational development (GED) course preparation to make optimal use 

of space and instructors. 

Information to Collect 

• Number of ABE classes held.

• Number of inmates attending classes, tutoring, and receiving self-study materials.

• Number and type of instructors.

• Pre- and postassessment scores of participating inmates.

• Inmate rule violations before and after participating in the ABE program.

• Inmate participation in ABE classes in the community after release.

Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
48 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Alcoholics Anonymous 

Subject: Treatment

Type: Reform

Goal: Conduct Alcoholics Anonymous (AA) meetings in the jail.

Program Description The purpose of an AA program is to provide inmates 

with the opportunity to achieve and maintain sobriety 

by participating in AA meetings while in jail.

Program Delivery Methods • Group classes

• One-on-one tutoring sessions

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• AA books and 

pamphlets.

• Private meeting room. • Community 

volunteers.

• Local AA chapter.

How It Works 

Volunteers from the local Alcoholics Anonymous chapter conduct meetings once each week. Both a male and a 

female volunteer come to the jail. If there are both male and female inmates who want to participate, the jail holds two 

separate meetings. If there are no female inmate participants, the female volunteer joins the men’s meeting; this helps 

keep female volunteers interested in coming to the jail. AA volunteers participate in the jail’s regular volunteer training 

program and conduct the meetings without security staff in the room. Separate times are available for inmates to meet 

one-on-one with a volunteer AA sponsor. In an agreement with local judges and the AA chapter, to encourage meeting 

attendance after release, inmates whom the court orders to attend AA meetings are not given credit for attending 

meetings in the jail.

Tips for Successful Implementation 

• Implement a formal volunteer program to recruit, screen, train, and monitor jail volunteers. 

Information to Collect 

• Number of AA meetings the jail holds.

• Number of meetings the jail cancels and reason for cancellation.

• Number of inmates (male and female) attending group meetings and one-on-one sessions.

• Number of AA volunteers (male and female).

• Feedback from participating inmates on their awareness/understanding of the AA program.

• Inmate rule violations before and after participating in the AA program.

• Inmate participation in AA meetings in the community after release.

Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
Chapter 4. Inmate Activities and Programs | 49

Animal Care Programs 

Subject: Recreation/Leisure

Type: Activity

Goal: Allow inmates to care for domestic animals in the jail.

Program Description Animal care programs bring domestic animals, often 

dogs, into the jail. The purpose of animal care programs 

is to provide inmates with the opportunity to interact 

with animals and learn animal care techniques.

Program Delivery Methods • Individual inmates foster shelter animals.

• The jail keeps an animal as a pet.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Appropriate food for 

each animal.

• Animal care supplies 

(collars, leashes, food 

and water bowls, 

etc.).

• Appropriate shelter 

for each animal.

• Appropriate access to 

outdoor space. 

• Designated staff 

person or volunteer 

to coordinate the 

program.

• Local animal shelters.

How It Works (Foster Care)

The jail has a formal agreement with the local animal shelter to provide animals in need of foster care, along with 

appropriate food and supplies. The jail assigns each animal to a different inmate; the inmate is responsible for the 

animal 24 hours a day, 7 days a week. The inmate takes care of all the needs of the animal, including house training 

and obedience issues. As each animal reaches maturity and is ready for adoption into the community, the jail releases 

it to the animal shelter and replaces it with a new animal. 

How It Works (Pet Care)

After evaluating the animal for health, temperament, and demeanor, the jail places a single animal into a jail housing 

area as a pet. Inmates volunteer for animal-handler duties on a rotating base with the purpose of learning basic pethandling responsibilities, including walking, cleaning of shelter, feeding, watering, grooming, and cleanup. A program 

coordinator is responsible for the animal on a long-term basis and can respond if the jail needs to remove an animal 

from the program for any reason. 

Information to Collect 

• Number of inmates participating in the animal care program.

• Number of animals the jail will foster.

• Feedback from participating inmates on their awareness/understanding of animal care.

• Inmate rule violations before and after participating in the animal care program. Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
50 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Behavior Change Programs 

Subject: Treatment

Type: Reform

Goal: Help inmates develop behavioral skills to function more effectively in society.

Program Description Behavior change programs provide inmates with information and tools to examine and modify negative behaviors. Topics include anger management, decisionmaking, 

changing thinking patterns, and interpersonal skills. 

Program Delivery Methods • Single-session presentations.

• Multiple-session small-group classes.

• Ongoing small-group classes.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Informational handouts and worksheets.

• Prepared curricula 

with workbooks and 

facilitator guides.

• Private classroom or 

multipurpose room.

• Trained jail staff.

• Community agency 

staff.

• Trained volunteers.

• Local mental health, 

substance abuse, 

or other community 

agencies.

• Colleges/universities.

How It Works

Staff from community agencies come into the jail weekly to provide programs that encourage positive behavior 

change. Presenters use prepared content or develop materials locally. They present informational topics in single 

sessions or on an ongoing basis. Inmates may ask to take part in the single-session programs and are approved to join 

at any time. Presenters may feature more indepth topics as specific multiweek courses. For these programs, inmates 

may request the course and are approved only prior to the beginning of the course.

Tips for Successful Implementation 

• Provide a mix of classes—some that allow inmates to join at any time and others that are “closed” to build group 

cohesion and allow lessons to build on each other.

Information to Collect 

• Number and type of programs held.

• Number of inmates attending each type of program.

• Number of community agencies participating in program delivery.

• Feedback from participating inmates on the value of the programs.

• Pre- and postassessment tests of inmate knowledge of the presented information.

• Inmate rule violations before and after participating in the programs.

Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
Chapter 4. Inmate Activities and Programs | 51

Board Games and Card Games 

Subject: Recreation/Leisure

Type: Activity

Goal: Provide board games and card games for inmate use.

Program Description Board games, jigsaw puzzles, and playing cards provide 

inmates with positive ways to pass the time. 

Program Delivery Methods • Unsupervised use in inmate living areas.

• Supervised games and tournaments.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Board games.

• Jigsaw puzzles.

• Playing cards.

• Storage space inside 

or outside inmate 

living areas.

• Dayrooms.

• Multipurpose rooms.

• Jail staff.

• Community 

volunteers.

• Community 

organizations.

• Community members.

How It Works

The jail uses funds from its budget or commissary fund to purchase a variety of board games, jigsaw puzzles, and 

playing cards. Members of the community may also wish to donate items. A set of games is placed in each inmate 

living area for free use. Additional games, including jigsaw puzzles, are available for individual checkout through 

the jail library. A program staff member inventories the games monthly, removing and replacing damaged items. 

Periodically, program staff conduct tournaments, including those for such games as chess, checkers, and trivia. 

In the special-needs housing areas, mental health staff conduct weekly supervised board game play to encourage 

positive interaction with peers and staff. 

Tips for Successful Implementation 

• Conduct a regular inventory of games in the housing areas. Remove and replace worn and damaged items to 

encourage respectful use of the materials.

Information to Collect 

• Number of games purchased and donated.

• Feedback from housing area officers on inmate behavior before and after the introduction of games in the units.

• Inmate rule violations before and after introducing games in the units.

Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
52 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Community Resource 

Information Programs

Subject: Life Skills

Type: Reintegration

Goal: Provide inmates with information about local community resources.

Program Description Community resource information programs provide inmates with basic information about resources available 

in the community, including educational development, 

employment, and human services agencies. 

Program Delivery Methods • Single-session presentations.

• Multiple session small-group classes.

• Community resource handouts compiling information 

from various agencies.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Handouts provided 

by the presenting 

agency.

• Multipurpose room.

• Separate space in 

dayroom.

• Representatives from 

local community 

agencies.

• Community volunteers.

• Jail staff.

• Local community 

service agencies.

How It Works

Representatives from local community agencies come to the jail on a scheduled basis to provide information on 

what services they provide and how inmates can access those services. For some agencies, inmates can begin 

the registration process prior to release. Participating community resource agencies include adult basic education 

centers; community colleges and universities; financial assistance offices; health, mental health, and substance 

abuse treatment facilities; transportation providers; food and shelter assistance providers; women’s services 

agencies; and job search and employment training agencies. 

Tips for Successful Implementation 

• Survey local agencies to determine the types of services they provide, eligibility requirements (specifically for 

ex-inmates), and their willingness to share information in the jail.

Information to Collect 

• Number and type of community resource presentations.

• Number of inmates attending.

• Number of community resource handouts distributed.

• Feedback from inmates on the usefulness of the information presented.

• Number of inmates registering for services prior to release and using services after release. Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
Chapter 4. Inmate Activities and Programs | 53

Computer Labs 

Subject: Education

Type: Activity

Goal: Provide inmates with access to computers for a variety of uses.

Program Description A computer lab supports educational classes, provides 

a venue for computer-skills training, and is available for 

individual use.

Program Delivery Methods • Ongoing small-group computer classes.

• Computer time for inmates participating in other 

educational classes.

• Open computer-use sessions.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Computers. 

• Software.

• Peripheral equipment 

and supplies such as 

printers and paper.

• Room with appropriate wiring, ventilation, 

and furnishings.

• Knowledgeable staff 

or volunteers.

• Local school districts.

• Colleges/universities.

• Local businesses.

How It Works

The jail receives donations of or purchases computers for use in an inmate computer lab. The jail networks the computers and connects them to an “instructor” computer. The jail offers classes on basic computer literacy and common 

office-based software. The computer lab supports educational programs such as adult basic education, general educational development (GED) preparation, and education enrichment. The jail gives inmates open computer-use times 

to write letters, prepare legal paperwork, and complete other projects. 

Tips for Successful Implementation 

• Plan ahead for ongoing maintenance of equipment and software.

• Develop a clear policy on inmate access to the Internet.

Information to Collect 

• Number and type/amount of donations in support of the computer lab.

• Number of inmates using the computer lab.

• Inmate feedback on the value of the computer lab.

• For computer skills training, pre- and postassessment tests of inmate computer skills.

• Inmate rule violations before and after using the computer lab. 

Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
54 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Consumer Education 

Subject: Life Skills

Type: Reform

Goal: Help inmates develop effective living skills.

Program Description Consumer education programs focus on helping inmates 

understand the day-to-day basic living skills needed to 

get along in society. 

Program Delivery Methods • Single-session presentations.

• Multiple-session small-group classes.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Materials, handouts, 

and worksheets for 

each topic.

• Multipurpose room.

• Separate space in 

dayroom.

• Trained jail staff.

• Community agency 

staff.

• Trained volunteers.

• Community agencies.

• Local school districts.

• Colleges/universities.

How It Works

The jail presents consumer education classes weekly. Topics include money management (understanding paychecks, 

budgets, banking services, credit, and loans and interest rates), consumerism (shopping guidelines and skills, buying a 

car, warranties, consumer rights, insurance, and Internet consumerism), and living in the community (obtaining housing, accessing health services, and voter registration). Classes include lectures, discussions, practical demonstrations, and hands-on experience that allows inmates to practice the skills they are learning.

Tips for Successful Implementation 

• Prepare class materials to accommodate various educational levels among participants.

Information to Collect 

• Number and topics of programs presented.

• Number of inmates attending each program.

• Number of community agencies participating in program delivery.

• Feedback from participating inmates on the value of the programs.

• Pre- and postassessment tests of inmate knowledge of the information presented.

• Inmate rule violations before and after participating in the programs.

Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
Chapter 4. Inmate Activities and Programs | 55

Creative Arts Programs 

Subject: Recreation/Leisure

Type: Activity

Goal: Provide inmates with the opportunity to explore the creative arts.

Program Description Creative arts programming includes art, crafts, writing, 

and music activities. The goals of creative arts programming can be both instructional and therapeutic.

Program Delivery Methods • Single-session activities.

• Multiple-session small-group classes.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Instructional workbooks, art slides and 

books, music CDs 

and players, musical 

instruments.

• Consumable art, craft, 

writing, and music 

supplies.

• Multipurpose room.

• Secure storage. 

• Cleanup space and 

materials.

• Community 

volunteers.

• Trained art/music 

therapists.

• Local school district.

• Colleges/universities.

• Local arts 

organizations.

How It Works

Local student, amateur, and professional artists, writers, and musicians come into the jail regularly to provide creative 

arts programming. The strengths and interests of the instructors help determine the specific topics. Art classes 

include drawing, calligraphy, sculpture, art appreciation, and art therapy. Crafts classes include holiday cardmaking and the crafting of ornaments, picture frames, magnets, and other small items appropriate for gift giving. Writing 

instruction includes classes in poetry, short stories, and essay writing. Music classes include instrument instruction, 

singing, songwriting, music appreciation, and music therapy. The jail holds inmate presentations, including art shows 

and musical performances, several times each year.

Tips for Successful Implementation 

• Conduct regular inventories of equipment and supplies.

• Develop a policy and procedure for handling completed art/crafts projects.

• Implement a formal volunteer program to recruit, screen, train, and monitor volunteers.

Information to Collect 

• Number and type of programs held.

• Number of inmates attending each type of program.

• Feedback from participating inmates on the value of the programs.

• Feedback from housing area officers on inmate behavior after participation in the programs.

• Inmate rule violations before and after participating in the programs.

Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
56 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Criminal Justice System 

Subject: Life Skills

Type: Reform

Goal: Help inmates learn to interact positively with criminal justice agencies.

Program Description Criminal justice system programs provide basic information on the various agencies in the criminal justice 

process, including pretrial, public defenders, the district 

attorney’s office, probation, and parole.

Program Delivery Methods • Single-session presentations.

• Multiple-session small-group classes.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Informational 

literature provided 

by criminal justice 

agencies.

• Multipurpose room. • Criminal justice 

agency staff.

• Knowledgeable 

jail staff.

• Local criminal justice 

agencies.

• State departments of 

corrections and community corrections.

How It Works

Staff from agencies in the criminal justice system come to the jail regularly to provide basic information about the 

agency and help inmates understand how to interact effectively with the agency. Using materials that the agencies 

provide, knowledgeable jail staff present programs to educate inmates on what to expect when entering into the state 

department of corrections or community corrections system.

Tips for Successful Implementation 

• Provide active supervision of programs to ensure positive inmate behavior toward presenters.

Information to Collect 

• Number and type of presentations.

• Number of inmates attending each type of presentation.

• Feedback from participating inmates on the value of the presentations.

• Feedback from presenters on the value of the interaction.

• Inmate rule violations before and after participating in the program.

Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
Chapter 4. Inmate Activities and Programs | 57

Educational Enrichment 

Subject: Education

Type: Reform

Goal: Provide inmates with advanced and alternative educational opportunities.

Program Description Educational enrichment programs provide classes for inmates who have a high school diploma, general educational development (GED), or postsecondary education. 

Educational enrichment programs also provide classes 

on topics not normally covered in adult basic education 

and GED programs.

Program Delivery Methods • Group classes.

• Single-session presentations.

• Self-study materials.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Postsecondary selfstudy materials.

• Workbooks and handouts for topic being 

presented.

• Instructional videos.

• Multipurpose room.

• Dayrooms.

• Jail staff.

• Community 

volunteers.

• Local library.

• Colleges/universities.

• Community agencies.

How It Works

The jail provides inmates interested in postsecondary education with materials for self-study. Volunteers and staff 

instructors provide ongoing educational enrichment classes open to all interested inmates. Examples of topics include 

current events, goal setting, and publishing an inmate newsletter. The jail regularly shows instructional videos borrowed from the local library. Educational speakers from the community provide single-session presentations in the jail.

Tips for Successful Implementation 

• Tap into the skills of interested staff and community members to identify educational enrichment opportunities.

• Contact individuals and groups making educational presentations in the community and invite them to conduct a 

session in the jail.

Information to Collect 

• Number of inmates using college-preparation and postsecondary self-study materials.

• Number and type of educational enrichment programs conducted.

• Number of inmates attending educational enrichment programs.

• Feedback from participating inmates on the value of each program.

• Feedback from volunteer presenters on the quality of the interaction/experience.

• Feedback from housing area officers on inmate behavior after program participation.

• Inmate rule violations before and after participating in educational enrichment programs. Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
58 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Employment Skills 

Subject: Life Skills

Type: Reintegration

Goal: Help inmates improve employment skills.

Program Description Employment skills programs provide inmates with 

information on the skills needed to get and keep a job.

Program Delivery Methods • Ongoing group classes.

• Single-session presentations.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Workbooks and handouts for each topic.

• Video camera and 

playback equipment.

• Multipurpose room.

• Dayrooms.

• Jail staff.

• Community agency 

staff.

• Community 

volunteers.

• Job placement 

agencies.

• Vocational-technical 

schools.

• Trade unions.

• Military branches.

How It Works

Using a combination of jail staff and presenters from local community agencies, the jail presents an 8-week employment skills program several times each year. Topics include identifying and managing barriers to employment, 

assessment of skills and interests, effective employment search methods, job applications, resumes, cover letters 

and thank-you letters, answering conviction questions, appropriate interview etiquette and language, good grooming, 

mock interview sessions, employment retention principles, and job advancement. Those inmates that participate in all 

sessions offered over the 8-week period are eligible to attend a community-based job-seeking program upon release. 

Representatives from vocational-technical schools, county job placement agencies, trade unions, and the military 

come into the jail quarterly to provide information on employment opportunities. 

Tips for Successful Implementation 

• Work with community agencies to help inmates make employment connections they can use upon release.

Information to Collect 

• Number of employment skills classes held.

• Number of inmates attending each class and number of inmates completing the employment skills series.

• Number of community agencies participating in program delivery.

• Feedback from participating inmates on the value of the programs.

• Pre- and postassessment tests of inmate knowledge of the information presented.

• Inmate rule violations before and after participating in the programs.

• Inmate participation in community-based job-seeking programs upon release. Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
Chapter 4. Inmate Activities and Programs | 59

English as a Second Language 

Subject: Education

Type: Reform

Goal: Provide English as a Second Language (ESL) classes in the jail.

Program Description English as a Second Language programs teach English, 

including communication and writing skills, to inmates 

whose native or primary language is not English. ESL 

classes teach nonnative English speakers new vocabulary for everyday situations, including family, work, and 

social environments.

Program Delivery Methods • Group classes.

• One-on-one tutoring sessions.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• ESL instructional 

materials.

• Multipurpose room. • Volunteer ESL 

instructors.

• Local community 

agencies.

• Local school districts.

• Colleges/universities.

How It Works

At intake, inmates are asked if their native language is English. Education staff contact nonnative English speakers to 

see if participating in ESL classes is of interest to them. A volunteer ESL instructor from the local community college 

provides classes in the jail 3 days each week. This allows for consistent participation and improvement by interested 

inmates. Weekly individual tutoring sessions supplement classroom training. 

Tips for Successful Implementation 

• Encourage inmates to participate by making individual contact with eligible inmates.

• Use ESL materials designed specifically for adults learning English.

Information to Collect 

• Number of ESL classes held.

• Number of inmates attending classes and participating in one-on-one tutoring.

• Pre- and postassessment of participating inmates.

• Inmate rule violations before and after participating in the program.

• Inmate participation in ESL classes in the community after release.

Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
60 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Exercise Classes 

Subject: Recreation/Leisure

Type: Activity

Goal: Provide inmates with opportunities to maintain and improve physical fitness.

Program Description Instructor-led exercise classes take a variety of forms, 

including aerobics, circuit training, strength training, 

and creative movement/yoga.

Program Delivery Methods • Group classes.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Music (CD/MP3).

• Exercise mats.

• Exercise DVDs.

• TV/DVD player.

• Exercise posters.

• Supportive footwear.

• Open, ventilated 

space.

• Jail staff.

• Volunteers.

• Colleges/universities.

• Local gyms/health 

clubs.

• Public library.

How It Works

Volunteer instructors provide a variety of weekly exercise classes. Aerobics class lasts approximately 1 hour and 

consists of warmup, floor work, continuous movement (aerobics), and cooldown. Circuit training is a multistation 

workout hour. Inmates move from station to station, completing exercises at each, including jumping rope, situps, and 

pushups. Strength training includes exercises concentrating on major muscle groups including abdominals, hips, legs, 

arms, chest, and back. Creative movement/yoga classes facilitate relaxation and stress management. On days when 

an instructor is not present, the jail may use exercise videos from the local library to guide classes. 

Tips for Successful Implementation 

• Work with the medical staff to clear inmates for participation in exercise classes.

• Implement a formal volunteer program to recruit, screen, train, and monitor jail volunteers.

Information to Collect 

• Number and type of exercise classes held.

• Number of inmates attending exercise classes.

• Pre- and postprogram physical fitness assessment of participating inmates.

• Inmate rule violations before and after participating in exercise classes.

Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
Chapter 4. Inmate Activities and Programs | 61

Faith-Based Living Skills 

Subject: Spirituality

Type: Reform

Goal: Help inmates develop skills to function more effectively in society.

Program Description Religious organizations provide a variety of programs 

that focus on the role of spirituality and religion in 

making life changes and transitioning from jail to the 

community.

Program Delivery Methods • Group classes.

• Designated housing unit.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Handouts supplied by 

the presenting group.

• Multipurpose room.

• Dayroom.

• Designated housing 

unit.

• Volunteers. • Local churches 

and religious 

organizations.

How It Works

The jail offers weekly faith-based living skills programs. These programs take a faith-based approach to a variety of 

topics, including anger management, healthy living, stress management, life skills, job readiness, parenting, healthy 

relationships, and overcoming addictions. In addition to weekly programs available to all inmates, one faith-based 

inmate housing area is set aside for interested inmates to provide peer support and avoid negative influence from 

nonparticipating inmates. 

Tips for Successful Implementation 

• Clearly advertise these programs as faith-based to avoid misunderstandings.

• Maintain the integrity of a faith-based housing area by placing only interested inmates in the unit.

• Implement a formal volunteer program to recruit, screen, train, and monitor jail volunteers.

Information to Collect 

• Number of faith-based living skills programs held.

• Number of inmates attending faith-based living skills programs.

• Number of inmates housed in the faith-based housing area.

• Feedback from participating inmates on the value of faith-based living skills programs.

• Inmate rule violations before and after participating in faith-based living skills programs.

• Inmate rule violations in the faith-based housing area compared with other housing areas. Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
62 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

General Educational Development (GED) 

Subject: Education

Type: Reform

Goal: Offer general educational development (GED) preparation and testing in the jail.

Program Description The GED exam provides adults with an equivalent 

of a high school diploma. GED programs offer test 

preparation and testing.

Program Delivery Methods • Individual self-study materials.

• Individual tutoring sessions.

• GED classes.

• GED testing.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• GED study materials.

• GED pretest 

materials.

• Online GED materials.

• Classroom.

• Multipurpose room.

• Individual study 

space.

• GED instructors.

• Volunteer tutors.

• GED test 

administrator.

• Local school district.

• Community colleges.

• Adult education 

agencies.

• State department of 

education.

How It Works

The jail asks inmates at intake about their highest level of schooling completed. The GED instructor contacts those 

inmates who report that they do not have a high school diploma. The jail offers GED preparation classes several times 

each week that cover the topics included on the GED test, including math, reading, writing, social studies, and science. Volunteers provide individual tutoring sessions. Inmates must pass a GED pretest before being eligible to take 

the official GED test. The jail offers the GED test monthly, with an official test administrator provided by a local agency. 

Tips for Successful Implementation 

• Encourage inmates to participate by making individual contact with eligible inmates.

• Combine adult basic education and GED classes to make best use of space and instructors.

• Determine if the jail or the individual inmate will cover the cost of taking the GED test.

• Have a community contact for inmates to continue GED classes after they are released.

Information to Collect 

• Number of GED classes held.

• Number of inmates attending classes, tutoring, and receiving self-study materials.

• Preassessment, GED pretest, and GED test scores of participating inmates.

• Number of inmates receiving the GED.

• Inmate rule violations before and after participating in the GED program.

• Inmate participation in GED classes and testing in the community after release. Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
Chapter 4. Inmate Activities and Programs | 63

Health Education 

Subject: Life Skills

Type: Reform

Goal: Provide inmates with information that promotes a healthy lifestyle.

Program Description Health education programs covering a variety of 

topics are provided by community agencies and 

jail medical staff.

Program Delivery Methods • Single-session presentations.

• Ongoing small-group classes.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Handouts or worksheets for each topic.

• Multipurpose room. • Jail medical staff.

• Community agency 

staff and volunteers.

• County health 

department.

• Local health and 

wellness agencies.

• Jail medical 

contractor.

How It Works

Local health agencies come into the jail regularly to provide informational sessions. Examples include Planned Parenthood, which provides education sessions on human sexuality, reproduction, birth control, STDs/HIV, and referral to 

other appropriate community resources and service providers; the local/regional AIDS Project, which provides an 

educational program on prevention, protection, and early detection of sexually transmitted diseases; American Red 

Cross, which conducts a program on health-related topics; and Cooperative Extension agencies, which provide information on healthy nutrition, caloric content of common foods, and the benefits of eating wisely. In addition, jail medical 

staff present informational sessions on topics such as blood pressure, cancer awareness, stress management, and 

dental hygiene. 

Tips for Successful Implementation 

• Provide a formal setting for these programs to allow instructors and inmates to discuss difficult topics maturely.

Information to Collect 

• Number and type of programs held.

• Number of inmates attending each type of program.

• Number of community agencies participating in program delivery.

• Feedback from participating inmates on the value of the programs.

• Inmate rule violations before and after participating in the programs.

Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
64 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Inmate Work: Community-Based 

Subject: Work

Type: Reintegration

Goal: Build inmate work skills and accomplish needed work in the community.

Program Description Offsite inmate work programs use supervised inmate 

work crews to perform work in the community.

Program Delivery Methods • Work crews supervised by jail staff.

• Work crews supervised by agency staff.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Tools and equipment 

for the assigned 

tasks.

• Vehicles to transport 

inmates to offsite 

work locations.

• Storage space for 

jail-owned tools, 

equipment, and 

vehicles.

• Jail staff.

• Agency staff.

• Job-specific trainers 

and/or supervisors.

• Local governmental 

agencies.

• Local nonprofit 

organizations.

How It Works

During sentencing, the court authorizes inmates to participate in community work programs. The classification unit 

screens the authorized inmates. The jail then has the final decision to accept or reject inmates for participation 

in the program. The inmates perform work for local government units and nonprofit agencies. Examples of tasks 

include groundskeeping, janitorial services, vehicle washing, and painting. Jail staff responsible for training inmates 

to perform the assigned tasks supervise some of the work crews. Staff from the agency for which the work is being 

performed train and supervise other work crews.

Tips for Successful Implementation 

• Develop formal policies and procedures for screening and selecting inmates for participation, training, supervising 

inmate work crews, and awarding good time.

• Provide equal work opportunities for male and female inmates.

Information to Collect 

• Number of inmates participating in community work programs. 

• Number of agencies using inmate work crews.

• Number of hours of work that inmates perform in the community.

• Dollars saved by having inmate crews perform the work.

• Inmate rule violations before and after participating in inmate work in the community.

• Inmate rule violations by participating inmates compared with nonparticipating inmates. Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
Chapter 4. Inmate Activities and Programs | 65

Inmate Work: Jail-Based 

Subject: Work

Type: Reintegration

Goal: Build inmate work skills and accomplish needed work in the jail.

Program Description Inmates perform a variety of work in the jail, contributing 

to sanitation, food service, maintenance, and other jail 

operations. 

Program Delivery Methods • Housekeeping.

• Inmate worker programs.

• Onsite inmate work crews.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Tools, equipment, and 

supplies to perform 

assigned duties.

• Storage space for 

tools, equipment, and 

supplies.

• Jail staff.

• Job-specific trainers 

and/or supervisors.

• Contractors.

How It Works

All inmates must clean their cell areas daily. Each housing unit has designated “pod workers” who are responsible 

for housekeeping tasks such as vacuuming, dusting, cleaning bathroom areas, and trash collection. Pod workers earn 

additional privileges such as later lockdown times, but they do not earn good time. Interested inmates may apply to 

participate in the inmate worker and onsite work crew programs. Inmates in these programs live in a separate unit and 

earn good time. The classification unit screens approvals and considers medical, security, and behavioral criteria. The 

inmate work program assigns inmates to perform kitchen, laundry, facility cleaning, and facility maintenance work. 

Inmate workers in the kitchen have the opportunity to participate in a formal training program leading to a food safety 

certificate. Onsite inmate work crews perform duties such as washing patrol cars, groundskeeping, gardening, and 

snow removal.

Tips for Successful Implementation 

• Develop formal procedures for screening and selecting inmate workers and work crews.

• Develop formal procedures for training and supervising inmate workers.

• Develop formal procedures for awarding good time.

• Provide equal work opportunities for male and female inmates.

Information to Collect 

• Sanitation inspection results for inmate cells and housing areas.

• Number of inmates participating as pod workers, inmate workers, and members of onsite work crews.

• Number of hours of work that inmates in the jail perform.

• Inmate rule violations by participating inmates compared with nonparticipating inmates.

• Number of inmates receiving work-training certificates.

Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
66 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Library Services 

Subject: Recreation/Leisure

Type: Activity

Goal: Provide inmates with access to reading materials.

Program Description Library services provide inmates with access to informational, educational, and recreational reading materials.

Program Delivery Methods • In-house library.

• Library materials provided in housing units.

• Circulating library cart.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Books, magazines, 

newspapers, and law 

library materials for 

inmate use.

• Library supplies.

• Library room with 

space for materials, 

browsing, and 

seating.

• Jail staff.

• Local public library 

staff.

• Volunteers.

• Public library.

• Newspaper/magazine 

distributors. 

• Bookstores.

• Community service 

agencies.

How It Works

The library is open to inmates in general population living areas once each week. The library collection includes local 

newspapers, popular magazines, a variety of fiction and nonfiction books, and law library materials. Individual inmates 

may have up to six books at a time checked out from the library; inmates must use all other materials in the library. Inmates whose classification does not permit them to visit the library directly have access to a small collection of books 

in their housing unit and may request additional books and law library materials from the library. Jails can purchase 

materials through money from the inmate welfare fund and the jail budget as well as through donations solicited from 

community members and local agencies and businesses. 

Tips for Successful Implementation 

• Select materials to meet inmates’ informational, educational, and recreational needs.

• Conduct a regular inventory of materials in the library and in the housing areas.

• Remove and replace worn and damaged items to encourage respectful use of the materials.

Information to Collect 

• Number of inmates attending the library and number of books checked out from the library.

• Number of library materials purchased and received as donations.

• Cost of purchased items.

• Feedback from inmates on the value of the library.

• Feedback from housing area officers on inmate behavior after library attendance.

• Inmate rule violations before and after library attendance.

Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
Chapter 4. Inmate Activities and Programs | 67

Mental Health Programs 

Subject: Treatment

Type: Reform

Goal: Respond to inmates’ mental health needs and provide tools to increase wellness.

Program Description Mental health programs on a variety of topics expand 

mental health services beyond individual counseling 

and case management.

Program Delivery Methods • Single-session presentations.

• Multiple-session small-group classes.

• Ongoing small-group classes.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Informational handouts and worksheets 

for each topic.

• Private classroom or 

multipurpose room.

• Mental health professionals (jail staff, 

community agency 

staff, volunteers).

• Local mental health 

agencies.

• Medical/mental 

health contractors.

• Colleges/universities.

How It Works

Mental health professionals provide programs on a weekly basis. Topics include journaling, domestic abuse, grief and 

loss, and dealing with trauma. Professionals present informational topics in single sessions or on an ongoing basis. 

Inmates may ask to attend these programs and are approved to join at any time. More indepth topics are presented 

as specific multiweek courses. Inmates must ask to attend these programs and have mental health staff approve their 

participation prior to the beginning of the course.

Tips for Successful Implementation 

• Provide a mix of classes—some that allow inmates to join at any time and others that require registration. Courses 

requiring registration help build group cohesion and allow lessons to build on each other.

Information to Collect 

• Number and type of mental health programs the jail holds.

• Number of inmates attending each type of program.

• Number and type of program presenters (agency staff, contractors, college interns).

• Feedback from participating inmates on the value of the programs.

• Feedback from presenters on the quality of the program.

• Inmate rule violations before and after participating in the programs.

• Number of inmates participating in community mental health services after release. Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
68 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Narcotics Anonymous 

Subject: Treatment

Type: Reform

Goal: Provide Narcotics Anonymous (NA) meetings in the jail.

Program Description The purpose of an NA program is to help inmates 

overcome drug addiction by participating in NA 

meetings in the jail and learning to live drug-free, 

productive lives.

Program Delivery Methods • Group meetings.

• One-on-one meetings.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• NA books and 

pamphlets.

• Multipurpose room.

• Private meeting room.

• Community 

volunteers.

• Local NA chapter.

How It Works

Volunteers from the local NA chapter conduct meetings once each week. Both a male and a female volunteer come 

to the jail. If both male and female inmates want to participate, the jail holds two separate meetings. If there are no 

female inmate participants, the female volunteer joins the men’s meeting; this helps keep female volunteers interested 

in coming to the jail. NA volunteers participate in the jail’s regular volunteer training program and conduct the meetings without security staff in the room. Separate times are available for inmates to meet one-on-one with a volunteer 

NA sponsor. In an agreement with local judges and the NA chapter, to encourage meeting attendance after release, 

inmates whom the court orders to attend NA meetings are not given credit for attending meetings in the jail.

Tips for Successful Implementation 

• Implement a formal volunteer program to recruit, screen, train, and monitor jail volunteers.

• If your community does not have a local NA chapter, contact NA chapters in neighboring larger metropolitan 

areas to locate potential volunteers. 

Information to Collect 

• Number of NA meetings the jail holds.

• Number of meetings the jail cancels and reason for cancellation.

• Number of inmates (male and female) attending group meetings and one-on-one sessions.

• Number of NA volunteers (male and female).

• Feedback from participating inmates on their awareness/understanding of the NA program.

• Inmate rule violations before and after participating in the NA program.

• Inmate participation in NA meetings in the community after release.

Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
Chapter 4. Inmate Activities and Programs | 69

Parenting and Family Classes 

Subject: Life Skills

Type: Reintegration

Goal: Help inmates improve and maintain positive family connections.

Program Description Parenting and family classes focus on helping inmates 

improve parenting skills and personal and family relationships. Programs may be informational or may assist 

inmates in maintaining family connections while in jail.

Program Delivery Methods • Multiple-session small-group classes.

• Individual family counseling sessions.

• Individual book reading recording sessions.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Handouts/worksheets 

for each topic.

• Children’s books.

• Audio recording 

equipment/supplies.

• Mailing supplies.

• Multipurpose room.

• Separate space in 

dayrooms.

• Jail staff.

• Agency staff.

• Community 

volunteers.

• Local family support 

agencies.

• Local library.

• Local bookstores.

How It Works

Jail staff, agency staff, and community volunteers work together to provide a variety of parenting and family support 

programs in the jail. Jail and agency staff provide instructional classes covering topics including balancing family 

and work, child support and coparenting, healthy relationships, fathering, and becoming a couple or parent. A local 

family support agency assists approved inmates in maintaining connections with their families while incarcerated and 

in transitioning back into the family upon release. Community volunteers run a book reading program that allows approved inmates to record themselves reading a children’s book on tape. The inmate welfare fund then covers the cost 

of mailing the book and tape to the inmate’s child.

Tips for Successful Implementation 

• For programs that assist inmates in maintaining contact with their families/children, have a formal process to 

approve inmates for participation that involves the courts if necessary.

Information to Collect 

• Number of programs held and the number of inmates attending each program.

• Number of inmates participating in the book reading program and number of books mailed.

• Feedback from participating inmates on the value of the programs.

• Inmate rule violations before and after participating in the programs.

• Number of inmates participating in family support agency services after release. Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
70 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Recreational Sports 

Subject: Recreation/Leisure

Type: Activity

Goal: Improve inmates’ health and behavior through physical activity.

Program Description Equipment is made available for a variety of unsupervised recreational activities, encouraging inmates to 

make productive use of recreational areas.

Program Delivery Methods • Outdoor recreation.

• Indoor recreation.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Sports equipment.

• Supportive footwear.

• Outdoor areas.

• Indoor areas.

• Equipment storage.

• Jail staff. • Local health 

clubs and sports 

businesses.

How It Works

The jail makes a variety of sports equipment available for inmates to use. A designated staff member is responsible for 

equipment control and inventory. Outdoor recreation areas located adjacent to the housing areas have basketballs, 

soccer balls, footballs, handballs, racquetballs and racquets, and playground balls. Outdoor areas have lines painted 

to set up courts for various games, including half-court basketball and two-walled handball and racquetball. Table tennis is set up in the outdoor recreation areas during warm months and moved into the housing units during cold months. 

Housing units for approved classifications feature universal weight machines. Inmates receive a medical clearance 

and complete an orientation to the equipment before being allowed to use the weight machines.

Tips for Successful Implementation 

• Conduct regular inventories of sports equipment and replace damaged equipment to encourage respectful use of 

the equipment.

Information to Collect 

• Sports equipment purchased and donated.

• Number of inmates using the sports equipment.

• Feedback from inmates on the value of the sports equipment.

• Feedback from housing area officers on the value of sports equipment as a behavior management tool. Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
Chapter 4. Inmate Activities and Programs | 71

Religious Involvement 

Subject: Spirituality

Type: Reform

Goal: Provide inmates with access to religious services/programs during incarceration.

Program Description Religious programs provide inmates with access to 

religious services, one-on-one counseling, and religious 

studies.

Program Delivery Methods • Large group services.

• Small-group programs/religious studies.

• One-on-one counseling sessions.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Religious texts and 

handouts.

• Multipurpose room.

• Dayroom.

• Private meeting 

space.

• Jail chaplain.

• Community 

volunteers.

• Local churches 

and religious 

organizations.

How It Works

Local community churches and religious organizations provide a variety of religious programs. To allow inmates of 

all faiths to participate, both denominational and nondenominational church services are provided weekly. Weekly 

religious studies provide an opportunity for small-group religious discussion in a less formal atmosphere than a religious service. The in-house chaplain and community volunteers provide one-on-one religious counseling to interested 

inmates. If an inmate requests religious services or counseling in a faith not represented by existing volunteers, the 

chaplain contacts a member of the faith in the community to ask him/her to come into the jail. Community groups also 

provide special religious presentations, including music, drama, comedy, and holiday programs.

Tips for Successful Implementation 

• Implement a formal volunteer program to recruit, screen, train, and monitor jail volunteers.

• Maintain diversity by implementing a process to approve new religious programs.

Information to Collect 

• Number and type of religious programs held.

• Number of inmates participating in religious programs and one-on-one religious counseling.

• Number of religious volunteers.

• Number of requests for religious services or counseling in a faith not represented by existing volunteers.

• Feedback from inmates on the value of religious programs.

• Inmate rule violations before and after participating in religious programs.

• Number of inmates participating in religious activities after release from jail.Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
72 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Special Presentations and Videos 

Subject: Recreation/Leisure

Type: Activity

Goal: Provide activities in the jail that mirror cultural activities in the community.

Program Description Special presentations and videos introduce inmates to 

new ideas and activities, provide a change of pace to jail 

routine, and involve the community in the jail. 

Program Delivery Methods • Large-group single-session presentations.

• Small-group single-session presentations.

• Video presentations.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Presentation equipment provided by 

presenting group.

• Videos/DVDs.

• Video/DVD viewing 

equipment.

• Large multipurpose 

room or gymnasium.

• Secure storage 

space.

• Jail staff.

• Community 

presenters.

• Local community 

groups.

• Local library.

• Local businesses.

How It Works

The jail holds special monthly presentations. The classification unit determines which inmates/housing units are 

eligible to attend the presentations. The program coordinator surveys local newspapers and publications to identify 

community-based programs that may be appropriate for presentation in the jail. Community members and groups are 

often willing to come into the jail on a one-time or occasional basis, as this represents a much less significant commitment than volunteering regularly. Topics include travel and adventure, health and fitness, theater, comedy, music, and 

holiday activities such as Christmas caroling. After the presentation, the program coordinator sends thank-you letters 

to special presenters. Educational videos present special topics when community presenters are not available.

Tips for Successful Implementation 

• Provide special presenters with a formal jail briefing prior to their presentation.

• Schedule jail staff to supervise inmates during special presentations.

Information to Collect 

• Number and type of special presentations.

• Number of inmates attending special presentations.

• Feedback from inmates on the value of special presentations.

• Feedback from community presenters on the quality of the experience.

• Inmate rule violations before and after attending a special presentation.

Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
Chapter 4. Inmate Activities and Programs | 73

Substance Abuse Education 

Subject: Life Skills

Type: Reform

Goal: Increase inmates’ awareness of substance abuse and treatment options.

Program Description Substance abuse education programs provide inmates 

with basic information on substance abuse and treatment options. 

Program Delivery Methods • Single-session presentations.

• Ongoing small-group sessions.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Informational 

handouts.

• Multipurpose room.

• Dayrooms.

• Jail staff.

• Agency staff.

• Volunteers.

• Community substance 

abuse agencies.

How It Works

Local substance abuse agencies come to the jail weekly to provide inmates with basic information about the basic 

principles of recovery and the physiological, psychological, and emotional effects of addiction. They also provide 

information on treatment options available in the community. Sessions are open to all interested inmates. Substance 

abuse education programs provide information only. The jail refers inmates interested in pursuing treatment to other 

programs in the jail and to community treatment options.

Tips for Successful Implementation 

• Prepare a handout of substance abuse services available in the community, including those that provide help for 

families of substance abusers.

Information to Collect 

• Number of substance abuse education programs the jail holds.

• Number of inmates attending substance abuse education programs.

• Number of community agencies participating in program delivery.

• Feedback from participating inmates on the value of the programs.

• Pre- and postassessment tests of inmate knowledge of the information the programs present.

• Inmate rule violations before and after participating in the programs. 

• Number of inmates participating in jail substance abuse treatment programs after attending substance abuse 

education programs.

• Number of inmates participating in community substance abuse programs after release. Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
74 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Substance Abuse Treatment 

Subject: Treatment

Type: Reform

Goal: Provide inmates with intensive substance abuse treatment.

Program Description Substance abuse treatment programs are intensive 

multiweek programs run by professional substance 

abuse counselors. 

Program Delivery Methods • Multisession small groups.

• Individual counseling and transition planning.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Educational handouts 

and workbooks.

• Multipurpose room.

• Designated housing 

unit.

• Professional 

substance abuse 

counselors.

• Substance abuse 

agency staff.

• Local substance 

abuse agencies.

How It Works

Substance abuse treatment staff screen and place inmates in the substance abuse treatment program based on their 

identified substance abuse problems, anticipated length of stay, and commitment to treatment. Participation requires 

a minimum anticipated length of stay of 90 days. To remain in the program, inmates must participate in specified group 

and individual treatment and education sessions. Topics include drug education, relapse prevention, cognitive restructuring, anger and stress management, domestic violence and assault awareness, support system/ongoing continuing care, emotional well-being, and HIV/AIDS/health awareness. The substance abuse treatment program includes 

transitional services, arranging followup appointments, treatment, and monitoring after release.

Tips for Successful Implementation 

• Team with community substance abuse treatment agencies to provide continuity of care.

• Include services for inmates’ families by referring them to community agencies that can provide support 

and education.

• Maintain the integrity of a designated substance abuse treatment housing area by placing only participating 

inmates in the unit.

Information to Collect 

• Number of inmates participating in and completing the program.

• Feedback from participating inmates on the value of the substance abuse program.

• Rule violations in a designated substance abuse treatment unit compared with other housing units.

• Number of inmates participating in community substance abuse treatment after release. Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
Chapter 4. Inmate Activities and Programs | 75

Team Sports 

Subject: Recreation/Leisure

Type: Activity

Goal: Provide inmates with an opportunity to reduce stress and improve physical fitness.

Program Description The jail adapts a variety of team sports for structured, 

supervised play. 

Program Delivery Methods • Supervised team sports.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Sports equipment.

• Supportive footwear.

• Indoor recreation 

area.

• Jail staff.

• Volunteers.

• Colleges/universities.

• Local health clubs/

sports businesses.

How It Works

The jail schedules each housing area for indoor recreation several times each week. It adapts team sports, including 

those below, for supervised play in the jail’s indoor recreation area:

• Basketball—In a downsized gymnasium, the number of players on a side is reduced to four-on-four or three-onthree. Inmates form multiple teams and adapt their play to the court size. 

• Volleyball—Teams have up to six players on a side. Multiple teams rotate play.

• Takraw (Kick Volleyball)—This volleyball-style game uses a smaller, lighter ball. Players use only their feet, knees, 

chest, and head to hit the ball.

• No Equipment Baseball—Teams play using a foam baseball and an arm/hand as a bat.

• Kickball—This baseball-style game uses an inflated rubber ball.

• Other games such as badminton, soccer, tag football, etc.

Supervising staff enforce rules, maintain control, and distribute playing time equally.

Tips for Successful Implementation 

• Encourage inmates to try different activities by mixing new games with traditional favorites such as basketball 

and volleyball.

Information to Collect 

• Number of hours of team sports offered to each housing unit weekly.

• Number of inmates participating in team sports.

• Feedback from inmates on the value of team sports.

• Feedback from housing area officers on the effect of team sports on inmate behavior.

• Rule violations before and after participating in team sports.

Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
76 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Transition Programs 

Subject: Life Skills

Type: Reintegration

Goal: Assist inmates with reintegration into the community upon release.

Program Description Transition programs assess the risks and needs of inmates nearing release, and then they connect inmates to 

needed community resources before and after release.

Program Delivery Methods • Small-group classes.

• One-on-one transition planning.

Possible Resources Required 

Equipment/Materials Space Staffing Funding/Partnerships

• Forms and handouts. • Multipurpose room. • Jail staff.

• Agency staff.

• Volunteers.

• Community agencies.

How It Works

The transition program coordinator identifies and interviews inmates who are within 30 days of release. Inmates 

needing transition assistance then work with volunteers from local community agencies. The jail and local agencies 

provide many services, including:

• Assistance in obtaining legal identification, including birth certificates, Social Security cards, state ID cards, 

and driver’s licenses. 

• Assistance in obtaining medical and dental insurance and cards.

• Assistance in obtaining financial help through Supplemental Security Income, Social Security Disability 

Insurance, or the Supplemental Nutrition Assistance Program.

• Credit counseling.

• Scheduling mental health and medical appointments.

• Referrals to substance abuse treatment.

• Job-seeking and employment assistance.

• Assistance in securing housing, transportation, and clothing.

• Referrals to legal resources.

Tips for Successful Implementation 

• Create and maintain connections to a variety of community resource agencies.

Information to Collect 

• Number of inmates receiving transition assistance.

• Number of community agencies providing transition assistance in the jail.

• Feedback from inmates on the value of transition assistance.

• Number of inmates continuing contact with assistance agencies after release from jail. Complexity

Harder

Moderate

Easy

Low Moderate High

Cost
Baker, A., and B. Bruner, B. n.d. Evaluative Thinking, Bulletin 6—Using Evaluation Reports. Cambridge, MA: Bruner Foundation, http://brunerfoundation.org/

ei/docs/EvaluativeThinking.bulletin.6.pdf, accessed December 6, 2009.

Bloom, Barbara, and Stephanie Covington. 1998. Gender-Specific Programming 

for Female Offenders: What Is It and Why Is It Important? Washington, DC: U.S. 

Department of Justice, National Institute of Corrections, www.nicic.gov/

Library/015127, accessed December 6, 2009.

Bohn, Lance. 2005. “Pacification of Inmates.” American Jails (July/August): 45.

Bond, Sally L., Sally E. Boyd, and Kathleen A. Rapp. 1997. Taking Stock: 

A Practical Guide to Evaluating Your Own Programs. Chapel Hill, NC: Horizon 

Research, Inc., www.horizon-research.com/reports/1997/stock.pdf, accessed 

December 6, 2009.

Crocker, Karla W. 2003. “In Nashville, Jail Programs Turn Around Lives.” 

Sheriff (May–June): 38–39, 62–63.

French, Sheila A., and Paul Gendreau. 2006. “Reducing Prison Misconducts: 

What Works!” Criminal Justice and Behavior (2006):185–218.

Gendreau, Paul, and David Keys. 2001. “Making Prisons Safer and More 

Humane Environments.” Canadian Journal of Criminology (2001): 123–30.

Harlow, Caroline W. 2003. Education and Correctional Populations. Bureau of 

Justice Statistics Special Report. Washington, DC: U.S. Department of Justice, 

Office of Justice Programs, Bureau of Justice Statistics.

Hatary, H., T. van Houten, M.C. Plantz, and M.T. Greenway. 1996. Measuring Program Outcomes: A Practical Approach. Alexandria, VA: United Way of 

America.

Keller, Kristin, Ward Luthi, Sharon Menard, and Tadeusz Menert. 1992. 

“Programming in Detention Facilities.” Unpublished manuscript.

Bibliography

Bibliography | 77
78 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Ladd, L., and J. Jernigan. n.d. Evaluation Guide: Writing SMART Objectives. 

Department of Health and Human Services, Centers for Disease Control 

and Prevention, www.cdc.gov/dhdsp/state_program/evaluation_guides/pdfs/

smart_objectives.pdf, accessed December 6, 2009.

Lawrence, Sarah, Daniel P. Mears, Glenn Dubin, and Jeremy Travis. 2002. The 

Practice and Promise of Prison Programming. Research Report. Washington, DC: 

Urban Institute Justice Policy Center.

Liebert, Dennis R., and Miller, Rod. 2003. Staffing Analysis Workbook for Jails, 

Second Edition. Washington, DC: U.S. Department of Justice, National Institute 

of Corrections.

Mathias, Rudolf E., James W. Mathews, and Ronald M. Sindberg. 1989. “Programs for Prisons: Nihilism or Pragmatic Planning.” International Journal of 

Offender Therapy and Comparative Criminology (1989):141–49.

McCawley, P. n.d. The Logic Model for Program Planning and Evaluation. Moscow, ID: University of Idaho Extension.

McNamara, Carter. 2002. A Basic Guide to Program Evaluation. Minneapolis, 

MN: Authenticity Consulting, LLC, available from the Free Management 

Library, www.managementhelp.org, accessed December 6, 2009.

Mellow, Jeff, Debbie A. Mukamal, Stephen F. LoBuglio, Amy Soloman, and 

Jennie Osborne. 2008. The Jail Administrator’s Toolkit for Reentry. Washington, 

DC: Urban Institute Justice Policy Center.

Mihalic, Sharon, Katherine Irwin, Abigail Fagen, Diane Ballard, and Delbert 

Elliot. 2004. Successful Program Implementation. Washington, DC: U.S. Department of Justice, Office of Justice Programs, Office of Juvenile Justice and 

Delinquency Prevention.

Miller, Rod. 2008. “Increasing Staff Efficiency by Managing Inmate Behavior.” 

Sheriff (Spring):59–65.

Pogrebin, Mark. 1978. “Role Conflict Among Correctional Officers in 

Treatment-Oriented Correctional Institutions.” International Journal of 

Offender Therapy and Comparative Criminology (1978):149–55.

Pogrebin, Mark. 1982. “Scarce Resources and Jail Management.” International 

Journal of Offender Therapy and Comparative Criminology (1982):263–74.

Pringle, Charles. 1998. Boulder County Program Promotes “Productive Day.”

Washington, DC: U.S. Department of Justice, National Institute of Corrections, 

www.nicic.gov/Library/period144, accessed December 6, 2009.

Schmalleger, Frank, and John O. Smykla. 2009. Corrections in the 21st Century.

New York: McGraw-Hill.
Bibliography | 79

Seiter, Richard P., and Karen R. Kadela. 2003. “Prisoner Reentry: What Works, 

What Does Not, and What Is Promising.” Crime & Delinquency (2003):360–88.

St. Gerard, Vanessa. 2004. “Best in the Business: Psychologist Leads Effort to 

Manage Inmate Behavior Through Innovative Programs.” Corrections Today

66(July):12.

Tobacco Technical Assistance Consortium. Evaluation Planning, www.ttac.org/

power-of-proof/eval_planning/index.html, accessed December 6, 2009.

Trevathan, Joseph T. 1997. Why Aren’t There More Jail Industry Programs? 

Overcoming the Obstacles. Washington, DC: U.S. Department of Justice, 

National Institute of Corrections, www.nicic.gov/Library/period135, accessed 

December 6, 2009.

Trochim, William M. 2006. The Research Methods Knowledge Base, 2nd ed. 

www.socialresearchmethods.net/kb, accessed December 6, 2009.

W.K. Kellogg Foundation. 2004. Logic Model Development Guide: Using Logic 

Models to Bring Together Evaluation, Planning, and Action. Battle Creek, MI: 

W.K. Kellogg Foundation, www.wkkf.org/knowledge-centers/Resources-Page.aspx, 

accessed December 6, 2009.
APPENDIX A

WORKSHEETS
82 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Sample Program/Initiative Planning Worksheet.......................... 83

Program/Initiative Planning Worksheet............................................ 84

Sample Individual Program Implementation Worksheet........ 86

Individual Program Implementation Worksheet.......................... 87

Sample Program/Initiative Evaluation Worksheet...................... 89

Program/Initiative Evaluation Worksheet........................................ 92
Appendix A. Worksheets | 83

SAMPLE PROGRAM/INITIATIVE PLANNING WORKSHEET

Statement of the Problem

Define and describe the inmate behavior problem(s) you hope to address.

The jail has been experiencing the following inmate behavior problems in the general population housing units:

• Inmates pound on the cell doors and yell across the dayroom.

• Inmates spend most of their time sitting in their cells or watching television.

• Over the past 3 months, the number of inmate fights has risen 20 percent over the previous 3-month period.

Needs Assessment

Define the inmate and jail needs you hope to address.

Inmate Needs Jail Needs

• Safe, clean, and quiet environment.

• Positive activities to reduce boredom and idleness.

• Opportunities to address individual needs. (A review 

of intake screens shows that 50 percent of inmates 

do not have a high school diploma or GED.)

• Safe, clean, and quiet jail.

• Inmate respect for and compliance with jail

regulations and rules.

Goal

Define the overall mission and purpose of the program initiative.

Increase safety and order in the general inmate population while providing opportunities for inmates to address 

individual needs.

Objectives

Describe the results you hope to achieve.

Short-Term Objectives Intermediate Objectives Long-Term Objectives

Strategy: Increase inmate competencies and reduce inmate idleness.

• Increase the proportion of 

general population inmates

participating in structured activities from 25 percent in 2010

to 75 percent in 2011.

• Increase the proportion of 

eligible general population 

inmates participating in 

organized reform and 

reintegration programs

from 10 percent in 2010 to 

25 percent in 2011.

Strategy: Establish positive inmate 

behavior as the norm in the general 

population.

• Reduce the rate of rule violations (number of violations/ADP) 

among inmates in the general 

population from 25 percent in 

2010 to 10 percent in 2012.

• Increase the time in the daily 

schedule in which inmates have 

the opportunity to participate 

in structured activities and 

programs from 2 hours in

2010 to 6 hours in 2012.

Strategy: Keep inmates occupied 

with productive activities.

• Reduce costs for inmate medical 

treatment because of fights or 

other misbehavior from $20,000 

in 2010 to $5,000 in 2013.

• Increase the proportion of 

inmates in the general population 

who never receive a sanction

for a major rule violation while

in custody from 50 percent in 2010 

to 75 percent in 2013.
84 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

PROGRAM/INITIATIVE PLANNING WORKSHEET

Statement of the Problem

Define and describe the inmate behavior problem(s) you hope to address.

Needs Assessment

Define the inmate and jail needs you hope to address.

Inmate Needs

Jail Needs

Goal

Define the overall mission and purpose of the program initiative.
Appendix A. Worksheets | 85

PROGRAM/INITIATIVE PLANNING WORKSHEET (CONTINUED)

Objectives

Describe the results you hope to achieve.

Short-Term Outcome Objectives

Intermediate Outcome Objectives

Long-Term Outcome Objectives
86 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

SAMPLE INDIVIDUAL PROGRAM IMPLEMENTATION WORKSHEET

Goal

Enter the program goal identified on the Program Planning Worksheet.

Increase safety and order in the general inmate population while providing opportunities for inmates to address 

individual needs.

Program Selected 

Enter a specific program that the jail will implement to achieve the goal.

Education program to address the needs of inmates with low literacy levels.

Inputs

List the resources needed to develop and deliver the program.

• Funding: Direct funding for materials and equipment/furnishings.

• Staffing: Volunteers from the local literacy outreach agency.

• Equipment: Classroom tables and chairs, file cabinet, a teacher work area/desk.

• Materials: Literacy workbooks and handouts; pencils, paper, and other school supplies.

• Space: Classroom space separate from inmate housing areas and storage space for materials.

Activities (Process Objectives)

List the steps needed to develop and deliver the program.

• Establish the criteria for a literacy program.

• Identify and contact a service provider.

• Establish an agreement with a service provider.

• Recruit, select, and train teacher/volunteers.

• Designate space and procure needed equipment.

• Procure program materials.

• Schedule program classes.

• Identify inmates eligible to participate.

• Enroll inmates and start classes.

• Monitor progress.

Outputs

Identify the direct products of program activities.

• A written implementation plan.

• Number of classes held.

• Number of inmates participating.

• Average grade level increase in reading and writing skills.

Outcome (Outcome Objectives)

Outline the intended results or benefits of the program.

Short-Term Outcomes Intermediate Outcomes Long-Term Outcomes

• Increased literacy skills.

• Improvements in decisionmaking and interpersonal skills. 

• More positive outlook on current situation and future 

opportunities.

• Increased participation in activities and programs.

• Reduced incidence of negative 

behavior.

• Increased capacity of inmates 

to self-manage their behavior.

• Decrease in the number and 

severity of behavior-related incidents resulting in harm to inmates 

or staff.

• Decrease in recidivism. 
Appendix A. Worksheets | 87

INDIVIDUAL PROGRAM IMPLEMENTATION WORKSHEET

Goal

Enter the program goal identified on the Program Planning Worksheet.

Program Selected 

Enter a specific program that the jail will implement to achieve the goal.

Inputs

List the resources needed to develop and deliver the program.

Activities (Process Objectives)

List the steps needed to develop and deliver the program.

Outputs

Identify the direct products of program activities.
88 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

INDIVIDUAL PROGRAM IMPLEMENTATION WORKSHEET (CONTINUED)

Outcome (Outcome Objectives)

Outline the intended results or benefits of the program.

Short-Term Objectives

Intermediate Objectives

Long-Term Objectives
Appendix A. Worksheets | 89

SAMPLE PROGRAM/INITIATIVE EVALUATION WORKSHEET

Program/Initiative 

Enter the program or initiative that the jail will evaluate.

Inmate Literacy Program

Responsible Individual 

Identify the person responsible for monitoring and evaluating the program/initiative.

Inmate Program Supervisor

Purpose of the Program/Initiative Evaluation 

Outline the purpose of the program.

• Demonstrate that the jail implemented the program as planned and identify needed improvements.

• Determine if the program is effective in increasing inmate literacy levels.

• Determine if the program is contributing to improved inmate behavior.

Evaluation Questions 

What questions do you want answered?

Process Questions 

Questions that assess the quality of program implementation and delivery.

• Did the jail conduct a survey to determine the level of need and interest in the program?

• Did the jail allocate funding and in-kind resources?

• Did the jail identify and select a service provider?

• Did the jail establish an agreement with the service provider?

• Did the jail recruit, select, and train teachers/volunteers according to plan?

• Did the jail designate adequate space for the program?

• Did the jail procure essential equipment and furnishings?

• Did the jail procure program materials?

• Did the jail add program classes to the master activity schedule?

• Did the jail identify inmates eligible to participate in the program and make them aware of the program?

• Did the jail conduct the literacy classes as planned?

• How many eligible inmates actually attended classes?

• How many eligible inmates completed the program?

Outcome Questions

Questions that assess success in achieving goals.

Short-Term Outcomes Intermediate Outcomes Long-Term Outcomes

• Did participating inmates exhibit 

increased literacy skills?

• Did participating inmates indicate that they had an improved 

outlook on their current situation and future opportunities?

• Did participating inmates also 

participate in other programs?

• Did participating inmates have

a reduced incidence of rule 

violations?

• Were participating inmates 

successful in returning to the 

community?

• Did the jail see a reduction in 

the number and severity of

 behavior related incidents? 
90 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

SAMPLE PROGRAM/INITIATIVE EVALUATION WORKSHEET (CONTINUED)

Data Collection: Process information 

Identify what process information you need and how you will obtain it.

Process Information Process Indicator(s) Process Data Sources

Program planning documentation 

completed.

Program planning documents. • Need/interest survey.

• Service provider agreement. 

Resources obtained (funding, staffing, materials, equipment, space).Available resources. • Budget documents.

• Volunteer training records and 

sign-in logs.

Program conducted. Number of times the program was 

offered and the number of inmates 

participating.

• Master activity schedule.

• Program attendance logs.

Data Collection: Outcome information

Determine what outcome information you need and how you will obtain it.

Short-Term Outcome Information Short-Term Outcome Indicators Short-Term Outcome Data Sources

Increased inmate literacy skills. Literacy level of inmates participating in the program.

• Literacy tests (before and after 

program participation).

Improved inmate outlook on the 

current situation and future 

opportunities.

Number of inmates reporting an 

improved outlook on their current 

and future prospects.

• Inmate surveys.

Intermediate Outcome Information Intermediate Outcome Indicators Intermediate Outcome Data Sources

Increased participation in inmate 

programs.

Number of inmates participating in 

programs.

• Program attendance logs. 

Reduced rate of rule violations. Number of rule violations by program participants.

• Incident reports.

Long-Term Outcome Information Long-Term Outcome Indicators Long-Term Outcome Data Sources

Decreased percentage of inmates 

returning to jail for a new offense 

within 30 days of release.

Number of inmates returning to jail 

for a new offense within 30 days of 

release.

• Admissions log. 

Reduced rate of serious incidents 

involving inmates in the general 

population.

Number of serious incidents divided 

by the average daily population.

• Incident reports.

• Census reports.

Data Analysis 

(Explain how will you analyze data, draw conclusions, and make recommendations.)

Data will be gathered, reviewed, and summarized. The process and outcome questions identified above will be 

answered, based on the available data. The program evaluator will make recommendations regarding potential 

improvements to the process and potential adjustments to the program to enhance outcome achievement.
Appendix A. Worksheets | 91

SAMPLE PROGRAM/INITIATIVE EVALUATION WORKSHEET (CONTINUED)

Communicating the Results

(Outline what, with whom, and how you communicate evaluation results.)

Evaluation results will be communicated as follows:

• The program evaluator will prepare an executive summary for the sheriff, funding authority, and literacy service 

provider. This document will record the use of resources; summarize program participation, literacy testing 

results, and inmate survey results; and offer an overall evaluation of program effectiveness.

• The program evaluator will prepare a detailed program evaluation report for jail staff and volunteers responsible 

for program development and delivery. This document will include an analysis of the program implementation 

process, detailed program statistics, and specific suggestions for improving both the process and outcome 

achievements.

• The jail will include statistics on participation and results for the literacy program in a section of the jail’s 

annual report.
92 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

PROGRAM/INITIATIVE EVALUATION WORKSHEET

Program/Initiative 

Enter the program or initiative that the jail will evaluate.

Responsible Individual 

Identify the person responsible for monitoring and evaluating the program/initiative.

Purpose of the Program/Initiative Evaluation 

Outline the purpose of the program.

Evaluation Questions 

What questions do you want answered?

Process Questions 

Questions that assess the quality of program implementation and delivery.

• Did the jail conduct a survey to determine the level of need and interest in the program?

• Did the jail allocate funding and in-kind resources?

• Did the jail identify and select a service provider?

• Did the jail establish an agreement with the service provider?

• Did the jail recruit, select, and train teachers/volunteers according to plan?

• Did the jail designate adequate space for the program?

• Did the jail procure essential equipment and furnishings?

• Did the jail procure program materials?

• Did the jail add program classes to the master activity schedule?

• Did the jail identify inmates eligible to participate in the program and make them aware of the program?

• Did the jail conduct the literacy classes as planned?

• How many eligible inmates actually attended classes?

• How many eligible inmates completed the program?
Appendix A. Worksheets | 93

PROGRAM/INITIATIVE EVALUATION WORKSHEET (CONTINUED)

Outcome Questions

Questions that assess success in achieving goals.

Short-Term Outcomes

Intermediate Outcomes

Long-Term Outcomes
94 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

PROGRAM/INITIATIVE EVALUATION WORKSHEET (CONTINUED)

Data Collection: Process information 

Identify what process information you need and how you will obtain it.

Process Information

Process Indicator(s)

Process Data Sources

Data Collection: Outcome Information

Determine what outcome information you need and how you will obtain it.

Short-Term Outcome Information

Short-Term Outcome Indicators

Short-Term Outcome Data Sources
Appendix A. Worksheets | 95

SAMPLE PROGRAM/INITIATIVE EVALUATION WORKSHEET (CONTINUED)

Intermediate Outcome Information

Intermediate Outcome Indicators

Intermediate Outcome Data Sources

Long-Term Outcome Information

Long-Term Outcome Indicators

Long-Term Outcome Data Sources
96 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

SAMPLE PROGRAM/INITIATIVE EVALUATION WORKSHEET (CONTINUED)

Data Analysis 

(Explain how will you analyze data, draw conclusions, and make recommendations.)

Communicating the Results

(Outline what, with whom, and how you communicate evaluation results.)
APPENDIX B

LOGIC MODEL

FLOWCHART
Appendix B. Logic Model Flowchart

| 99

LOGIC MODEL FOR INCREASING SAFETY AND ORDER IN THE INMATE GENERAL POPULATION

Work inside the 

housing unit

Positive

unstructured activities

inside the 

housing unit

Structured

activities 

inside the

housing unit

Organized

programs or work

outside the

housing unit

Inmates are kept

productively

occupied

Inmates are 

provided

knowledge

 and skills 

to address

personal needs

Inmates receive

assistance and

information to

prepare for return

to community

Reduced 

incidence of

negative inmate

behaviors

Reduced medical

costs for

behavior-related

injuries 

Reduced costs

for repairs due

to vandalism

and other

inmate behavior

Reduced

recidivism

Jail staff, space,

equipment, 

supplies, and 

funding

Volunteers, 

donations,

in-kind 

resources

Community agency and

organization

partners

Increased

participation in

productive 

activities

Higher morale

and improved

attitudes toward

confinement

Improved

competencies and

social skills

Inmates are

linked with

necessary

 community services

for reentry

Reduced

idleness and

boredom

Positive, 

productive 

behavior 

is normalized

Long-term Short-term Intermediate

Activities Outputs Inputs Outcomes
APPENDIX C

PROGRAM

EXAMPLES
C

Appendix C. Program Examples | 103

T

he following section presents program examples categorized by subject, 

type, complexity of implementation, and cost. Many programs fall into 

more than one category; the lists here are simply one way of categorizing 

the programs and provide a quick reference for jail administrators and 

staff considering new programs. When deciding whether or not to implement 

a particular program, an individual jail will need to determine how each potential program fits into achieving the jail’s goals and objectives.

Program Examples by Subject 

Education (provides inmates with technical skills training and 

basic schooling)

■ Adult basic education

■ Computer labs

■ Educational enrichment

■ English as a Second Language

■ General educational development (GED) courses

Life Skills (trains inmates on the basics of self-care)

■ Community resource information programs

■ Consumer education

■ Criminal justice system

■ Employment skills

■ Health education

■ Parenting and family classes

■ Substance abuse education 

■ Transition programs

Program Examples
104 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

Recreation/Leisure (helps inmates channel 

their energy into productive endeavors)

■ Animal care programs

■ Board games and card games

■ Creative arts programs

■ Exercise classes

■ Library services

■ Recreational sports

■ Special presentations and videos

■ Team sports

Spirituality (provides an outlet for inmates to 

channel energy into their religious beliefs)

■ Faith-based living skills

■ Religious involvement

Treatment (helps inmates overcome abusive 

habits or behaviors)

■ Alcoholics Anonymous

■ Behavior change programs

■ Mental health programs

■ Narcotics Anonymous

■ Substance abuse treatment 

Work (provides inmates with a constructive 

outlet for excess energies)

■ Inmate work: community-based

■ Inmate work: jail-based

Program Examples by Type 

Activity (encourages inmates to use their 

time positively)

■ Animal care programs

■ Board games and card games

■ Computer labs

■ Creative arts programming

■ Exercise classes

■ Inmate work: jail-based

■ Library services

■ Recreational sports

■ Special presentations and videos

■ Team sports

Reform (enhances personal growth and 

self-improvement)

■ Adult basic education

■ Alcoholics Anonymous

■ Behavior change programs

■ Consumer education

■ Criminal justice system programs

■ Educational enrichment 

■ English as a Second Language

■ Faith-based living skills

■ General educational development (GED)

■ Health education

■ Mental health programs

■ Narcotics Anonymous

■ Religious involvement

■ Substance abuse education

■ Substance abuse treatment 

Reintegration (helps inmates transition 

back into the community)

■ Community resource information programs

■ Employment skills

■ Inmate work: community-based

■ Parenting and family classes

■ Transition programs

Program Examples by 

Complexity 

Least/Less Complex (requires minimal 

time and resources to implement)

■ Alcoholics Anonymous

■ Board games and card games

■ Community resource information programs

■ Criminal justice system

■ Educational enrichment 

■ Faith-based living skills
Appendix C. Program Examples | 105

■ Inmate work: jail-based

■ Narcotics Anonymous

■ Recreational sports

■ Religious involvement

■ Special presentations and videos

■ Substance abuse education 

Moderately Complex (requires a good 

deal of time and resources to implement)

■ Adult basic education

■ Behavior change programs

■ Consumer education

■ Creative arts programs

■ Employment skills

■ English as a Second Language

■ Exercise classes

■ General educational development (GED)

■ Health education 

■ Inmate work: community-based

■ Library services

■ Mental health programs

■ Parenting and family classes

■ Team sports

More/Most Complex (requires substantial 

time and resources to implement)

■ Animal care programs

■ Computer labs

■ Substance abuse treatment

■ Transition programs

Program Examples by 

Estimated Cost 

Least Expensive (requires a minimal 

monetary investment)

■ Alcoholics Anonymous

■ Board games and card games

■ Narcotics Anonymous

Less Expensive (requires a small 

monetary investment)

■ Community resource information programs

■ Consumer education

■ Criminal justice system programs

■ Educational enrichment

■ Employment skills

■ English as a Second Language

■ Exercise classes

■ Faith-based living skills 

■ Health education 

■ Inmate work: jail-based

■ Parenting and family classes

■ Religious involvement

■ Special presentations and videos

■ Substance abuse education

■ Team sports

Moderately Expensive (requires a 

considerable monetary investment)

■ Adult basic education

■ Animal care programs

■ Behavior change programs

■ Creative arts programs

■ General educational development (GED)

■ Inmate work: community-based

■ Library services

■ Mental health programs

■ Recreational sports

■ Substance abuse treatment

■ Transition programs

More/Most Expensive (requires a 

substantial monetary investment)

■ Computer labs
APPENDIX D

PROGRAM

RESOURCES
D

Appendix D. Program Resources | 109

T

he program examples in this guide derive from survey research results 

from jails across the nation. The following resource list references the 

specific jails participating in the survey that reported using a particular 

product or programming strategy. The list also provides Web addresses

for more information on specific products and strategies. The surveyed

jails did not provide the websites listed; rather, the authors of this guide

researched and included them here for reference.

Adult Basic Education 

Some jails in the survey reported using computer-based systems designed 

to meet the individualized needs of adult learners. One example is Learning 

2000 (Larimer County, CO), www.learning2000.com/mainpage.htm, accessed 

December 6, 2009.

Animal Care Programs

Two jails in the survey, in Kent County, MI, and Larimer County, CO, 

reported using animal care programs.

Behavior Change Programs

Some jails in the survey reported using prepared curricula or therapeutic 

models, which may provide materials such as workbooks and facilitator 

guides: 

■ Character First (Larimer County, CO)

www.characterfirst.com, accessed December 6, 2009

■ Dialectical Behavior Therapy (Douglas County, KS)

http://behavioraltech.org, accessed December 6, 2009

Program Resources
110 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

■ Houses of Healing (Douglas County, KS)

www.lionheart.org/prison/houses_of_healing,

accessed December 6, 2009

■ Moral Reconation Therapy (Auglaize 

County, OH)

www.moral-reconation-therapy.com, accessed 

December 6, 2009

■ Steps to Economic and Personal Success—

STEPS (Kent County, MI)

www.thepacificinstitute.us/v2/files/pdfs/

BRO-STEPS.pdf, accessed December 6, 2009

■ Thinking for a Change—National Institute

of Corrections (Douglas County, KS, and 

Ramsey County, MN) 

http://nicic.org/Library/016672, accessed 

December 6, 2009

Education Enrichment 

Classes 

Some jails in the survey reported providing 

a variety of educational assessments beyond 

adult basic education and general educational 

development preparation. One example is the 

Vocational Inventory (Ramsey County, MN) at 

www.pearsonassessments.com/caiv.aspx, accessed 

December 6, 2009.

Employment Skills

Douglas County, KS, and Ramsey County, MN, 

reported having employment skills programs 

that include mock interviews.

English as a Second 

Language 

Websites with information on teaching English 

as a second language include:

■ www.esl-galaxy.com/adults.html, accessed 

December 6, 2009

■ http://humanities.byu.edu/elc/Teacher/

teacherguidemain.html, accessed 

December 6, 2009

Faith-Based Living Skills 

Programs

Kent County, MI, and Montcalm County, MI, 

reported having a separate housing area for inmates participating in religious programming.

General Educational 

Development

Douglas County, KS, reported using an alternate, non-general educational development, 

high school diploma completion program.

Inmate Work: 

Community-Based

Kent County, MI, reported using a variety of 

offsite work programs, including inmate work 

crews and cooperation with local employers 

to employ inmates before and after release. 

Larimer County, CO, and Montcalm County, 

MI, reported using offsite inmate work crew 

programs.

Inmate Work: Jail-Based 

Some jails reported providing inmates with formal training to do work in the jail. One example 

is food service training: ServSafe (Montcalm 

County, MI), http://www.servsafe.com, accessed 

December 6, 2009.

Library

The American Library Association is a source of 

information on correctional library services. See 

www.ala.org, accessed December 6, 2009.
Appendix D. Program Resources | 111

Mental Health Programs 

Some jails in the survey reported using prepared curricula that provide materials such as 

workbooks, DVDs, and facilitator guides. One 

example is Beyond Trauma (Larimer County, 

CO, and Ramsey County, MI), www.hazelden.org/

OA_HTML/ibeCCtpItmDspRte.jsp?item=10426,

accessed December 6, 2009.

Religious Involvement 

Jails in the survey reported working with a variety of local organizations to provide religious 

programs and services. Larimer County, CO, 

also reported working with a national organization, Prison Fellowship, www.prisonfellowship.

org, accessed December 6, 2009.

Substance Abuse Treatment 

Boulder County, CO, and Kent County, MI, 

reported having substance abuse treatment 

programs that house participating inmates 

separately from nonparticipants.

Transition Programs 

Boulder County, CO, Douglas County, KS, 

Kent County, MI, and Ramsey County, MI, reported having formal transition programming.

The National Institute of Corrections has a 

Transition from Jail to the Community initiative, http://nicic.gov/JailTransition, accessed 

December 6, 2009.
APPENDIX E

RESOURCES 

PRODUCED BY 

THE NATIONAL 

INSTITUTE OF 

CORRECTIONS
E

Appendix E. Resources Produced by the National Institute of Corrections | 115

T

he National Institute of Corrections (NIC) is a resource for stakeholders 

involved in improving jails, prisons, pretrial and posttrial services, community corrections, offender workforce development, and other offender 

and defender services. NIC’s resources include models, training, technical assistance, publications, and other tools to improve service delivery and 

increase the competencies and knowledge of correctional staff.

The following is a list of NIC programming publication resources:

■ Career Resource Centers Software (NIC Accession Number 020931)

Correctional staff can use the resources that this software package provides 

as a foundation for the development of career resource centers in prisons, 

jails, or community corrections offices. Resources include informational 

videos and a self-paced group-facilitated curriculum that staff can use 

to train volunteers and/or offenders in career planning and job-search 

assistance.

■ Cognitive-Behavioral Treatment: A Review and Discussion for

Corrections Professionals (NIC Accession Number 021657)

This publication informs correctional and probation/parole professionals 

about the availability and benefits of cognitive-behavioral treatment services geared toward the specific risks and needs of offender populations.

■ A Model for Social Justice: Collaboration Between Faith-Based and Community Organizations and Corrections (NIC Accession Number 022542)

This 3-hour NIC distance learning satellite/Internet broadcast, which aired 

in September 2007, examines the myths, realities, boundaries and benefits 

of collaboration between corrections and faith-based and community 

organizations.

■ National Directory of Programs for Women with Criminal Justice

Involvement (www.nicic.gov/wodp)

This easy-to-access database provides practitioners, policymakers, and 

community members with information on programs and services for 

women in the criminal justice system across the country. The database 

Resources Produced by the 

National Institute of Corrections
116 | PROGRAMS AND ACTIVITIES: Tools for Managing Inmate Behavior

includes programs and services for women 

at all stages of criminal justice involvement, 

in both correctional facilities and the 

community. 

■ Offender Employment Specialist (OES):

Building Bridges (NIC Accession Number

021698)

This curriculum and facilitator’s guide present an entry-level training program for professionals who assist offenders in securing 

and retaining employment. The set includes 

more than 5 hours of video incorporated into 

a 3-day curriculum that consists of individual modules that facilitators and participants 

can use over a longer period of time.

■ Thinking for a Change: An Integrated

Approach to Changing Offender Behavior

(NIC Accession Number 018311)

Thinking for a Change is an offender 

program that uses integrated cognitive 

approaches to changing behavior to restructure offenders’ thinking and teach prosocial 

cognitive skills. This 32-hour program is an 

advanced-level course that trains facilitators 

to deliver the program.

■ TPC Reentry Handbook: Implementing the

NIC Transition from Prison to the Community Model (NIC Accession Number 022669)

This handbook is a resource for a broad 

range of stakeholders involved in improving 

transition and reentry practices. The handbook presents the Transition from Prison 

to the Community model and summarizes 

the experiences and accomplishments of the 

eight states that have helped develop and 

improve the model.

NIC offers these resources at no cost. Most are 

available by contacting the NIC Information 

Center at 800–877–1461 or by searching the NIC 

website library at www.nicic.gov. In addition to 

these publications, NIC offers training and technical assistance to correctional staff. Find out 

more about this training on the NIC website.
MEDIA MAIL

POSTAGE & FEES PAID

U.S. Department of Justice

Permit No. G–231

U.S. Department of Justice

National Institute of Corrections

Washington, DC 20534

Official Business

Penalty for Private Use $300

Address Service Requested

www.nicic.gov