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CE 006 601

McCreAry, Phyllis Groom; McCreary, John M.

Job Training and Placement for Offenders and

Ex-Offenders.

American Correctional Association, College Park,

Md.

.National Inst. of Law Enforcement and Criminal

Justice (Dept. of Justice/LEAA), Washing won, D.C.

Apr 75

1078p.; Page 90 of the appendix is of marginal

legibility

Superintendent of Documents, U.S. Government Printing

Office, Washington, D.C. 20402 (Stock No.

027-000-00305-2; $1.90)

MF-$0.83 HC-$6.01 Plus Postage

Community Programs; Correctional Rehabilitation;

*Criminals; Employment Interviews; Employment

Problems; *Employment Programs; Job Development; *Job

Placement; *Job Training; Manpower Development;

Program Administration; Program Evaluation; *Program

Planning; Vocational Rehabilitation

*Exoffenders

The document was written for those who are planning

new, manpower services for offenders and ex-offenders or who are

administering or employed in various institutional or community-based

programs that prepare them to find jobs and acquire skills to raise

their income. Part 1 establishes a framework forthe guidelines

presented in the rest of the volume and describes the role of

manpower services, economic problems and job needs of offenders, and

the development of institutional and community activities to help the

offender establish himself in a lawful occupation. Part 2 offers

information on how to (1) help an individual prepare himself for a

job, (2) develop jobs, (3).see that former offenders are properly

placed, and (4) create a stable relationship between the employer and

the employee. Part 3 details program planning, administration, and

evaluation. A final part briefly summarizes the elements of a model

manEower services program. Appended are: samples of orientation

material, an employment interview guide, job application forms,

sample program planning charts, sample determination of staff

requirements, and a criteria and rating scale for hiring

ex-offenders. Also included is a 69-item zelected bibliography.

(Author/MS)

Documents acquired by ERIC include many informal unpublished materials not available from other sources. ERIC makes every

effort to obtain the best copy available. Nevertheless, items of marginal reproducibility are often encountered and this affects the

quality of the microfiche and hardcopy reproductions ERIC makes available via the ERIC Document Reproduction Service (EDRS).

EDRS is not responsible for the quality of the original document. Reproductions supplied by EDRS are the best that can be made from

the original.
JOB- TRAINING AND make

FOR OFFENDERS AND EXFFENDERS

Epieow-1

4101&O

CIO? 1:][11: 111

VC)

U.S. DEPARTMENT OF HEALTH,

EDUCATION A WELFARE

NATIONAL INSTITUTE OF EDUCATION

THIS DOCUMENT HAS SEEN REPRO. DUCED EXACTLY AS RECEIVED FROM THE PERSON OR ORGANIZATION ORIGIN.. ATI NG IT POINTS OF VIEW OR OPINIONS STATED DO NOT NECESSARILY IIIEPISE. SENT OFFICIAL NATIONAL

INSTITUTE OF EDUCATION POSITION OR POLICY.

2 U.S. DEPARTMENT OF JUSTICE

LAW ENFORCEMENT ASSISTANCE ADMINISTRATION

NATIONAL INSTITUTE OF LAW ENFORCEMENT AND CRIMINAL JUSTICE
JOB TRAINING AND PLACEMENT

FOR OFFENDERS AND EX-OFFENDERS

By

PHYLLIS GROOM McCREARY

JOHN M. McCREARY

This project was supported by Grant Number 74TA-99-1002 awarded to

the American Correctional Association by the Law Enforcement

Administration, U.S. Department of Justice, under the Omnibus Crime

Control and Safe Streets Act of 1968, as amended. Points of view or

opinions stated in this document are those of the authors and do not

necessarily represent the official position or policies of the

U.S. Department of Justice.

April 1975

3

U.S. DEPARTMENT OF JUSTICE

Law Enforcement Assistance Administration

National Institute of Law Enforcement and Criminal Justice
LAW ENFORCEMENT ASSISTANCE

ADMINISTRATION

Richard W. Ve lde, Administrator

Charles R. Work, Deputy Administrator

NATIONAL INSTITUTE OF LAW ENFORCEMENT

AND CRIMINAL JUSTICE

Gerald M. Caplan, Director

Library of Congress Cataloging in Publication

McCreary, Phyllis Groom.

Job placement and training for offenders and ex-offenders.

(Prescriptive packageNational Institute of Law Enforcement and Criminal Justice) Bibliography: p. 105

Supt. of Does. no.: J 1.8/3:J57

1. Ex-convictsEmployment. 2. Rehabilitation of criminals. I. Title. II. Series: National

Institute of Law Enforcement and Criminal Justice. Prescriptive packageNational Institute of Law Enforcement and Criminal Justice.

HV9288.M3 331.5'1 75-4502

For sale by the Superintendent of Documents, U.S. Government Printing Office Washington, D.C. 20402 - Price $1.90. Stock Number 027-000-00305-2
a

FOREWORD

Young, unskilled, poorly educated, the typical offender has few marketable

capabilities to offer potential employers. Unable to find or keep a job upon his

release from prison, the offender often returns to crimethe only "business"

he knows.

Breaking the cycle of recidivism is a difficult tag, involving many complex

contributing factors. One of these is employment potential. Effective programs for

building relevant,job skills do ease the offender's re-entry into society.

This document, one of the National Institute's Prescriptive Package series,

offers criminal justice administrators and practitioners background information and

operational guidelines for job placement and training programs. Job Training and

Placement for Offenders and Ex-Offenders builds on the experience of a wide range

of programs across the country. It presents both proven techniques and procedures

that can be adopted y program directors and staff as well as some of the obstacles

that arise in fashioning good programs. It encompasses both institutional and

community-based programsfrom pre-trial intervention to residential and nonresidential post-custody programsrun by government agencies, business- labor

organizations and other groups.

Based on the programs surveyed, the report notes that current trends point

toward community-based programs, -since little evidence is available to confirm

the success of institutional programs. But the researchers emphasize that community-based programs can succeed only if local needs and resources are carefully

assessed and the program is designed to fit specific local conditions.

GERALD M. CAPLAN, Director

National Institute of Law Enforcement

And Criminal Justice.
We'd like to know what you think of this Prescriptive

Package.

The last page of this publication is a questionnaire.

Will you take a few moments to complete it? The

postage is prepaid.

Your answers will help us provide you with more

useful Prescriptive Packages.

iv
PREFACE

This volume has been written primarily for those

who are planning new manpower services for offenders and ex-offenders or who are currently administering or employed in programs that prepare them

to find jobs and acquire skills to raise their income.

It furnishes current thinking on how best to help

them become employed in a job with enough income

and status to satisfy their needs in a lawful way.

Part I establishes a framework for the guidelines

presented in the rest of the volume. Chapter 1 outlines

the role of manpower services for offenders, and

describes the characteristics of offenders and their

problems in terms of their economic position and

their job needs. Chapter 2 summarizes the development of institutional and community activities whose

purpose is to help the offender establish himself in

a lawful occupation that can support him financially

and provide him alternatives to his former way of

life. The emphasis is on recent successful practices

and the descriptive material supplements the "how'

to do it" information contained in Parts II and III.

Parts II and III are the "how to do it" or

"methods" section of the volume. Part II offers information on how to (1) help an individual prepare

himself for a job, (2) develop jobs, (3) see that former offenders are properly placed, and (4) create

a stable relationship between the employer and the

employee. They emphasize activities for community

programs, since that is where the current interest

lies. Part III deals with program planning, administration, and evaluation. Since these matters are common to all offender programs, they are written in

that context, with reference to manpower aspects

where possible.

Job Training and Placer nt covers institutional

and community-based programs from pretrial intervention to residential post-custody programs. It covers programs sponsored or run by government,

business, labor and other groups. With such a broad

mandate, it was not possible to organize the available

material by stage of intervention or type of structure. The authors, therefore, confined themselves

to elements or problems that are common to most

programs.

Programs have taken many forms and pursue

many objectives. They are necessarily influenced and

shaped by the organizations that sponsor them and

that intervene at various stages of the criminal justice

process. These organizations have different goals and

diverse groups to deal with. Manpower services have

emerged as a major focus in many of the community

programs for the offender and the former offender.

They vary from programs offering a free meal and

transportation money to the local office of the State

employment service to comprehensive programs that

follow up and furnish services to an offender and to

his family for months after job placement. Programs

vary not only according to social theory but also

with available money.

Some methods 'described in these chapters may be

workable and appropriate in a particular jurisdiction.

Some may not. Others may require extensive modification. Throughout, there is emphasis on the importance of adequate research of individual community

needs and resources and the development of a program that fits the local situation.

The authors analyzed available reports of offender

manpower service programs sponsored or funded by

Federal agencies (notably the Manpower Administration of the U.S. Department of Labor, the Law

Enforcement Assistance Administration of the Justice Department, and the U.S. Office of Education

and Vocational Rehabilitation office of HEW) and

business, labor, and public groups. The accumulating

literature in the field was reviewed.

The authors visited programs -in nearly a quarter

of the states, interviewing program directors and

staff, as well as offenders and ex-offenders. In addition, they interviewed administrators and policy

makers in other areas and in the Federal Government. The authors wish to thank them all for contributing so freely of their time and energy.

A particular acknowledgement is due to those

persons listed below, who so carefully and helpfully

reviewed this manuscript. A number of them made

contributions not only at the review stage but at

every step along the way. We are deeply in their debt.

Erio Alvarez, Director, Multiphasic Diagnostic

Center, Florida Parole and Probation Commission

Severa Austin, Wisconsin Council on Criminal

Justice . Duane J. Barrington, Chief, Wisconsin Corrections

Industries
Donald Cook, National Clearinghouse on Offender

Employment Restrictions

Joseph S. Coughlin, President, American Correotional Association

Joseph F. Cunningham, Attorney, American Correctional Association Project Director, MIEP

Dr. Vernon Fox, Dean, School of Social Welfare,

Florida State University

Andrew S. Korim, Project Director, American Association of Community and Junior Colleges

Leon G. Leiberg, American Correctional Association Project Director, MAP

Sylvia G. McCollum, U.S. Bureau of Prisons

Steve Minnick, Community Corrections Coordinator, Maryland

David Nee, Director of Activities, Suffolk County

House of Correction, Boston, Mass.

Boyd Payton, Associate Regional Manpower Administrator, Philadelphia, Pa.

Charles Phillips, Manpower Administration, U.S.

Department of Labor

Ruth Relyea, Manpower Administration, U.S. Department of Labor

E. Preston Sharp, Ph.D., former Executive Director, American Correctional Association

Jay Worrall, Director, Offender Aid and Restoration

PHYLLIS GROOM MCCREARY

JOHN M. MCCREARY

October 1974
CONTENTS

FOREWORD

PREFACE

PART I. MANPOWER SERVICES FOR OFFENDERS

INTRODUCTION

CHAPTER 1. MANPOWER SERVICES AND THEIR CLIENTS

A. The Role of Manpower Services

B. The Client

C. Delivery of Manpower Services

Page

iii

1

3

3

3

6

CHAPTER 2. WHERE PROGRAMS STAND TODAY -* 8

A. Vocational Training in Institutions 8

B. Placement from Institutions 11

C. Work Release and Pre-release 11

D. Working Together 14

E. Community Programs 15

F. Pretrial Intervention i 15

G. Summing Up 16

PART U. APPROACHES TO JOB PLACEMENT AND TRAINING

INTRODUCTION 21

CHAPTER 3. JOB READINESS 22

A. Selection 22

B. Orientation 23

C. Assessment 23

D. Work Attitudes and Social Skills 26

E. Basic Education 27

F. Counseling 27

G. Skill Training 27

CHAPTER 4. JOBS 30

A. Job Strategy 30

13: Job Development 31

C. Placement 34

D.' Working with the Employer 35

PART III. PLANIF4ING AND ADMINISTRATION

INTRODUCTION 39

CHAPTER 5. PLANNING AND PROJECT DEVELOPMENT 41

. A. Planning Tools 41 B. Critical Dates 41

vii

9
C. Objectives

D. Information Collection lans

41

44

E. Review of Objectives and Concepts 45

F. Functions and Activities 45

G. Detailed Planning and Implementation 46

H. Organizational Planning and Staffing 46

I. Staff Recruiting and Selection 47

J. Staff Management 48

K. Relationships with Other Agencies 49

L Former Offenders on the Staff 50

M. Advisory Committees or Board of Directors 51

N. Volunteers 51

"O. Project Participants 52

P. Community Relations 52

O. Records Management and Control 52

R. Planning Guidance for an On-going Project 53

CHAPTER 6. EVALUATION 55

A. Levels of Evaluation 55

B. Steps in Evaluation 56

C. Data Systems 56

D. Integration of Evaluation into Planning and Operations 56

E. Standards and Criteria 57

F. Sources of Data 58

G. Cost/Benefits Approach to Evaluation 58

PART IV. WHAT LOOKS GOOD

INTRODUCTION 63

CHAPTER 7. ELEMENTS OF A MODEL PROGRAM 64

A. Program Objectives 64

B. Methods and Program .64

C. Linkages 66

D. A Final Word 66

APPENDIXES 67

A. Samples of Orientation Material 67

B. The Employment Interview 77

C. Job Application Forms 81

D. Sample Planning Charts 91

E. Sample Determination of Staff Requirements 97

F. Criteria and Rating Scale for Hiring Ex- Offenders 101

SELECTED BIBLIOGRAPHY 105

viii

10
PART I

MANPOWER SERVICES FOR OFFENDERS

11
INTRODUCTION

Individuals who have been in trouble with the law

have a pressing need for manpower services. Very

few have the skills and resources to support themselves adequately and most come from backgrounds

that limit them in other ways. Moreover, employers

commonly put an ex offender at the bottom of the

hiring list, if at all. The offender has few alternatives

to employment as a means of obtaining income in

our society. What are the options? Return to crime?

Welfare?

During the 1960's it became public policy to find

ways to help offenders with their job problems aspart of the rehabilitation process. Beginning in institutions, and now most visible in public and private

projects outside of institutions, programs to help

offenders and ex offenders find jobs or provide them

with training have multiplied. They vary from programs offering a free meal and transportation money

to the local office of the State employment service to

comprehensive programs that follow up and furnish

services to an offender and to his family for months

after job placement. Programs vary not only according to social theory but also with available money.

Many of them include elements of job orientation,

vocational counseling, job development, and training.

Past as Prologue

Offender prograins operate in a corrections framework that is the product of diverse and frequently

conflicting trends, interests, and reforms of the past.

Most of these were guided by a basic philotophy of

punishment as the primary objective in dealing with

criminals, and by the conclusion that the most effective method of dealing with transgressors is to lock

them behind bars for a long time.

The pressures on corrections agencies are many.

First, the citizen wants safety. He wants reduced

crime. He is concerned about the cost of corrections.

He is beginning to be appalled at the way prisoners

live, as more information reaches him about conditions in prisons and jails and the ineffectiveness of

incarceration as a means of rehabilitation. He is in12

terested in rehabilitation of the offender, although

no one knows quite what that consists of..

The problems are difficult, but many citizens are

prepared to support more effective solutions. The

dilemma is that while the public is beginning to recognize that the ultimate success of corrections depends on reintegrating the offender into the community and influencing him to refrain froin breaking

the law, the public's ambivalence about reform and

the system's resistance to change seriously impede

correctional progress.

-The ideas of rehabilitation and treatment and resocialization or reintegration have become superimposed upon the old theory of punishment and control.

This is reflected in the conflicts in aim and practices

between police and prosecutors, the attorney general and local district attorneys, judges and correctional administrators.

The structure of probation and parole programs,

institutions, policies and procedures that together

make up corrections is complex and diverse. Corrections is plagued by overlapping jurisdiction, contradictory philosophy, and a hodge-podge of organizational structures.

A few jurisdictions have relatively small caseloads,

an integrated system of institutions, well-trained

staffs and a variety of experimental programs. Or Or

consist of autonomous and antiquated city or county

jails, a state training school for youth, and a large

prison farm where convicts work--un der the surveillance of armed trusties. Eacriel;e11 of government

typically acts independently of the others. The states

usually have responsibility for prisons and parole

programs, but probation is frequently tied to court

administration as a county or municipal function.

Counties do not have jurisdiction over the jails operated by cities nd towns.

Dealing wilh disparate offender groups and consisting of a wide range of institutions that vary in

their purpose and performance, the corrections

"system" is less a coordinated rehabilitation mechanism than a number bf discrete elements often in

conflict. A system doesn't exist and yet people pass

through as if it did.

1
New Directions

In the current view, crime and delinquency are

symptoms of failure and disorganization in the community as well as in the offender himself.' The offender has had too little contact with the positive forces

in the' community that develop law-abiding conduct.

Thus, both offender and the community become the

focus of corrections activity. The concept is well

stated in a paper presented at the American Assembly on Prisoners in America.2

Rehabilitation, resocialization, and reintegration

are today's objectives in corrections. Their theoretical base stems from the growing influence of

psychology, psychiatry, and psychoanalysis in the

early pact of the twentieth century. Criminal behavior was attributed chiefly to factors within the indi-

. vidual, and the concept of treatment rather than

punishment revolutionized correctional practices

of that time. Undiminished crime and recidivism

rates, however, have brought growing dissatisfaction with the individualized treatment approach.

ATI impressive accumulation of studies points to

the conclusion that favorable change seldom, if

ever, occurs in correctional institutions. Whatever

changes do occur are rarely translated to the community where the offender's adjustment is ultimately tested. This recognition, coupled with theoretical and conceptual advances linking crime chiefly

to social factors, is instrumental in the formulation

of a new correctional philosophy . . . characterized by two main precepts.

The first precept is that society, in addition to

human attitudes, needs changing. Second, more

emphasis should be placed on the offender's social

'Report on Corrections, National Advisory Commission

on Criminal JUstice Standards and Goals, Washington, D.C.,

January 23, 1973, p. 3.

2 Edith Elizabeth Flynn, "Jails and Criminal Justice." In

Prisoners in America, edited by Lloyd E. Ohlin. Englewood

Cliffs, N.J.: Prentice-Hall, Inc., 1973, p. 53.

13

and cultural milieu if we are to obtain any substantial relief from recidivism. Individual differences and individual responsibility will still remain

important factors in corrections' response to criminal behavior, but they need to be considered within

the setting of the offender's social group, the community, and the subcultural matrix. . . . Successful

adjustment, therefore, will require personal reformation and conditions within the community that

are conducive to an offender's reintegration into

it. Fundamentally, this is a community task. Communities must assume part of the responsibility for

the problems they generate.

Central to the recommendations of the National

Advisory Commission on Criminal Justice Standards

and Goals is that every effort should be made to

avoid relieving the offender of the responsibility for

making decisions and managing his own life, since

the goal is to return him to society better able to

cope on his own.

In our society regular employment is the accepted

way of assuming responsibility for one's self. Employment not only affects an offender's ability to

support himself without recourse to crime but employment is also a major influence on the nature of

his associates, his use of leisure time, his conception

of himself, and his expectations for the future. It is

thus a major rehabilitative tool.

The objective of manpower services is to help an

offender prepare himself to obtain and hold a job.

In doing this, it is essential to organize arrangements

and linkages between manpower services, institutitions, and employers. Now they are minimal in most

places, and if there is a rehabilitation plan for a

person in prison, that plan may or may not be carried

on after he leaves. We are just beginning to act on

the recognition that what happens in the prison

affects what happens in the parole stage, and what

happens on parole affects whether or not the offender

turns up before an arresting officer again, and so on.
CHAPTER 1. MANPOWER SERVICES AND THEIR CLIENTS

A. The Role of Manpower Services

In the kind of framework described in the Introduction, which postulates both individual and community responsibility, the first task of a manpower

delivery system is to discover what approaches are

most likely to meet the needs of the largest number

and to devise measures for those who have special

personal problems or whose background puts them

at a special disadvantage.

There are two levels at which action is necessary.

At the community level, barriers to employment that

militate against the poor and uneducated in general

must be overcome, i.e., more realistic education requirements for jobs must be negotiated. (The high

school diploma is used as a screening device by many

employers for jobs that do not require a high school

education.) The structural framework must be present, i.e., the community must have jobs to fill, training to give, and willingness to offer them to offenders

and ex offenders. These conditions can be met only

by changes in society, as discussed earlier, not by

manpower programs for the individual.

At the individual level, the offender must overcome his personal handicaps. Recently developed

pretrial and post-custody job placement and training

it programs are aimed at improving an offender's employability. They are designed to help the young, the

unemployed, and the unskilled who are also in many

cases members of a minority group) who characteristically comprise the bulk of the official arrest

statistics. These kinds of programs offer an almost

infinite number of advantages. They emphasize crime

prevention, reduce the need for incarceration, interrupt the development of delinquent careers, and reduce unemployment. It is with these programs that

the following chapters are primarily concerned.

The situation of offenders at liberty within the

community (parolees, probationers, and persons on

work release) is like that of citizens generally seeking

access to job placement and training services. This,

of course, does not ban special services for such

offenders, but it is equally valid to integrate them

into general vocational, educational, and counseling

programs in the community.

A community basennanpower program for offenders requires the acceptance of certain assumptions.

In attempting to help the offender find a job, and

training if necessary, the assumptions are (1) that he

has the capability for regular employment but'(,) is

unfamiliar and inexperienced in certain behavior and

skills demanded of him, in other words that behavioral training is needed rather than therapy.

A. third major assumption is that if the offender

learns to handle himself in the community, while he

is under corrections controls, he will be able to do

so after-the control is lifted. Those concerned with

community based manpower services for offenders

should explore these and other assumptions behind

their plan to be sure that their goals reflect reality.

In pursuing a standard of employment assistance

for every offender who needs it, program planners

will be faced with many questions, including

How much supportive service is necessary

Should supportive services be furnished inhouse or contracted out

How good a job ("dead end," job mobility,

career ladder)

Whom to train and what kind of training should

be given

When and how much training in institutions.

A comprehensive manpower service program includes:

Assessment of skills and abilities of the client

Training in job hunting and in acquiring acceptable work attitudes

Job training and basic education iF necessary

Job development and job placement

Follow up with employee and employer after

placement

Other supportive services such as medical care

or legal aid.

B. The Client

The wide variations in the characteristics of offenders and where they land in the corrections system

have important implications for planning rehabilita1 4

3
tive programs. State institution inmates vary from

those of the average incarcerated in Federal institutions State inmates usually are younger, and more

likely to be school, dropouts. Federal inmates are

8-10 years older, with more education and training

prior to incarceration.

More than twice the number incarcerated are

living in the community as parolees-or probationers.

The characteristics and attitudes of offenders and

ex offenders bear directly on the kinds of jobs and

supportive services that are needed.

Law breakers differ markedly in their commitment

to crime, their demographic characteristics and their

resources for self-support. While the offender population is far from homogeneous, it is nevertheless

accurate to say that the typical offender is a young,

undereducated man from a minority background,

likely to come from a broken home, with no job and

with little in the way of financial resources. He has

a record of failure in school, employment and other

pursuits, even crime.

In general, the married, better educated older man

with a good employment record and no previous

record of arrest, who is committed for a crime of

violence is most likely to readjust to a law - biding

life. The least likely to succeed is the younysingle,

narcotics addict with poor education andwno significant work experience.

Employment problems vary with age, number of

prior commitments, with education and with earlier

employment success. Juveniles, long termers, addicts,

older offenders, women and non-English speaking

groups each have unique problems that must be understood and taken account of in planning job placement and training programs for offenders and in

evaluating their effectiveness. No single program or

approach can succeed for everyone.

Age. The most significant characteristic of offenders is their youth. Forty percent of those arrested are

under 21. More burglaries, larcenies, and auto thefts

are committed by youths 15-17 years of age than by

any other group.3

A close relationship exists between the age at

which these types of felony are most often committed

and the age at which persons in our society first try

to enter legitimate income-producing activities. In

the middle of their teen years boys reach physical

maturity, are permitted to leave school, and are likely

to seek such symbols of independence as automobiles

and spending money. It is at this age, when they are

least prepared to acquire these items by legitimate

means, that they most often engage in the simple

4

15

felonies directly addressed to procuring_money or to

getting things they want mostnotably automobiles.

Although auto theft, burglary, and larceny are committed by persons at later ages, this type of offense is

clearly a phenomenon most characteristcis of adolescence. Most of those who enter into these offenses

during adolescence cease such activity thereafter.

Sex. Most of the attention focussed on offenders

has been directed toward men, who comprise 95

percent of the prison population. According to 1970

census, there were 16,343 women in the nation's

correctional institutions, 854 in two Federal reformatories, 7,684 in 28 state institutions, and 3,500 in

county and municipal jails.

However, in 1971 more than one million women

were arrested, about 15 percent of the total arrests

compared with about 10 percent in 1960. In that

decade, arrests of women increased 202 percent,

compared with a 75 percent increase for men. Arrests of females under 18 years of age increased

256 percent.

Although verification is not possible because little

age, education, prior employment, and socio-economic status data are available, we can roughly

picture a typical woman offender.

One study of county jails in Pennsylvania found

the average woman inmate to be charged with a

minor nonviolent offense; too poor to raise minimal

bail or pay minor fines; and incarcerated for 30 days

or less awaiting trial.

In metropolitan areas, the women were usually

members of a minority group, and if employed usually worked at law -paid, low-skilled work. Approximately 80 percent of the women studied had children

(although not necessarily living with them at the time

3 When committing such crimes, male adolescents are

aware that they run the risk of an unfavorable reaction

from many adults and from anticriminal adolescents. They may risk disgrace at school, shame at home, alienation

from girls; and if they already are working, they risk losing

their jobs. It is probable that the growing awareness of

these risks forms a major basis for the predominantly

crime-free mature life that most people pursue, even though'

many have been involved in some delinquency in the course

of growing up. This attitude also accounts for the 'disproportionate extent to which crime is a phenomenon of those

who are very young, and especially is it attributable to those

youths who are least successful in school, at work, or in their

family relationships. These are the persons who have least

"stake in conformity," and hence risk least when engaging

in crime.

Source: Jackson Toby, "Social Disorganization and Stake

in Conformity: Complementary Factors in the Predatory

Behavior of Young Hoodlums," Journal of Criminal Law,

Criminology and Police Science, 48, No. 1 (May-June

1957), pp. 12-17.
of arrest) and had to support themselves and their

children or receive welfare payments.4

A Women's Bureau study of women in the two

Federal reformatories shows, a similiar picturea

relatively young, poor, urban black woman who was

responsible for her children's anct her own economic

support with a low-paying, lowskilled job, or on

welfare. About 60 percent of the women surveyed

scored below the 8th grade level; only 3 percent

tested scoring at or above the 12th grade level. On

the other hand, two-thirds of these women had

normal or higher intelligence measured on intelligence tests.'

Education. Most prisoners have completed less

than nine grades of school. The actual tested school

achievement level of inmates is at the 5th or 6th

grade, usually a couple of grades below their years

of schooling recorded. It is clear that most prisoners

would be better prepared for today's job market and

for other responsibilities of noncriminal life if they

had more education. Tests show that the intelligence

of persons in prison does not differ markedly from

those outside. It is argued that most of their school

retardation comes from lack of motivation to perform well in school rather than to intelligence below

the level needed to progress at a normal rate. Their

lack of past educational effort *generally reflects the

interruption of school by delinquent and criminal

behavior followed by incarceration.

Marital Status. At time of release from prison a

third of releasees are married, half are single, and the

rest are divorced or widowed. Changes in marital

status have a significant effect on employment in the

population in general (at the time a man marries, he

tends to accept financial responsibility for himself

and his family).

Economic Status. Very few offenders in institutions have had a regular work history. Poor education and limited opportunities are reflected in high

unemployment, low wages, intermittent and low

status work patterns, and welfare. A survey of Federal releasees found that more than half had worked

in unstilted or service jobs prior to commitment, and

more than 40 percent returned to such jobs upon

release. According to data from the. 1960 census,

over 30 percent of State and Federal inmates in April

1960 had been laborers, whereas only 10 percent of

the male civilian labor force as a whole were labor-

'I Report of Correctional Task Force of Office of Training

Program Administration, Manpower Administration, U.S.

Department of Labor. 1973, pp. 122-125.

ers. Furthermore, this occupational group had an

unemployment rate of over 10 percent, highest of

any group.

More recent data on occupations of offenders will

be available from a survey to be released by the

Justice Department late in 1974.

The offender population is a part of a much larger

group with severe employment problems. Their removal from the labor market by incarceration, with

its concomitant transitional difficulties, makes these

problems even worse.

Ninety percent Of the men in state prisons have

been convicted of some form of stealing. Larceny

and burglary occur more frequently than any other

felonies and are among the most recidivistic crimes.

Most arrests for larceny and burglary occur during

adolescence. Forgery, fraud and embezzlement are

the_only property felonies that have a median age

at arrest beyond early youth.

Recidivism and Employment. Age, type of offense,

and prior criminality are major predictdrs of recidivism. Offenses most likely to be repeated are

those of an economic nonviolent nature. The youthful property offender is most likely to "reenter the

system" upon release but most people who are convicted once do not recidivate, particularly if they are

men over 45.

Accurate recidivism statistics are not available

because of differing definitions and lack of recordkeeping. But it is clear that most recidivism occurs

shortly after an inmate is released. Within 5 years

from 30 to 75 percent of released prisoners are returned to custody. (This range includes the estimates

of most students of the subject.)

As Glaser puts it, "What becomes increasingly

clear from all of the case studies and statistics on

criminal careers is that. . .. Almost all criminals follow a zigzag path. They go from noncrime to crime

and to noncrime again. . . . Sometimes this sequence

is repeated many times, but sometimes they revert

to crime only once; sdmetimes these shifts are for a

long duration or even permanent and sometimes

they are shortlived." 5

Glazer offers significant data on the relationship

between vocational training, post release employment, and recidivism. He concludes that the offender's lack of education, and low vocational skills

undoubtedly contribute to his difficulties in making

a go of it in the community. The typical offender has

been employed sporadically (in jobs with little or no

6 Daniel Glaser, The Effectiveness of a Prison and Parole

5 Ibid. System. New. York: The Bobbs Merrill Co., Inc. 1964, p. 85.

5

16
career potential). Forty-six percent of the offenders

included in Glaser's study had been employed less

than 50 percent of the time in the 2 years prior to

incarceration!

Pownall and Evans analyzed the employmentrecidivism picture further and have reached similar

conclusions. They stress the inverse relationship and

the importance of steady employment in preventing

a return to crimina behavior. The longest work experience prior to incarceration was less than 2 years

for 78 percent of the releasees included in Pownall's

study. Fifty-six percent were unemployed or had

been-employed-less than 6 months in the job held

just prior to commitment. But the longer a man had

been employed before being incarcerated, the more

likely he was to hold a job upon his release.'

Glaser says that those who revert to crime apparently do so largely because they have difficulty in

procuring adequate noncriminal employment, because they have inadequate economic resources at

release, and because they continue social contacts

with persons of criminal background. Furthermore,

the releasees have limited confidence itt their ability

to achieve their economic goals legitimately. This

Lack of confidence is warranted by their past failures

and by their continuing difficulties, which reflect

their lack of the skills and the experience required

to attain legitimately the occupations and standards

of living to which they aspire.'

Wellford argues that recidivism and employment

are probably highly correlated because of their relationship to other truly explanatory variables; they do

not cause each other, they simply co-vary.° Since

the skill level of a man coming out of prison has not

usually improved, his job opportunity is basically

unchanged from before when he "decided" to commit

a crime rather than take a menial straight job. His

decision to go straight and become employed must

7 Ibid., p. 231.

8 George A. Pownall, Employment Problems of Released

Prisoners, Manpower Administration, V.S. Department of Labor, 1969.

° "Nevertheless, most ex criminals eventually fix upon a way of life in which they are not subject to arrest for

felonies, for only such a fact could account for the low

median age of persons arrested for a felony. in view of the

low probability that a person could indefinitely repeat the

gamble involved in most felonies without being caught."

Glaser, The Effectiveness of a Prison and Parole System, p. 490. a 10 Charles Wellford, "Manpower and Recidivism," Proceedings: The National Workshop of Corrections and Parole

Administration, Feb. 20-23, 1972, New Orleans, La., American Correctional Association,. pp. 113-120.

6

17

be based not on his desire for and ability to find

unskilled employment, but on other factors that have

moved him away from crime as a way of accomplishing certain goals. Whether this be maturation,

the proverbial "getting tired of hustling," or the influence of family, it affects both employment and

criminal behavior. The decision causes the correlation. Wellford concludes that success in reducing

recidivism will be based on understanding that decision and not on the ways we can find to increase jobs

for ex offenders. Whatever the outcome of the research in this area, it does not reduce the need for

employment of ex offenders, for our society offers

few other alternatives for legitimate income.

C. Delivery of Manpower Services

When one considers the poor match between

offender economic status and job skills on the one

hand and the exigencies of the job market and restrictions on hiring offenders or ex offenders on the

other, the need for manpower services is obvious.

Manpower services cast help an offender increase

his employability through

Evaluation of aptitudes and abilities

Work orientation, work discipline

Skill training

Basic education

Supportive services

Job developiAnt

Placement

Follow up

The payoff of any manpower service is placement

in a job. A problem often reported in the evaluation

of offender-employment efforts is a lack of success

due to a failure to provide comprehensive job related

services. The difficulty is knowing just how many and

what type of services are required. Furthermore, the

offender may be provided everything except the one

thing he requires most, sable and rewarding employment. Since most offenders tend to be individuals

with low job skills, limited worked experience, and

perhaps poor work attitudes, job goals must be rather

limited initially if they are to be realistic and are to

apply to a large dumber of offenders. For those

with the potential, skill levels must be significantly

increased and high paying jobs with significant advancement 'opportunities sought.

As the high unemployment rate of offenders indicates, follow-through to the placement stage is often

lacking. Many offenders cannot get jobs on their own.
When placements are made, they commonly entail

low-paying jobs offering little other inducement to

the offender. Only 5 to 10 percent of ex prisoners

get help from the local employment service office in

finding their first job, and almost none turn to it later

in their careers. Less than a fourth of those who find

jobs apply the work experience or training acquired

in prison."

11 Pownall, Employment Problems of Released Prisoners,

p. 115.

Placement efforts of recent experimental programs

will be summarized in the next chapter. They vary

from programs in which the client is expected to

develop his sense of responsibility by learning the

search procedures for finding his own job, to those

programs with job developers who furnish clients

with lists of openings and make appointments for

interviews, to which they may even accompany the

client.

18

7

ti
CHAPTER 2. WHERE PROGRAMS STAND TODAY

In the past when an individual broke the law there

were few options; he could be incarcerated or let go,

with or without supervision. Today corrections reform pursues many alternatives to prison. We have

begun the decriminalization of certain activities such

as drunkenness and prostitution that constitute

morally objectionable private behavior. We are turning over to medical and social welfare specialists the

care of drug addicted and mentally disturbed individuals. We are deliberately diverting many offenders

from prison to community programs and at the same

time offering community programs to those who have

already served in prison and who need assistance in

readjusting to the outside world. Manpower services

have emerged as a major focus in many of the community programs for the offender and the former

offender.

Programs have taken many forms and pursue

many objectives. They are necessarily influenced and

shaped by the organizations that sponsor them and

that intervene at various stages. These organizations

have different goals and diverse groups to deal with.'

The following pages summarize the major trends of

their activities, with emphasis on recent innovative

practices.

A. Vocational Training in Institutions

General. Formal systems of vocational training

began to expand in the United States in the late

nineteenth century as a response not only to the

educational needs of a rapidly growing high school

population but also to industrial demand for skilled

workers not being met through apprenticeship or

immigration. Vocational training in correctional institutions began with the opening of the Elmira

Reformatory in 1:876.

Vocational training was designed, if not as a substitute for apprenticeship, at least with the same types

of crafts or trades in mind. Modern industrial and

service jobs are so different from the traditional

I For example, probationers have different characteristics

from parolees. Usually probationers are younger, this is

more likely to be their first experience with the law, and

they have not had the disruptive experience of prison.

8

19

crafts and trades that it is not surprising that pre

employment classroom training has not been the

most successful means of preparing individuals for

work.

Recognition that a large proportion of inmates is - unskilled has provided the impetus for vocational

training in prisons, even though there are serious

obstacles in the way of success.

Extent and Content. Unfortunately, most estimates

of the extent of training lump together formal training coures and informal on-the-job training in prison

industries. The latter frequently. lack variety and

relevance, and while some inmates undoubtedly

benefit from the training aspects of their prison employment, it is difficult to assess the effect of such

informal training in the aggregate.

The scope of vocational training programs varies,

depending on the size and financial capability of the '

correctional system. The Federal Bureau of Prisons

reported that in fiscal 1973 over 5,000 inmates completed vocational training. According to Pownall,

training programs in Federal prisons are concentrated in the institutions that have the youngest

inmates.2

A 1972 survey of vocational training in correctional institutions recorded 12,868 trainees enrolled

in 855 vocational education programs in state and

Federal institutions.3 This represents less than 10

percent of the 130,800 population of the responding

institutions. More than half of the institutions offered

five or fewer vocational programs. The most common

programs, representing 53 percent of the programs

reported, were: auto mechanics, arc and acetylene

welding, machine shop, masonry, radio and TV repair, auto body repair, carpentry, barbering, baking

2 Pownall, Employmott Problems of Released Prisoners,"

p. 12.

2 Donald Richard Neff, "Summary, Conclusions and

Recommendations of Vocational Education in State and

Federal Adult Correctional Institutions in the United States"

(from a doctoral research study, August, 1972).

There were 202 institutions that responded. This number

represents 77.6 percent of those institutions which were

contacted (Federal, state and local with over 100 male

inmates and all those housing women). Texas and South

Carolina protded division-wide responses that included all

of the correctional institutions' vocational education programs for their respective states.
and cooking, architectural and mechanical drafting,

air conditioning and refrigeration, and small engine

repair.

Evaluation of vocational training in institutions

has been confined for the most part to informal observation, but Far West Laboratory recently sifted

reports on 1,000 programs and came up with only

66 that the staff considered were effective enough to

be described in their Sourcebook.4 They fOund that

a traditional mixture of classroom chalk-and-talk

and shop-area experience in manipulating tools of

the trade are the most common methods used in institutional, training. Some demonstration and pilot

programs are using innovative approaches, as will

be discussed later.

Frequently, courses are tied to prison maintenance,

either because it is necessary in order to run the

institution, or because it is the only feasible way to

obtain the materials and experience needed for the

course. The danger is that priorities may become confused as the administration of the institution begins

to view the course as existing primarily to provide

food services, barbering, upholstery of prison furniture, or repair of institution vehicles.8 Often a reverse

process takes place, with institutional maintenance

courses evolving into vocational training programs,

which may or may not have relevance to the job

market the offender will face or to his training

preferences.

Enrollment in a single vocational program ranged

from one trainee to 102 trainees, according to the

1972 survey. Sixty-eight percent had 6 hours or more

instruction time a day. Seventeen percent had between 3 and 4 hours of instruction time. Over half of

the vocational programs included 1 to 2 hours of

related instruction a day in such matters as theory

or related mathematics.

The most common length of vocational programs

was 1 year, the next common was 6 months. Threefourths of the programs were of the open entry/open

exit type.

The teacher-trainee ratio was one teacher for every

12 trainees. There were 1,044 civilian teachers and

134 inmate teachers. Over 80 percent of the civilian

teachers held vocational teaching certificates from

4 A Guide to Correctional Vocational Training: The First

National Sourcebook. July 1973, produced by New England

Resource Center for Occupational Education, Newton,

Massachusetts, and Far West Laboratory for Educational

Research and Development, San Francisco, California.

The continual struggle to keep training schedules from

being washed away by production needs is reminiscent of

the same struggle recounted by training directors in industry.

their state.

Vocational education personnel had some responsibility for the selection and screening of the trainee

for vocational programs in 93 percent of the responding institutions.

Seventy-four .or 40 percent of the 1,85 institutions

included in the survey had funds budgeted specifically

for vocational education. Sixty-four percent of all

the vocational programs were sponsored directly by

the institution. Thirty-six percent of the programs

were funded by outside sources.

A little more than half of the institutions with

programs reported some form of job placement connected with their vocational education programs.

This is in most cases extremely informal and likely

to be haphazard,6 as will be discussed later in this

chapter.

Criticism of Inmate Training. Criticism of inmate

vocational training has been harsh. "In isolated settings, divorced from labor markets, working with

second-rate materials and a highly disadvantaged

clientele, vocational training alone seems to have

minimal impact," 7 On the other hand, Wellford does

say, ". for the minority who gain skills in priSon

at which they can find a post-release vocation, prison

work experience and training is a major rehabilitative influence!' 8

"A member of the Bureau of Prisons staff says that

it is becoming increasingly difficult to provide meaningful vocational and industrial education inside a

correctional facility.° She confirms that much of the

training, whether under the guise of on the job training in institutional maintenance or prison industries,

or whether in vocational training shops and in related classroom instruction, uses obsolete equipment

and production standards that are much lower than

those in private industry. As a result, she concludes

that most prison occupational training programs have

been ineffective in terms of preparation for specific

post release employment.

6 In one state institution for women visited for the research

on this project, the two vocational counselors had no idea

how many women had a job when they left the institution

and no statistics were available. Interviews with corrections

authorities indicate that this lack of basic information is common. 7 Robert Taggart III, The Prison of Unemployment, Manpower Programs for Offenders. Policy Studies in Employ- ment and Welfare #14, Gera cd.: Sar A. Levitan and

Garth L. Mangum, Baltimore and London: The Johns

Hopkins University Press, 1972, p. 49.

Wellford, "Manpower and Recidivism," pp. 117-120.

9 Sylvia G. McCollum, The Potential of New Educational

Delivery Systems for Correctional Treaonent, A Correctional Education Handbook, April 1973, pp. 7-8.

20

9
"In too many cases, these traditional training

programs bear no relationship to the actual vocational interests or aptitudes of the inmate/students.

If an inmate is faced with a limited number of

choices, he frequently 'selects' what's available,

quite apart from personal interests. Many institutions offer long waiting lists for future classes as

supporting evidence of inmate interest in traditional vocational training areas. All too often, this

is evidence, not of popularity or relevance of the

course, but rather of the reality that there are no

alternatives open to the prisoner. It is highly unlikely that the individual preferences, aspirations,

and competency levels of 500 individuals, who

who happen to share a common address, the correctional facility, can be met by four or five or

even 10 vocational and industrial occupational

educational areas." lo

Recent Developments. In the early 1960's much

more comprehensive employment-oriented training

and manpower services than the traditional vocational training offered were introduced through the

implementation of the Manpower Development and

Training Act." Such training has had significant impact on the quantity and quality of inmate training,

and has provided some useful research on effective

techniques. Inmates receive job training, remedial

and basic education, vocational and personal-social

counseling services, job development and placement

services, and follow up services.

In 1964-65, the first experimental and demonstration MDT projects were undertaken at Rikers Island

in New York, the Youth Center at Lorton, Va.,

Project First Chance in South Carolina, and the

Draper Institution in Elmore, Ala., to test the feasibility of MDT job training in prisons and measure its

carryover to the community. The ensuing programs

demonstrated the feasibility of broad-scale extension

and administration of inmate training.

During the fiscal year 1971, the prison inmate

program furnished vocational training to over 4,500

inmates in 48 projects in such traditional skills as

welding, auto body repair, drafting, and upholstering,

auto mechanics, as well as in more recent additions

1° Ibid., p. 8.

In December 1973. the Comprehensive Employment

and Training Act (CETA) replaced the Federal manpower

programs authorized by the Manpower Development and

Training Act and the Economic Opportunity Act and similar

legislation or fund apportionment. CETA authorizes grants

of Federal funds to state and major counties and cities that

plan and operate their own programs and control allocation

of the grant.

10

21-

such as electronics, office machine repair, offset

press, computer programming, animal training, and

deep sea diving.

One of the first, if not the first, training facilities

for inmates located "outside-the-walls" and intended

to serve ex offenders and community enrollees as

well as inmates began training the first class of inmates in the new training facility at Holmesburg

prison in Philadelphia in March 1974.

The training offered covers welding, appliance

repair and auto repair. All equipment in the facility

and all techniques are completely up to date. The

instructional portion of the training is under the

direction of the Philadelphia School Board through

and by HEW regulations.

The training program is closely coordinated with

the State ex offenders placement program with five

employment service staff people detailed to work

under the direction of the Superintendent of Prisons.

Innovative techniques such as programmed learning and incentives are used in many places. However,

there have been problems with types of programs

being offered. Pieczenik reports that training was

offered in skills in high demand in the community

but for which there was fierce competition for the

openings available (e.g., welding, auto mechanics,

auto-body repair). Training in certain areas was

sometimes considered undesirable by other disadvantaged groups for reasons of working conditions

and salary (e.g., hospital and restaurant work). A

strong educational background was needed for some

training (e.g., refrigeration repair, radio and TV repair). Low starting salaries and high cost of tools

was a problem in others (e.g., barbering).. Some

training had no market (e.g., technical writing).'2

One of the Labor Department funded experimental programs that bears watching currently is Mutual,

Agreement Programming (MAP), an American Corirectioinal Association Project, Its basis is a contract

between inmate, institution, and parole board, that

includes a definite parole date contingent upon the

completion of mutually agreed-upon rehabilitation

goals, including job training in most cases. The inmate must complete the program objectives and prepare for release and employment. However, MAP

also places responsibility on others in the system.

Parole board members must formulate definite al.,

teria for parole and inmate goals. Corrections per12 Roberta Rovner-Pieczenik, of Criminal Justice Research,

Inc., A Review of Manpower R & D Projects in the Correctional Field (1963-1973). Manpower Research Monograph

No, 28, U.S. Government Printing Office, 1973, pp. 37-50,
sonnel must provide programs. Staff are responsible

and accountable for ihdividual program components.

Community agencies coordinate their services with

those of corrections.

MAP is, then, a vehicle for coordination, responsibility and accountability among correctional

agencies and community agencies. It is designed to

facilitate rehabilitation, and improve the coordination

of correctional administrators and parole authorities

in planning meaningful training and placement for

criminal offenders, one of the most needed reforms

in corrections. Projects have been in effect in Arizona, California, and Wisconsin. Maryland plans to

institute the MAP program throughout the State in

1974 and 10 other states are expected to follow by

the end of the year.

B. Placement from Institutions

More than 100,000 persons leave Federal and

state prisons each year. Special personnel to serve

their placement needs are pitifully few. As of July,

1972, the Federal Bureau of Prisons employed 33

community program officers to assist some 13,000

releasees a year from 40 institutions. Program officers

are responsible for knowing about labor market conditions in their area, maintaining liaison with state

employment offices, and placing former inmates in

jobs. With the large number of institutions and their

geographical dispersion, very little actual service is

available to the offender.'3 Of 153 inmates released

in July 1972, from five institutions, 130 said they

did not know that job placement services were offered

by the community program officers.

New York parole officers helped obtain only 506

jobs in 1970, although over 16,000 people were on

parole from that state's institutions sometime during

the year, of whom 5,680 were employed full time."

Only a handful of state parole- probation offices have

employment specialists on their staff.

A successful placement program worth examining

is that of seven key public agencies in Louisville,

Kentucky, which have pooled their efforts to find

jobs for ex offenders into a central office. In its first

year of operation the Clearinghouse provided employment services to more than 1,000 former pris-

" On the other hand. Report to the Congress: Rehabilitating Inmates of Federal Prisons: Special Programs Help, But

Not Enoug,h. the Comptroller General of the United States,

Nov. 6. 1973, says that of a sample of 68 persons with jobs

who were released in 1972, only 9 had obtained employment

through Bureau of Prisons assistance programs (p. 34).

" Tom Wicker, New York Times, March 8. 1974, p. 33.

oners; it found new or better jobs for 636 people,

who start at an average pay rate of more than $2.50

an hour. It made nearly 2,000 job referrals, individually counseled hundreds on special employment

problems such as bonding or licensing, placed two

tozen in training programs, andin its secondary

missionreferred 247 ex prisoners to legal or mental

health services and sources of emergency funds or

temporary lodging. All prisoners in the prerelease

stage are told of the Clearinghouse's capabilities. A

summary of how it operates is found in Chapter 4.

Unless it has roots in the community' with job

placement capability, an inmate training program

cannot be a useful rehabilitative tool. The Maryland

Correctional Training Center program is an example

of how various organizations can pool their resources

to develop an effective program.'5 Baltimore AFLCIO union members provide, with corporate assistance, nine weeks of job training in the prison for first

offenders, age 16-26. Bethlehem StecIrCo. andaryland Drydock Co, have provided over $70,000 in

training equipment and employed many of the welding graduates. The Baltimore Model Cities Agency

has provided counseling and financial support for the

project. One indication of the results of this cooperation is that of 146 inmates who completed training

and left prison only 12 percent have returned.

C. Work Release and Prerelease

Work Release. Work ielease is one of the oldest

and most successful programs designed to ease transition to civilian-life. Inmates work at patreiriployment in the community, returning to confinement

during nonwork hours. Most aft. is the young

adult man who is the target of the program.

The first work release legislation was enacted in

Wisconsin in 1913. Commonly known as "The Huber

Law," this statute permits a judge sentencing an offender to county jail to authorize release of the

offender during normal working hours to return to

his past employment or to work- on a job found for

him by the sheriff. The law authorizes the sheriff to

collect the offender's wages, from which the county

is reimbursed for the offender's board and other e*-

penses in jail. The releasee can authorize the sheriff

to use any additional wages toward the support of

the offender's family or to pay debts. Any balance at

the time of final release is turned over to the offender.

15 For further information, contact the Superintendent

of the Maryland Correctional Training Center. Hagerstown,

Md. 21740.

22

11.
No further legislation was enacted until the mid50's when Virginia and North Carolina passed work

release laws. Since then 41 other states, the District

of Columbia, and the Federal government have

authorized work release. Table 1 shows the number

on work release in each state in 1971.

Prerelease Centers. Another of the most iniertant

advances in the rehabilitation of prisoners has been

the establishment of centers for prerelease guidance

in the large urban areas, from which most prisoners

come and to which they return. These centers provide an intermediate condition between prison and

complete parole or discharge. Increasingly they also

are used as an alternative to prison or probation.

The first Federal agencies of this type were known

as "prerelease guidance centers." They were opened

in Chicago, Los Angeles, and New York in 1961. A

center that opened in Detroit about a year later is operated jointly with the Michigan Department of Corrections and holds both state and Federal young adult

offenders. Similar centers have since been established

in Kansas City, Washington, D.C., and elsewhere."

Each center has a director, who has considerable

correctional casework experience, a caseworker, one

to three general purpose staff known as "correctional

counselors," and a specialist in employment counseling. Additional part-time employees are recruited

from among local graduate students in appropriate

disciplines. The centers originally had a high ratio

of staff to inmates, but experience has shown that

fewer are necessary and now the prevailing ratio is

One employee to every six inmates.

When a youth arrives at a center, he is restricted

to it for about 2 days. He arrives at the center in

civilian clothes, in most cases those issued by the

deral prison from which he has been transferred.

He may receive other civilian clothes from his family

or buy them if this seems desirable. In his first days

at the center he is made familiar with the facilities

and what is expected of him. He begins personal

counseling and employment counseling, and participates in evening programs of group counseling, lectures and special audiovisual programs. The latter

programs and speakers recruited from the community

deal with problems that young men encounter in trying to establish economic self-sufficiency and a satisfying social life in the community.

Two or three days after the men arrive they are

given job leads or they are referred to a staff person

in the state employment office with whom the em-

" Glaser, Effectiveness of Prison and Parole System, pp. 277-281.

12

23

TABLE 1. INMATES ON WORK RELEASE,

BY STATE PRISON-1971

Number of

Men on

Work Release

Total Adult

Male

Population

Percent of

Men on

Work Release

Alabama None 4,000

Alaska 47 400 1L8

Arizona 12 1,350 0.9

Arkansas None 1,324

California 300 17,900 1.7

Colorado 36 1,943 1.9

Connecticut 14 1,500 0.9

Delaware 120 600 20.0

District of Columbia 326 1,700 19.2

Florida 650 9,000 7.2

Georgia 85 6,215 1.4

Hawaii 25 256 9.8

Idaho 12 391 3.1

Illinois 100 7,086 1.4

Indiana 150 4,500 3.3

Iowa 115 1,600 7.2

Kansas (No estimate available) 660

Kentucky None 3,010

Louisiana 125 4,100 3.0

Maine None 350

Maryland 300 5,000 6.0

Massachusetts 15 2,300 0.7

Michigan 104 9,210 1.1

Minnesota 36 1,651 2.2

Mississ4ppi None 1,850

Missouri (Nsy,estrimate available) 3,449

Montana 10 272 3.7

Nebraska 40 1,000 4.0

Nevada None 705

New Hampshire 10 217 4.6

New Jersey 125 5,500 2.3

New Mexico 7 742 0.9* New York (No estimate

available) 12,208

North Carolina 1,075 10,076 10.7

North Dakota 3 137 2.2

Ohio None 9,145

Oklahoma 35 3,112 1.1

Oregon 133 1,831 7.3

Pennsylvania None 5,328

Rhode Island 35 550 6.4

South Carolina 575 3,267 17.6

South Dakota 17 389 4.4

Tennessee 146 3,300 4.4

Texas 36 14,640 0.2

Utah 40 540 7.4

Vermont None 142

Virginia 150 6,000 2.5

Washington 125 2,437 5.1

WestVjainia None 1,046

Wisconsin 450 2,600 17.3

Wyoming None 257

Source: Kenneth J. Lenihan. The Fbrithcial RefORFCVS of Rehawi

Primmer:, Bureau of Social Science Research, Inc., Wabhington, D.C., March 1974, p. IS.
ployment counselor has a working relationship. They

may also follow up their own employment leads. The

employment counselors will travel with some of the

more inadequate youths to introduce them to personnel at the employment service or to potential

employers, but they prefer to have a youth apply for

and obtain a job on his own if possible. When a youth

finds employment, he leaves the center each morning

to go to work and returns each night.

At the end of their first day's work, and regularly

thereafter; the inmates discuss their experience on

the job with the employment counselor or with other

members of the staff. They may also discuss job

experiences in the group counseling sessions.

As the men begin to earn an income, they start

paying for some of their expenses, which include

meals and laundry. A major emphasis in the counseling, when the men have some earnings, is on

budgeting. The bank account, ofterrttiMaining several hundred dollars byyarole date, is a new experience for most of these yo uths, and its size is a source

of considerable prestige.

After the men arrive at the centers they are introduced to their future parole supervision officer from

the local U.S. Probation Office. Counseling responsibility is shifted gradually from the center staff to

the probation officer, who is consulted regarding a

youth's plans or problems, especially if the plans

involve a change in parole, home or job. By the time

a youth is ready to start his parole (3 or 4 months

after arrival), his counseling supervision has been

completely shifted to the parole officer and he is not

encouraged to return to the center. However, in the

few instances when men have returned to talk about

post release problems with members of the center

staff, their problems are discussed with them, but

their probation officer is also called into the conference if possible or is kept informed. In the center

at Oakland, California the probation officers have

the sole case management and counseling responsibility from the beginning.

Pros and Cons. The release of prisoners to work

in the community can present large problems if the

program is not well administered. The community

may not be receptive to a sizeable influex of prigoners. For example, the Federal program reflects

sensitivity to union interests. Public Law 89-176

states that prisoners may be released to work at paid

employment in the community provided that:

(1) "representatives of local union central bodies

or similar labor Onion organizations are consulted;

(ii) such paid employment will not result in the

displacement of employed workers, or be applied in skills, crafts, or trades in which there

is a surplus of available gainful labor in the

locality to impair existing contracts for services; and

(iii) the rates of pay and other conditions of employment will not be less than those paid or

provided for work of similar nature in the

localityipialich the work is to be performed."

The establishment of prerelease and work release

centers requires tact and careful site selection. Some

communities may need reassurance when residential

facilities are being established. One issue is the possibility of escape. The correctional administrator,

aware of the careful selection process for work release, may have confidence in his prisoners, but his

knowledge is not necessarily shared by the public.

The benefits to the offender on work release are

readily apparent. For the misdemeanant it means

continuation of family and employment ties. For the

felon, it reduces the dislocating effects of release such

as resuming his responsibilities immediately, with

welfare aid to the family terminated all too often

before he is in a position to shoulder family expenses.

Work release provides a transitional period that

can reduce the floundering often experienced by the

man who must accept any job in order to gain his

freedom on parole. However, in many cases, the

work release facility is far from his home location

where the man will be released, and he will have to

find new work there unless he stays where the work

release facility is located.

The opportunity for gainful employment has psychological results that cannot be measured. Receiving

financial support strengthens family ties. For the

inmate who had steady employment before imprisonment, the job that pays a fair wage can only have a

positive effect. For those who have learned a skill

in the institution, work release offers an excellent

opportunity to test out a, new occupation. For others,

the job may be a training situation in which new

skills are acquired.

When the Bureau of Prisons compared persons

released directly from prisons with those released

through the community treatment centers, they found

lower violation rates for the latter and differences in

rates were most marked in the highest risk categories

recidivist youthful auto thieves."

" Reis H. Hall, Mildred Milazzo and Judy --Pasner, A

Descriptive and Comparative Study of Recidivism in PreRelease Guidance Center Releasees, U.S. Bureau of Prisons.

Washington, D.C. 1966, pp. 4-5.

24

13
Just as important as the effects on individual prisoners are far-reaching consequences for the corrections institution. More than any other innovation,

work release represents the shift of focus to the

community. Some state systems have begun to adopt

the prerelease system. South Carolina began with

one center; now has five, one of which is directed

by an ex offender.

As long as corrections restricted the rehabilitative

process to institutions removed from the community,

the physical and psychological distance created obstacles to program development and eventual reintegration of the offender. With work release and the

concomitant development of halfway houses or community treatment centers, the correctional institution

has extended itself into the community. To a certain

degree the policies and practices of corrections are

more visible.

D. Working Together

In large jurisdictions, where most institutional

programs exist, community agencies are sometimes

involved in program establishment and maintenance,

but liaison between prisons and other institutions has

a long way to go. Failure of follow through may be

responsible for much of the poor showing that many

rehabilitation efforts so far reveal. Effective working

relationships are crucial for manpower services

unless the resources of the institution are related to

the community network of business, government,

unions, and other agencies that hold the key to available jobs, the best vocational training in the world

will be wasted.

Attempts to improve liaison are occurring more

frequently. In some places, they are very informal

and are exemplified by one individual. In other areas

the linkages are becoming formalized. The beginnings of integrated state systems of corrections are

one example.

The development of liaison between the institution

and outside groups for advice is another. The Federal Bureau of Prisons works closely with unions,

and where apprenticeship is offered, with the Bureau

of Apprenticeship and Training of the y. Department of Labor for instructor certification and curriculum development.

California, Minnesota and other states have developed boards with representation from labor and

industry to advise on course development and labor

market needs. They also serve the purpose of assur14

25

ing that the training offered is recognized by the

unions.

Minnesota has developed apprenticeship programs

under the Apprenticeship Division of the State Industrial Commission. Advisory boards of labor and

industry have been organized for each trade offered.

Training courses- -meet the same standards as those

for outside apprenticeships. Apprenticeship begun in

the institution can be continued upon release.

The integration of correctional institution vocational training and education into the state system

of public instruction has been accomplished in Connecticut, Illinois, Texas, Virginia, and Wisconsin.

This means additional sources of funds, teachers,

accreditaton, and a better likelihood of obtaining

up-to-date equipment and supplies.

In order to concentrate employment service resources on bringing offenders into contact with jobs

and training opportunities, the U.S. Employment

Service developed model that would create a corrections desk in each state office as well as in the

state's largest urban area; station special counselors,

job developers, and community aides in correctional

institutions and in local employment service offices;

and hire former inmates to help other offenders make

the adjustment to outside life.

Arizona, Georgia, Massachusetts, Oklahoma,

Pennsylvania and Wisconsin have developed programs based on this model that are now under state

funding. Several other states now have one or two

employment service staff members assigned to specialize in ex offender employment.

The focus is on continuing service to inmates

before and after release to help them get and stay on

their jobs. The placement rate over a 3-year period

has ranged between 30 and, 60 percent with the

average being 41.5. In fact, the placement rate for

ex offenders has generally exceeded the placement

rate for non offenders. The employment service interviewers and counselors, located "inside-the-walls"

get to know the inmate who is about to be released

on a first-name basis. They learn about his background before coming to prison (what kind of work

he has donewhat skills he haswhat successes he

knew as an employee). They disseminate this record

to employment service job developers as well as to

other agencies or organizations and volunteers who

are interested in finding jobs for ex inmates. Everyone tries to "sell" employers on hiring this individually and specifically identified person on the

specifically named date of his release from prison.

In Philadelphia, for example, the potential employer
is urged to go to the prison and talk with his potential employee about the kind of work he would be

expected to do, the wages and benefits to be received,

the tools to be used, and the clothes to be worn.

E. Community Programs

Today the emphasis is on placement and training

programs in the community. With the it atution as

the last resort, intervention with "corrective" action

at earlier and earlier stages is becoming more common. This means an increase in facilities and programs designed to stimulate law-abiding behavior

through wider use of probation, parole, and pretrial

intervention. Rehabilitation programs have been deVeloped at these early stages of intervention by

various branches of government, unions and private

business, as well as by religious and other voluntary

organizations,

Post incarceration programs such as halfway

houses, volunteer assistance by ex offender and other

groups, and intensive job counseling and education

programs directed toward increased hiring of former

offenders exhibit great diversity at the moment. The

following paragraphs merely offer some idea of the

scope of these programs.

The National Alliance of Businessmen reported

placing over 2500 persons with criminal records as

of April 1974 in about 95 metropolitan areas. NAB

is primarily a job development resource that works

with the available job openings amongst its member

firms and notify the correction agency of these

openings.

One of the major automotive companies has auto

mechanic training programs in about 30 locations

and it regularly includes former offenders in some of

these programs. A number of firms conduct training

programs in institutions."'

Ex offender troups such as Project Second Chance,

The Fortune Society, and Project Manhood provide

counseling, referral services, screening, job development, and placement services for ex offenders. The

major role of the ex offender staff is to assist clients

in making their transition from prison. Because of

their backgrounds the counselors are particularly effective in understanding the problems of their clients

and in assisting them to develop their self-esteem.

South Forty and Seven Steps help clients both

during and after incarceration. Inmates are exposed

to a comprehensive program, including group prob- -

18 See Far West Sourrebook.

lem solving, basic education, counseling and job

readiness training. The most significant aspect of

these programs are the self-help group sessions,

which instill a sense of pride and motivation in the

inmates. Ex offenders provide counseling, placement,

housing and financial aid during the transition period

after release.

One program that has potential for offenders is the

Opportunities Industrialization Centers of America.

OIC's focus on self-motivation and self-development

of the client. Their training programs for members

of disadvantaged groups depend heavily on advice

and assistance from private industry, which keeps

them abreast of its needs. (See Chapter 3.)

The OIC prepared 116,344 persons for jobs in

1972, with a placement rate of 62 percent. Though

this is a respectable achievement compared with

other national manpower programs, nevertheless, it

represents about a 10 percent decrease over the

previous year. Placements were more difficult .due

to changed business conditions. The strong centers

with active business and industry advisory support

generally did a better placement job.

OIC reports that its average training cost is $852

per enrollee, and that OIC places its enrollees into

employment for $1500. The average trainee goes on

to earn a taxable income of $6000 during his first

year of employment after training.

Another particularly useful example of effective

community program is pretrial intervention, which

is discussed in the next section.

F. Pretrial Intervention

Deferred prosecution has existed in many jurisdictions for some time. Pretrial intervention programs

supplement this type of action by intensive supervision and management for up to 18 months.

A pretrial diversion project typically calls for stopping the prosecution clock on less serious or first

felony offenders after arrest and prior to arraignment. Referrals are based on formal eligibility criteria (being free from drugs is a common one). Those

selected for the program are offered counseling, job

placement, education and supportive personal services. If the offender responds for a measurable

period (e.g., 3-6 months), either the court or the

prosecutor, or both, depending on the authorization

of the project, are asked to approve dismissal of the

case prior to trial. and adjudication. If the offender

fails in his program obligations, he is returned for

15

26
prosecution. There are many variations on this basic

theme.

The two pilot programs were the Manhattan Court

Employment Project and the District of Columbia's

"Project Crossroads." Both began in 1968 with

Department, of Labor .manpower funds and were

sufficiently successful to be transferred to local government agencies and funding sources at extended

capacities. They responded to a need to alleviate

clogged court caseloads, and to the belief that for

selected offenders, effective assistance on the outside

will serve them better than incarceration."

Pretrial release can include any degree of private

and public agency assistance to the offender, including an assigned counselor, daily contact with the

releasing agency, temporary supervised housing, a

restitution program, as well as deferred prosecution.

The original pretrial programs have been carefully

studied and modifications according to varying needs

and circumstances are being operated in more than

55 jurisdictions." The Commission on Correctional

Facilities and Services of the American Bar Association furnishes assistance in developing new programs.

Pretrial intervention has thus far produced consistently better results with its participants than offenders handled by normal prosecution procedures.

Results have been unusually good with the early or

less serious offender. Recidivism and rearrest rates

are lower, and job retention and placement are

higher, although it must be granted that those chosen

for PTI participation usually are the better risks.

A considerable savings to the taxpayer occurs by

reducing costly and often unnecessary incarceration

of selected defendants prior to trial. Further savings

accrue when the released defendant is able to maintain employment during this period, thus reducing

the cost of welfare and other public agencies' support

to his family, as well as a savings in public agency

cost that may occur if the defendant becomes unemployed as a result of incarceration. Those who are

released prior to trial tend to secure legal counsel at

their own expense more often than those who are

12 See "Pretrial Intervention Correctional Services: A

Diversionary Alternative to Criminal Prosecution," Arnold

.1. Hopkins, address at American Correctional Association

Congress of Corrections, Seattle, Washington, August 14, 1973.

20 A Handbook on Conununity Corrections in Des kfoines

(An Exemplary Project), U.S. Department of Justice, LEAA,

NILECJ, Washington, D.C., describes a successful program

that is integrated with other community activities dealing

with ex offenders. Des Moines does not offer deferred

prosecution and deals with more serious offenders than the usual pretrial release programs.

16

2 7

pending trial. Finally, the stigma of incarceration is

avoided for the first offender.

Some of the problems become apparent when one

realizes that pretrial intervention or diversion lies

at the intersection of conflicting values and concerns

the right of bail, the risks of flight, the presumption of innocence, and the safety of the community.

G. Summing Up

With the exception of work release, most of nontraditional manpower programs and services are still

experimental. While most lack validating research

as to their results, they represent a considerable

advance over a decade ago.' There are sufficient

indications of their utility not only in terms of reducing costs but also in reducing the isolating effects

of institutions and focussing on the reintegration of

offenders into their communities. Such reintegration

is the ultimate test of the effects of the correctional

process.

Early projects were based in the prison and

focussed on skill training. They pinpointed the need

for change within the individual offender. Over the

years emphasis has shifted to projects within the

community that focus on job development and placement. They highlight the need for change within

social institutions as well.

The first generation of manpower programs for

offenders were aimed at the young male offender.

They generally attempted to exclude the mentally ill,

the alcoholic and the drug addict. As more is learned

about working with offenders with problems susceptible to solution through employment, -these. groups

are gradually being accepted in programs.

Proposed model programs are now being directed

toward female offenders and ex offenders, older

prison releasees, juvenile delinquents, Spanishspeaking offenders, and offenders who are heads of

household eligible for welfare.

One of the most important facts the models seek

to find out is: at what point or points in the criminal

justice systemfrom arrest to releasecan a particular offender group best be given manpower services.

The foregoing years of experimental, demonstration, research and evaluation effort have produced

strong evidence of the value of a comprehensive

approach to employment and training problems of

21 Robert Martinson. "What WorksQuestions and Answers About Prison Reform," The Public Interest. Number

35, Spring 1974, publ. quarterly by National Affairs. Inc.,

10 East 53 Street, New York, New York, pp. 24-55.

1^.
offenders. A balanced program of manpower services

at each stage of the criminal justice systempretrial,

probation, incarceration, parole, and after release

should be stressed rather than sole concentration on

inmate training.22 Since most offenders are already in

society, whether on bail, or probation, or parole, or

in community-based corrections and since they may

22 See Pieczenik, Review of Manpower R & D Projects.

28

remain at one stage of the criminal justice system

for a long time and may exit from the system at a

number of points, it is vital that there be program

options at each stage of the criminal justice and corrections system to offer a continuous sequence-oV--

services. Some of the best techniques, as judged by

current acceptance, are set forth in the following

chapters.

17
PART II

APPROACHES TO JOB PLACEMENT

AND TRAINING

29
INTRODUCTION

Chapters 3 and 4 offer information on how to

(1) help an individual prepare himself for a job,

(2) develop jobs, (3) see that former offenders are

properly placed, and (4) create a stable relationship

between the employer and the employee. They deal

with complicated processes taking place on many

.levels at the same time. Program approaches vary

with whether they take place in institutions or outside or in both successively, and with the varying

objectives of different types of sponsors: The stage

of intervention also heavily affects program decisions. A vQ1ume whose scope includes Wall manpower

programs for offenders and ex offenders can, there,

fore, only highlight some of the areas of decision

and a few of the troublesome issues for specific types

of programs. The authors' aim is to present a coordinated look at a selection of useful approaches.

The reader may also want to use Chapter 2 as a

supplemental resource with these chapters.

The procedures outlined are meant for thought

and study and adaptation to local needs and local

resources. There is no single approach that has

universal validity. Resources within each community

differ and they will have to be applied in different

ways to meet particular needs.

These pages owe a large debt to the LEAA

Exemplary Project validation reports and to the

pioneering studies listed below, as well as to all

those who generously discussed their programs with

the a tItho rs.

The Draper E & D Project, Final Report, Vols.

I and II, Sept. 1, 1964-Aug. 31, 1968. The Rehabilitation Research Foundation, Elmore, Alabama. Volume II is a manual directed toward administrators

of institutional job training, with useful points on

job duties and how to go about them, as well as

sample forms. Much of. the information is transferable to community programs.

A Guide to Correctional Vocational Training:

The First National Sourcebook, July 1973, produced

by New England Resource Center for Occupational

Education, Newton, Massachusetts, and Far West

Laboratory for Educational Research and Development, San Francisco, California. The Sourcebook

reports on 66 out of 1000 training programs identifled originally, which operate in correctional institutions or serve inmate-students in outside training.

facilities. It is the first major research that details

how various inmate training programs are implemented, financed and operated. It lists' descriptive

t and curriculum materials available and whom to

contact for further information.

Ordering Time to Serve Prisoners: A Manual for

the Planning and Administering of Work Release,

by Walter H. Busher. National Work Release Study,

American Justice Institute, Sacramento, California,

June 1973, U.S. Department of Justice, Law Enforcement Assistance Administration, Technical Assistance Division. A step by step manual for the

operation of a work release program with pertinent

information for any manpower services program.

A Review of Manpower R & D Projects in the

Correctional Field (1963-1973), by Roberta RovnerPieczenik of Criminal Justice Research, Inc., Manpower Research Monograph No. 28, U.S. Govern

ment Printing Office, 1973. History and analysis of

projects with emphasis on issues relating to project

success.

The Selection and Training of Advocates and

Screeners for a Pre-Trial Diversion Program, prepared by Boston Court Resource Project, 14 Somerset Street, Boston, Massachusetts 02108, $2.00. A

handbook that will be useful for running any community corrections program.

Project Challenge, Lorton, Virginia, 1968, National Committee for Children and Youth, Leon G.

Leiberg, Project Director. A detailed report on

methods and results of a comprehensive program for

felons sentenced to Lorton Youth Center based upon

job training and placement. Project Challenge, begun

on July 1, 1966, was designed to offer these young

offenders (1) a coordinated schedule of vocational

training and remedial education, (2) intensive counseling designed to instill positive social attitudes and

to assist the trainees in identifying with the social

and economic system to which they would return

upon release, (3) a systematic follow-up program of

job development and placement and individual family and career counseling after release from the

institution.

30

21
CHAPTER 3. JOB READINESS

Any attempt to make employment more readily

available for offenders arid ex offenders must ;ntegrate a number of activities in order to be effective. A worker must have motivation, job skills,

work discipline, and education. A manpower services

program begins with the selection process and find-

, ing out who needs what.

A. Selection

The criteria for selection of program participants

will differ by stage of interventionwhether pretrial,

probation, institution, parole, or post release. They

will vary by objectives chosen for a given program,

whether it be a prison program, a halfway in or

halfway out residence program, work release or a

less confined program.

The strategy of the program having been made

explickt (such as to take those who are the most

likely to succeedor the opposite), factors for conlideration include age, sex, type of crime, major

mental or physical handicaps, underemployment or

unemployment. The following excerpt from Project

Challenge describes some of the thinking that goes

into this process.'

The design of the screening and selection component of the project reflected the belief that,

normally, a large segment of the correctional

populationand probably the majority of the

hard-core recidivist groupreceive only token

exposure to meaningful treatment and training

programs. While, admittedly, the rehabilitation of

this hard-core population is very difficut and correctional treatment staff would prefer to concentrate on those inmates who "can be helped," it is

the former group which must be reached if we

are to slow the pace of the revolving door of

recidivism.

Criteria for selection of individuals for Project

Challenge training consisted of the following:

(1) Demonstrated interest and motivation for

training as indicated by the filing of an application.

1 Project Challenge. see p. 34.

22

31

(2) Determination of an applicant's relative

need for skill-training based on an examination

and assessment of the level of skill development

reflected in his preincarceration employment

record.

(3) Proximity, in time to probable release on

parole was considered in order to assure that

training would be completed as closely as practicable to the anticipated release date.

(4) Individuals who had completed MDTA

training within a period of 1 year prior to application for our program were not accepted.

Selections were made by a committee composed of the training coordinator, counseling

supervisor and job development officer, with the

approval of the project director. Youth Center

classification and parole staff provided information and advice but were not directly involved

in the selection process. With a few exceptions,

training enrollment was limited in order to maintain an optimal trainee-instructor ratio of twelve

to one. The training cycles were designed to run

consecutively and lasted from 4 to 9 months,

depending on the vocational area.

The recruitment and selection process was a

continuing function.: throughout the life of the

project. These- men not accepted for the first

training sessions and subgequent applicants were

assigned to a "hold" status and entered training

as openings occurred or as new cycles began.

While awaiting entry- into training, they were

invited to. participate in tutorial and remedial

education classes and other supportive activities

and services offered by the project.

Of the total of 229 applicants for training

during the contract period, 181 were selected

and enrolled in the program. All except two of

those enrolled met selection requirements. In

both cases, the applicants were serving long-term

sentences but were allowed to enter training

because of what the counseling staff considered

unusually strong motivation and because there

existed possibilities for advanced training in institutional on-the-job training assignments in their

chosen vocational areas.
Once the criteria have been chosen for qualifying

an applicant, problems arise in applying them. Shall

the criteria be disregarded in special circumstances?

In what circumstances should they change? Some

programs do deviate from the criteria. Flexibility

is a major tool for offender programs and one of

the main ways it is used is in modifying selection,

criteria after a suitable shakedown period. This is

one way programs get broadened to take in older

or younger offenders, addicts, and others with special

problems.

B. Orientation

Orientation should explain the program, its goals

and responsibilities and its rules and regulations.

Orientation information should be very clear and

very specific. (See the Fact Sheet for New Clients

and the Work Furlough Rules and Regulations

examples in Appendix A, pp. 69-75.) The consequences of not observing the program rules should

be made explicit since many programs will not

permit a participant to remain once he has broken

a rule.

Following is a sample check list of subjects to

cover during orientation:

(1) The responsibility of a. the participant to the program.

b. the program director to the participant.

(2) How, when, and where to contact the program director.

(3) Who to contact in an emergency when the

director is not available.

(4) Rules and procedures governing conduct

while

a. in the program.

b. on the job or at school.

c. on furlough or special leave.

(5) How to check out and check in at the facility.

(6) What clothing may be worn inside and outside the facility.

(7) What personal possessions must be surrendered upon checking in and recovered upon

checking out.

(8) Provisions for safeguarding valuables.

(9) Educational, vocational, recreational, and

other activities.

(10) Expectations regarding participation in educational and/or other activities.

(11) How performance is evaluated.

32

(12) What will happen if job is lost through no

fault of participant.

(13) How to contact probation or parole officer.

(14) When job changes are allowed.

(15) Participant's rights when director intends to

recommend supervision or termination of

program status.

(16) Medical, derital, and psychiatric resources

available.

In the course of the orientation the staff should

(1) Assist the program participant or client in

making any arrangements with creditors,

financial institutions, or family or friends to

stabilize his financial condition until his earnings become available to satisfy obligations.

Seek to expedite any pending legal actions

so that they will not jeopardize the participant's program status.

(3) Facilitate the settling or easing of any domestic or personal problems that could

threaten the participant's morale, on the

job performance, or willingness to accept

the requirements of his status in the program.

(4) Arrange with appropriate social work, medical, and educational agencies or in-house

staff to provide continuing counseling or

other forms of special assistance needed by

the participant (and his family, if this is part

of the program).

(5) Arrange that any medicine required by and/

or prescribed for the participant be made

available, if he is in a residential program.

Concerns over domestic matters, finances, and

personal health can burden a participant to the

point of complete frustration. The earlier that a

program counselor or team learns about such problems, the better chance there is of taking steps to

lessen the likelihood that the participant will be

overwhelmed by them and react in ways detrimental

to himself and others'. "Crash" counseling is a term

frequently used for what takes place at this point.

The Goal Preference List shown in Appendix A

pis a good way to find out what may be bothering a

client and a way to begin to know him as an

(2)

C. Assessment

Testing and Evaluation. Information on testing

vocational skills and aptitudes and related behavioral

23
performance can be obtained from the local employment service office.?

The Environmental Deprivation Scale (EDS) and

Maladaptive Behavior Record (MBR) developed by

the Experimental Manpower Laboratory for Corrections are instruments that can be used to predict

offender success in the community and to determine

which community supportive services are most

needed by individual offenders.',. The EDS is a 16-

item checklist of environmental influences on the

individual in a variety of areas such as occupation,

organizations, and interpersonal relationships. It not

only provides an overall index of potential adjustment in the community but also pinpoints areas of

deficiency so that re-training or intervention can be

planned. The MBR is a checklist of an individual's

responses to his,, environment in the areas of work,

adjustment to eb-w'Orkers, alcohol consumption,

gambling, fights, and money management, that predicts law-violating behavior.

EDS and MBR are new, experimental and are

not in widespread use. Most places, if conducting

formal assessment, use standardized tests such as

MMPI, Minnesota Multiphasic Personality Inventory

GATB, General Abilities Test Battery

DAT, Differential Aptitude Test

ABLE, Adult Basic Learning Examination

TABE, Test of Adult Basic Education

Work sampling, in which clients assess their aptitudes and skills by completing programmed work

tasks at a series of sampling stations, without the

need for reading and writing, is in use in many

places. However, many projects believe that traditional criteria such as ability and- aptitude tests,

interest inventory, and past record are no more

valuable than a decision by the client, based on

information about various vocational areas and the

type of persons who usually succeed in them.

2 Sec particularly National Council on Crime and Delinquency Research Center, The Effect of Vocational Upgrading Upon Probationer Recidivism, A One -Year Evaluation

of the Singer/Grallex Monroe County Pilot Probation

Project, Davis, California, January 1972.

3 W. 0. Jenkins and W. Lee Sanford. A Manual for the

Use of the Environmental Deprivation Scale (EDS) in Corrections: The Prediction of Criminal Behavior, Experimental

Manpower Laboratory for Corrections (EMLC), Elmore, Ala., October 1972; Marlin Barton, and W. 0. Jenkins,

The Maladaptive Behavior Record (MBR): A Scale for the Analysis and Prediction of Community Adjustment and

Recidivism of Offenders, January 1973, Experimental. Manpower Laboratory for Corrections, Rehabilitation Research

Foundation, Elmore, Alabama 36025. , 24

3 3

Client Goals and Responsibilities. A sense of

powerlessness commonly pervades the offender:

"Most of them have a key characteristic in common:

they don't believe they can succeed at anything

straight and . . . would not know how to go about

doing it." Change will come about only through

the development of resources in the participant.

As The Selection and Training of Advocates puts it,

"Resources are taken in their widest sense: skill,

education, persuasive power, and all goods, qualities,

and attributes which have exchange value. For a

client to grow he must acquire resources of his own,

and the acquisition of those resources must be

directly related to his own- actions. To support a client morally, psychologically, or financially without

developing his ability to acquire resources of his

own only prolongs his dependency and increases

his frustration. Anything you 'give,' you can also

take away, and there is not a client alive that

doesn't recognize this." 4

In line with this philosophy, there is a trend

toward working out with the individual participant

a plan in which he develops his own goals and a

schedule of how to get there. A participant must

identify his financial obligations, establishing priorities and develop a plan that yields the maximum

benefits from his resources. The program must include employment plans and training plans, if

needed, but it need not be complicated, as shown

in Figure 1.

The client-developed plan is a particularly important part of the pretrial intervention programs and

other newly emerging community programs. The

purpose accords with the recommendations of the

National Advisory Commission on Criminal Justice

Standards anti Goals to encourage a sense of responsibility on the part of the offender, which in turn

helps to promote a feeling of having some co,fitrol

over his own destiny.

Two assumptions underlay this direction: '(1) A

participant must bear responsibility for his own

actions, and (2) a participant is able to determine

the consequences of his own behavior. This relationship between the assumption of responsibility and

success can be seen in the "mutual agreement programming" concept discussed in Chapte?-2.

Offender projects cannot rely on offender selfmotivation or inherent project qualities to encourage

maximum performance. While these forces do operate to varying degrees for different participants, they

4 Boston Court's Selection and Training of Advocates

and Screeners for Pm-Trial Diversion, p. 18
6. Each Thursday at approximately 6:00 p.m.,

there will be a meeting of all staff and residents.

At this time, the residents will be informed about

their privileges for the coming weekend. It is

important for a resident not to make plans for the

weekend until after the Thursday meeting.

7. While a resident is living at the Center, he

will be expected to budget his income, and he will

be encouraged to open a bank account. It will be

the resident's responsibility to pay his bills on

time and to save as much money as he can while he

is living at the Center.

I have read and I understand the above, and agree

to abide by this Contract.

Date

INDIVIDUAL CONTRACT

F.1)

ve2. ,5,t7 44/ 4 u/

2,14 4-7!,4471-e,

9'.??

1 W7 70-1741PC4/ j"-

,x4e1

xi"

Counsel

f ,V7

.D at /

/4464-/-

4.0.64W.

deleted)

-Resident

FIGURE 1. Extract from an Offender-Staff Agreement.

25

31
cannot be depended upon to stimulate excellence.

Pisczenik reports that only a small number of

projects have experimented directly with and refined

technical use for behavioral change that depend

upon incentives and their use.

The ability to change one's behavior is fostered by

the techniques of contingency-management, the token

economy, and programmed instruction according to

experiments at the Experimental Manpower.Laboratory for Corrections.'

Attainment of job goals depends not only upon

adequate skills and placement opportunities, but

upon appropriate attitudes, motivations and perceptions, as discussed in the next section.

D. Work Attitudes and Social Skills

Effective job performance depends upon the

acquisition of work-related attitudes and social skills.

Clients must learn to manage everything from competitive work pressure to arriving at work on time.

Many of the program directors interviewed concluded that the difficulty facing many clients was

not inability to learn specific work tasks but an

inability to adjust to the general work setting and

to exhibit the traits expected of most workers.

Project reports note that making an offender employable includes improving his ability to work regular

hours, enter into social relationships with coworkers, work under competitive pressures in the

community, and obtain some satisfactions from

work. Lack of punctuality, poor work attitudes, difficulties with supervisor and co-workers are often the

reasons why employers fire offenders, or any other

employees, for that matter. Formal training in work

habits (e.g., punctuality), personnel policy regulations (e.g., telephoning when ill), and social skills

(relationships with co-workers) should be part of

every program that deals with placing offenders in

jobs.°

The Vocational Opinion Index measures an individual's job readiness by assessing (1) attractions to

work, (2) losses associated with obtaining and main5 See The Draper Project Final Report, Vol. I, The Rehabilitative Research Foundation, Elmore, Ala.

Pieczenik notes that becoming aware of what jobs arc available is also a learned skill, which is related to prior

exposure to the office or shop. Project GET SET exposed

its participants to a variety of workers, visits to work locations, and role-playing work situation. In the Philadelphia

Youth Development Day Treatment Center project, juveniles

took part in an orientation period that allowed each participant to spend time in and sample five vocational training

fields.

26

3a

taining a job, and (3) barriers to employment. Based

upon the findings, training objectives and remedial

approaches can be developed to help individuals

improve their "job readiness posture." For example,

the barrier areas may be addressed by mitigating,

or partially mitigating, the physical barrier problems,

by helping a person learn to cope with the barrier

or by helping him realistically perceive the barrier

as it relates to work. Thus, one mechanism is

sessions on problem solving. They can be as trivial

as teaching someone to use a bus schedule and as

complex as helping people to find available day care,

evaluatejt and obtain its services for their child.

"The goal of the problem solving session is to teach

the trainee all the skills necessary to retain the locus

of control, i.e., to teach the trainee to collect all

the necessary data, integrate it and then act upon his

conclusions rather than relying upon a counselor,

social worker or neighbor to solve his child care

or transportation problems for him." 7

Instruction in the discipline of employment (regular hours, accepting supervision and responsibility)

is commonly provided informally by the counseling

staff. Projects that have developed prevocational

training disagree regarding the nature and scope of

work-related behavior, although all agree it is important. In one project, training took the form of a

course in tool use; in another, a role-playing grodp,

focusing on worker-supervisor relationship. In one

project it was called prevocational training; in another work adjustment training. Whatever it is

called, the common bond is emphasis on social and

psychological education and other skills that enable

a participant to obtain and maintain employment.

Related to work attitudes and job holding is the

problem of transportation that is faced by many

ex offenders. Clients live in the inner city and the

jobs are in outer areas. Clients need to be persuaded

that they will have to travel to get to the job. They

need information on public transportation. They

need information on how to join or form a car

pool. They may even need a car. The Roxbury

Multiservice Center uses a hand-drawn map of

Boston to illustrate a session on where the jobs are

and where most of the ex offenders live.

Sometimes the problem is not merely transportation but a reluctance to leave the accustomed environment. In Washington, D.C., for example, there

is a pervasive feeling among the inner city black

7 Mama C. Whittington and Stephen D. Benson, Transition to Work III, Development and Implementation of the

VOI Transition System, Philadelphia: Associates for Research and Behavior, Inc., 1974, pp. 19-20.
population of more prevalent racial discrimination in

the suburbs, but other cities experience the same

situation, even when there is no color barrier, with

ethnic groups that have close ties in a limited geographic area.

E. Basic Education

A number of clients need further schooling to

obtain and hold a job. Some programs are large

enough to make arrangements with the public school

system to furnish a teacher to work with students

who need to obtain the GED (General Education

Development) certificate, equivalent to a high school

diploma. Other programs may take advantage of

adult basic education programs in the schools.

Others use volunteer tutors, alone, or with the

school.8

F. Counseling

Counseling +mews different things in different

projects. Distinctions.have been made between vocational and personal counseling. Some projects prefer

group counseling while others tend towards individual counseling. "Rapping" has been the major

counseling technique in some projects, confrontation in others. The choice depends upon client needs

and the objectives of the program. One categorization is as follows: 9

Individual CounselingConcerned with surface

problems relating to immediate environment and

conduct. Not concerned with basic psychological

processes or emotional relationships. Can be provided by reasonably skilled program staff, probation or parole officers, rehabilitation officers, or

volunteers. Common in manpower services programs.

For information on criteria for evaluating learning material see John M. McKee, Rehabilitation Research

Foundation, Draper Correctional Center"Materials and Technology of .\.1ult Basic Education for Corrections,"

presented at the Regional Seminar on Delivery Systems of

Adult Basic Education in Corrections, Athens, Ga., Feb. 8,

1971; and "Hardware and Software for Adult Basic Education in Corrections," presented at the Regional Seminar on Adult Basic Education in Corrections, Pomona, Calif., May

14, 1972.

9 Walter H. Busher, Ordering Time to Serve Prisoners: A Manual for the Planning and Administering of Work

Release. National Work ,Release Study, American Justice

Institute, Sacramento, California. June 1973, U.S. Depart- ment of Justice, Law Enforcement Assistance Administration, Technical Assistance Division, pp. 90-91.

Individual TreatmentConerTned with crippling

emotional and/or personalitylproblems requiring

professional attention. Can be obtained from

local mental health agencies; some private and

public social work, and correctional agencies and

private therapists. If selection has worked reasonably well, few of the clients in a manpower program should need individual treatment.

Family Counseling Concerned with marital and

child-raising problems. Requires involvement of

spouse Bind, at times children, in the treatment

process. State vocational rehabilitation agencies

are authorized under the Vocational Rehabilitation Act to buy services for offenders through

contract with private employers and training

centers. Psychological testing and job counseling

services are also available in most states from

SVR agencies, from public and private social

work and mental health agencies, church counseling centers, and private counselors. Use of such

far-reaihing methods depends upon the philosophy

and finances of the program.

Group CounselingConcerned with improving

clients' .methods of social adjustments and behavior. Uses guided group interaction as treatment method. Method requires competent leadership. Should not be used in an institution as a

subsitute for individual counseling. Practically all

manpower projects examined have "Group" one

or two nights a week, it is a major program

component.

The type of counseling (e.g., individual vs. group)

and its particular orientation (e.g., reality therapy vs.

rapping) may be less important than the existence

of a relationship characterized by trust, concern,

respect, and continuity. The abrupt dissolution of a

counselor-participant relationship may be as damaging to post project success as it has been supportive

during project participation.

The counselor role, per se, has been omitted in

some projects and in others it forms the crux of

the program. The counseling process in the Draper

Manpower Development and Training project, for

example, included orientation, testing, vocational

guidance, prevocational training, counseling during

training, job development and placement, and followup counseling.

G. Skill Training

Skill areas. M Pieczenik says, "Much has been

learned about selecting training areas, although it

313

27
is in the form of what not to do rather than how

to proceed from here." 10 Although most projects

surveyed inmate interest prior to project selection

and training area assignment, those interests did

not play a significant role in the initial selection of

training areas, as they should have."

New training areas, both blue- and white-collar,

should be introduced. Training areas reflect middleclass biases concerning the type of work an offender

is capable of and should be performing: most training is offered in blue-collar and service occupations.

Little training has thus far been done in human

service occupations, such as work with the aged,

children, and the handicapped, althouh this is being

considered in at least one state women's institution.

A former resident of Lebanon, Ohio Correctional

Institution has recently become the director of a

training center for brain-injured children at Carlisle,

Ohio, in one example of what can be accomplished.

The director was one of the original participants

in a program operated by the Lebanon institution

in which residents are released to work with handicapped youngsters in four area training centers,

including the one at Carlisle. Residents selected for

the program are released daily to work in four

nearby clinics with brain-injured children. - Level of Training. Short-term entry-level training

has typically beerfOffered the offender. Projects such

as Fresh Start, which attempted to bring trainees to

a level of skill where they could perform on the

job at realistic levels of production have been rare.

Training to the entry level is perhaps understandable

since: (1) employers often prefer to hire at the

lowest entry level and do their own skill training;

(2) prison and other training programs do not possess the equipment, space, or machinery needed for

advanced training; (3) projects are geared to "produce" the largest number of trainees in the shortest

amount of time; and (4) trainees with less than a

sixth grade educational achievement level cannot

train above entry level in a standard 6 months

training cycle.

10 Pieczenik, Review of Manpower R & D Projects in

the Correctional Field (1963-1973), p. 37. 11 A booklet such as the one used at the Maryland Correctional Training Center at Hagerstown, Maryland is

useful to inmates. It lists the courses of instruction offered

and describes what the course prepares a man to do and

what jobs he may work at when he completes the course.

It describes the course by hours of instruction divided into

units, such as those for a baking course, (1) function of

ingredients, (2) pies, (3) buns, (4) cakes, (5) icings and

(6) toppings. The booklet was planned, written and printed

by the MCTC, the Breathedsville Jaycee Chapter and MCTC

inmates.

28

37

However, entry-level training places the offender

in direct competition with the large group of noncriminal disadvantaged for jobs where turnover is

high and the chances of on the job upgrading are

low. It is not surprising that jobs obtained by

offenders are not training-related and that turnover

occurs within a few months following placement.

With a specific commitment from a specific employer,

as in the Rikers Island project, entry-level training

in the prison may suffice when it is followed by

on-the-job training at the plant with other employees.

However, this is not the typical projecfarrangement.

Training programs, both prison and community-_

based, should work towards specific commitments

between those who do the training and those who

control job entry to (1) assure a training program

and level of skill which takes employers' needs into

account and (2) provide a direct link between training and potential employment.

The Oak Ridge Training and Technology (TAT)

project working with the disadvantaged (and now

accepting offenders on work release) has shown

that gearing training to a prearranged job can be

successful).'2 The size of the population pool from

which TAT has selected its trainees, trainee motivation, type of training offered and level of attainment

achieved, and the simulated working conditions of

the "real world" sharply distinguish this project from

offender training projects. However, the concept of

linking training to a guaranteed job and implementing a project that has been shaped by a future

employer, which has worked with the non-offender

disadvantaged, is equally applicable to offenders.

The TAT program includes 40 hours of intensive

training and trade-related education each week for

26 weeks. Five hours a week are devoted to math,

3 to science, and 2 to blueprint reading. Personal

counseling and employment seminars claim a few

hours. Most of the time, however, is spent in shop

and laboratory instruction using advanced production equipment.

TAT training has advantages over conventional

vocational training because it operates in an industrial environment rich in technical resources.

This affords more hours per week of instruction, a

relative)), low 12-to-1 ratio of students to instructors,

and opportunities to work under several different

teachers in the course of training. Work tasks are

arranged in a sequence from the simple to the. 12 A Model For Training The Disadvantaged: TAT at Oak

Ridge, Tennessee. Manpower Research Monograph No. 29,

U.S. Department of Labor, 1973.
complex to bring the trainee up to exacting industrial standards.

Understandably, trainees vary both in ambition

to learn and in the speed with which they acquire

competence. Instructors use a flexible approach to

these individual differences, recognizing that some

graduates will have reached a higher level of skill

than others. But all of them will have been prepared by a thorough and versatile training experience for further on-the-job progress.

With a professional remedial teacher on the staff,

remedial education is available as needed. Programmed study materials are used, and preparation

for a GED diploma is offered. In a recent class, all

38 enrollees who lacked a high school diploma took

advantage of the offering and 90 percent passed

the test on the first attempt.

Training is given in six occupational areas keyed

to industrial demand:

(1) Machining;

(2) Combination weldin'g;

(3) Mechanical operations (various production

operations in sheet metal, pipe fitting, hydraulic mechanics, etc.);

(3) Physical testing (radiography, metallography,

and various other nondestructive testing

methods);

(5) Electronics;

(6) Industrial electricity.

Occupational offerings have varied somewhat,

depending on indications of changing employer demand: The staff continuously collects, information

on job demands, primarily from employers with

whom former graduates have been placed.

A major drawbackto any large scale training

program is that large-scale employers prefer to

train their own workers. They seek skilled experienced workers to fill skilled positions and fill unskilled, good paying positions with internal referrals.

Actual Job Conditions. Training ought to simulate actual job conditions as closely as possible. One

of the organizations that does this best is Opportunities Industrialization Centers of America. OIC

grew primarily out of a movement of urban blacks

seeking equal employment opportunity and justice.

(See Chapter 2, p. 8.) Now there are well over

one hundred OIC's in as many cities and a number

of them are opening their doors to ex offenders.

Heavy stress is placed on the motivational and

psychological aspects of basic education and skill

training through a variety of means, to develop selfconfidence and self-reliance.

Private industry's participation is actively sought

in three major areas: (a) donation of equipment

and funds; (b) curriculum and course design and

(c) job development and placement.

Each OIC has a technical advisory committee

for each skills training course offered. These committees are made up of representatives of industry,

labor -and education, who can provide expertise

regarding course content and equipment relating

to the training course. They also are able to supply

information regarding labor market trends, technological changes, job requirements and projections

for the future.

Each OIC has an industrial advisory committee

for the total program, made up of top-level representatives of business; labor, education, federal,

state and local manpower programs and other manpower related programs. Representatives on the

policy making level provide program support and

counsel in terms of funds, equipment acquisition,

technical assistance and help open channels of communications with industry.

38 29
CHAPTER 4. JOBS

"Without a job, other services become merely treatment."

"Don't make the mistake of making your program

rise or fall solely on job placement. In a time of

rising unemployment, it can be fatal to the program."

Somewhere between these two lies the road.

A. Job Strategy

Application and Interview. Some participants may

be sufficiently motivated to find work but are without resources. Other participants may have physical

or psychological handicaps or be faced with problems of interpreting their criminal record to the

point that unassisted job efforts are of no avail.

Without staff assistance, particularly when unemployment is high, their chances of success are slim.

Finding a job, filling out an application form,

interviewing an employer, and asking pertinent

questions about a job are learned behavior that

many offenders lack.

In helping their clients learn the ropes, programs

run the gamut from long term very supportive programs to short term assistance that includes emergency financial aid and handing a client the newspaper want ads, the yellow pages of the telephone

book and the address of the employment service.

Whatever route your program takes, the objective

should be to help the client develop a sense of

responsibility and self-reliance.

One successful method of helping the offender

develop skill and confidence in preparing for job

interviews is outlined below. It is used at the Roxbury Multi-Service Center in Roxburg, Mass., where

contact with the client 'begins a month or two

before he leaves the institution. Clients learn to

complete sample application forms from a number

of companies, with emphasis on the reasons for

the questions and the importance of a complete

work history. They learn not to falsify their record,

but also not to give more information about their

conviction records than is asked for.

Clients practice role playing to gain confidence

in interviews and learn about themselves. They

work on interviewing with video tape. They also

explore the area's transportation system in relation

30

39

to where they live and where the jobs are. Transportation is a major problem for ex offenders in

Many places.

The Center sessions are as follows:

OrientationRoxbury Multi-Service Center brochure, Community Corrections literature and diagram showing the geographical location of jobs,

passed out and discussed with members of the

workshop. (Blackboard used during this session.)

Employment ApplicationsApplication form

blown up to poster size used, forms passed out to

class. (See sample application forms in Appendix

C.) Explanation of forms, step by step. General

rules for properly filling out of job application and

a definition of what is job strategy, passed out and

discussed. The general rules for properly filling out

job applications are

(1) Print or write clearly and neatly, and state

your full proper name.

(2) Know your social security number.

(3) Give your correct home address.

(4) Give your phone number.

(5) List all jobs you have,,held, starting with the

one you held last and work back.

(6) Make sure alI dates of employment are

correct.

(7) Have truthful and proper answers for time

lapses between employment dates; they must

correspond.

(8) dive or state reason(s) for leaving a job.

(9) Use capital letters in proper places.

(10) Put in commas and peroids in proper places.

(11) Be sure to*-list schools and training programs attended and dates.

(12) List time spent in the service.

(13) State condition of health.

(14) State type of work sought.

(15) List references.

(16) List person to notify in case of emergency.
(17) Try not to erase or cross out errors on form.

(18) Be sure to fill in all boxes and answer all

questions.

(19) Salary could be discussed or negotiated.

(20) Be honest and truthfulemployer will

check.

Review of poster size application form and a question and answer period.

The Employment Interview --Skit performed dis-

_ playing improper and proper methods of presenting

oneself at a job interview. Review of skit follows.

General rules on how to conduct oneself during an

employment interview and proper and improper

attire and hygiene passed out and discussed with

members of the workshop. See Appendix C, p. 83.

Realities of salaries and skills possessed by clients

discussed.

Role PlayingClosed Circuit TV used during

role playing session with many members of the

workshop portraying both roles (applicant and employer). Play back after each session and critique.

Role PlayingSame as the above in 4th session,

plus presenting different situation to applicant and

seeing how he would or could handle frustration

and/or conflict at that moment.

ReviewFilling out employment applications.

Use of a second poster size form, while workshop

members fill out one presented to them. Role playing review.

lob Search. Released prisoners traditionally look

for jobs through their family, friends and former

employersthe same way the rest of us do. Correctional institutions, probation-parole officers and

state employment agencies provide minimal assistance, with a few exceptions,-as noted in Chapter 2.

Most community program managers concur that

at the outset at least, a client should do his own job

searching, with leads provided if necessary by the

job coach, or job developer, whatever the appropriate staff member is called. This is part of the

process of encouraging self-reliance, responsibility,

and ability to deal with the community. Search

should be based upon goals developed by the client,

supported by a realistic appraisal of the job market

and his own skills and abilities. It will use all of

the learning he has just acquiredhow to present

oneself to an employer (clean, suitably dressed, and

with some self-respect); how to deal with the local

transportation system; how to deal with an interview. If the client's search is unsuccessful after

several clays, further help should be forthcoming,

based on the program's job development activities.

40

B. Job Development

Job development is a difficult and important

process, requiring certain skills. Job development

includes: (1) finding job openings; (2) fostering nondiscriminatory employer hiring practices; (3) developing techniques for bringing employers, programs

and participants together; (4) offering supportive

services for both employer and participant during

the initial employment period; and (5) aiding the

employer to redefine hiring qualifications and restructure jobs. The danger in a status quo "development" function is in fitting the offender to the

existing market and ignoring potential change in

personnel policies and employer practices.

The following hints have been gleaned from Labor

Department research and development projects.

(1) Personal visits to employers are preferable to

telephone contacts; (2) it is important to appeal to

the civic responsibility of a potential employer;

(3) a close time connection is preferable between

job development and participant placement;. (4) the

participant's record should not be hiddent from the

prospective employer, or his abilities overestimated;

(5) development activities should feed information

back to a project so that employer concerns are

taken into account.

lob Market Analysis. Analysis of the job market

is the first step in effective job development. Find

out what kind of jobs are available, where, what

the qualifications require, and what the wages and

working conditions are. Look at, trends. There's no

point in preparing someone to be an apple picker,

if mechanical apple pickers are on their way in.

1. The local office of the employment service is

a useful resource. It conducts surveys and determines

the area's available skills, training needs and future

occupational opportunities.

2. Visit the Chamber of Commerce to find out

what industry might be entering the area and what

current business trends are.

3. Use the Occupational Otttlook Handbook.'

The Handbook describes the nature of work, education and training requirements, employment outlook,

places of employment, and earnings and working

conditions for over 700 occupations.

4. If there is an economic development of or

a manpower development office in your community,

I U.S. Department of Labor. Bureau of Labor Statistics,

Bulletin 1650. For sale by the Superintendent of Documents,

U.S. Government Printing Office, Washington, D.C. 20402. Price $6.25.

31
ask the staff where the jobs are and where they are

going to bei

Developing a Pool of Employers. By developing

a reservoir of employers who are aware of the program and have indicated a receptivity to employing

offenders for any positions that they may have available, the staff have a job development resource that

they can use in several ways. Clients can be referred to those employers most likely to have jobs

appropriate to the applicants' particular needs. Such

referrals can be made with some assurance that the

applicant, whether hired or not, will be received

with some sensitivity.

The reservoir can be used where an applicant

has an unusual skill or capability which a particular

employer requires, is likely to appreciate, and will

need.

The reservoir can represent a solid body of program support that can be useful in situations calling

for political action. Being composed of employers

who have been screened for integrity, 'interest, and

resources, the reservoir provides staff with the capacity to act quicJdy in situations where early placement is needed.

A pool of employers can be created by

Asking staff to contribute name of employers

who have hired offenders and are willing to

hire others.

Recruiting solicitation by staff, present employers, volunteers and former offenders.

Soliciting through newspaper articles, radio and

TV programs and presentations made to service

clubs and civic associations.

Contracting the local office of the _National

Alliance of Businessmen.

Leads provided by members of advisory committees.

The "Guide for Employment Service Counselors

in Correctional MDTA Programs" 2 is a helpful

handbook of suggestions for finding and developing

training-related and other jobs for offenders. Some

states hold periodic conferences for groups of employers on ex offender problems and capabilities.

2A Training Systems Publication of the Rehabilitation

Research Foundation, P.O. Box 1197, Elmore, Alabama

36025.

This is an elementary step by step outline. It gives specific points on how to sell employers on hiring ex offenders-

(South Carolina believes this is the key to jobs for former

offenders.) It is geared to Employment Service staff in

institutions but very transferable to other situations.

If also has a good rundown of ways to, locate persons for

follow up. It contains job bonding information and a typical

press release that can he adapted to local use.

32

41'

When identified, prospective employers should be

interviewed by staff or volunteers to:

Acquaint them with program details.

Assess their sincerity, integrity, and availability.

Obtain specific information concerning the

kinds of employment opportunities that they may

be able to offer and kind of support they are

willing to give to program participants hired.

A single file for ready access by staff containing

a card or folder with specific information should be

prepared for each prospective employer. The individual file card or folder should contain information on:

Name, location, telephone, number of employees, products, etc.

Previous experience with offenders.

Kinds of jobs available and the frequency of

their availability.

Knowledge and skill requirements of jobs.

Salaries and working conditions.

Firm personnel officer or other contact person.

One staff member should conduct all business

with this person.

If possible, recruit several large firms as employers. Such firms offer many advantages not available

normally from smaller organizations. According to

some projects, the larger employer offered more

benefits, on-the-job training, and job up-grading.

Other projects concluded that small and mediumsized businesses were characterized by a friendly

atmosphere and less rigidity in hiring and personnel

policies and were preferable for former offenders.

In -House or Centralized Job-Development. Job

deVelopment and placement can be done (1) in

house, with a little or a lot of cooperative effort

with other community agencies, (2) by an agency

delegated to handle it that is a creature of the various groups that developed it, (3) by the local employment service office, or (4) contracted out. There are

so many variations of these methods that they should

be looked at as a continuum, rather than as discrete

methods, as some persons do when arguing for a

particular approach.

Probably the strongest argument for a "one-stop

shop" is that since delivery of services is contingent

upon maximum communication and coordination

among its Staff, the allocation of responsibility outside the project for- achieving one of its primary

goals weakens the project by removing an area of

control over its own efforts.

One of the main arguments for centralized job

development and placement is that' it avoids dupli-
cation of work and needless annoyance of businesses

with repetitive calls and other solicitations of openings, However, most programs report that when job

development has been provided by an outside

agency, the results have not been satisfactory. They

report that the traditional staff and techniques, lack

of aggressiveness, and status quo approach of the

employment service have not been successful with

their clients. The Employment Service Offender

Program has attempted to correct these faults and

in certain areas, notably Massachusetts, Pennsylvania, South Carolina, and Wisconsin, is providing

leadership in the range and quality of supports for

the ex offender. (See p. 14.)

If the employment service is to be the central

employing agency there must be a rehabilitation

oriented staff supported by adequate resources

including follow-up counseling, work with pardon

and parole commissions, among others, and use of

former offenders as follow up counselors.

One program that is having good results with a

"one-stop" approach is that of seven Louisville, Ky.,

agencies.' Delivery of Clearinghouse services begins

in the state's prisons. The Kentucky State Reformatory at LpGrange, near Louisville and the state's

largest institution with about 1,800 inmates, operates its pre-release program with two employment

specialists, one of whom spends 3 days a week at

the Clearinghouse securing job information for those

awaiting separation.

Although most releasees make >arrangement on

their own for jobs when they get, out, usually through

friends and relatives, all prisoners in the Ne-release

stage are told of the Clearinghouse's capabilities

should they be needed.

At first, jobs were sought for all inmates coming

up for parole. Since only about half of those who

receive a hearing are actually paroled, this was not

continued. Nevertheless, the director continues to

receive letters from inmates prior to their parole

hearing.

The Clearinghouse delivers most of its services

to probationers and paroleesboth those who are

out of work and those who want better jobs. It

physically sets up shop at the U.S. Parole offices

3 From an article in "The Offender Employment Review,"

National Clearinghouse on Offender Employment Restrictions of the American Bar Association. Further information

can he obtained from Jack Fevurly, Community Programs

Officer, U.S. Department of Justice, Bureau of Prisons,

Employment Placement Office, 402 U.S. Courthouse, Louisville, Kentucky 40202. See also Chapter 2, p. I I.

on the one day a month federal parolees must report,

and state parole officers refer all clients with an

employment problem to Clearinghouse offices nearby. Up to 40 individuals With job-related difficulties

may be interviewed each day.

The job search is hindled in two waysthrough

use of the agency's on-site scanners of open positions

in the employment service's computerized job bank,

and through the Clearinghouse's own job development work.

Job development includes regular mailings to

chief executives (or key hiring officials) of separate

clusters of companiesnot mass mailings, in which

the response might choke the agency's ability to

follow up with a quick visit. About one out of three

employers show interest and the staff schedules at

least one employer visit a week.

With each Clearinghouse interviewer handling an

open caseload of about 60 clients, the time left for

promoting the program with employer visits and

tracking the ex offender's job success is insufficient,

the director says.

However, state records indicate the- follow up

problem may not be serious. In the fiscal year ended

June, 1973, parole was revoked on only 16.3 percent of Kentucky's parolees, one-fourth of whom

were sent back for new convictions.

Support Work Projects. In tight labor markets,

training, placement, and job development tend to

be less effective than when there are many unfilled

jobs. In the Manhattan pretrial project, placements

dropped from 270 in the first year to 135 in the

third in a declining job market, even though, judging by placements per referral, efforts improved.

Fewer employers are willirg to interview or hire

ex offenders as long as quaiified candidates without

criminal records are available.

When jobs get harder to locate as unemployment

rises, some offender projects develop employment

projects of their own. This step has been taken by

one project which has negotiated a contract to clean

the New York Public Library and also operates its

own messenger service. Program participants are

employed and learn some job skills.

The response of many projects is to rely more

heavily on the counseling part of their program to

induce sufficient change in participants' lives. "But

behavioral change that is not reinforced with tangible benefits is not likely to last. And without a job

or comparable setting to structure, support, and

validate positive social behavior and goals, there

42

33
is no visible or convincing evidence that a lawful

life is a better life." 4

C. Placement

Staff placern'ent efforts will vary according to

whether the program takes only youth, or varied

ages, whether it takes only first offenders, and what

their status is, i.e., parole, probation, work release,

or other.' Depending upon the selection criteria,

clients will differ in their ability to complete the

job search on their own.

For employment to have a significant effect on

the individual, the job must meet his needs. Usually,

this means employment in which he has an opportunity to succeed and grow.

The staff should attempt to place program participants in jobs suited to individual goals, abilities

and skill levels, with location and other job conditions beneficial to the participant. A quality job

has at least a minimum entry-level wage, a built-in

career ladder or the potential for upward and lateral

mobility, and offers the employee a sense of selfworth. Placing any adult in a low-paying, dead-end

job such as sweeper, dishwasher, or mailboy cannot

be expected to have a positive effect on the individual.

Some community job placement programs build

in mobility when placing ex offenders. The program

places an- individual in a low-skilled, moderatepaying job for a few months to give the individual

necessary income and at the same time develop

successful employment experience. During this period the job developer located a job that matches

more closely the skills and interests of the ex

offender and offers an opportunity for upward

mobility.' New releasees are placed in the jobs

opened up until they also t an move to better jobs.

Thus successful employment frequently takes

place in a series of jobs rather than in one. The

ex offender or any individual with little employment

history may try a number of jobs before he stabilizes. What appears to be a lost employee to an

employer may, in fact, be a_ successful rehabilitation experience.

4 Manhattan Court Employment Project Report, JulyDecember, 1972. Vera Institute of Justice, New York, N.Y.,

p. 2.

5 This technique has been used with good results by parole

officers working with parolees from the Maryland corrections system, who start by placing an ex offender in perhaps a car mash firm and end by locating a job for him with

upward potential at a large shipbuilding firm.

34

Job Retention and Stability. According to the

Pownall study of released Federal prisoners, the

median stay on the first job was 4 months; on the

job held.Aingest, it was months.' Released inmates

require a median of 29 days to find their first job.

Project Crossroads found that almost all former

participants were working in non-Crossroads jobs

within 4 months after project termination. Statistics

from the Federal Bonding Assistance Demonstration

Project Program reveal that young offenders left

bonded jobs within 3 months. (As just -mentioned,

high job mobility does not necessarily mean failure;

it is often part .of a stepping stone process in which

a temporary dead-end job is taken until a more

desirable opening is found.)

Little information exists on employment stability,

or the percentage of time an individual works during

the year. The few studies that gathered such information indicated that offenders who had participated

in projects with manpower services spent a greater

percentage of their post-project year working (than

the last pre-project year not in an institution) and

they received higher wages in more highly skilled

positions.

Why do ex offenders leave their first job within

a few months? The findings have implications for

working with the employer, for making, appropriate

placements, for client goal assessment, and for planning and conducting training in the attitudes and

skills necessary to work with other employees and

supervisors.

There is a correlation betwe?n an individual's

characteristics (age, marital status, employment

background, educational achievement) and general

employment success. (See Chapter 1, pp. 3-7.)

There is some evidence that pay incrementssize

and frequencyare related to job retention, although

there is controversy over the extent to which initial

salary is related to hiring. Status can be as important

as salary in determining satisfaction and stability.

Employees are often fired for reasons of attendance,

punctuality, sick leaves, and vacations.

Longevity and satisfaction in a job (important to

both employee and employer) may be dependent

upon the social and production pressures which the

ex offender faces. Projects found that "lower-class"

offenders often feel uncomfortable in "middle-classy'

environments, which eventually affects both the

preferred geographical location of jobs and the

43

6 Pownall. Employment Problems of Released Prisoners,

p. 156. Over 85 percent of the releasees had been out for

6 months or more.
specific employer chosen. Projects also found that

training a man in restaurant skills does not necessarily enable him to cope with the production pressures of the "grill." An offender's inability to get

along with his fellow workers or to keep personal,

off-the-job problems from influencing work behavior

are pal-ticularly important.

One of the keys to job retention is supervision,

regardless of background of the employee. According to the Pieczenik report, supervisors in, general

have been unable or unwilling to cope with on-thejob behavior of offenders and other disadvantaged

persons that is incompatible with the effective operation of the firm. Operation Pathfinder, one of the

few offender research and development projects

working with the employer, encountered resistance

when employers were asked to change work practices: employers did not want outside training for

their supervisors; they did not want "research" done

with them; they did not want to become involved

in a government program.

D. Working With The Employer

The focus of employment programs for the offender has been on the offenderwho he is, what he

needs, how he can be "processed" into a successful

employee. Relatively little attention has been paid

to the gate-keepers who will ultimately decide

whether an ex offender is to be hired or firedthe

employer and the personnel supervisor.

The offender program and the employer have a

mutual interest in the quality of performance of the

former offender. Each has a need for him to succeed

on the job. Each needs the other's acceptance to

stand any chance of achieving the level of success

each expects. Employers want maximum productivity from their employees in the interest of their

business. In employing an offender, a firm may

entertain a level of risk beyond what it might otherwise be willing to accept: it may also encounter

certain administrative problems.' At the same time,

an employer can count on his work release employees

to be on time and sober. The amount of risk and

inconvenience an employer is willing to accept' and

7 For example, work release status can surround employment with complications (e.g., necessity for obtaining permission to work oyertime, restrictions on driving or traveling

across state lines) TM" usually associated with the normal

employer-employee relationship, How sensitive employers

are to these complications and how willing they are to

accommodate them can be crucial determinants in the

outcome of the use of work release.

tolerate will depend upon how much assistance and

cooperation can be expected from the program staff.

Staff Responsibilities to Employer. A member of

the staff should see every prospective employer to:

(1) Introduce and explain the program.

(2) Become acquainted with the employer, his

firm, the personnel officer and supervisors.

(3) Learn about the kinds of jobs and availability,

skill requirements, working conditions, pay

and benefits, labor relations, and other factors

bearing upon job placement.

(4) Develop arrangements for maintaining liaison

with the employer. (Some programs arrange

to telephone every week for a month or so

after placing an employee.

Programs that have job development and job

placement functions should supply the newly employed offender with supportive services for on-thejob and off-the-job crises and assure the potential

employee that. these services will be forthcoming.

Case service personnel should respond promptly

to any crisis situation reported by an employer and

take whatever action is appropriate.

When an employee leaves, either for a better

job or because he was fired, try to retain the

-employer as an ally for future placements by making sure you have followed the preceding procedures.

What Can Employers Do? Some employers seek

to hire ex offenders and some run training programs

to upgrade their skills; others stand behind traditional barriers. Employer involvement can range

from atilltnding a meeting on removing employment

restrictions on hiring, agreeing to hire an ex offender,

to planning a complete program for a firm. A firm's

labor force, its personnel policies, its experience in

hiring minority groups, the structure of jobs in the

company, the geographical location of jobs, and a

variety of external considerations must be evaluated

in order to determine the appropriate approach to

hiring ex offenders and Which ex offenders should

be hired for particular jobs.

Just as there is considerable variation in exoffenders' characteristics, so, there are a number of

approaches employers can pursue to provide employment. For example, eliminating an arrest question

on a job application form requires relatively little

activity, while in-prison training involves an extensivc commitment.

Employers and supervisors need to work toward

(1) designing programs that prepare the offender to

meet realistic production demands, (2) creating a

direct link between programs and a waiting job, and

44

35
(3) designing a work environment that is mutually

beneficial to offenders and employers. Employees

can remove restrictions on hiring; for example:

(1) Firms can eliminate the question, "Have you

ever been arrested?" from the employment

application. Many companies have done so

without any noticeable changes in their personnel.

(2) Banks can obtain a waiver from the FDIC

and can also hire ex offenders who have not

been convicted of "restricted" crimes.

(3) There are a variety of ways. for firms with

bonding requirements to hire ex offenders,

for example:

Companies that require bonding can be

asked to reexamine those jobs which do

not involve any security risk and remove

them from the bonding program.

The U.S. Department of Labor has a program to provide bonding for ex offenders.

Companies can develop a consortium to

self-insure ex offenders in a number of

firms.

iThe leading bonding companies can be

requested to evaluate the worth of certain

restrictive procedures.

(4) Companies can review their personnel policies

with regard to employment of ex offenders.

These individuals should be asked to explain

8 See James W. Hunt, James E. Bowers, Neal Miller,

Laws, Licenses and the Offender's Right To Work: A Study

of State Laws Restricting the Occupational Licensing of Fortner Offenders, American Bar Association, National

Clearinghouse on Offender Employment Restrictions, 1973.

Removing Offender Employment Restrictions: A Handbook on Remedial Legislation and Other Techniques for

Alleviating Formal Employment Restrictions Confronting

Ex-Offenders, American Bar Association, National Clearing house on Offender Employment Restrictions, Washington, D.C.. Second Edition, January 1973.

Expanding Government Job Opportunities for Ex-Offenders, American Bar Association, National Clearinghouse on

Offender Employment Restrictions, Washington, D.C. A

pamphlet summarizing state laws and practices restricting

public employment of former offenders and recommendations for their modification.

36

45

their records and have them reviewed in an

objective failtion. For example, many companies upon investigation have located numerous ex offenders who did not disclose their

records and who were excellent employees.

The main thrust of such an examination

should be to determine the bearing of a police

record on employment and which ex offenders,

if any, are affected.

Skill Training and Education. While service agencies can provide a variety of supportive services,

individual companies are often best equipped to

develop employment-related programs. In particular, they can initiate basic education and skill training activities. Many of these programs simply involve

extensions of those developed for other disadvantaged groups. The Far West Sourcebook briefly

describes a number of these programs.

The National Alliance of Businessmen sponsors

a JOBS contract program designed for employers

who wish to provide a high degree of skill training

and support services for disadvantaged individuals.

A contract with U.S. Department of Labor reimburses the employer for extraordinary costs of providing such training and support services.

The JOBS optional program is an on-the-job

training program funded by the Department of

Labor and conducted by a State OJT agency. Most

private, profit and non-profit companies and organizations are eligible. The program has a requirement

that at least 50 percent of trainees must be disadvantaged, as defined by the U.S. Department of

Labor; a recent ruling removes a former exclusion

of ex offenders: A company or organization enters

-into a contract to. conduct training in its facility.

Payments to employers are in the form of a fee

based on one-half of the starting wage of the trainee.

The number of weeks training is dependent on the

complexity of the skill. This determination is keyed

to occupational codes in the Dictionary of Occupational Titles. For more information contact the local

Division of Employment Security Office.
PART III

PLANNING AND ADMINISTRATION

49
INTRODUCTION

Part III offers information on how to (1) plan,

develop, and evaluate a project and (2) organize

and manage a staff. Since the topics are so broad

and the specific requirements differ according to

the type and size of the project, the discussion tends

to be general. However, where possible the authors

have related the material discussed to a specific

manpower services issue or example. Their aim is

to indicate problem areas, suggest procedures and

offer some guidance on the structure for operating

the job placement or training aspects of the program.

Many of the principles and procedures mentioned

are well-known and time tested, particularly in the

field of planning, organization, and staff management, but they are included because in too many

instances they are not followed. The principles discussed apply generally but information on practices

applies primarily to a publicly funded project large

enough to require a director and several staff members, and a formal evaluation system.

Chapter 5 outlines project development and includes a planning flowchart whose form and content

can be adapted for specific situations. Sample planning charts are shown in Appendix D, The chapter

also includes project organization, staff management

and recruiting, relationships with other agencies

and groups and records management. Data, records,

and records management are treated very generally

because of the wide variance in requirements for

different projects (institutional, pretrial, work release,

etc.). More specific information is often given in

project reports. A few are referenced below. Busher's

work, for example, presents an excellent listing of

data elements needed in a work release program;

the Handbook on Community Correption in Des

Moines indicates the data requirements by including

copies of the data collection instruments used in

their pretrial intervention activities; Project Challenge at Lorton, Va., and the Draper Project Reports

illustrate 'the data needed in a similar manner.

Chapter 6, Evaluation, while drawing from most

of the works mentioned below, is based largely on

Glaser's Routinizing Evaluation. The chapter emphasizes the importance of defining success and establishing useful objectives. It also indicates a costbenefit approach that may be applicable in many

projects.

The major sources and references used in Part

III include:

Ordering Time to Serve Prisoners: A Manual for

the Planning and Administering of Work Release

by Walter H. Busher, National Work Release Study,

American Justice Institute, Sacramento, California,

June 1973, U.S. Department of Justice, Law

Enforcement Assistance Administration, Technical

Assistance Division. U.S. Government Printing Office

Stock No. 2700-00205. A comprehensive study of

work release programs useful for anyone planning

or operating a work release program.

Routinizing Evaluation by Daniel Glaser, Center

for Studies of Crime and Delinquency, National

Institute of Mental Health, U.g. Government Printing Office, Washington, D.C. 20402, GPO Stock No.

174-00319. An excellent guide needed by anyone

concerned with the evaluation of offender projects

and programs. Theory combined with how to do it.

Evaluation Research by Carol H. Weiss, PrenticeHall, Englewood Cliffs, N.J., 1972. A basic manual

of the evaluation of social programs. The guidelines

given are non-technical. A useful introduction to

evaluation with numerous examples but not geared

particularly for offender programs.

Evaluative Research by E. A. Suchman, Russel

Sage Foundation, New York, 1967. A textbook on

the problems of evaluation and their solution. The

approach is academic rather than how to do it.

Project First Chance Final Report, Office of Education, U.S. Department of Health, Education and

Welfare and Manpower Administration, U.S. Department of Labor. A report on a manpower project

at the South Carolina Department of Corrections,

Columbia, South Carolina, June 30, 1966 to June

30, 1969. The report details the inmate skill training

and job placement, and the operation of an associated halfway house. The report gives recommendations in the areas of administration, staffing, planning,

training, job devolpment, and linkages with other

agencies.

A Handbook on Community Corrections in Des

Moines, U.S. Department of Justice, Law Enforce4.7

39
ment Assistance Administration, National Institute

of Law Enforcement and Criminal Justice, U.S.

Government Printing Office StAck No. 2700-00219,

A 1973 Exemplary Project report outlining the coordinated approach to handling adult offenders by

..the Fifth Judicial District, Department of Court

Servics, Des Moines, Iowa. A detailed account of

40

48

operations for pretrial, probation, and residential

programs. It includes cost of the programs.

Project Challenge, the Draper E & D Project

Reports, and A Review of Manpower R & D Projects in the Correctional Field are annotated in the

Introduction to Part II.
CHAPTER 5. PLANNING AND PROJECT DEVELOPMENT

A. Planning Tools

Three useful tools for planning are a planning

task list, a planning chart, and an information

resource list.

The planning list items may be categorized into

groups such as information collection, definition of

objectives, and determination of functions. This

ordering is usually based on time phases. Tasks in

each group should be listed along with time estimates

for completion of each. The beginning or completion

of some tasks will be dependent upon the completion

of others and this should be indicated on the list.

The list should be revised and expanded as planning

proceeds. It is an adjunct to a planning chart and

may be part of it.

The planning chart should indicate task interdependence and show the tasks completion schedule.

In a complex effort, subcharts and subtask lists .may

be needed for planning separate tasks or even subtasks. The planning chart will be general initially,

but as thinking progresses and different approaches

are tested, it is refined and expanded until it can be

used to aid in allocating planning time and resources

effectively. It should reveal need for schedule revision and reallocation of resources and current planning or operations status. Abbreviated examples of

planning charts are shown in Appendix D.

Figure 2 is a flowchart of a project planning procedure. It depicts a three-part Planning system; the

first part is preliminary planning such as that for

preparation of a preliminary project proposal, or

working paper; the second part is planning in detail

essentially an expansion of the first partsuch

as might go into a detailed project plan; the third

part consists of any additional planning needed in

the implementation of the project. The paragraphs

that follow amplify the planning indicated on the

chart and provide some examples. The numbers on

the blocks of the flowchart are for bldck identification only and are shown in parenthesis when referred to in the text.

B. Critical Dates

The most important date in the development of

planning schedule is the date by which a plan or

proposal must be submitted to be considered for

funding. That date must be obtained from the sponsor and all planning must work back from or look

forward to it. Thus the planners need to find out:

(1) When the finished plan or proposal must be

submitted.

(2) Submission date requirements for any reports

or preliminary work.

(3) Content and format requirements.

(4) Review requirements and deadlines prior to

submission of the finished plan or proposal.

This type of guidance is often published. Minnesota's Crime Commission for example, provides an

annual Grant Program Information Booklet that

describes in detail the grant application process,

program, fiscal and statutory requirements, and

grant conditions. The booket also includes a sample

completed application.

C. Objectives

The first step in planning a project for offenders

is to formulate and reformulate the problem until

the project objectives are clearly. and precisely

defined and the best course of action is chosen. In

many instances the course of action is given and

the matter is one of planning the most effective and

feasible means of implementation. In either case a

clear statement of the project objectives is essential

to project definition, mandatory for project guidance,

and required for project evaluation.

The success of a project usually is measured in

terms of the degree to which the objectives are

realized; therefore, the objectives should be downto-earth, as specific as possible, and quantifiable as

to degree of achievement, accomplishment, success,

or failure. When preparing the list of objectives,

thought must be devoted to the measures to be used

in evaluation and the data needed to provide the

49

41
42

1. 2. 3. 4. 5.

What is the Establish,. Determine Develop Plan info

need tentative information preliminary collection Or /1,1.1

objectives for needs and 1411, concept for and use

problem the project sources project system

6.

Detailed

schedule for

preliminary

planning

Schedule of plan

ning activities

and events

Assignment of

research and

admen. tasks

11.

Establish

measures of

effectiveness or success

Planning staff Population served Philosophy Tasks assignment

Conferences Community data Operations Scheduling Research Job market Services Coordination with

Consultation Other activities others to be brought

with agencies into the planning

and officials List of resource

concerned people and agencies

7.

Collect

information

and data

8.

Visits

Telephone

Documents

review

Letters

Conferences

Organize and

analyze

data

9. 10.

12. 13.

Develop Determine

tentative i functions

concept for to be

evaluation performed

Refine

objectives

Useful Obtain competent Administration

Objective help to insure Operations

Attainable it will work Research and

Relevant evaluation

14.

Preliminary

concepts

for project

activities

§taff Related

Organization

Recruiting Serail"

Orientation

Training

Performance

Revise project

concept if

necessary

15.

1111. Preliminary

organizational

planning

Client Related

Sefetion Project Related

Intake-- Administration

Orientation Evaluation

Training Performance

Counseling

Employability

Placement

Follow-up

Assessment

16. 17. 18. 19. 20.

Facilities and

equipment needed Detailed

budget for

project

development

Facilities Planning staff needed Travel Availability Facilities

Major equipment Administrative

Minor equipment costs

Tentative

estimate of

costs & funds

allocation

Facilities

Staff

Clients

Services

Equipment

Materials

Supplies

Transportation

pare

preliminary

plan, proposal,

or prospectus

Submit

preliminary

plan for review

and approval

Objectives

Concept of operat'on

Details of further planning needs

Planning & implementation schedule

a

Figure 2. A Planning Procedure Flowchart.

50
21. 22. 23, 24. Review Ordered list Make planning

preliminary of all area schedules and

plan & changes for detailed organize planthereto planning ning areas

25. 26. 27.

Assemble Assign

additional tasks Prepare plan

.1111...1 staff as to 1111.0 implementation

needed staff checklists

28.

Staff

recruiting

and hiring

plan

29.

Staff

training

plan

30.

Coordination

and liaison

plans

31.

Supportive

services plan

40.

Review status

and revise

or update

plans

Requirements

Intake schedule

Recruiting

Selection

Orientation

Pre-service training

In service training

Supervising agencies

Cooperating agencies

Client source

Courts, Police

Community groups

Industry, business

labor

Supportive services

In house

Outside

Content

Contracts

Coordination

41.

45.

Start

implementation

of plans

goom

50. Protect review

and analysis

Corn plete

planning

32.

Client

intake

plan

33

....

Client evalu

ation and

progress assessment plan

34.

Client education, training

and counseling

plan

3 Research and

evaluation

plan

42.

46. Revise plans

as needed

Prepare

detailed

budget

Source

Transportation

Orientation

Intake schedule

Assessment

Crash counseling

Employability plan

Inch/. progress evaluation

Mutual Agreement Plans

Support teams

Content

Method and materials

Scheduling

Staffing

Facilities and Equipment'

Coordination

Concept

Data system

Integration with

operations and

administration

Staff orientation

43.

47.

NO

Rehearsals,

reviews and

systems testing

Assemble

detailed

plan

36.

Placement

plan

37.

Client

follow-u p

plan

38.

44.

Facilities

and equipment

acquisition

plan

39.

Administrative

management

plans

48,

YES

Client

intake

NO

49.

YES

Figure 2. A Planning Procedure Flowchart (continued)

51

Project

operation

43
measures and how it will be collected. (See Chapter 6.)

The key to establishing suitable project objectives

is that they be useful. They need to be expressed in

terms that are subject to measurement and that tell

the staff what must be done. An objective of "reducing crime in the community," while legitimate, is

too general to provide guidance to planners, operators, or evaluators; furthermore, it would be difficult

to determine whether any subsequent crime reduction was due to the project or to other factors.

"Reduction of recidivism in the target population"

is also a legitimate goal but it falls short of providing

guidance and has not proved to be a. useful criterion

for measuring project effectiveness. "Providing skills

that will allow meaningful integration of the offender

into the community" while also worthwhile, does not

provide guidance or suggest evaluative measures.

Such general objectives have to be narrowed ,to

more immediate, specific objectives that are meaningful to the project staff and the participating offender. This leads to objectives such as "train 200

offenders for employment in building industry

trades" and "provide the project participants with

sufficient job-getting and job-holding skills and attitudes to result in a subsequent employment rate

equal to that of other building trades workers in

the community."

The procedure for reaching suitable goals begins

by establishing the over-all objectives and proceeding through sub-objectives until useful and readily

quantified objectives begin to appear. These can be

recognized because they will indicate what specifically needs to be done and suggest data that will

indicate the degree of success.

D. Information Collection Mans

Manpower projects for offenders and ex offenders

will need information on: the population.,,,to be

served; the community in which the proitct will

operate and to which the offender will be released;

the specific job market into which the offender will

be released; and information on any other factors

in or out of the community that will influence the

projectsuch as what others are doing in conducting

similar projects, or who can be of special help on

the board of a project. An example of needs and

possible sources of information is shown in Table 2.

The first step is to determine what guidance and

information is needed and where to get it. A sched44

52

ule of activities and procedures for these tasks is

desirable.

Early consultation is needed with those who are

likely to have a decisive influence on the effectiveness of the project, or whether it will be conducted

at all. It would be very difficult to conduct a pretrial

intervention project, for example, without the concurrence, approval and cooperation of the courts

and prosecutors. A MAP program will require

approval of courts and corrections, and work by

corrections and parole offices. Similarly, it would

be very difficult to establish a halfway house in a

community aroused in opposition to it. Contact with

the local employment service, employers, and labor

organizations is essential in a job placement program. Follow up will require close contact with

parole officers, law enforcement agencies and employers, as well as the client.

When establishing tentative objectives (2), (See

Fig. 2) the planners consider alternatives and determine the best means to reach those objectives; they

will estimate project size, the resources needed, and

project contents. The result will be a working hypothesiswho the participating offenders will be

how many there will be, what they will need, what

services will be provided and how. This should lead

to a preliminary concept of operations that generates

additional information needs. Consultation with the

sponsors is usually advisable when the preliminary

list of objectives and a tentative concept of operations have been made.

The information collection plan (5) should include

a system that will allow the data collected to be

used efficiently whether that data goes into notebooks, memos, individual memories or a computer

data bank.

Since time is always limited, a detailed planning

schedule (6) is essential to insure all planning areas

are covered in the time available and to the required

depth. This means estimating how long a planning

task will take. If the length of time needed to complete a task is uncertain, the best person to estimate

it is the person who will get the task.

The person making the planning schedule can

then outline the tasks and assign them to the staff

available. If the schedule indicates staff or time

available is insufficient and additional staff connot

be obtained, the tasks will have to be reviewed and

some either reduced in scope or eliminated.

The final schedule should be reviewed by the

staff that will execute it. -It should include some

slack time toward the end since final coordination
TABLE 2. INFORMATION NEEDS AND

POSSIBLE SOURCES OF INFORMATION

Possible Source

Information Need

Guidance on objectives

and

courses of action

Community resources

Facilities

Supportive services

Public support

Job Market

Other factors

Complementary

programs

Competing programs

Funding

State and area LEAA offices; city,

county, and state manpower

planning agencies; criminal justice

planning agencies; corrections

agencies and officials; courts;

law enforcement agencies and

officials; sherrif; chief of police;

ex offender organizations.

Business organizations

Volunteer organizations

Community Health and Welfare

agencies

Local government agencies

Civic and fraternal groups and

organizations

Education agencies and schools

Industry and labor officials

News media

Professional groups and

organizations

Religious groups and organizations

State employment services*

Local employment services

irivate placement agencies

Business and industry people

Labor officials

Chamber of Commerce*

Economic Development office

News media (want ads)

Occu tional Outlook Handbook

(D ).

*Often make job market studies.

requirements, assembly, editing, and typing time

are usually underestimated.

Collecting the information (7) can be done by

telephone, visits, letters, documents research, and

miscellaneous legwork. In general the collection

effort should begin with sources most readily available and close to homethe local employment service for job market data, local employment service and business for placement possibilities, similar

local projects and their supervising agencies for

operations ideas and problem areas.

In planning information collection, thought should

be given to records that the staff will need for

analysis and planning. A good system is the collection of information by the staff member who will

use it in later planning tasks. Information can be

disseminated at staff conferences. All items that will

be needed later and may have an impact on project

design or operation should be identified and filed so

as to be retrieved readily.

E. Review of Objectives and Concepts

Having collected, ordered and analyzed the information and data (8) the planning group reviews the

tentative objectives (9) and concepts for project

operation (10) and makes any necessary revisions

in the light of the information. As the obActives are

established, evaluation measures must be refined

and project evaluation planned, at least tentatively

(11). Expert help may be needed at this stage to

insure that the evaluation measures are useful, that

the data needed can be collected, and that the evaluative techniques envisioned will work. This means

what will be evaluated, who will do the evaluating,

how the evaluating will be done, and what impact

it is likely to have. Assistance can be obtained from

actual or potential sponsors, agencies that are in

the business of supervising similar projects, and

perhaps local educational institutions having staff

members or departments concerned with social research and knowledgeable in evaluative techniques.

Finally there is the rapidly expanding field of literature on offender project evaluation that can lead to

helpful information. (See Chapter 6.)

F. Functions and Activities

What functions will be performed by the project

and what the project's activities will be evolve from

the project objectives and concept.

One classification of the major functions is Operations, Administration, and Research and Evaluation

(13). Another possible breakdown is:

(1) Client Operations and Processing

(2) Planning and Project Development

(3) Administration, Business, and Budget

(4) Management and Control

(5) Evaluation

Regardless of the classification, the names used

should cover the major functional areas of the program and indicate major compartments of the

organization.

Analysis of the functions to be performed and the

related activities and tasks to be conducted, in con53

45
junction with the client intake and outgo will indicate

the number and type of staff required and their

organization (15). One way to determine staff requirements is shown in Appendix E.

The estimate of facilities and equipment needed

(16) is usually a fairly straightforward job once

planners have determined the number of clients and

staff who must be accommodated and what they will

be doing. They may range from one office and its

contents to administrative offices, classrooms, shops,

and other *Bides in a variety of buildings. Facilities estimates will usually reduce to the amount of

space needed and how it should be arranged. A good

measure for most facilities planning is square feet

of floor space. The funds available will have some

influence on facilities and equipment so guidance

from sponsors will be needed before planning

exceptional space or sophisticated and expensive

equipment.

Where a facility is to be located in a community

can be as important as the space available. If it is

to be a halfway house activity or work release center

from which the offenders will seek work and go to

jobs, it should be in or near centers of employment

and have ready access to public transportation. Such

a location also allows the stir to respond rapidly

when an employer is having a problem with one of

the participants. One project visited was located in

the dowifown area YMCA close to many potential

employers and with readily available public transportation to industrial sites that had moved to the

outer city and to vocational schools and other services. If the project is to provide services for clients

Will will not live in the facility, it should be located

where the clients are. Older hotels and office or

commercial buildings can often be a source of space

in downtown areas. Cost estimates (17, 18) for

facilities should be obtained from the sources

realtors, vendors or state agencies likely to provide

them; remodeling cost needs to be estimated. The

estimate of equipment needed may be more complicated since it is more varied. One method is to have

each staff member concerned with a major activity

prepare leis needs list and obtain the costs; for

example, the brick-laying instructor, the personal

counselor, the placement counselor, the cost accountant, the business manager, and the kitchen manager.

A second method, when such staff is not available,

is to visit a similar project and see what they have.

The project planners can also look at plans prepared

for other projects and revise them for their own use.

46

,t

5k

The planners should then be able. to assemble a

preliminary plan (19), and submit it for approval

(20), or use it as a base for more detailed planning.

The degree of detail needed in the preliminary plan

will depend upon the requirements of the sponsor.

G. Detailed Planning and Implementation

Approval of the preliminary plan, and perhaps

funding for detailed planning, is the signal for continuing of the planning but in greater detail. This

is indicated in Figure 2 in blocks 21 through 39,

in which planning continues to produce a detailed

plan for implementation of a project.

A master plan and planning schedule should be

prepared, based upon the preliminary plan and any

new information (23). Staff planning" areas should

be crystallized (24) and planning and implementation tasks"" assigned, Additional planning and key

staff should be obtained in accordance with the preliminary staff recruiting plan. The staff recruiting

plan can now be developed in detail (28). Tasks

should be assigned, planning deadlines given, coordination requirements indicated, and status reports

v, requirements specified. Appropriate subplans (28-

39) should be prepared in accordance with the

masterplanning and implementation schedule. The

central planning staff or director should coordinate

the activities of the different planning sections,

review status periodically and revise plans as necessary (37). A detailed budget completes the planning

%and a detailed plan can be assembled for approval. vr, If the planning has been adequate, implementation

--consists of doing what was previously planned. As

implementation proceeds there are the same reviews

of status and plans are revised as needed (42).

Rehearsals, reviews, and tests of some activities may

be advisable to insure they will run smoothly

orientation procedures, for exampleso that when

the clients arrive all the staff knc ws what to do and

how to do it, and has the necessary tools to perform. This implies organizational planning, staff

management, staff training, and project control as

I indicated later in this chapter.

H. Organizational Planning and Staffing

Organizational planning is needed before a suitable organization can be developed, before staff

training can be planned and before staff can be
hired. The planning includes analysis of all activities

and responsibilities; this entails examination of all

the tasks that must be performed to start and to

conduct the project. The tasks are organized by

common characteristics or by functions to indicate

the groups of the organization.

To determine staffing needs the planners determine the specific activities included in each function

to be performed during a given time period, the

expected number of times the activity will be repeated during the period, and the number of people

required to do the work.

The planners obtain this information by analysis

of the functions and activities of the project, including management and supervision, and review of the

character and organization of similar projects. Job

descriptions, including the individual qualities required to perform the job, should then be prepared.

As the project gets under way, the planned lines

of communications and coordination are compared

.with the actual flow of information and control to

see if there are flaws in the organizational structure

and if reorganization is needed.

Insofar as possible the following principles of

organization should be followed:

(1) Ultimate responsibility" and authority rests

with one individualthe project director.

(2) No staff member should have more than one

supervisor. He may have any number of

advisors.

(3) No supervisor should lead more than five

staff members or groups if the groups must

interact with each other. (Experience has

sho4 that five subordinates is usually the

optimum span of control.)

The Team Approach. In establishing the organization and assigning functions in a manpower program

for offenders and ex offenders, the project director

should consider the team approach in which selected

staff members, augmented by others concerned with

the client, work together to help the client solve

problems. Such teams have been particularly effective in training and placement programs, such as

those conducted by the MDTA Skills Centers, where

the client becomes closely associated with more

than one person on the staff. The team usually consists of the client's primary counselor, primary

instructor, job developer, and any other key people

concerned. The team has formal status. Whether

it is called an employability team, a support team,

or something else, it works with the client to develop

an employability plan, monitors and periodically

evaluates his progress and his needs, makes recommendations in his case, and works with him to revise

the plan as needed. One of the team members is

appointed chairman to coordinate the team activities.

The composition of the team is flexible; it is varied,

augmented, or reduced as needed but to be most

effectiVe maintains a core membership that meets

regularly and work together for the client's benefit.

The team furnishes or coordinates those services

the offender needs to be most receptive to the program. It is the focal point of planning related to the

individual and of information on his status.

I. Staff Recruiting and Selection

Experienced project directors generally agree that

the quality of a project depends primarily on getting

a good staff and that one should start looking for

staff candidates no later than 6 months before the

project is to start. The planners must design a recruiting plan that includes a schedule indicating when

each staff member is needed. Coupled to this is the

preservice orientation and training plan. Since staff

recruiting steps must be taken early in the planning

phase, the development of an organizational structure and the preparation of job descriptions are

priority tasks.

Check for hiring leads at manpower programs,

poverty programs, ex offender organizations, parole

officers, corrections departments, Employment Service Offices, Human Resources departments, and

the like. Place advertisements in newspapers and

organization publications. Community organizations

and the project advisory committee can also help.

Applicant screening and selection techniques must

be devised. Interview guides should be used, in addition to job application forms, to insure comparable

data is obtained on all applicants for a position.

Interview boards should include managers, administrators, or senior staff with whom the potential staff

member will be working. A three man panel seems

to be common for interview of applicants. A rating

system can be devised to aid in making a choice

among applicants.

The most often mentioned qualities for a staff

member who will be working with offenders are:

(1) Competencethe ability to do the job or

learn to do it.

(2) Dedicationthe desire to work in the field

and devote his energies to it; a strong commitment to human services.

55

47
ii

(3) Maturity and demonstrated responsibility.

(4) Characterconvictions, strength, and selfconfidence.

(5) Empathyable to establish rapport with different kinds of people.

(6) Flexibilitycan adapt readily to meet needs

of the job.

Additional qualities .can include the ability to

operate in bilingual and bicultural situations since

in some areas many offenders do not speak, read or

write English and come from diverse cultural backgrounds.

The selection of staff members should be coordinated with any agencies that are closely associated

with the program. These agencies can often be helpful in recruiting and selection. In training programs

in an institution, for example, assistance of agencies

such as a Board of Correction and the State. Vocational Education Office is essential. Their concurrence in the selection of staff may be advisable if not

required; such agencies, by virtue of their experience, may be of significant help in selecting the

best candidates.

J. Staff Management

Effective staff management is aided by:

(1) A suitable organizational structure with clear

lines of authority, assignment of responsibility,

and distribution of functions.

(2) A detailed description of the authority, responsibilities, and duties of each staff member.

(3) Written policies and procedure for project

administrative and operational activities.

(4) An organized procedure for staff orientation

and training.

Frequent meetings of the staff to review operations and discuss problems.

(6) Open communication throughout the organization and with supportive or cooperative

agencies and offices.

There is often objection, if not resistance, to all

but the last of this list on the grounds that they

smack of rigidity and authoritativeness, destroy

flexibility, stifle innovation, and compartmentalize

the project so that communications suffer. But by

and large, projects that take the time to describe

their organization, operations, policies, and individual jobs in written form better understand what

they are doing and function more effectively than

(5)

48

those that do not. They are also in a better position

to cope with the inevitable changes in staff as people

leave and others take their place. Finally, they are

able to provide specific written advice to other

people who may need information on establishing

a similar program.

In a complex project with a large staff the procedures are mandatory to prevent confusion and

duplication of effort. A project with a small staff

of competent and compatible people can afford to

be more informal but would still find them useful.

Organization. A major requirement of an effective

project is an understanding by the staff of the lines

of authority and areas of responsibility in the organization. Each facility, project or program should

make and keep current an organization chart. The

chart should show key personnel and offices, lines

of authority, distribution of functions, lines to outside agencies, such as superior and subordinate

facilities and outside supportive agencies. The chart

should be posted and copies should be available for

staff, participants and visitors. In conjunction with

this, a list of the project staff, with addresses and

telephone numbers, is a useful timesaving tool. Also

useful are organization charts of outside agencies

the project staff will be working with. These can

usually be obtained from the agency itself.

Authority, Responsibilities, and Duties. Each

project should have descriptions showing the authority, responsibilities and duties for each job in it.

These documents should guide staff members in

performing their duties effectively and in concert.

Position descriptions should include coordination

requirements. Each staff memberprofessional,

paraprofessional, nonprofessional, volunteershould

have a job description so that each knows precisely

whathis job is. When responsibilities, authority, and

duties change, as_tbey will in any dynamic or new

project, the descriptions should be changed. Key

position descriptions are usually summarized in the

staff handbook.

The job position descriptions are particularly

important when hiring relatively inexperienced staff

who will be doing jobs that do not permit close

supervisionjobs where the staff member will be

working on the street, with employers, or with other

agencies. The job descriptions are also useful when

the type work being done is in a new field where

there are no established mores or patterns. Here

they not only help the individual starting on the job

but provide research information and guidance for

similar projects that may follow.

5 3
Policies and Procedures. Each facility should have

a policies and procedures document, preferably in

a staff handbook form. The handbook should explain

the philosophy of the project, guide the activities

and conduct of the staff, and serve as a primary

source of information on routine administrative

and operations procedures. It must be designed so

that it is a useful tool and be kept up to date. A

copy should be available for each staff member.

A staff handbook is particularly useful to acquaint

new staff with a project.

Some candidate subjects for a staff handbook

include:

Project Description

Procedures

Conduct

Hours and Schedules

Outside Employment

Holidays, Vacation

Grievances

Salaries

Employment Policies

Promotions

Resignation and Termination

Travel

Expense Reimbursement

Publicity, Publications

Inservice Training

Benefits'

Special Problems

Linkages

Staff Orientation and Training. Staff training is

essential before and during a project. The most

effective staff training is that conducted at the project

site and during the project, with outside specialists

or programs being brought in as needed for specific

assistance.'

Each project that is large enough to warrant it

should establish a Staff Development Committee of

key staff to analyze problems and plan and conduct

staff training. In a small project an individual may

undertake the task.

Orientation and training of stew staff members

deserves particular emphasis. Effective training

includes:

(1) Orientation to the offender and his world, to

the correctional and criminal justice require1 AIWA Skills Center Directors Guide, U.S. Department

of Health;" Education and Welfare, Office of Education,

Division of Manpower Development and Training, Washington. D.C., 1 June 1972.

ments, traditions, practices, strengths and

weaknesses and to the project objective and

procedures.

(2) Introduction to and familiarization with supportive agencies, community services, and

others concerned with the project and orientation on the establishment and maintenance

of good relationships with those agencies, e.g.,

custodial staff, police, courts, employment

service, vocational rehabilitation. A staff

booklet can provide much of the information.

(3) Familiarization with the characteristics and

background of the participating population.

(4) Methods of instruction for persons qualified

by subject matter experience rather than by

instructional experience. Local educational

agencies may be useful in providing assistance.

(5) Training on counseling, since many will fall

into the counseling _xole by virtue of association with the offenders in the project. Local

educational, human resources, and manpower

agencies may be sources of assistance:

(6) Using both formal and informal meetings for

training and to disseminate information that

may improve the effectiveness of the project.

This may include lessons learned on the project, lessons from other projects, and other

information.

(7) Location, development and use of materials,

texts, literature, films, tapes, and other training or administrative aids that will make the

project more effective.

(8) Identification, location, or development of

useful motivational and instructional methods

and techniques.

(9) Development of objective means of self-evaluation and individual client progress evaluation.

K. Relationships With Other Agencies

Project staff members must often work closely

with the staff of other agencies and with business,

labor and community groups and individuals. Positive relationships should be established and maintained with such groups and agencies to get their

full cooperation and assistance. They may include

people from agencies such as corrections, police,

courts, parole, employment services, city and state

manpower agencies, and health and welfare agencies.

Usually it is a matter of bringing these people into

the project earlyin the planning stageand main49
taining communications. Failure to do so can lead

to serious conflicts and misunderstandings detrimental to the project. In one such case the staff reported

that:

"In the early steps of dur R & D project, we

failed to orient members of the line (custody)

staff to our project and to familiarize them with

thephilosophy and objectives of our operations.,

This failure on our part complicated our working

relationships with a few members of this staff." 2

To avoid such situations, the project director

must insure:

(1) That the project staff is thoroughly aware of

the duties, responsibilities, regulations, and

customs of others who must also deal with the

offender. While the staff must receive guidance

on what to do when conflicts occur, they must

also be free to deal with staff of other groups

to settle problems amicably and personally.

(2) That other concerned staff (particularly those

at the top)- are fully informed on the objectives and activities of the project. If staff

members of other agencies can participate on

the project, they should be encouraged to do

so. The associated staffs should be brought in

on planning, be apprised periodically of the

status of the project and be notified immediately of any changes with which they may be

concerned.

(3) That he keeps abreast of any potential conflict between the staffs and does something

about it.

A useful tool for the project staff is a document

listing the appropriate agencies and individuals that

the project might deal with and the names and telephones of key people in them that may need to be

contacted. As a minimum there should be such a

list for outside supportive services.

L. Former Offenders on the Staff

Hiring ex offenders for project staff is highly recommended when qualified persons can be found or

can be qualified in the staff-training time allotted.

Such persons have insight into the problems of offenders that most outsiders lack. They are familiar with

the participant's milieu and can add weight to the

rehabilitation effort associated with training and

2 The Draper Project Final Report, Rehabilitation Research Foundation, Elmore, Alabama, vol. II, p. 10

50

53

placement because they speak from personal experience. A competent ex offender on the staff may

often lead to finding other equally valuable ex offenders for the Koject.3

The pitson.needed is an ex offender with a socioeconomic background similar to that of the participating offenders, with othe mental aptitude and

emotional stability to do the work, and the personal

warmth and commitment to human services to do

the work. Training furnishes the skills needed in

areas such as counseling, efficient work habits, and

paper work. Training in work organiqrtion and the

self-discipline conducive to efficient performance is

particularly important. It includes planning work

activities and independent follow through. Most ex

offenders have not had experience in these areas

and will need help.

One problem that may arise from selecting an

insufficiently mature ex offender of the same background as his client is that the two may become

stuck on the point of their fight against the "establishment" or "th6 Man," and counseling sessions

become a litany of woe and mutual rallying against

the "system." The establishment beeves the scapegoat, no behavior change is demanded, and no

responsibility is accepted, though the staff member

may teach the participant how to beat the system.

The ex offender staff in this situation needs to admit

commonality, use it, and move beyond it to fulfill

the goals of the project.4

At the opposite extreme is the ex offender who

becomes "professionalized" and "respectable" to the

point where he wants no identification with the

offender and prefers to drop his ex offender role.

The pressures on an ex offender working as part

of the establishment can be high. They can present

role conflicts and inconsistencies that are difficult

to overcome. Some of these can be handled through

group meetings where the problems are discussed

and their ramifications investigated. When they are

understood, the ex offender staff can better cope

with them.

When hiring former offenders the director should

consult appropriate agencies to insure consideration

of laws, regulations, or policies that may present

obstacles or cause problems and take the necessary

action to overcome the obstacles.

Some criteria for the hiring of ex offenders will

differ from that used in hiring regular staff. An

3 Boston Court's Selection and Training of Advocates and

Screeners for Pre-Trial Diversion, p. 41.

4 Ibid.
example of such criteria and a rating scale to assist

in selection is shown in Appendix F. Different situations may dictate different criteria and other screening devices. The judgement of those doing the selection and their feelings about an applicant will often

be overriding factors in the hiring.

Adequate and well-planned orientation and training is as imperative for the ex offender syff member as it is for the professional staff. While much

of the training will be the same, special emphasis

will be required in areas where the ex offender's

background does not provide adequate knowledge

or practice. The same may be said for the inexperienced professional. The gaps in the paraprofessional

and professional staff experience are often complementary and projects have concluded that both need

training and that the training must be planned and

executed deliberately, as well as conducted informally through routine association of the two.

Finally the paraprofessional ex offender needs the

same opportunities for development and advancement on a career ladder that other paraprofessionals

and the professional staff should have.

M. Advisory Committees or Boord

of Directors

Every project should have an advisory committee

and in the case of a private nonprofit corporation,

a board of directors. Such a group is particularly

important to a new project. The committee or board

should meet periodically with key project staff to

determine the status of the project and furnish

advice, guidance and support.

The composition of the board or committee is

important, since the board can provide the support

to make a project successful. Membership should

include:

(1) Ex offenders or persons with a background

similar to that of the client population.

(2) Representation of minority groups that may

be in the client population.

(3) Labor union and business members who can

help with employment.

(4),A lawyer, since serious legal problems can

arise.

(5) At least one dedicated member who can devote much time to the project, develop a vital

interest in it and be a driving force in

essence be its godfather and protector.

A key factor in an effective board is to use it in

solving project problems rather than merely to report to it periodically. Board members should have

specific responsibilities so that they develop a personal interest in the project.

N. Volunteers

During the past decade, many urban and suburban

communities have developed formal corps of volunteers who are screened, trained, and available for

use by a community agency that needs them. Volunteer corps contain persons representing a wide range

of knowledge, skills, experience, and availability.

Volunteers are available for sponsorship in general

(befriending), teaching, tutoring, job-finding, and

resources development (locating speakers, educational and recreational opportunities, and raising

money fOr special purposes). Most volunteer bureaus

have persons available who will provide transportation to clinics, recreational- events and community

activities. The services of social workers, clinicians,

accountants, and other professionals are often available through volunteer bureaus.

Where a suitable organization to provide volunteers does not exist someone can usually be found

who will organize volunteers specifically for offender

aid. The project staff needs to make their needs

known to the community by explaining the project to

key people and the community at large.

, Planning for volunteer recruitment, orientation

and activities should receive as much attention as

that for the regular staff. If he is to be effective, the

volunteer should be considered staff and treated as

such, be given specific assignments, authority and

responsibilities, and where possible be in a promotion hierarchy.

The Volunteer's Book published by the Offender

Aid and Restoration group is an excellent example

of guidance for volunteers working with offenders.5

It includes a description of problems of the offenders,

guidelines for volunteers, aids and resources in the

community, description of successful techniques and

pitfalls, and examples of how OAR volunteers

operate.

A useful overview on volunteers as a resource is

given in Perspective on Correctional Manpower and

Training, a staff report of the Joint Commission on

5 OAR Volunteer's Book, Offender Aid and Restoration,

414. 4th Street N.E. : Charlottesville, Virginia 22901.

51
Correctional Manpower and Training, Washington, D.C.'

A basic reference on organizing and managing

volunteer programs is Guidelines and Standards for

the Use of Volunteers in Correctional Programs,

produced by LEAA.' It includes an extensive outline of references, resources, and training aids.

0. Project Participants

Project managers should consider using project

participants to aid in staff activities when such work

is not talent or labor exploitation but a motivational, training, or rehabilitative technique; individuals respond positively when given responsibility.

The director should receive feedback from the

offenders in the program and participants should

have a means of influencing the program in an

advisory capacity. The participants should be encourage4 to elect a council to advise the project

director and act as a grievance committee. This

council or committee should have a staff advisor

for guidance and control.

P. Community Relations

The public and local government officials need

information showing that the offender project in

their community has value and merits support. Concurrently, programs must promote a climate of

confidence in the community so that eventually

offenders will be able to seek work and be judged

solely on their qualifications for that employment.

Community support can dissolve incipient problems

and help solve project problems in areas such as

transportation, space needs and employer acceptance.

The staff should be oriented on their part in

establishing good relationships with the community.

It is essential that in providing public information

that staff members be accurate, honest, and keep

the director informed on their activities. One project,

for example, uses a "PR Contact Report," a single

sheet report that any staff member can submit to

report what he considers a public relations activity.

Essentially public relations is public education. Citi6 May be obtained through the American Correctional

Association.

7 Guidelines and Standards for the Use of Volunteers in

Correctional Programs, U.S. Department of Justice, LEAA,

Technical Assistance Division, Washington, D.C., 1972.

52

60

zens can be expected to respond only in terms of

what they know and feel. In the absence Of knOwledge there will be little understanding and there

may be considerable fear and opposition. Public

relations is also concerned with education and harmony with persons who have a particular interest in

local government affairs, community service, and

criminal justice procedures.'

A principle of good public relations may be

stated as follows

"Public relations efforts should have as their

prime objective the development of effective citizen

support for participant-serving activities; they should

not be crisis-oriented but should be planned and

executed in a deliberate, continuous and straightforward manner." 9

Public relations also includes community participation. A primary thrust in Project Challenger, for

example, was active solicitation and cooperation of

local industry in preparing outlines, teaching plans,

and providing consultation .which served to keep the

program geared to the labor demands of the business and industrial community." The community

participants thus have a stake in the project and

support it.

The continuance of an offender project, funded

initially by Federal money, often hinges on its being

taken over by local or state agencies and funded

by local or state funds. This takeover hinges on the

public in general and local officials (such as mayor

'and councilmen) in particular knowing the value of

the project and working for its support. The primary

purpose of the project evaluation should be to

demonstrate this valuepreferably in terms of

cost/bcnefits.

O. Records Management and. Control

The director should be able to reply promptly to

requests for information on all aspects of his project,

its effect on individuals and the community, costs,

use of funds, benefits, and data on the participants

and former participants. Information may be needed

by people concerned with the project, the public,

press, or government officials, or by cooperating

agencies and other projects.

Although some procedures for record keeping

must be designed and followed, and the resistance

8 Busher, Ordering Time To Serve Prisoners, p. 160.

9 Ibid.

10 Project Challenge.
"IP

of busy staff must be overcome, the time and effort

invested outweighs the trouble and costs. This is

usually realized the first time information must be

supplied that is not on record and must be laboriously reconstructed under panic conditions."

No administrator can expect his activity to be

recognized, accepted, respected, and perpetuated

until he is able to present it in convincing terms.

Thus he needs to establish a process that can deliver

routinely quantified information on every significant

aspect of the operation. Without such information

the manager can only proceed by feel, impression,

guesswork, and chance. Furthermore, when bad

decisions are made, the reason for making the wrong

decision can be traced."

Suggested steps to develop a plan to provide

useful statistical data are 13

(1) Identify and list information needed by the

staff to plan, administer, and evaluate each

program activity and the data needed to

assemble the information.

(2) Identify and list information and specific data

needed by supervising agencies, officials, departments, organizations and individuals to

whom information or data must be supplied

or may be supplied.

(3) Design a system that will produce the data

required for administration, operation, evaluation, and information.

(4) Design a system for storage and retrieval of

information.

(5) Periodically review these information needs

and eliminate the collection of data that is

not used and is of no significant historical

or research value.

In the design cif the data system, the planners

should consult agencies whose existing data systems

are related to the offender programs, e.g., police,

department of corrections, courts, manpower, employment service. It may be advantageous to use

the same format for the same data so that the

systems are directly compatible.

The data system set up should be designed so

that it can be readily computerized even though it

may be operated manually. Setting up the system

automated data processing is valuable to a manual system because it will reveal errors and

1 Carol H. Weiss, Evaluation Research, Englewood Cliffs,

N.J.: Prentice-Hall. Inc., 1972.

` Edward Suchman, Evaluation Research New York:

Russel Sage Foundation, 1967, p. 61.

inconsistencies. The mathematical treatment envisioned for the data should be tested to insure that

the routines are error free. The data format should

be determined in detail before data collection forms

are designed.

When relating to other systems, the definitions of

items should be carefully reviewed to insure terms

(to include magnitude and dimensions) are compatible and files will match.

Project planners are again referred to Glaser's

Routinizing Evaluation for guidance on integrating

research, administrative and operations records and

on automation of input data.

The project director and his staff will have to

establish file systems for records and determine their

retention period. Retention period information

should be provided by the'sponsor or state. In case

of doubt as to what the retentive period should be,

the following should be safe:

Property and financial records-5 years

Project operation status-3 years

Client recordsend of follow up plus 1 year

In any project there are measures of particular

importance that a director can use, singly or in

combination, for the on-going evaluation of status

and performance. Graphic displays of these measures can show trends, changes, or departures from

the norm that warrant attention. The most obvious

example is a graph showing actual cumulative expenses and planned cumulative expenses that shows

at a glance the financial status of a project.

Depending upon his needs and his resources the

project director must identify those particular measures he considers of special importance in the

management, control and evauation of his project

and determine how he can best monitor them.

R. Planning Guidance for an

On-Going Project

Guidance. A project director of an on-going

project must have timely planning guidance or information so that he can plan his activities and provide information for other concerned agencies. He

needs to know about:

(1) Sources of funds and anticipated level of funding.

11 Busher, Ordering Time To Serve Prisoners, p. 153.

1" Ibid.

13 Ibid., p. 154.

61

53
(2) Client source and intake rates.

(3) Client characteristics and needs.

(4) Changes in the job market requiring changes

in training, placement and follow-up activities.

(5) Availability and effectiveness of supportive

services.

(6) Changes in other projects and in other

agencies that will influence the operation.

(7) Research and evaluation requirements.

Long Range Planning. In addition the project

director needs to look 1 to 3 years ahead so that he

can give timely consideration to

(1) Potential changes in the job market.

(2) Potential changes in the criminal justice and

corrections system that will have an influence

on the project.

(3) Plans for replacement and disposition of obsolete equipment.

(4) Plans for expansion, contraction, relocation or

curtailment of operations.

(5) Staff replacement and procurement, staff development, and if possible, integration into

the criminal justice and corrections field to

provide a hierarchy of positions with career

and promotion potential.

Critics have charged that there has been very

little proper evaluation, no establishment of standards or criteria by which to measure degree of

54

62

succ r failure, and no way of knowing whether

offendetatabilitation programs are working and

are worth the investment.

In many projects the evaluation techniques or

findings have been found faulty when subjected to

rigorous examination, in others the evaluation results

could not be generalized to make them universally

applicable because the persons, conditions, and circumstances were unique to those programs at a

particular time. In most, the evaluation has consisted of a presentation of operational statistics such

as number entered, number trained, number placed,

number employed, and number recidivating. In some

cases, outside evaluators have been hired to evaluate projects after the fact, with the evaluation design

being dependent upon the limited project data available or reconstructed data. However, research and

evaluation experience and literature has expanded

during the 1960's and early 1970's and is leading to

a better understanding of the role of research, the

purpose of evaluation, and the treatment of data.

Publications on offender project evaluation are now

available for a project director to use to assess his

own needs and to obtain o.train competent evaluation teams. Glaser's 1973 publication, Routinizing

Evaluation, is an excellent example. Much of this

chapter is based upon it. Evaluation Research by

Carol H. Weiss is a useful basic text on evaluative

research in social programs.' Suchman's work, Evaluative Research, provides a more comprehensive,

academic and technical approach.
CHAPTER 6. EVALUATION

A. Levels of Evaluation

Suchman proposes five categories of evaluation;

classified in order of the criteria and their complexity. They are summarized as follows: 2

(1) Effort. Measurements made in terms of cost,

time, and people employed and yielding primarily

the project's economics. An example is a study of

the effort spent in a job training program; the equipment, people, training hours required to achieve a

level of vocational skill, and cost.

(2) Performance. Determining whether the immediate goals of a project are being met. In the

case of a vocational training program, the success

criterion would be the number of clients reaching

the required proficiency within the training time

allotted.

(3) Adequacy of Performance. Limited determination of the value of the project to the offenders.

For example, the number who achieved the desired

proficiency in training and proved to be employable

in a related, occupation after release.

(4) Efficiency. This stage involves both cost effectiveness analysis and determination if the activity

(training and employment) made any significant difference; this usually requires comparison with a

control group that did not receive the services.

(5) Process. Elaborate research design to study

the link: between processes and results to find the

contributions of processes to objective achievement.

Process analysis in this classification is concerned

with the attributes of the project related to success

or failure, analysis to determine who is benefited or

not benefited by the project and the degree of benefit, conditions affecting the project, and the effect

produced by the project.

Another classification system is process evaluation And impact evaluation, Under this classification

process analysis is concerned with the operating

statistics of the project, those that describe accomplishments in terms of the immediate activities,

while impact evaluation is concerned with the outcomes or long-term effects of the projects The

process evaluation here includes the fourth level and

in some cases the fifth of Suchman's categories.

The level used and how elaborate the evaluation

is depends upon the type of program, funds available

for evaluation research, the expertise of the people

designing and conducting the evaluation, and the

availability of valid standards and criteria. If valid

standards of performance are developed, many

projects can simply determine whether they meet

the standards, with no elaborate evaluation design

being required.

Formal evaluative research requires special knowledge and skills.4 Therefore, a project director should

obtain competent analytical help early in project

planning to design an evaluation system. It should

also be available during the project to insure the

evaluation design is going to work and is not being

subverted.

B. Steps in Evaluation

Evaluation should be an on-going process beginning with the planning of the program.

A good evaluation program includes: 5

(1) Specification of the project goals and objec7

tives, identification of the assumptions underlying the objectives, and determinik the

relationships between objectives.

(2) Development of an evaluation design ,that

specifies what information is needed and its

format, what comparisons are important, and

what controls are necessary to enable determination of the extent to which the project

objectives are met.

(3) Formulation of a data collection system adequate to fulfill the information needs specified

in the design.

(4) Collection of the data.

(5) Design of a system of data management and

processing and analysis of the data.

(6) Interpretation, precciitation, and dissemination of the results.

3 Peter H. Rossi and Walter Williams. eds., Evaluating

Social Research, New York: Seminar Press, 1972, p. 110.

4 Busher, Ordering Time To Serve Prisoners, p. 163.

63

55
C. Data Systems

A preliminary to evaluation in correctional programs is a store of basic data about the characteristics and activities of inmates, probationers, and

parolees, continuously recorded, kept up to date,

and expanded to include each stage of the system.

Currently there is no adequate common data base

to allow valid comparisons of different projects,

development of valid, broad-based statistics with a

common meaning, and development of criteria and

standards to guide future projects. If information

elements could be made standard, coded and stored

in a modern information storage and retrieval system, at least on a statewide basis, it would help

considerably in providing a useful body of research

data that cuts across various projects and programs.

Project directors in states that have developed usable

data systems should relate their data collection and

data format to that of the state.

The standardized offender projects data systems

beginning to emerge at the state level should provide

common data elements within the state; they should

help guide evaluation to provide more meaningful

results and a better basis for future decisions on

project development. The possibility of integrating

the state and local data into a valid national offender

project data system appears remote except for those

items that, after study, are shown to be compatible

regardless of source. In addition to developing

offender research data systems and associated research and evaluation offices, some states and other

prime sponsors are establishing offices with the technical competence to provide evaluation assistance,

information, and guidance so that projects' can be

adequately evaluated and subsequent findings and

conclusions can withstand critical analysis. State

Manpower and LEAA agencies are the primary

contacts for information.

Where a system of guidance, technical assistance,

and data management do not yet exist, the project

director may be .responsible for design of all aspects

of evaluation, whether he arranges for an independent agency to conduct it or does it with his own

staff; the sponsor may approve, disapprove or suggest changes but the data elements used and their

format is not constrained.

D. Integration of Evaluation into Planning

and Operations

A project evaluation component should be an

Handbook on Community Corrections in Des Moines, p.61.

56.

integral part of planning. The project planners and

evaluation staff must work together in the planning

stage, developing the evaluation design, measures

that are suitable, and data systems.

Evaluation staff and project staff also must work

together during the course of the project. The latter

must know what the former are doing and why they

must have the data being generated for them. During orientation, project staff should be introduced

to the evaluation rationale, the techniques being

used, and the part the staff will play.6

Periodic assessment must also be conducted to

insure that the evaluation plan will work and to

obtain early findings that can be used to improve

the project.

E. Standards and Criteria

A simple and useful evaluatiOn technique is to

measure program achievements against established

standards. The major obstacle to extensive use of

thiS technique is that few generally applicable standards have been established and situations can vary

so that it is very difficult to develop suitable standards by replication. For example, in an offender

employment effort the obvious standards is percent

successful placements, but there are so many factors

influencing the placement rate (the rate of unemployment, for one) that no one standard can apply everywhere at all times.

If the aim of a program is to reduce some type

of deviant behavior in the community, the best

criteria of the program's effectiveness are objective

or "hard" data on the post-treatment behavior of the

program's clientele. If subjective ("soft") data is

used any must be tentative and qualified

untill their validity is verified.'

Preliminary conclusions on a few objective measures of behavior in the community, derived from

short term follow-ups on small samples of early

releasees, may often warrant greater confidence than

subjective data from larger samples for whom no

hard data exists.8 Nevertheless, subjective data can

be useful because they allow consideration of important factors not indicated by the hard data

collected.

There are different kinds of success for a project.

Sometimes all are related to the primary goal, but

they represent different degrees of accomplishment

6t

Pieczenik, Rer:ew of Manpower R & D Projects, p. 73.

Glaser, Routinizing Evaluation, p. 18.

Ibid.. p. 19.
of that goal. Sometimes different kinds of success

are related to different goals (such as reducing drug

dependence, reducing crime, and increasing employability). Ranking them by relative importance may

be difficult, but it is useful to assess them all because

attOmplishing some kinds of success may be preferable to accomplishing none. Finally, it is important to recognize different kinds of success because

the kind that can be measured validly or usefully

varies greatly from one circumstance to another.9

Glaser concludes that defining success can cease

to be a stumbling block if one recognizes that: 10

a. There can be multiple kinds of success, each

with respect to a different goal.

b. One must try to determine what behavior of

officials and the staff of people-changing agencies

is rewarded, because that which is gratifying tends

to become the actual goals in their work. The goals

that are not proclaimed are latent goals, and they

may influence behavior of personnel more than the

manifest (stated) goals because they can be private,

more personal goals exerting more pressure. For

example, the latent goal of an organization may be

to survive and grow rather than to serve. Latent goals

need to be made manifest and justified. Then research to determine the extent to which goals are

achieved can be made relevant to officials and have a

better chance of producing usful evaluative routines.

c. One should seek definitions of success that are

useful rather than sacred, or habit. This applies to

definitions of recidivism, abstinence, employment

and other concepts in terms of which success may

be defined for specific goals.

d. The usefulness of a definition of success is

a function of the feasibility of measuring it, as well

as its implication for goal attainment.

One useful way of deciding upon a criterion is to

consider first the kind of change that can be most

readily accomplished for a client. This change may

be a subgoal or means to a major goal. The clients

for whom the subgoal can be achieved may then

be evaluated separately, with respect to the major

goal, comparing those who had help with individuals

who had no help in achieving this subgoal.

In many studies success is measured as if it were

an "all or nothing" matter with no consideration of

degreeone rearrest, for example, resulting in a

classification as "failure" and no arrest in classification as "success." Such a =ware is limited in its

Ibid.. p. 14. 1"

sensitivity. Greater sensitivity to the degree of success or failure can be obtained using continuous

measures such as subsequent confinement time,

rather than dichotomous measures such as reincarcerated/not reincarcerated.

Glaser thinks that:

Probably the most sensitive criterion of the

effectiveness of correctional endeavors with any

group of offenders is the time they are confined

during a follow up period?. . . . By reflecting the

severity as well as number of penalties, the total

amount of confinement time provides a crude

index of societal outrage at the conduct of various

groups of released offenders."

Though subsequent confinement time is preferable to a dichotomous measure (pass/fail-success/

failure), the time served for new convictions is crude

because of inconsistencies in society's reactions to

criminal law violations. Some who revert to crime

are caught and some are not; some "beat the rap"

though just as guilty as others who are convicted.

Some who are convicted get light sentences while

others get heavy sentences, although their previogs

record and current crime may be the same. While

such diversity warrants caution, the inconsistencies

of the criminal justice system can be presumed to be

randomly distributed, and if large groups of similar

offenders from different programs are compared in

a follow-up period, the differences in their average

period of subsequent confinement should reflect the

differences in the programs."

F. Sources of Data

Evaluations can be credible only if expressed as

a percentage, rate, correlation, or other statistical

conclusion, although this type of formulation does

not in itself guarantee that the evaluation is correct.

Sometimes it is not clear that a particular treatment

is responsible for the outcome regardless of the

outcome statistics."

The best source of data for evaluation is objective

follow up information. A 1 3 year follow up is

desirable.

Care should be exercised in using questionnaires

and tests. For example, intelligence tests are 'useful

but cannot be considered valid predictors of learn6>

11 Ibid.. p. 23.

12 Ibid. 13 Ibid.. p. 49.

57
ing ability for the groups concerneddisadvantaged,

uneducated, and sometimes other-culture background.

The popular practice of citing individual cases

to support or to oppose a project or technique is

often effective but unsound; these cases only illustrate or suggest an explanation-for an outcome and

are too easily selected at will to support a position.

Finally; caution should be exercised when using

data from different sources or times even though

they may bear the same name or identification

because the same word, phrase, -or measure title can

be defined differently. Sometimes, even though defined in the same way, they may be computed differently. In these cases the data will probably not be

compatible though on the surface they appear the

same. Recidivism rate is one example, since it can

be computed many different ways and under different rules; placement rate is another example of a

term that can mean different things_4jn. different

places; in one project it may be theAzeircentage of

total participants placed and working successfully

for a period; while in another it may' mean the percentage of those completing the program that are

placed in a job. The former procedure should give

a lower figure than the latter and comparison of

the two would not be valid. Therefore analysts

should review the details of computation and definition ground rules before comparing data.

G. Cost/Benefits Approach to Evaluation

With the problems inherent in determining whether

a program is effective, it could be admitted that the

effectiveness is unknown but that the program is

cheaper, e.g., it cannot be proved that a project

reduces recidivisin; at the same time is cannot be

proved that it increases recidivism. But it can be

proved that conduct of the program is significantly

cheaper in real and social costs than the alternative

it replaces. Common sense indicates that the program is worthwhile. Where such situations can be

proved, the money savings can be a most forceful

and convincing argument.

For example, "For a family supported on the

average Aid for Dependent Children (AFDC) grant

($165.31 per month) in the community, the county

share of the grant is $28.75. If the mother is arrested

and her two children are placed in a children's

shelter, the cost to the county jumps from $28.75

per month to over $800 per month . . . The county

must pay $131 per month to support the mother in jail

58

6J

and approximately $350 per month to support each

child in the children's shelter . . . " 14 The question

is: if the county is able to pay $800 to provide incarceration for mother and child care, rather than

$28.75, could it design a program that would allow

AFDC to continue and use the savings ($800 minus

28.75) to provide community-based alternatives?

The simplest type of costs/benefit estimate is the

trade -off between the added cost of some supplemental service to an on-going projecind the reduced

cost due to diminished subsequent time. The cost

is that of providing the additional service; the benefit

is the estimated reduction in social cost expressed

as the difference in confinement cost of those who

receive the service and those who do not.

In estimating cost of confinement it is appropriate

to base it on the costs of the most frequently used

facility. Alternatively, when several institutions are

extensively involved in subsequent confinement, one

may select the one considered typical. For a more

precise estimate, cost data can be procured from

all the institutions concerned and a weighted average

computed that is proportional to the relative frequency with which it is used for subsequent confinement of the participants."

There is sometimes objection to the use-of the

average cost per inmate per year to estimate confinement expenses in cost/benefit analysis since so

many of the expenditures do not change with small

fluctuations in prison population. But if cost/benefit

analysis guides policy, its conclusions should, in the

long run, affect the total population of correctional

institutions, resulting in the closing of facilities and

institutions despite possible increases in state populations and crime rates. Accordingly, if cost/benefit

analysis is an effort to guide long term policy, it is

appropriate to use total annual confinement cost per

inmate for the estimation of costs and benefits."

When comparing groups or alternatives in a cost/

benefit analysis the only costs that need to be considered are those that are different. Total costs

comparisons Are not requiredonly those costs of

services or activities that are different or extra.''

The cost/benefits analysis results of a hypothetical supplementary service consisting of a vocational

training program is shown in Table 3. The table

shows that for youthful auto thieves there is a large

saving (or profit) in dollars; the efficiency (benefits

" M. Montilla, "Opportunities for Action Research in

Community Corrections," Journal of Research in Crime and

Delinquency. Vol. 6:132, July 1969.
TABLE 3. SUPPLEMENTARY COSTS AND CORRECTIONAL CONFINEMENT

BENEFITS OF A VOCATIONAL TRAINING PROGRAM (v-rp) FOR VARIOUS TYPES

CLIENTS IN A CORRECTIONAL AGENCY (HYPOTHETICAL FIGURES).

Cost- benefit

items

Type of Client

Youthful

recidivist

auto thieves

Recidivist

unspecialized

offenders

Alcoholic

forger

Professional

robbers and

burglars

Cost of VTP

Average number of courses per client 3 6 4 .3

Average cost per client (at $250 per course) $750 $1500 $1000 $750 Social costs as subsequent confinement:

Ave subsequent confinement time

orclients without VTP 3 years 2 years 4 q.ars 6 years Average subsequent confinement time of

clients with VTP 11/2 years I year 4 Years 7 years Benefits, as confinement time saved 11/2 years I year 0 I year Monetary benefits (at $4000 per year

confinement costs) $6000 $4000 0 $4000 Profit (benefit minus cost) $5250 $2500 $1000 $4750

(loss) (loss) Efficiency (benefit/cost ratio) 8.0 2.7 0 5.3

SOURCE: Glaser. Routinizing Evaluation, p. 31. divided by cost) indicates a high return for the

investment.

Listing different types of offenders reflects the

belief that."the most fruitful evaluative research"

is that which identifies particular types of offenders

rather than all of the people in the program concerned. Related to this is the desirability of research

searching out homogeneous subgroups that do not

have high success rates or high failure rates; that

is, centering on the categories that have about a 50

percent success rate, or altering the criterion to one

of partial success attained by about half of the cases

and perhaps attainable by significantly more.I8 It is

usually difficult- to show success improvement where

the success rate is already high and it is usually

difficult to create marked improvement where then

success rate is markedly low. The thought is to

tevote resources and effort to groups or areas where

t.ere is likelihood of significant success and avoid

devoting time to groups or areas where the payoff

is...littleavoid programs aimed at offenders who

will succeed regardless of what is done or for those

who will fail regardless of what is done.

More comprehensive cost/benefits analysis may

include consideration of other costs such as:

(1) Taxes lost to the state and welfare benefits

15 Glaser, Rozninizing Evaluation, p. 29.

16 Ibid.

17lbid., P. 33.

is Ibid., p. 21.

6 7

paid because a person is confined and, cannot

work.

(2) Police -work costs.

(3) Court and parole costs.

(4) Cost of offenses (ddmages and losses).

(5) Loss of production because the offender is

confined.

Table 4 shows the results of a hypothetical cost/

benefits analysis for alternative programs in, which

Dr. Glaser illustrates the inclusion of additional

social benefits. Taxes lost are not shown because

they would come from money in the "production

foregone" category. Estimates of welfare payments

because of confinement are not shown but could

be included legally since they would be an independent cost such as "cost of afrests" or "cost of court

or parole violation hearing." The table tends to

maximize the cost/benefits information. While the

cost of "Production foregone" may be too intangible

for ready acceptance by some policy makers, the

remainder of categories are generally accepted.

It is generally understood that the longer the

follow-up period for which benefits are to be assessed,

the more accurate the assessment. But the additional

cost of longer follow up combined with the need for

results usually limits the follow-up periods. One

question usually neglected, however, is when the

follow-up period should begin for benefits data

computation: if the programs or groups compared

59
TABLE 4. COSTS AND ESTIMATED TOTAL BENEFITS OF ALTERNATIVE

CORRECTIONAL PROGRAMS FOR. NON-ADDICTED AND' ON-ALCOHOLIC ADULT

ARMED ROBBERS ON FIRST FEL,ONY CONVICTION CH TICAL FIGURES).

Cost-benefit

items

lternative Programs

Prison , and

parole

Regular

probation

Intensive

services

probation

Cost of program components for their average duration:

Imprisonment before first parole (at $400 per month) $ 5600

Regular parole and probation supervision

(at $50 per month) S 1000 $ 1500, $ 1600

'Supplementary services (paraprofessional,

emergency residence, financial aid, etc.) $ 2000

Total Program Cost $ 6600 -7 $ 1500 $ 3600

Subsequent social costs in monetary terms:

Damage done by known and inferred offenses

Costs of arrests b $ 6400 $ 2400 $ 1600

Cost of court or parole violation hearings C 400 300 200

Cost of confinement d 600 400 100

Production foregone (at $300 per month for 8000 1000 3600

time locked up or unemployed) 1500 6000 3000

Total Social Costs $30400 413100 S 6900

Benefit from alternative to prison and parole $17300 $23500

Profit (benefit minus cost) $15800 $19900

Efficiency (benefit/cost ratio) 11.5 6.5

a At S50 per misdemeanor, $500 per non-violent felony and $2500per b At $100 each.

c At $200 each. d At $4000 per year. e $30400 minus 513100.

SOURCE: Gleg6r, RautinIzing Evaluation, p. 38.

all have the same average duration of incarceration,

the follow-up period begins on the date of release

to the community. If, however, the groups compared

differ rn the average duration of incarceration, it

Would be improper to comwre costs benefits data

only from the date of the off&ider's release into the

community for both groups. That would ignore

the in the community during their period of

confinement.19

In comparing two groups, for example, one which

averaged 13 months' confinement before release

60

63

violent felony.

and the other one month but receiving special treatment, the social cost due to damage done by "known

and inferred offenses" would be none for the first

group until the follow-up period extended beyond

13 months.

This cost/benefit approach has a definite appeal

to those whose primary and more immediate concern is with cost rather than rehabilitation. That

group will include a fair portion of taxpayers and

many local governments.

19 Ibid., p. 39.
PART IV

WHAT LOOKS GOOD

69
INTRODUCTION

Program evaluation is still in its infancy, LEAA

validation reports began only this year, and the

authors' research turned up no perfect model against

which a program can be measured or upon which

to base plans. Nevertheless, there are effective techniques and approaches that can be adapted to a

particular area's needs, as outlined in the previous

chapters.

The following chapter summarizes and focusses

the basic themes stated earlierflexibility, development of liaison between staff of penal institutions

and community resources, program content directed

toward the development of responsibility for oneself

and others.

Recent programs have demonstrated the value

of a comprehensive approach to employment and

training problems of offenders. There should be a

balanced program of manpower services at each

stage of the criminal justice systempretrial, probation, incarceration, parole, and post release. These

concepts are best exemplified in the diversified community corrections programs developing in various

parts of the country. While there are sufficient indications of their utility in reducing the isloating effects

of institutions and focussing on the reintegration of

offenders into their communities- --the ultimate test

of the effects of the correctional processthe trend

0

toward community corrections is likely to continue

if for no other reason than that such programs are

less expensive than incarceration.

The community-based program will be successful,

however, only to the extent that jobs are available

for offenders and ex offenders. In our society, regular employment is the accepted way of assuming

responsibility for oneself. Employment not only

affects an offender's ability to support himself without recourse to crime but employment is also a

major influence on the nature of his associates, his

use of leisure time, his conception of himself, and

his expectations for the future. It is thus a major

rehabilitative tool. It is doubtful that private industry

alone can produce satisfactory changes in unemploy,

ment rates among urban youths and ex offenders in

many areas. There are a number of public employment strategies whose adoption depends upon community priorities; transitional jobs that would serve

as stepping stones to permanent jobs in the public

sector; permanent jobs that would provide a program of education, experience, and training needed

for advancement; temporatypb slots for offenders

immediately after their release from confinement;

and jobs that would serve as an alternative to incarcreation for misdemeanants. We have barely begun

to take action in these areas.

63
CHAPTER 7. ELEMENTS OF A MODEL PROGRAM

Offender manpower programs will vary according

to definition of the problem, objectives, resources

available and how they are used, but some over-all

principles begin to emerge from talking to program

directors and analyzing their reports. Although there

is no consensus on every issue, these concepts can

serve as signposts for those who are planning and

operating programs. Once again, each community

must make its own decision.

A. Program Objectives

An effective manpower services program has the

over-all goal of improving its clients' employability.

It makes this objective more specific by such subgoals as providing more marketable work skills and

greater familiarity with the job market and the

methods of obtaining and ,retaining employment.

General objectives have to be narrowed to more

immediate, specific objctives that are meaningful to

the projectistaff and the participating offender. This

leads to objectives such as "training 200 offenders

for employment in building industry trades" and

"provide the project participants with sufficient jobgetting and job-holding skills and attitudes to result

in a subsequent employment rate equal to that of

other building trades workers in the community."

Objectives are explicit, clearly stated, and capable

of being measured.

A top flight program is continually testing its

objectives to see whether they need revising,

Programs fall somewhere between two t xtremes.

One extreme postulates that a large proportion of

ex offenders need food, shelter, clothing immediately

(particularly upon release from an institution) and

then they need a referral bureau that connects them

with existing resources. This type of program works

with its client not more than a month. It works best

for those whose employment or other problems are

not severe or complicated. It is easier to administer

and cheaper than a comprehensive residential program. Programs that are not supported by sufficient

staff to do more than a superficial job of screening

of applicants, supervising and counseling program

participants, and facilitating prisoner movement be64

71

tween the institution and the community can only

afford to work with offenders posing little or no

risk to the community.

At the other extreme is the residential program

that does its own job development and placement

or training as well as providing in-house supportive

services. It may also work with the clients' families

and follow up after the client completes the program.

An individual may remain in the program a year or

more. This type of program is geared to those who

need closer support or supervision and who need

more time to develop new skills and patterns of

behavior.

In between are comprehensive programs that use

as many existing community services as possible

rather than creating duplicate services.

B. Methods and Program

A comprehensive manpower service program includes, as stated earlier:

(1) Assessment of skills and abilities of the client

(2) Training in job hunting and in acquiring'

acceptable work attitudes

(3) Job training and basic education if necessary

(4) Job development and job placement

(5) Follow up with employee and employer after

placement

(6) Other supportive services such as medical care

or legal aid.

Assessment. Age, marital status, education, and

previous job erpbrience all affect one's expectation

toward work. A model program will analyze these

characteristics of its clients to determine their specific needs, as well as their aptitudes and abilities.

Manpower services seem to work most successfully for those in their early 20's who have not been

able to get a job foothold but who have matured out

of their teenage life style. - Client Goals. In a model program a client will

make his own assessment and develop his own goals,

based upon objective measurement and his ,pwn

motivations and with any expert assistance that he

needs. Some, of course, need more support than
others. For most, it is a new and difficult experience.

Since most offenders tend to be individuals with

low job skills, limited work experience, and poor

work attitudes, job goals are rather limited initially

if they are realistic. For those with the potential,

skill levels must be significantly increased and high

paying jobs with significant advancement opportunities sought.

The client-developed plan is a particularly important part of the pretrial intervention programs and

other newly emerging community programs. The

purpose accords with the recommendations of the

National Advisory Commission on Criminal Justice

Standards and Goals to encourage a sense of responsibility on the part of the offender, which in turn

helps to promote a feeling of having some control

over his own destiny.

Two assumptions underlay this direction: (1) A

participant must bear responsibility for his own

actions, and (2) a participant is able to determine

the consequences of his own behavior. This relationship between the assumption of responsibility and

success can be seen in the ``mutual agreement programming" concept discussed in Chapter 2.

The model offender in a manpower service program may well conclude that his first goal is to

develop a good employment record in an entry level

job, which he can then build upon for obtaining

higher level jobs. A good employment record shows

that an employee is motivated and responsible.

Job Related Skills. A problem often reported in

the evaluation of offender-employment efforts is a

lack of success due to a failure to provide comprehensive job related services. The difficulty is knowing

just how many and what type of services are required.

Furthermore, the offender may be provided everything except the one thing he requires most, stable

and rewarding employment. A model program

emphasizes that getting and retaining a job requires

learning job-related personnel policies and social

skills such as arriving at work on time and getting

along with co-workers. An offender will improve

his ability to cope effectively with authority and

respond satisfactorily to peers in such a program.

In either an occupational training or job placement

program, job-related training will be coordinated

with relevant remedial education.

Job Development and Placement. The payoff of

any manpower service is placement in a job. As the

high unemployment rate of offenders indicates, follow-through to the placement stage is often lacking.

Many offenders cannot get jobs on their own. When

placements are made, they commonly entail lowpaying jobs offering little other inducement to the

offender. Only 5 to 10 percent of ex prisoners get

help from the local employment service office in

finding their first job, and almost none turn to it

later in their careers. Less than a fourth of those

who find jobs apply the work experience or training

acquired in prison.

Placement efforts of ex offender programs vary

from those in which the client is expected to develop

his sense of responsibility by learning the search

procedures for finding his own job, to those programs

with job developers who furnisli clients with lists

of openings and make appointments for interviews,

to which they may even accompany the client.

The extent to which a project should develop its

own services or should rely on community services

depends upon the situation. Projects have generally

developed vocational training, personal and vocational counseling and educational components, leaving most other services to community agencies.

Chapters 2 and 3 describe some of the pros and

cons- of in-house job development and placement

or centralized placement. Retaining the job development and job placement functions in house gives

the program more control of its main function of

getting people jobs. However, centralized placement

seems to be working effectively in Des Moines and

Louisville, which are medium-sized cities. It might

be worthwhile to explore whether centralized placement, using all the manpower resources of the city

most efficiently, may become less effective as the

city reaches a certain size. Small communities often

have no formal resources to command.

Follow Through. An effeepve, project generally

finds that a gradual phasing out of its assistance to

an individual works better than an aburpt termination. More than one program administrator asserted

during interviews that the hard part for the ex offender is not getting the job, but the social adjustment.

For example, although a 3-month pretrial intervention period may be adequate to meet court demands

and to present successful project dismissal statistics

in a final report, it may not be time enough for

offenders to learn to manage their problems. A

lengthier project period for some offenders might

increase long-term success.

There will be some disagreement on the optimum

length of a program, but many agree that particularly

for younger offenders peak effectiveness is reached

at about 6 months and after that there will be a

plateau or even retrogression. At a minimum, a

72 65
model program would attempt to work with a client

until he shows an understanding of laternate methods

of behavior and exhibits motivation toward changing

his unsuitable ones.

In one program,.3 months before an inmate is to

re-enter the community, an Advocate Counselor

from a community multi-service center begins working with the offender_ on problems he may foresee

hindering his reinstatement. This relationship continues for 9 months after release and the Advocate

is available whenever his assistance is needed. He

is the link between the returnee and the services

available through the various components of this

multi-service center.

C. Linkages

There has been a tendency for corrections to try

to develop its own full array of services because it

has been isolated from existing community resources.

This has resuted in makeshift duplication and needless competition.

The over-all goal of manpower services is to connect the offender with the opportunity system of our

society, creating a stake for him in the community.

To do this, a model program would use all the

economic, social, and financial resources in the community that it could muster. It would treat linkages

with these resources through its staff, volunteers,

and advisory boards to help an offender prepare

himself to obtain and hold a job. The best community-based projects, aware of and structured for

the needed linkages, have made extensive use of

community agencies. In general, projects have used

their staff as "advocates" for the offender before

community agencies as specific needs have arisen

and referral 'agents have tied specific community

agencies into the project by a referral agreement

or by stationing an agency representative at project

headquarters.

Manpower projects for offenders and ex offenders

will need information on: the population to be

served; the community in which the project will

operate and to which the offender will be released;

the specific job market into which the offender will

be released; and information on any other factors

in or out of the community that will influence the

projectsuch as what others are doing in conducting similar projects, or who can be of special help

on the board of a project.

Early consultation is needed with those who are

likely to have a decisive influence on the effectiveness

66

73

of the project, or whether it will be conducted at all.

It would be very difficult to conduct a pretrial intervention project, for example, without the concurrence, approval and cooperation of the courts and

prosecutors. A MAP program will require approval

of courts and corrections, and work by corrections

and parole offices. Similarly, it would be very difficult to establish a halfway house in a community

aroused in opposition to it. Contact with the local

employment service, employers, and labor organizations is essential in a job placement program. Follow

up will require close contact with parole officers,

law enforcement agencies and employers, as well

as with the client.

The range of organizations that can be drawn

upon by an offender program is illustrated by a

partial list from a South Carolina Department of

Corrections annual report on Project Transition:

"Other manpower organizations have also worked

closely during the year with the Project, including:

the South Carolina CAMPS Committee (now called

Area IV Manpower Planning Council), SCORE

(U.S. Small Business 'Administration), the South

Carolina CEP, The South Carolina Department of

Vocational Rehabilitation, the U.S. Army Office of

DOD Project Transition, Fort Jackson (a name likeness causing minor confusion), the State Office of

0E0, the Columbia Housing Authority, the Mayor's

Committee on Employment for the Handicapped

(Columbia), the South Carolina Department of

Labor, the Housing and Urban Development Agency

(HUD).

D. A Final Word

Because the strength of any program lies in such

factors as the competence of staff, the degree to

which program activities are elaborated, the amount

of public support, and the extent to which peer

group values and traditions are respected, a new

program cannot be expected to cope with the high

risk offenders that it may be expected to accept as

participants after the program has become wellestablished. The mark of a mature program is reflected in its ability continually to adapt its objectives

and progressively take on less promising types of

clients.

Above all, in any model program there will exist

a mutual committmenton the part of the successful program participant, acceptance of responsibility

for his own economic future and on the part of the

community, responsibility for offering him an opportunity for that future.
APPENDIX A

SAMPLES OF ORIENTATION MATERIAL

67

74
Fact Sheet for New Clients

FAIRFIELD HOUSEWORK FURLOUGH PROGRAM

Fairfield House is operated by the Jacksonville/

Duval County Sheriff's Office as a Work Furlough

Center. Program participants are allowed to leave

Fairfield to work at their regular job. Program staff

can acquire jobs for those who come to Fairfield

unemployed.

Institution

The building was formerly an elementary school

and is leased by-the Sheriff's Office from the School

Board. It is located in the Eastside section of Jacksonville adjacent to the Gator Bowl. Fairfield is

only a short distance from downtown and bus lines.

Food service is available for three meals a day

and bag lunches can be picked up daily. Linens are

provided but laundry service is not. Inmates are

encouraged to make arrangements with family for

laundry service or they may handwash clothes.

Rooms are barracks style with approximately ten

(10) bunks to a classroom. There is limited space

for personal items; inmates are tdiscouraged from

bringing anything that is not essential. Televisions,

a modest library, basketball and weights are available. Free time will generally be the inmates's own

to use as he pleases on the premises.

Participants will be considered to be on trusty

status while at Fairfield and will be expected to join

in the maintenance of the facility as needed.

Program Policies

Fairfield should not be confused with an unregulated shelter type halfway house. The program is

operated in full accord with state and municipal laws

which permit clients to leave the premises for employment or educational purposes only.

In addition to fulltime employment, arrangements

can be made for evening or parttime educational or

therapeutic endeavors such as vocational training,

adult educati n and alcoholics anonymous. Such

supplemental programs will also be subject to rules

and regulations of the program and will be at the

expense of the client.

Inmate Money

All inmate earnings are turned over to the program

account clerk. They are then disbursed for allowance, family support, payment of debt, restitution,

etc., according to a plan established by the client

with staff approval. Inmates generally receive $10.00

allowance per week and should not have more than

that in their possession. Each person is charged

$4.00 per working day for board.

Furloughs & Visitors

Unlike the state Work Release program there is

no statutory provision for weekend furloughs for

recreation and visiting under this program. Visiting

at Fairfield is. permitted on Sundays, and under

special circumstances, during the week. Clients are

not to visit while traveling to work or on the job.

Progratn Staff

The program is directed by Mr. Mike Berg. He

is assisted by two Work Furlough Counselors, an

account clerk, a secretary and several Correctional

Officers. Officers are on duty at Fairfield at all times.

The Work Furlough Office is open from 7:00 a.m.

until 10:00 p.m. Tuesday through Thursday and

until 6:00 p.m. on Monday and Friday.

Mail can be sent from and received at Fairfield

House, 515 Victoria Street, Jacksonville, Florida

32202. The Work Furlough telephone number is

633-4084. Inmates shall not receive incoming calls

except under emergency circumstances. Outgoing

calls are permitted during Work Furlough office hours.

69

7 3
WORK FURLOUGH PROGRAM RULES AND REGULATIONS

OFFICE OF THE SHERIFF

JARS & PRISONS DIVISION

WORK FURLOUGH PROGRAM.

515 VICTORIA STREET

JACKSONVILLE, FLORIDA 32202

TELEPHONE: 633-4084

Inmate's Name

Participation in the Work Furlough Program is

a privilege and is designed primarily to help the

inmate become re-established In Society.

The intent of the Work Furlough Law is that the

inmate be confined except when actively engaged

in his work program.

1. The inmate is to go each work day, directly

from his place of confinement to the place of

his employment, by the approved method of

transportation.

2. He is to work diligently at his job and is NOT

to leave his place of employment for any purpose unless he is authorized to do so by the

Jails & Prisons Division, in advance.

3. Any unauthorized absences from the approved

place of employment will subject the inmate

to possible prosecution for ESCAPE as set

forth under Florida Statutes 944.40. If the

nature of his job requires him to leave his

established place of employment or the employer desires to change his time schedule for

work, the employer should make prior arrangements with the Jails & Prisons Division.

4. At the end of each work day, or if work ceases

before the end of the scheduled work day, he

is to return immediately and directly to his

place of confinement. If scheduled transportation is not available, the employer or his representative should call Fairfield House (633-

4084) for special instructions.

Failure to return at the end of the working

day will result in ESCAPE charges being

filed. Maximum sentence is FIFTEEN (15)

YEARS for ESCAPE, and must be in addition to any other sentence imposed.

70

76

Release Date

5. The indulgence in alcohol or the use of narcotics is strictly forbidden and will result in

the immediate removal of the inmate from

the Work Furlough Program.

6. A Work Furlough inmate is entitled to the

benefits under the Workman's Compensation

Act. The method and expense of treatment

for an injury should be handled the same as

for other workers. If an inmate is injured off

the job or becomes ill, on or off the job, and

is not covered by Workman's Compensation

or other insurance, the Jails & Prisons Division shottld be notified at once. He will be

treated by the Jail Physician or sent to University Hospital. The Sheriff's Office cannot

assume responsibility for medical or hospital

expenses unless the above policies are followed.

7. Inmates will not be permitted to operate a

motor vehicle unless written permission is

obtained from Work Furlough. These inmates

must have a valid Florida operator's license,

current Florida license tag, valid state inspection decal and liability insurance before being

given permission to operate a motor vehicle.

8. The Florida Industrial Commission exercises

the same supervision aver wages, hours and

conditions of employment of all persons under

this Program, as it -does of other workers.

Work Furlough inmates shall receive the same

wages as other workers engaged in similar

work.

9. Inmate's paycheck should be made payable to

Dale G. Carson, Sheriff, and mailed to: Account Clerk, Work Furlough Program, 515
Victoria Street, Jacksonville, Florida, unless

other arrangements are made. The ordinance

provides that the entire earnings of the inmate, less only the statutory deductions

(Income and Social Security Taxes), are to

be turned over to the Sheriff. In addition to

checks, inmates will turn in pay stub or

comparable statement of deductions (This

will be returned on release). The law does not

provide for any deductions by the employer

for a debt, advance to the inmate, or for any

other purpose. When the Sheriff receives the

check or case representing wages earned, it

will be turned over to the Account Clerk

where it will be placed in the inmate's Work

Furlough Account. Any disbursements from

this account will be made in this order for the

following purposes:

A. The board of the prisoner is $4.00 per

working day.

B. Necessary travel expense to and from work

and other incidental expenses of the inmate (allowanCe).

C. Support of the prisoner's dependents, if

any.

D. Payment, either in full or ratably, of the

inmate's obligations acknowledged by him

in writing or which have been reduced

to judgment.

E. The balance, if any, to the inmate upon

his discharge.

10. Inmate hereby agrees to waive extradition to

the State of Florida from any state of the

USA, the District of Columbia, or the Commonwealth of Puerto Rico.

11. Inmate will not quit or resign his job or substantially change the nature of his job without

prior approval of Work Furlough Officer.

12. Lying to any person may result in immediate

dismissal from Work Furlough. Inmates will

be truthful at all times.

WHEN THE INMATE IS NOT TRUTHFUL

OR DOES NOT FOLLOW THE ESTABLISHED

WORK SCHEDULE, FAILS TO WORK DILIGENTLY, LEAVES THE PLACE OF EMPLOYMENT, TAKES A DRINK OF ANY ALCOHOLIC

BEVERAGE, USES A NARCOTIC, OR IS ENGAGED IN ANY IMPROPER ACTIVITY, THE

EMPLOYER IS RESPONSIBLE FOR NOTIFYING THE JAILS AND PRISONS DIVISION AT

ONCE. PROMPT REPORTING OF AN INFRACTION FREQUENTLY PREVENTS MORE SERIOUS INVOLVEMENT BY THE INMATE..

Inmates under the Work Furlough Program will be

granted the same privileges given to trusties and

will abide by the general rules and regulations of

the Jails and Prisons Division of the Office of the

Sheriff.

I have read and understand the rules and regulations and I agree to abide by all terms and conditions of the

Work Furlough Program as prescribed by the Sheriff, and applicable. Federal, State and Municipal Laws.

Effective Date Inmate Signature Subject is authorized $ per week expense money and will not have over this amount on his person at any time.

He is to be released according to the following schedule:

Days Release at and return at

77 71
RULES AND REGULATIONS THAT GOVERN CENTRAL CITY COMMUNITY CENTER

1. This is a Department of Corrections Facility

operated by the Parole and Community Services

Division fol. both. Male and Female Inmates to

participate in the Work Furlough and Education

Furlough Program.

2. Role of Work Furlough Education Coordinator

with respect to case services activities. The Work

Furlough Coordinator is responsible for monitoring your program. Any information, Couns1ling, or Guidance you want should be made

throUgh your Coordinator. If the Work Furlough

Coordinator cannot be contacted for your emergency needs the Staff on duty should be your

next contact.

3. How to check out and in at the Center? When

checking out of the Center you must stop by the

Correctional Officer's desk, leaving your key

and giving the Staff on duty the name, address

and phone number of the person you are going

to visit. If this information cannot be supplied

you will not be allowed to check out. If you are

checking out to work, tell Correctional Officer

you are going to work and what time you are

expected to return. If you are checking out of

the Center for job interviews, obtain job interview itinerary form. You are allowed to check

out for job interview at .7:00 a.m. and must

return to the Center by 4:20 p.m. Saturday and

Sunday interviews require prior approval by

your Work Furlough Coordinator. When returning to the Center, go to the Correctional Officer's

desk, so that the Correctional Officer can log

your arrival and return your roam key to you.

4. What clothing may be worn inside and outside

the Center? PJ's, gowns, housecoats, smoking

jackets are not allowed in the dining room or

parking lot area. When in the living room or

basement, shirts and pants or dresses must be

worn.

5. What provisions exist for safeguardin,g valuables? The Center is not set up to store valuables; if you feel unsafe with them in your room

they should be placed with your wife, family

or friends.

6. Who may visit, how often, how long, when,

72

where and what articles can be brought to the

facility? Families and friends may visit 7 days

a week between the hours-of 8 a.m. to 12 pfm.,

in the Center living Vc!im or parking lot. Visitors

are to be reminded that this is a State Facility

and no firearms, alcohol or narcotics are permitted on the grounds.

7: Restriction on incoming and outgoing mail. You

may receive and write letters. Your letters are

not censored. If you want to write someone in

another institution it has to be approved by

that Institution head.

8. Restrictions on use of telephone. You may

receive calls in your room through our switchboard. Phone number 747-5125 up until 12:00

midnight. No outgoing calls are made from your

rooms. No inter-house calls are made from the

switchboard. If you have a need to use a telephone after 12:00 midnight, you must utilize

the public telephones that are available in the

living room or the other one on the second floor.

9. Worktime Credits. Each job is defined. When

you are given a permanent job or assigned a

job for the day, upon completion of that job

you will be given a total of 2 hours which will

defray $3.00 of the $4.10 you are billed per day.

Upon completion of the work assignment, you

must get a staff member to sign a work credit

slip for you so you can be given credit for

the job.

10. Expectations regarding participation in educational, job interviews, employment, other

activities. You will be expected to be on the job,

in school or wherever your Viii)iram indicates

you to be. Your employer muit be made aware

of your status. You are reminded that this is

work/vocational furlough and all residents must

maintain gainful 'employment or have a vocational program to remain in this program. Your

program will be verified twice a month by the

Work Furlough Coordinator.

11. Medical, Dental, and Psychiatric resources avilable. Our resources are very limited. If you need

emergency treatment try to secure it or ask the

Work Furlough Coordinator for assistance. If

78
you find that the cost will be too much for you

to handle, you will be returned to the institution

for medical treatment.

12. Meal Hours.

Monday through Friday

Breakfast 6:00 a.m. 7:30 a.m.

Lunch 11:30 a.m. - 12:30 a.m.

Dinner 5:00 p.m. - 6:30 p.m.

Saturday, Sunday and Holidays

9:00 a.m. -10:00 a.m. (Dining Hall)

3:00 p.m. 4:00 p.m. (Dining Hall)

6:00 p.m. - 8:00 p.m. -(14 hour pass for fast

food take out)

If you find that on a continuous basis your program won't allow you to make these hours, you

must make provisions to Staff or Work Furlough

Education Coordinator so a meal can be

saved for you. If you won't be able to return to

the Center for lunch, a sack lunch will be made

for you. You must notify the breakfast cook

that you need a lunch. If you want a guest to

have a meal with you, he or she must pay $1.00

for the meal ticket. You may purchase the

tickets from. the Correctional Officer at the

front desk.

13. Linen Exchange. You will be given clean linen

every Wednesday. You will be given linen on a

one for one exchange. The linen you want exchanged must be stacked on your bed, if no

linen is on bed, you won't be given any for that

week. No linen is exchanged after 5:00 p.m.

14. Room and Board and Loans. You are billed

$4.10 per day for room and board. This is payable at your. convenience; but you must be

reminded that this is your responsibility and it

must be done. If you are in need of a loan, see

your Work Furlough Education Coordinator.

who will assist you with your needs and requests.

If a loan is granted, it will not exceed $25.00.

15. Checking out to Independent Residence. When

you are ready to leave the Center to independent

residence, the Correctional Officer will check

your room before you depart for the following

things:

A. All drawers empty.

B. Floor vacuumed.

C. Bathroom and shower cleaned.

D. Check to see if blankets and pillows are

there.

E. Closet cleaned out.

You must have these things done before checking out. -

16. Temporary Community Releases (Passes).

A. You are not eligible for any pass until after

7 days.

B. Residents are eligible for passes if they are

employed or in a program.

C. Weekend passes (Fri-Sat, Sun) must be requested in writing by Tuesday 9:00 a.m.

prior to the weekend requested. Pass forms

are at the Correctional Officer's desk. Weekend passes are not to exceed 36 hours.

Evening passes are between the hours 6:00

p.m. to 11:00 p.m. If you are working at

night you can take EP during the day between the hours of 8:00 a.m. and 1:00 p.m.

D. When you want a 36-hour or evening pass

you must provide the Correctional Officer

with the name, address, and phone number

of person to be visited.

E. Pass time allowable to you is as follows:

1. 90-60 days to parole advancement date,

60 hours.

2. 59-31 days to parole advancement date,

96 hours.

3. 30-0 days to parole advancement date,

144 hours.

Pass time not used in any category can not

be carried forward to next category.

F. Dinner passFor those residents whose programs delay their return to the Center for

dinner the following procedure will be used.

Residents will be given ifi hour to utilize fast

food franchises located near the Center.

1. Kentucky Colonel

2. Jack in the Box

3. McDonalds

17. Store Time.

A. Residents will be allowed a maximum of 45

minutes for store shopping which comes out

of your pass time.

B. No one will be allowed to check out to the

store after 8:15 p.m.

C. Curfew is 11:00 p.m., everyone must be in

the Center unless working on verified employment.

18. Church Time

The following residents are not permitted to

check out for church.

A. If weekend pass has been denied.

B. One who is restricted to the Center.

C. One who is out of pass time.

If resident did not put in for pass and wants to

79 73
go to church he/she can, providing he/she has

pass time.

Hours for church, time are between the hours

of 8:00 a.m.-1:00 p.m.

New arrivals are eligible for church time.

19. Rule Violation.

Any violations- of the Center Rules and Regulations will result into either a CDC 128 or a CDC

115, of which you will receive a copy.

20. Boundaries.

A. For the safety of each resident, no one shall

be allowed on the roof or fire escapes unless

in an emergency situation declared by Center Staff.

B. No visiting between men and women in their

respective rooms.

C. No resident is allowed behind the Correctional Officer desk or in the roOm where

Switchboard is.

D. Central City Community Center boundary

line extends from back of parking lot to the

street, east and south.

74

80

E. Women are not allowed on 2nd, 3rd, and

4th floors. Men are not allowed on the 1st

floor unless authorized.

21. Miscellaneous

A. Room Inspections. Your room is inspected

2 times per week at the minimum.

B. Room Curfew. All residents must be in their

room or in the lobby between the hours of

1:00 a.m.-5:00 a.m.

C. Electrical. Electric radio, clock and T.V. is

allowed in your room. Electric coffee pot,

hot plate or other electrical appliance is not

allowed in your room. The electric plug must

not be overloaded, one plug for one socket

D. Cleaning Equipment and SUpplies

Vacuum cleaners may be checked out at the

desk and cleaning supplies are available at

the Correctional Officer desk.

E. Food goods are to be kept toa minimum, in

your room, due to the possibility of "ants

and rodents" problems.
GOAL PREFERENCE CHECK LIST

NAME_

In addition to full time employment you may wish to take care of other business during your stay

at Fairfield. Below is a list of activities. For each one you should check either yes or no. You may check

as many or as few as you wish.

1. SEE A LAWYER

2. GET SOCIAL SECURITY CARD

3. STOP DRINKING

4. GET EYEGLASSES

5. GET DRIVER'S LICENSE

6. GET JOB

7. LEARN A TRADE

8. LEARN TO READ BEI LER

9. FINISH HIGH SCHOOL

10. GET SOME TOOLS

1L SEE A DOCTOR

12. GET SOME CLOTHES

13. MAKE PAYMENTS ON A BILL

14. START COLLEGE

15. STOP SMOKING

16. LOSE WEIGHT

17. GAIN WEIGHT

18. SUPPORT MY KIDS

19. STUDY THE BIBLE

20. GET A BE ITER JOB

21. JOIN THE ARMY

22. LEARN TO HANDLE MONEY BETTER

23. SEE A DENTIST

24. FIND PLACE TO STAY AFTER RELEASE

25. GET A CAR

26. LEARN MORE ABOUT G.I. BILL

27. WORK OUT PROBLEMS WITH WIFE

28. SAVE SOME MONEY

29. SEE A COUNSELOR

30. FIND OUT ABOUT A PARDON

31. SPECIAL PERMISSION TO VISIT SICK RELATIVE

Yes No

REMARKS:

8 1

75
APPENDIX B

THE EMPLOYMENT INTERVIEW

(ROXBURY)

8 2 77
A. Greet Receptionist

1. Give your name and reason for visit.

Example"Good morning, my name is John

Smith and I have a 10:00 a.m.

employment interview with Mr.

Jones."

2. Be punctual.

ExampleFor a 10:00 a.m. interview, try

being there by 9:30 or 9:45 a.m.

3. Be prepared to fill out an application.

Example(Refer to #2)By arriving at 9:30

a.m. or 9:45 a.m., you can filt out

an application and go in at 10:00

a.m. to see Mr. Jones.

4. Have a copy of your social security number,

names of past jobs with addresses and dates,

names of references with addresses, etc., written on a card to aid you in filling out the

application.

5. Be prepared to take a test for the job you

are applying for if required.

ExampleElectronic, clerical or industrials

machines, etc.

6. Have a list of questions you wish to ask

prepared.

Example a. How old is the company?

b. How many employees are with

the company?

c. What is the potential for promotion and growth?

d. What are the duties that the

job entails?

e. What is the starting salary?

f. What is the top salary potential?

g. What are the working hours?

h. Is there paid overtime?

i. What benefits are offered by

the company.

Does the Company offer tuition for night school?

k. Does the company promote

from within?

j.

B. Procedure for the Interviewer

1. Walk slowly and quietly, stand straight, hold

your head up.

2. Greet the interviewer.

a. Shake hands firmly if interviewer offers

his hand.

b. Look interviewer in the eye and say, "How

do you do Mr. Jones."

c. Stand until the interviewer asks you to be

seated.

d. Wait for the interviewer to start the interview and lead it.

e. You may smoke if the interviewer states so.

f. Be prepared to answer questions.

Examples

Why do you 'want to work for this

company?

Where do you see yourself in five years?

Are you planning to further your education?

What do you know about this company?

What is your current standing with the

draft?

Do you have any particular skills or

interests that you feel qualifies you for

a position with this company?

What makes you feel you are qualified

for this particular job?

Do you have any plans for marriage in

the immediate future?

Now is when you present your questions.

C. Attitudes and Behavior During

the Interview

1. Sit up straight, feet on floor, hand in lap.

2. Sit quietly (do not keep moving around or

fidget).

3. Use your best manners.

a. Be attentive and polite

b. Speak slowly and clearly.

c. Look interviewer in the eye (do not wear

sunglasses).

d. Use correct English, avoid slang.

e. Emphasize your good points.

4. S peak of yourself in a positive manner.

5. Talk about what you can do.

6. Do not apologize for your shortcomings.

7!" Do not talk to an excess about your personal

problems.

D. What an Interviewer Sees Immediately

During an Interview

1. Hygiene.

83 79
Ka 06

a. Bath just before an interview.

b. Clean and clip nails if necessary.

c. Brush teeth.

d. Use a good deodorant.

e. Wear an outfit that is clean and conservative regardless of the fashion trend or style.

E. interviewer Closes the Interview

1. Do not linger when he indicates it is time to

stop.

Be sure to thank the interviewer as you leave.

F. Staying on the Job

1. With the great shortage of available jobs,

employers can afford to be highly selective

in choosing an employee.

80

84

2. Accepting positions in related fields so when

positions are re-opened, you will have first

choice at these positiOns.

3. Continuing relationship with the Job Developer and Advocate/Counselor of the Roxbury Multi-Service Center's Community Corrections Program to help work out any

problems which might arise once on the job.

IN CONCLUSION

Reinember the four (4) A's.

1. Attendance.

2. Attitude.

3. Appearance.

4. Ability.
APPENDIX C

JOB APPLICATION FORMS

1

83
INSTRUCTIONS

Please complete this application for employment

and return it in the attached self-addressed

envelope. We will acknowledge receipt of your

application by mail. A member of our Personnel

Department will contact you, should we desire to

arrange for an interview. Thank you for your

interest in Polaroid.

POLA.ROID

CORPORATION

AN EQUAL OPPORTUNFTY EMPLOYER

83
PERSONAL DATA

Last Name First Initial Social Security Number Present Address Street City State Zip Code Area Code Home Telephone Previous Address Street City State

Ft.

Height

Inches Weight NI case of emergency notify Name Address . Relationship Phone No. Yes If yes, when where :Inavpel:yoeude::roboelairno No Have you ever applied for Yes work at Polaroid before? If yes. when where No

Have yoU ever received Workman's Yes Explain. Compensation for an industrial accident? N.

Have you had any, serious or prolonged. Yes

illness or operation in the past five years? II Explain. 1...., No Citizen of U.S. Yes No

If not, do you intend to be? Yes No Type of visa

Have you ever had a Yes Explain. security clearance denied? No Relatives or friends employed by Polaroid Give name and location:

r

Position desired

Wage or salary

range desired $

What prompted your application to Polaroid?

Employment Advertisement Agency

Polaroid

Employee Other

Name of Paper Name Name Specify Yes A 7:00. 3:30 0 Yes 0 No Can you work any shift? ,__, If no specify U No B -3:00 11:30 0 Yes 0No

C 11:00 7:30 0 Yes 0 No E Varied

Day 8.00 4:30 04'es ON o

EDUCATION

SCHOOL OR COLLEGE

(BEGIN.WITH HIGH SCHOOL/

From To DEGREE

AND

DATE MAJD R it,

AVERAGE

Mo. Yr. Mo. Yr. GRADE

Academic Honors or Awards you received in School

in which subjects are you mosbnterested?

/

/

Extra Curricular Activities (include any offices held/

84 87,
MILITARY DATA

Branch of service

Mo. From Yr.

Mo. To Yr Highest rank held Draft classification

Yes Reserve obligation If yes, specify National Guard Active Reserve Standby Reserve

Expiration Data

Special military

schools or training

WORK EXPERIENCE

Please list all employment starting with present or most recent employer (include summer & parttime work) Dates Name & Address Employer

1.. Title . 2. Department 3. Supervisor

Major Duties

(Use back page if needed) Wages Reason

for Leaving

From

To

x 1. Start

$ per 2. Final 3. $ per From

To

Start

$ per 2. Final 3. S per

From

To r 1 $ tart S per 2. Final

3. $ per

From

To

1. Start

$ per 2. Final 3. 5 'pier

From

To M 1. Start

$ per 2. Final 3. $ per REFERENCES

(Employment and school references desirable)

NAME ADDRESS

(Include phone number) -OCCUPATION

Do you authorize us to secure confidential reports on your character and ability from

Your former employers Yes No Other references Yes No Your present employer Yes No

STATEMENT BY APPLICANT

It is agreasS that any misrepresentation by me on this application, or any unfavorable facts determined by investigation, will be sufficient cause for dismissal from the company's service if I am employed. I consent to taking a pre. employment physical and realize that my hiring is conditional upon satisfactory completion of that physical. 1 agree to wear or use protective clothing or devices as required by the company and to

comply with the safety rules. If necessary, I agree to read and sign an employment agreement form concerning, among other items, patent and

product information disclosure clauses.

Applicant's Signature Date

(over)

88

85
Please state below any facts or details concerning your experience and training which explain more fully your qualifications for the em

ployment for which you are applying. Lisrpatents, publications and technical societies. If applying for secretarial or clerical positions, give typing and shorthand speeds, office equipment skills, etc.; for trade positions, indicate if licensed.

DO NOT WRITE BELOW THIS LINE

86

8J

1
INNER CITY, INCORPORATED.

716 COLUMBUS AVENUE

ROXBURY, MASSACHUSETTS; 02120

TELEPHONE: (AREA CODE 617) 445-6613

A SUBSIDIARY OF POLAROID CORPORATION

STATEMENT BY APPLICANT

APPLICATION FOR

EMPLOYMENT

It is agreed that any misrepresentation by me on this application, will be sufficient cause for dismissal

from Inner City, Inc. if I am employed. I consent to taking a pre-employment physical and realize that

my hiring is conditional upon satisfactory completion of that physical. I agree to wear or use protective

devices as required by the Company and to comply with the safety rules.

LAST NAME FIRST INITIAL FEMALE fl

MALE

SOCIAL SECURITY NUMBER

PRESENT ADDRESS. STREET CITY STATE ZIP CODE HOME TELEPHONE NUMBER

PREVIOUS ADDRESS, STREET CITY STATE ZIP CODE HEIGHT

FT. IN. MIGHT

ARE YOU A U.S. CITIZEN

[,YES NO

IF NO GIVE ALIEN CARD NUMBER

INSASE OF

AN EMERGENCY

'NOTIFY

NAME

ADDRESS

TELEPHONE NUMBER

RELATIONSHIP

CIRCLE HIGHEST GRADE COMPLETED GRADE 1 2 3 4 5 6 7 8 SCHOOL

HIGH 9 10 11 12 SCHOOL

z

O

P<0

D

a

w

DATES SCHOOL NAME CITY & STATE COURSE DID YOU

GRADUATE

HIGH

SCHOOL

4

FROM

TO

. YES NO Li , ',

OTHER FROM

TO

YES NO

PLEASE LIST ANY OTHER TRAINING SKILLS,

HOBBIES. AND MACHINES YOU CAN OPERATE

HAVE YOU EVER FILLED OUT AN APPLICATION AT INNER CITY BEFORE: YES J NO D

HAVE YOU EVER BEEN EMPLOYED AT INNER CITY BEFORE YES NO

IF YES, WHEN REASON FOR LEAVING

HAVE YOU EVER BEEN EMPLOYED AT POLAROID BEFORE: YES NO LI

IF YES. WHEN REASON FOR LEAVING

90

4

87
(r<

1--

:-.i -

BRANCH OF SERVICE FROM TO HIGHEST RANK HELD DISCHARGE

MO MO _ HONORABLE

. YR YR OTHER

SPECIAL SCHOOLS

OF TRAINING:

WHAT SHIFT

CAN YOU WORK?

(CHECK TWO)

A 700- 330 0 YES 0 NO

B - 3:00-11:30 0 YES 0 NO

C - 11:00- 7:30 DYES 0 NO

WORK EXPERIENCE

PLEASE LIST ALL EMPLOYMENT STARTING WITH PRESENT-OR MOST RECENT EMPLOYER

1. JOB TITLE

DATES NAME & ADDRESS EMPLOYER 2. DEPARTMENT MAJOR DUTIES WAGES

3. SUPERVISOR FOREASON LEAVING

1 START

FROM

$ . PER

2 TO

FINAL

3 $ PER

1 START

FROM $ PER

2 .. TO

..... -. FINAL

3 $, PERWORK

ER APPLICANTS SIGNATURE

88

91

DATE
EMPLOYMENT

APPLICATION

PERSONAL HISTORY

People arc our most important asset

Since people are the key to achievement of

our business objectives, people constitute our

most important asset. It is the policy of The

. to seek and employ the best qualified people in ill! oi our

facilities and locations,' to provide equal op

portunities for the advancement of employees,

including upgrading, promotion and training,

and to administer these activities in a manner

which will not discriminate against any person

because of race, color, religion, sex, age or

national origin.

PLEASE PRINT

T GD LE L 'LAST ,FOCI AL SEC. IT ADDRESS C. r'

HO* L HA", E. ',.EED AT AB..

ySTATE+ eZIP CODE I IF LEPHONE NO

ALTDRESS ' LAST PREM.UuS ADDRESS .NC) STREE T. CI Tr :----- 'SLATE

CASE OF EVE Rf,ENC NCI vP/F-Y 1"E RSON'S ADDRESS tN0 & STREE T,

RELATIVE FRIPTD

.0,TY ,STATE$ 'ZIP CODE. TELEPHONE NO

,N CASE OF EMERGENCY \ r,`TuF PERSON S NAME. 2ADDRESS NO & STREET .CITY) (STATE)

rl RELATIVE FRIEND

IZIP CODE.. TELE N O. MEDICAL HISTORY

Do you now have or have you ever had

ARTHRiTIS.

ASTHMA

BAC.. TROUBLE

BLOOD URINE

CANCER

DIABETES.

EP.LEPSY

'7E1 NO

FAINTING SPELLS

HE ART TROUBLE

HE RN1A HIGH BLOOD PRESSURE

JAUNDICE . NERVOUS BREAKDOWN

RHEUMATIC FEVER

YES SHORTNESS OF BREATH

SKIN RASHES ECZEMA

STOMACH ULCER

SVVELL11)1G OF LEGS OR ANKLES

TUBERCULOSIS.

URINATION DIE FrCuLT,ES

VARICOSE VEINS

VENEREAL DISEASE

HAVE yr:.,u EVER BEE'N REJECTED FROM THE MILITARY SERVICE FOR MEDICAL REASONS'

HAVE YOU EVER BEEN DISCHARGED FROM THE MILITARY SERVICE FOR MEDICAL REASONS'

HAVE YOU RECEIVED OR CLAIMEDWORKMAN'S COMPENSATION DR OTHER FORM DI DISABILITY INSURANCE IN THE LAST 3 YEARS

DATE & NATURE OF DATE & NATURE OF

LAST ELLNESS 4 LAST ACCIDENT

L

N

FHAVE YOU EVER BEEN IN

DO YOU HAVE ACCESS TO A CAR? El YES E] NO THE MILITARY SERVICE' YES d NO

HAVE YOU EVER SEEN CONVICTED FOR ANY CRIME WITHIN THE LAST

FIVE (5) YEARS' NOT TRAFFIC VIOLATIONS: FOR EXAMPLE. SPEEDING, PARKING)

oisPos)rtors, IINCLl.DE ANY SUSPENDED SENTENCE, PROBATION OR FINES AND DATES)

E,)RM PO 1021 RE v 7 "J1

92

89
LIST ALL SCHOOLING & LIGATION inchuhmi degrees earned. mator course of study, etc.

WORK HIS: ` shot ,.1111 oi preatiuti (Please account for all periods of time nor covered lw eiticatioil or military serviee I

r

A

FOR LEAVING OR "CANNING, TO LEAF'

N.T.1 F,, OFSCR EE fOuN RE 5,7.6.6, 5, ON TH1

h, 11 to

DRIFT, T 0051,nE OUR UCE1,N5+11',. T' ON THE JOS.

An- P. VI I OLT DISCNIBE TOHN NEST'ONSHE.T TT ON THE .01).

Humus

w1 ,H It t WEl1YEDBY T If T! 1 A T ", I VW! ,)v) tl ErT

V.( HE Yi)I; Rt I E R.IL D IIIt

Posi TioN Al)) 1111 Al')') YIN(, F OR '

PHARMACISTS ONLY

I 1 YES I l NO IF SO, VVIAL N'

VVIll RC DO THEY WORK

SALARY DESIRED

AEI( ', OH A HE DISl t RED PII A rAUS I I IVES I I NO IF SO. LIST STATES AND CERTIF ICA TE NUMBERS

HAVE Yt)I1 f VEH Al)') ARE D RE f ORE ANY PHARMACY

MAIO) FOR VII A f IoN OF ANY PHARMACY CODES'

DiSpEr,I I ION $1NE I UDE AN'r Y.JSPE NUT OR ()BOPP) U VIOLATIONS)

. _ PHYSICAL EXAMINATION & REFERENCES:

I 1111CIVISLITIll Ihtlt I MOs) Mee' the physical requirements tor the position It required. I alp' PT! to ',Wine I to physical examination by a physician

desrgriated by the Company I also Understand that per marrent employment Is contingent uponsatisfactory references from previous employers

I (.er tit,/ that the statements made on this applicationa.re Trite, complete, and cur reel and fur ther agree that such statements may be inVeStIgdted

and If rolint I 10 he Like will E0EISElitlle suf lictent reason for my dismissal and fUl their agree to work safely and to abideby the rules'and pol ns 01 the Company

Applicant's Signature

Comments by In ter Virl:Ver

Date

90 93

'RH
APPENDIX D

SAMPLE PLANNING CHARTS

94

91

7'1
I

Gantt Charts

The Gantt technique of scheduling was developed

in the 1880's for repetitive production scheduling

showing planned and actual performance. The system can be adapted for nonrepetitive operations and

is an often used tool in planning and for display of

plans. A sample Gantt planning schedule is shown

in Figure D-1. It is in essence a series of bar graphs.

A variation of the Gantt chart is the "milestone"

chart that indicates critical events.

Network Charts (PERT)

Network charts are also useful planning tools

and may be used in conjunction with Gantt charts.

The network charts do not make as dear a display

but are more useful when integrating planning tasks;

9 5

networks show task interdependence. The network

charts are related to the Program Evaluation and

Review Technique (PERT) and the Critical Path

Method of schedule planning. An abbreviated sample network is shown in Figure D-2. The paths

(arrows) in the network indicate activities; the nodes

between paths sections (circles, squares, polygons)

indicate events such as the ending or start of an

activity. The network chart is usually part of a

larger system_of planning and implementation such

as that shown in Figure D-3.

References

Additional information on design and use of Gantt

charts, networks, Critical Path Method, and PERT

can be found in most libraries, usually under business administration, planning, and scheduling.

93
ACTIVITY ' ACTIVITY

CODE NO.

. MAN

HOURS

APLRI I MAY

1 8 15 22 29 6 13 20

Establish objectives A-1 . (40) : , -

Develop preliminary concepts B-1 (40) /

Determine information needs C-2 (10)

Collect data E-1 (80) MM.'

Analyze data F-1 (80) ,d 1

Refine-objectives and concept B-5 (20) I

Develop evaluation concept G-1 (40) I-1

.

. \r 1

_ _

94

A

KEY:

Current update

Task start, length and end estimate

Task half done

Reports due

Reports submitted

Figure D-1. Sample Gantt Planning Chart (Abbreviated)

9 6
Activity Elapsed Time

A 8

15

C 20

D 15

E 15

F 20

G 25

H 10

X Activity X; time (n)

(n)

No activity; no time

Event

NOTE: Top path (ACEH) 53

Center path (ADFH) 53

Bottom path (ABGH) 58

The bottom path is the

critical path because

it takes longest to

complete. If that path

can be reduced to 53,

the network would be

balanced with no

slack time.

Figure D-2. Sample Network Chart Schematic Diagram

95

71
96

Start

Establish

Objectives

Identify

Milestones

Let

Activities

Estimate

Time for

each

Act vity

Make a

Network

Diagram

Figure D-3. Program Evalpation and Review Technique

Planning Phases s

98
APPENDIX E

SAMPLE DETERMINATION OF

STAFF REQUIREMENTS

99 97
I. Assumptions:

(1) Staff is on a 40 hour week and 50 weeks a year.

(2) The average time spent by an offender in the

project is 60 days.

The follow-up period after leaving the project

is 1 year.

(4) The activity is covered by at least two staff

members 24 hours a day, 7 days a week.

(5) Average follow-up time per participant is estimated as 8 hours per year.

(6) Individual counseling is 2 hours a week, 8 hours

a month.

(7) Oroup counseling is 2 hours a week per group

of 10 participants.

(8) Counselor administration time is 1/2 hour per

hour of counseling.

The intake into the project is estimated as 300

offenders a year.

(3)

(9)

IL Planning Calculations:

(1) Mean daily population in the project:

(a) (300 per year) x (60 days each) = 18000

man days.

(b) (18000 man days) / (365 days per year) = 50

people average daily population in project.

;2) Follow-up work load:

(a) None being followed up at start and a maximum of 300 being followed after a year,

therefore maximum average number followed

up the first year is 150. In the second year

the maximum annual load is 300.

(b) The maximum possible follow-up load the

first year is estimated as follows

Month On follow-up Month

1 0 7

2 25 8

3 50 9

4 75 10

5 100 11 6 125 12

On follow-up

150

175

200

225

250

275-300

100

(3)

(c) Actual follow-up loads will be smaller be -.

cause of attrition in the population being

followed.

Number of counselors needed for project:

(a) Individual counseling time

= 50 x 2 hrs. per wk.

100 hrs. per wk.

(b) Group counseling time = (50 men/10 per

group) x 2 hrs. per wk. = 10 hrs. per wk.

(c) Total = 100 + 10 = 110 hrs. per week.

(d) Counselor admin. time = 1/2 of 110 = 55

hrs.

(e) Total time = 110 + 55 = 165

165 hrs./40 hrs./wk. = 4 counselors needed.

NOTE: An alternative system is to determine the

proper case load and divide it into the mean daily

population. If someone has established the case

load as 10 to 1, a group of 50 needs 5 counselors,

(4) Number of counselors needed for follow-up activity.

(a) Maximum possible follow-up time the first

year is (150 men) x (8 hrs. per man) = 1200

mhr.

(b) Number of people needed for follow up is

(1200 mhr/1824 hrs. per year) = 0.67 or

1 person.

(c) Toward the end of the year the number under

follow up will stabilize. If follow-up is 8 hrs.

per year per man a maximum of 2400 man

hours follow up would be required. Since

many of the follow-up population will be

lost the load should be much less and one

persbn may be able to handle it, but he

would need some help or put in a lot of overtime since 50 weeks at 40 hrs. per week gives

only 2000 hrs.

III. From the above the planners can estimate that

the project will need about 5 or 6 people for

counseling and follow up, a ratio of about 10

to 1.

99
APPENDIX F

CRITERIA AND RATING SCALE FOR

HIRING OFFENDERS

.rzei

es

101
4 CRITERIA AND RATING SCALE FOR HIRING OFFENDERS

1. The criteria used by the Boston Court Resource

Project for hiring ex offenders for advocate positions in a pretrial intervention project was

(a)

(b)

(c)

(d)

A man who had served time in prison and

who had been out of prison for at least 'a year.

One who had demonstrated responsibility in

previous job(s).

An above-average intelligence.

An ability to establish rapport with varying

types of people easily1 (This would include a

flexibility of approach, warmth, and sensitivity.)

A strong commitment to human services, with

some related work experience.

No recent (two years) drug history.

Demonstrated responsibility in financial obligations and stable personal life.

Ability to articulate, and sufficient education

(or equivalent) to do narrative reporting.

History of personal counseling and a positive

attitude toward treatment methods and toward

professionals.

(j) Freedom from prejudices and judgmental attitudes.

(k) Maturity, good judgment, and self-awareness.

2. Based upon the criteria shown above a rating

scale was devised with adjectival and numerical

1.0 2

values. The applicant was rated in each area and

points given were summed. The minimum acceptable level was + 15 points. The "gut reaction"

of the interviewers to the applicant also carried

some weight that was not qualified but could

overrule the scale results. The rating scale was

as follows

Age

Health

Education

(Reporting)

Family life

Finances (Mgr.

Responsibility)

Has Auto

Drug History

24-32

Good

Good

Good

Good

Yes

Over

4- 1/2 pt.

+1

+5'4

+2

+1

+1

Fair +1/2

Fair +1

Only

Over 0 pt.

Poor 1

Poor 1

Poor 1

Poor 1

No 0

Under

2 yrs. +0 1 yr. 1 1 yr. 3 Personal Habits Good +1 Fair +1 Poor 1

Work History Good +11 Fair +1/2 Poor 0

Prejudices (Race, Yes 2 Fair 11/2 Poor -1.4

Judicial)

Flexibility Good + 11/2 Fair + 1/2 Poor 11/2

Attitude

regarding

system Healthy + Ih Fair + % Poor 11/2

"Warmth" Good +2 Fair + 1 Poor 2

Ability to

articulate Good + 2 Fair +1 Poor 2

Commitment Good +3 Fair + 11/2 Poor 1

103'
1

SELECTED BIBLIOGRAPHY

103
SELECTED BIBLIOGRAPHY

Barton, Marlin, and Jenkins, W. 0., "The Maladaptive Behavior Record (MBR): A Scale for the Analysis

and Prediction of Community Adjustment and Recidivism of Offenders," January 1973, Experimental Man

power Laboratory for Corrections, Rehabilitation

Research Foundation, Elmore, Ala.

Busher, Walter H., "Ordering Time to Serve Prisoners: A

Manual for the Planning and Administering of Work

Release," National Work Release Study, American

Justice Institute, Sacramento, California, June 1973,

U.S. Department of Justice, LEAA, Technical Assistance Division.*

"Challenge of Crime in a *Free Society." A Report by the

President's Commission on Law Enforcement and

Administration of Justice. U.S. Government Printing

Office, February 1967.

"Combating Crime," The Annals of the American Academy

of Political and Social Science, Vol. 374, Nov. 19767.

"Correctional Manpower Programs," U.S. Department of

Labor, Manpower Administration, 1973.

"Correctional Task Force of Office of Training Program

Administration, Report of," U.S. Department of

Labor, Manpower Administration, 1973.

"Corrections," National Advisory Commission on Criminal

Justice Standards and Goals.

"Criminal Justice System, Report on," National Advisory

Commission on Criminal Justice "Standards and Goals.

"Des Moines Model Neighborhood Corrections Project

Research Evaluation Report No. 1," National Council on Crime and Delinquency Research Center, Davis,

California, Feb. 3, 1971.

Developing Jobs for Parolees, American Bar Association

National Clearinghouse on Offender Employment Restrictions, Washington, D.C. 1974

"Draper E & D Project Final Report," Vols. 1 & 2, Sept.

I, 1964-Aug. 31, 1968. The Rehabilitation Research

Foundation, Elmore, Alabama. Vol. 2 is a manual

directed toward administrators of institutional job

training, with useful points on job duties and how to

go about them, as well as sample forms. Much of the

information is transferable to community programs.

"Education and Training in Correctional Institutions," Proceedings of a Conference. The University of Wisconsin

Center for Studies in Vocational and Technical Education, 1968.

"Effect of Vocational Upgrading Upon Probationer Recidivism," A one-year evaluation of the Singer/Graflex

Monroe County Pilot Probation Project, Davis, Cali- fornia. National Council on Crime and Delinquency

Research Center, Jan. 1972.

"Evaluation of the Training Provided in Correctional Institutions under the Manpower Development and Training Act," Section 251, Vol. 1, "Perspectives on Offender Rehabilitation," March 1971, Final Report

Summary, May 1971, Abt Associates.

"Exemplary Project Validation Report, The Clearinghouse

for Ex-Offenders of Louisville, Kentucky." Urban &

Rural Systems Associates, an Francisco, Calif. U.S.

Department of Justice, LEAAJNILECI, April 1974.

. 104

"Expanding Government Job Opportunities for Ex-Offenders," American Bar Association, National Clearinghouse on Offender Employment Restrictions, Washington, D.C., August 1972.

"Experimental Manpower Laboratory for Corrections,

Phase II Final Report, March 1, 1970-August 31, 1971." The Rehabilitation Research Foundation, Elmore, Ala.

"Experimental Manpower Laboratory for Corrections,

Phase III Final Report, Sept. 1971-Feb. 1973." The

Rehabilitation Research Foundation, Elmore, Ala.

Glaser. Daniel, "Adult Crime and Social Policy." Englewood Cliffs, N.J.: Prentice-Hall, Inc., 1972.

Glaser, Daniel, "The Effectiveness of a Prison and Parole

System." New York: The Bobbs Merrill Co., Inc., 1964.

Glaser, Daniel, "Routinizing Evaluation." Center for

Studies of Crime and Delinquency, National Institute. of Mental Health, 1973, U.S. Government Printing

Office, Washington, D.C. 20402, 51.55, Stock No.

174-00319.

Goldfarb, Ronald, and Singer, Linda, "After Conviction."

New York: Simon and Schuster, 1973.

"Guide to Correctional Vocational Training: The First National Sourcebook." New England Resource Center

for Occupational Education, Newton, Mass., and Far

West Laboratory for Educational Research and Development, San Francisco, Calif., July 1973.

"Handbook on Community Corrections in Des Moines: A

Coordinated Approach to the Handling of Adult

Offenders." Fifth Judicial District Department of Court

Services, Des Moines, Iowa. U.S. Department of Justice, LEAA/NILECJ.*

Hunt, James W., Bowers, James E., Miller, Neal, "Laws,

Licenses and the Offender's Right To Work: A Study

of State Laws Restricting the Occupational .Licensing of Former Offenders." American Bar Association,

National Clearinghouse on Offender Employment Restrictions, 1973.

"Incidence of Training-Related Job Placement of Draper Vocational. Trainees: A Preliminary Report," Joseph

Gwozdecki, W. 0. Jenkins, Linda Hart, Experimental

Manpower Laboratory for Corrections, Draper Correctional Center, Elmore, Ala., June 1970.

Irwin, John, "The Felon." Englewood Cliffs, N.J.: PrenticeHall, Inc., 1970.

Jenkins, W. 0., "The Measurement and Prediction of Criminal Behavior and Recidivism: The Environmental

Deprivation Scale (EDS) and the Maladaptive Behavior Record (MBR)." Experimental Manpower Laboratory for Corrections, Rehabilitation Research

Foundation, Alabama Industrial School, Montgomery,

Ala., Dec. 1972.

Jenkins, W. 0., and Sanford, W. Lee, "A Manual for the

Use of the Environmental Deprivation Scale (EDS)

in Corrections: The Prediction of Criminal Behavior."

Experimental Manpower Laboratory for Corrections

(EMLC), Elmore, Ala., October 1972.

Lenihan, Kenneth J., "The Financial Resources of Released

Prisoners," Bureau of Social Science Research,

107
Washington, D.C., March 1974.

"Managing Change in Corrections, Institutions and the

Community," Workshop for State Correctional Administrators, New Orleans, La., April 15-17, 1971, American Correctional Association, College Park, Md.

"Making Prison Training Work," Manpower Magazine, Vol.

3, No, 1, January 1971. U.S. Department of Labor.

"Manhattan Court Employment Project, Summary Report

on Phase One: Nov. 1, 1967 to Oct. 3, 1969," Vera

Institute of Justice, New York, N.Y. U.S. Department

of Labor, Manpower Administration.

"Manual of Correctional Standards," American Correctional

Association, College Park, Md., 1972.

Martinson, Robert, "What WorksQuestions and Answers

About Prison Reform," The Public Interest, Number

35, Spring 1974, publ. quarterly by National Affairs,

Inc., 10 East 53rd Street, New York, N.Y.

McCollum, Sylvia G., "Human Concerns for the Offender."

Prepared for Regional Training Seminar on Adult Basic

Education in Corrections, Education Research and

Development Center, University of Hawaii.

McCollum, Sylvia G., "The Potential of New Educational

Delivery Systems for Correctional Treatment: A Correctional Education Handbook," U.S. Bureau of Prisons, April 1973.

McKee, John M., Rehabilitation Research Foundation,

Draper Correction Center, "Hardware and Software

for Adult Basic Education in Corrections," (presented

at the Regional Seminar an Adult Basic Education in

Corrections, Pomona, Calif., May 14, 1972).

McKee, John M., Rehabilitation Research Foundation,

Draper Correctional Center, "Materials and Technology

of Adult Basic Education for Corrections," (presented

at the Regional Seminar on Delivery Systems of Adult

Basic Education in Corrections, Athens, Ga., Feb. 8,

1971).

Menninger, Karl, M.D., "The Crime of Punishment." New

York: The Viking Press, 1973. Miller, Herbert S., "The Closed Door: The Effect of a

Criminal Record on Employment with State and Local

Public Agencies," Institute of Criminal Law & Procedure, Washington, D.C., Feb. 1972. "Model For Training The Disadvantaged: TAT at Oak

Ridge, Tenn.," Manpower Research Monograph No.

29, U.S. Department of Labor, 1973.

Morris, Albert, "A Correctional Administrators' Guide To

The Evaluation of Correctional Programs" (Bulletin

No. 21Nov. 1971), Massachusetts Correctional Association, Boston, Mass.

"Mutual Agreement Program: A Planned Change in Correctional Service Delivery." Resource Document #3,

American Correctional Association Parole Corrections

Project, Nov. 1973.

"National Strategy to Reduce Crime." National Advisory

Commission on Criminal Justice Standards and Goals,

1973.

Neff, Donald Richard, "Summary, Conclusions and Recommendations of Vocational Education in State and

Federal Adult Correctional Institutions in the United

States," (from a Doctoral Research Study, August

1972).

"North Carolina Work Release -Program and Pre-Release

Program." Southeastern Correctional and Criminological Research Center, Florida State University, Ta llahassee, Fla.

Ohlin, Lloyd E. (ed.), "Prisoners in America." Background

reading for the 42nd American Assembly, Columbia

University, Dec. 1972 at Arden House. Harriman,

N.Y. Englewood Cilffs, N.J.: Prentice-Hall, Inc., 1973.

108

"Opportunities Industrialization Centers of America, Inc.

Annual Report 1972-73." OICs of America, Inc

Office of Special Projects.

"Perspectives on Correctional Manpower and Training,"

Staff Report of Joint Commission on Correctional Man-.

power and Training, Washington, D.C., January 1970.

Pownall, George A., "Employment Problems of Released

Prisoners." U.S. Department of Labor, Manpower

Administration, 1969. Available from National Technical Information Service, Operations Division, 5285

Port Royal Road, Springfield, Va. 22151. $3.00 paper

copy and 650 microfiche (specify Accession No. PB

183543).

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Va., 1968.

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Manpower Project at South Carolina Department of

Corrections, Columbia, S. C., June 30, 1966 to June

30,-1969.

Reading, Kit on Job Applications, American Bar Association, Clearinghouse for Offender Literary Programs,

July 1974.

"Removing Offender Employment Restrictions: A Handbook on Remedial Legislation and Other Techniques

for Alleviating Formal Employment Restrictions Confronting Ex-Offenders." American Bar Association,

National Clearinghouse on Offender Employment Restrictions, Washington, D.C., Second Edition, January

1973.

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the Comptroller General of the U.S., Nov. 6, 1973.

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the American Bar Association National PreTrial Intervention Service Center," July 1, 1973 through October

31, 1973. American Bar Association, National Clearinghouse on Offender Employment Restrictions.

Rossi, Peter H., and Williams, Walter, (eds.) "Evaluating

Social Research." New York: Seminar Press, 1972.

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"A Review of Manpower R & D Projects in the Correctional Field (1963-1973)," Manpower Research

Monograph No. 28. U.S. Government Printing Office,

1973.

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Volunteers in Correctional Programs," U.S. Depart -

ment t.of Justice, LEAA, Technical Assistance Division,

"Selection and Training of Advocates and Screeners for a

Pre-Trial Diversion Program." Boston Court Resource

Project, 14 Somerset Street, Boston, Mass 02108. $2.00.

Smith, R. R., Jenkins, W. O., Hart, L. A., "Correctional

Officer Training in Behavior Modification: Final

Report (1970-1972)." Experimental Manpower Lab-

, oratory for Corrections, Rehabilitation Research Foundation, Montgomery, Ala., June 1973.

Suchman, Edward, "EValuative Research." New York:

Russel Sage Foundation, 1967.

Taggart, Robert, III, 'The Prison of Unemployment: Manpower Programs for Offenders," Policy Studies in

Employment and Welfare #14, Sar A. Levitan and

Garth. L. Manam (gen'l. eds.). Baltimore and London: The Johns Hopkins University Press, 1972.

"Tidewater Conference on Community Based Corrections,"

Christopher Newport College, Newport News, Va.,

Nov. 30-Dec. 1, 1973.

105

4111...11.
Toby, Jackson, "Social Disorganization and Stake in Corr

formity: Complementary Factors in the PreclatoiY

Behavior of Young Hoodlums," Journal of Criminal

Law, Criminology and Police Science, 48, No. (May- June 1957).

Weiss, Carol H., "Evaluation Research." Englewo Cliffs, NJ.: Prentice-Hall, Inc., 1972.

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Parole Administration, Feb. 20-23, 1972, New Orleans,

La. American Correctional Association, College Park,

Md.

Whittington, Marna C., and Benson, Stephen D., "Transition

to Work III, Development ad Implementation of the

VO1 Transition System." PhPadelphia: Associates for

Research and Behavior, Inc., 1974.

*Available through National Criminal Justice Reference Service,

P.O. Box 24036, S.W. Post Office, Washington, D.C. 20024,-

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