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SEGREGATION

Perils&

Possibilities

How the Hampden County Sheriff’s Department transformed it’s Segregation Unit

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Boston Globe December 10, 2007

“Rodriquez was a man-child with a hard-wired inability to learn at the mercy of a system where punishment and more punishment is often the only real response to inmates with little or no ability to control their behavior.”

“He is someone who definitely should not have been put in isolation because of his condition. There’s no question about that. Putting mentally ill inmates in segregation and then closing the solid door to their cell is like asking them to commit suicide.”

“This was a deeply troubled young man presenting with a very complex set of circumstances in a very noncomplex system.”

Commentary on the suicide of DOC and former Hampden County Inmate Nelson Rodriguez.

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Segregation CommitteeIn January of 2008, Sheriff Michael J. Ashe, Jr. charged his Staff to form a committee to examine the assignment of inmates to the correctional center’s segregation unit. The Sheriff was particularly concerned with the overuse of segregation to manage inmates and the deleterious effects that isolation and “over incarceration” had, essentially turning out some inmate’s more debilitated than when they went in, spreading negativity and disruption throughout the larger institution. The committee found that although segregation was a proper response to the placement of dangerous inmates, there were too many occasions when segregation was being used not as a last resort to deal with rule violators, but as a far too common one.

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Historical PerspectiveYork Street Jail (closed in 1992)

Safety risks were managed within general population with only 2 cells designed for segregationGrowing focus on programming throughout the institution to drive behavior change and to replace the pure incapacitation model with a “carrot and sticks” approach.Re-Entry infrastructure established (Minimum Security, Work Release, Day Reporting Center and Aftercare). Active, heightened supervision approach (Unit Management/Direct Supervision) supplants containment model.

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Segregation Transformation“Jail Within the Jail”

Hampden County Sheriff’s Department and Correctional Center (Opened in 1992)

Segregation capacity increases to 64 cells Avg. segregation count, to include both disciplinary

detentions and protective custody, climbs to 80 due to the rise of gang culture, growing enemy threats, increasingly violent behavior and an influx of the de-institutionalized mentally ill

Longer detention spans in segregation Incapacitation is primary focus Safety/Security preempt programming Contradicts Re-Entry model Throwback to “penitentiary/ warehouse” type system

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The Problem Segregation as Dumping Ground

Provides a sort of instantaneous, “out sight out of mind” banishment option for Staff to rid themselves of difficult and frustrating inmates.

Segregation as Sanctuary Inmates who use segregation to escape the

stress of general housing and are willing to give up freedom for structure, routine and external control.

Segregation as Default Inmates who use segregation for self

protection.

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The Problem (continued)Segregation as Reinforcer of Victim Complex

Using only punishment deepens the defense mechanisms used by addicts and criminals to blame others for the negative consequences of their behavior.

Segregation as Slide Segregation’s isolating environment may actually

worsen the mental health of some inmates despite the best forensic outreach. With worsening mental health comes worsening behavioral problems in segregation, throughout the institution and eventually in the community. Deteriorated mental health of segregation inmates results in deteriorated safety, security and order throughout the institution when they leave segregation.

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The Results Dangerous overcrowding Constant crisis Grievance glut Pathology proliferation Declining sanitary conditions Undermines innovative discipline by

general housing & satellite unit Staff Stressful environment Revolving door Contradicts positive, productive

philosophy of Department

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Segregation’s Purpose•To ensure institution wide safety, security & order by removing disorderly, dangerous and self- threatening inmates from population.

•To establish a deterrence to rule violating behavior.

•To provide a safe environment for unstable or vulnerable inmates.

•To furnish opportunities for inmates to correct their behavior (what we weren’t doing).

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Philosophy & PracticeWe seek to parallel and mirror the larger institution’s philosophy and practice by:

diverting lower security unit and general population inmates away from segregation much the same as people are diverted away from jail to the community, and by

re-entering inmates from segregation to the general population pods and satellite facilities much the same as we re-enter inmates from our departmental custody to the larger community.

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Goals Reduce population through intermediate

sanctions in living units, early graduation from segregation for good behavior and retention in step down units after segregation.

Redesign segregation to compliment incapacitation and punishment with a regimen of accountability and opportunity to correct inmate behavior.

Intervene to confront pathology, motivate self-awareness and spur transformation in behavior.

Safely and gradually accord higher levels of self-control and responsibility

Improve physical condition and climate to facilitate behavioral change.

Corrective Action Plan

Concerted Intervention

Identifying unacceptable behavior

Contract for change

Written plan

Setting the Stage

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Plan Elements Diversion –Progressive/proportional discipline in unit,

maximum detention period in general population increased to 15 days (intermediate sanction); early out provision for positive behavior in segregation and other corrective action units (i.e., Davis 5 and B6)

Corrective Action Plan Formulation - Coordination between sending Unit Staff and Segregation Staff

Documentation – Memorialized in TRAX

Implementation – Orientation of inmate to plan expectations, rewards and consequences

Compliance Monitoring – Daily measurement of progress and weekly Treatment Meeting

Classification – Classification eligibility for segregation completers is determined at the Primary Captain Meeting. Classification eligibility for Special Management inmates who complete segregation determined by the Weekly Central Classification Mtg.

Step Down – Corrective Action Plan continues in step down unit

Treatment Meeting

“Finding the best approach ”

Line, Supervisory and Administrative Staff of the Segregation Unit and Program Staff meet weekly to review every segregation inmate to:

• Assess psycho-social needs•Determine mental health stability•Ascertain ability to participate in group settings•Identify safety issues (i.e., assaultive, enemies, etc.)•Assign programming•Provide guidance for individualized behavior management

Connecting the dots by

connecting the players

Primary Capt. Meeting

“Moving the freight”

The Primary Captains of each housing tower meet weekly to

review every segregation inmate for:

•Compliance with rules•Stability (mental health)•Type of program participation•Awareness of wrongdoing, &•Commitment to change

to determine the appropriateness of moving inmates back to general

population.

Accountability Pod

Accountability Pod Review

Segregation Unit

(serious incidents)

Accountability Pod

Central Classification Board Review of SMAD/SRG

Segregation Unit Review

Central Classification Board Review of SMAD/SRG

General Population

General Population or Lower Security

Lower Security

General Population

Segregation Unit

*********Pre-Approved

Corrective Action Plans for

dangerous violations

****************SMAD/SRG

move requests

Lower Security Re-admission

Plan

Accountability Pod

(sentenced) or

Responsibility Pod

(pretrial)

General Population or

Disciplinary Incident Location

Corrective Action Plan

Classification Review

Step Down Reclassification

Corrective Action Plan Flow

Segregation Orientation

Rules Expectations Consequences Rewards Direction Encouragement

First Things First

Making the Grade Tracking Monitoring Evaluating Communicating Managing Reinforcing Motivating

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Attitude Behavior Change Discipline

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All inmates sent to segregation start at a median or C grade level.

Behavior is monitored and reported by all three shifts and dictates whether an inmate moves up or down on the grade level system.

The grade level system is posted on the Pod Workstation to make the system user friendly for Officers.

At the end of the shift the Officer evaluates the behavior of each inmate by using a “P” for positive behavior and “N“ to indicate negative behavior. If a negative mark is given, a drop down selection is provided to describe the inmate’s below average behavior.

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The information is used by Unit & Treatment Staff to address and redirect the inmate’s behavior.

Behavior such as cleanliness of cell and compliance with both Staff directives and daily duties is addressed by Counseling and Security Staff.

Performance is reviewed with the inmate to reinforce good behavior and to deter negative behavior.

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Inmates who earn an above average grade level (B) for each week participate in a graduated system of privileges that provide an incentive for good behavior.

The lowest grade level of a D is an indication that the inmate’s behavior is below average and needs improvement.

Progress is discussed at the weekly Treatment Meeting and Primary Captain Meeting and will determine a plan to transition the inmate back into general population.

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Supervision

The Re-entry coach is always asking the question of those not on the practice field:

“Why isn’t this person moving forward and what new strategies

can we employ to get them headed safely in the right direction”?

Coaching

Observing Intervening Correcting Supporting Modeling Teaching

“Firm, Fair and Decent”

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Program Mission

To help inmates develop the self-discipline and stability required to function and be

positive in general population

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Program Goal

To encourage greater mental and physical

activity in segregation to prepare inmates for programs in general population.

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Eligibility for Segregation Programs

Inmates who are fully detoxified and mentally stable.

Inmates who are willing and able to attend.

Inmates without safety or security issues and who demonstrate good behavior.

Inmates referred by the Treatment Committee based on need and security risk assessment.

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Wellness Program

Orientation Packet: Information on expectations, privileges and consequences.

Portable Equipment: Medicine ball for in-cell con-ditioning & walkman. Eligible after 1 week with B avg.

Exercise Activity Area: 1 cell each in both segregation units with furniture removed; outfitted with aerobic fitness equipment and wall mounted instruction posters.Eligible after 1 week with B avg.

Exercise Reinforces good behavior

Dissipates anger Relieves anxiety Stabilizes mental

health Improves

physical health and mental clarity

Aids learning Builds self -

discipline to exorcise

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Wellness Program (continued)

Inmates who successfully complete Command Inspection on Fridays and have maintained a B average for the week are escorted to the Multipurpose Building.

Use of vents for additional external auditory stimulation.

T for Conditioning Acclimatizing

Testing

Challenging Practicing Leading

An Opening Rewarding Meaningful Re-orienting Shifting Transforming

To Purpose

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Mental Health Open enrollment program Facilitated by Forensic Clinician and

Counselor Interactive with less use of videos & more

direct inmate participation Continuation of treatment after completion of

segregation Topics

Introduction Family Issues

Basic Disorders Coping Skills

Treatment Process Group Support

Progression of Disorders & Treatment

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Substance Abuse EducationA Chance for Change

Open enrollment. Facilitated by SAU Staff

Topics

Uppers, Downers and All Arounders

The High Cost of Low Living

Roots of Addiction What Else Is Going On?

From Experimentation to Compulsion

Doesn’t Everyone?

A Matter of Balance

Driving the Inner-State, Making Personal Changes

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Education Eligibility: Inmates without a high school

diploma. Facilitated by Education Staff

Services Assessment of academic levels and learning

needs/goals Twice monthly education outreach Individual education plans Provision of materials and instruction Homework Education reintegration opportunities

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Employment & Vocational

Twice monthly outreach Facilitated by Vocational Education Staff Participants will develop skills based on Five

Principles of Self-Sufficiency, to include:

1. Urgency - time to become self-sufficient is now

2. Ownership – self sufficiency thru planning

3. Learning By Doing – emphasis on action

4. Lifelong Learning – ability & willingness to learn

5. Motivation – building confidence

self control Individualized Interactive Confronts:

criminal thinking & denial

Educates around mental, emotion-al & addictive disorders

by Learning

Earning

impulse control

Central Classification Reviewing

Checking Balancing Assessing

threat/danger Intelligence

sharing Risk manage-

ment planning Consensus

decision making

Determining release from segregation of Special Management inmates (i.e.,

high profile, chronic disciplinary, gang leadership, dangerous incidents)

Segregation is Restricted to cell 22-23 hours per dayDeterrent effect still strongReducing population reduces dangerNo longer a “dumping ground”“Seg” time is now demanding, challenging and accountableIn line with institutional philosophy

Still……

Segregation

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Benefits to Staff

By lessening pathology in the segregation unit, less pathology will spread from that unit throughout the institution. Dangerous incidents will in fact be reduced on the segregation unit and throughout the institution. The climate of segregation and the entire institution will be safer.

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Preliminary Results Count in segregation drops considerably

Major disciplinary incidents down in general population

Briefer, more productive stays in segregation

Sanitary conditions and climate improved, contributing to safety, security and order

Better retention of inmates in general housing and satellite units after they complete segregation

Count in C1/C2 drops 77% from an historic average of 80 to a low of 19 on

3/6/09.

C1 C2 Pop.doc

80

180

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20

30

40

50

60

70

80

90

HistoricAverage

6-Mar-09

Segregation Count

149

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0

20

40

60

80

100

120

140

160 Recidivism: 7.4%

Ave Stay: 9.6 days

From 11/1/08 to 1/20/09

Multiplier Effect

Violations in Main Institution 249

15

163193

141

28

234

173

82

129

0

50

100

150

200

250

300

Fighting Gang Acts Threats Staff Create Dist Intefering

Jan-June 08 July-Dec 08

•Fights -45%•Gang Activity -42%•Threats Staff -46%•Disturbances -6%•Interfering -22%

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ConclusionThe results clearly speak for themselves and the indisputable success of the new approach. Using segregation as a prudent housing option rather than a dumping ground has given more power to control inmate behavior to the Staff in the general housing units, leading to better compliance and respect. Cutting the population has improved the climate and reduced the dangers of overcrowding in segregation. Finally, intervention programs in segregation directly confront pathology while behavioral modification techniques enhance rules compliance, a carrot and stick approach that reinforces safety and leads to greater self-control among inmates.