Community Corrections:
The Growth and Evolution of a System Colorado Commission on Criminal and Juvenile Justice
Glenn A. Tapia, Director
Office of Community Corrections
Division of Criminal Justice
Colorado Department of Public Safety
303.239.4448
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May 10, 2013
Presentation Outline • History of Community Corrections • Structural Basics of Community Corrections • Local Control – Historically and Today • Funded History and Capacity of Community
Corrections • Growth and Evolution of Community Corrections
into 2013 • Vision Statement for Community Corrections • Community Corrections Data and Outcomes • Infusion of Evidence Based Practices (EBP) in
Community Corrections • Challenges and Opportunities in Community
Corrections • Macroscopic Summary of Community Corrections
Colorado Commission on Criminal and Juvenile Justice 5/10/2013
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
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How old is Community Corrections compared to
other forms of community-based supervision
Probation Parole Community Corrections
Age in Years 110 61 39
0
20
40
60
80
100
120
Ye
ar
s
Age in Years
1903
1952
1974
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Origin of Colorado
“Community Corrections” • Mid 1970s
▫ Local communities (not just the state) should “correct” their own offenders ▫ Local communities have the RIGHT to crime controlled living as well as the
RESPONSIBILITY to control crime ▫ Communities given local control to supervise LOW RISK offenders
• Early 1980s ▫ Community Corrections provides a substantial cost savings as compared
to prison ▫ Expansion and growth of community corrections statewide
• Late 1980s/Early 1990s ▫ First set of Standards developed for community corrections ▫ First auditing performed on programs
• Late 1990s/Early 2000s ▫ Standards Revised, Audits Enhanced ▫ Specialized Treatment programs in community corrections expanded
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Original Appeal of Community
Corrections • Community corrections supervision is less costly
than placement in a penal facility.
• In many cases, community corrections clients are employed, and defray the costs of their housing and treatment by making payments.
• Many offenders earn money to pay child support or restitution to their victims, which would be impossible if they were held in prison.
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Modern “Halfway Houses”
(Colorado Model) • Serve several types of offenders under current
legal jurisdiction ▫ Diversion – “halfway in” prison ▫ Transition – “halfway out” of prison ▫ Condition of Parole ▫ Condition of Probation
• Regulated and funded by the State of Colorado – Division of Criminal Justice
• Co-regulated and funded by local community corrections boards
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Specialized Treatment in Community
Corrections • Intensive Residential Treatment (Substance
Abuse)
• Therapeutic Community (Mental Illness, Substance Abuse)
• Residential Dual Diagnosis Treatment (Mental Illness/Substance Abuse)
• Sex Offender Supervision and Treatment
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Division of Criminal Justice (DCJ)
Statutory Responsibilities • Administer Funding to Boards/Program
($56,000,000 in FY13)
• Establish State Standards for Program Performance
• Audit for Compliance with Standards
• Measure and Report Program Performance
• Training and Technical Assistance to Boards and Programs
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Division of Criminal Justice
(DCJ) (Office of
Community Corrections)
Colorado Department of Public Safety (CDPS)
Community Corrections Board (Judicial District)
Community Corrections Board (Judicial District)
Community Corrections Board (Judicial District)
Community Corrections Board (Judicial District)
Community Corrections Board (Judicial District)
Community Corrections Board (Judicial District)
Program Program Program Program Program Program
Colorado Department of Corrections
Colorado Probation Departments
Colorado Division of Behavioral Health
14 Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Colorado Providers/Programs
• 34 residential facilities throughout the state
▫ Urban
▫ Rural
• Various forms of organizational structure
▫ For Profit
▫ Non Profit
▫ Local Government
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
• Administration ▫ Legal Entity ▫ Fiscal Operations/Audits
• Personnel ▫ Staff Qualifications ▫ Staff Training ▫ Ethics and Staff Management
• Management Controls ▫ Internal Auditing ▫ Supervising Sex and Domestic Violence
Offenders ▫ Victim Notification ▫ DNA Testing ▫ Critical Incident Notification
• Security ▫ Intakes ▫ Alcohol/Drug Testing ▫ Off Site Supervision/Monitoring ▫ On Site Surveillance ▫ Contraband Management ▫ Escape Procedures
• Facilities ▫ Physical Facility Requirements ▫ Safety Management ▫ Health/Sanitation Controls
• Case Management ▫ Offender Assessment and Treatment ▫ Confidentiality Procedures ▫ Reporting Requirements ▫ Discharge Processes ▫ Offender Fiscal Management (Fines, Fees, etc)
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Program Compliance With State
Standards • 125 State Standards
• Standards Prioritized by Subject Matter Experts
▫ Public Safety Effect
▫ Offender Treatment Effect
▫ Offender Management Effect
• DCJ Audits of Program Compliance
• Corrective Action Required
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
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Benefits of Residential Community
Corrections • 24 hour supervision and surveillance • High structure in programming and supervision • Allow for employment and wide range of services for
criminogenic needs • Offenders pay into restitution, child support, supervision
costs, and state/federal tax base • Cost Savings
▫ Half the cost (per day) of prison Prison = $89 per day (average) Halfway House - $38 per day
▫ Even lower cost than prison due to shorter length of stay Avg LOS in halfway house is 6 months Avg prison placement is roughly 2 years
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
The Colorado Model is Grounded on Local Control
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Original Role of Local Control
• Zoning to facilitate upstart and implementation of community corrections
• Garnering local-level political support for the program
• Screening of cases for admission into community corrections
• Sustainable support for community corrections
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
The Contemporary Role:
Local Control eventually becomes Local Support
• Administer state funds for community corrections • Assure that providers are compliant with state
standards, local standards, and all levels of law • Serve as initial regulatory agency in cases of complaints
from citizens, offenders, families, or crime victims • Work with local governments to advance community
corrections programs (i.e. specialized programs) • Educate, train, and collaborate with communities, local
officials, other criminal justice agencies • Work with local governments to expand zoning and
support for community corrections • Enforce components of the Victims Rights Amendment
(VRA) • Screen referrals for placement into halfway houses to
promote public safety
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Local-Level Innovations
• Jefferson County - JERP Program
• Mesa County - CARR Program
• Larimer County - Women’s Program
• Arapahoe County - ARCHES program
• Denver - Structured Board Decision Making Process Matrix
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Funding Basics
• State Paid Per Diem - $37.74 Daily Rate
▫ All programs for basic residential services
• Differential Per Diem– (various rates)
▫ Applied only to specialized programs
• Offender-Paid Subsistence - $17.00 Daily Rate
▫ Actual subsistence collections - $11-12 daily
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Funding History
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
FY07 FY08 FY09 FY10 FY11 FY12
General Fund Reversion $1,095,614 $555,918 $1,217,651 $2,415,360 $1,884,331 $2,568,331
Overall Expenditures $44,551,499 $47,465,676 $52,072,245 $50,733,495 $52,567,847 $53,873,465
Overall Budget Line $45,647,113 $48,021,595 $53,289,896 $53,148,855 $54,452,178 $56,441,796
Expenditure Line $44,551,499 $47,465,676 $52,072,245 $50,733,495 $52,567,847 $53,873,465
$-
$10,000,000
$20,000,000
$30,000,000
$40,000,000
$50,000,000
$60,000,000
Do
lla
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6-Year Expenditure and Reversion History
Colorado Community Corrections
28 Colorado Commission on Criminal and Juvenile Justice 5/10/2013
FY01 FY02 FY03
(1) FY03
(2) FY04 FY05 FY06 FY07 FY08 FY09 FY10 FY11 FY12 FY13
Per Diem $36.8 $37.7 $37.7 $34.7 $34.7 $34.7 $35.3 $36.6 $37.1 $37.7 $37.7 $37.7 $37.7 $37.7
$30.00
$31.00
$32.00
$33.00
$34.00
$35.00
$36.00
$37.00
$38.00
$39.00
Pe
r D
iem
Community Corrections Per Diem History
FY01 to FY13
Boards: 20% Reduction to Admin
Budget
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
FY14 Expectations
(JBC Figure Setting)
Bed Type Average Daily Population
Change from FY13
Standard Residential 2706 -175
Non-Residential Slots 780 -190
TC 223 +35
RDDT 134 +10
JERP 26 +11
Sex Offender 42 +16
IRT 131 +10
Day Treatment 8 0
Outpatient TC 99 -5
TOTAL 4149 -287
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Rates of Mental Illness is Growing
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
The competing goals of corrections in general
• Punishment (Retribution)
• Incapacitation (Removal)
• Deterrence (Prevention)
• Cost Savings/Control
• Restoration (Reparation)
• Rehabilitation (Behavior Change)
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
The competing goals of corrections in general
• Punishment (Retribution)
• Incapacitation (Removal)
• Deterrence (Prevention)
• Cost Savings/Control
• Restoration (Reparation)
• Rehabilitation (Behavior Change)
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
The competing goals of corrections in general
• Punishment (Retribution)
• Incapacitation (Removal)
• Deterrence (Prevention)
• Cost Savings/Control
• Restoration (Reparation)
• Rehabilitation (Behavior Change)
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
DOC Offenders Released to Community
37%
63%
Through Community Corrections
Without Community Corrections
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Success and Technical Violation Trends
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General Reasons for Technical Violations
Substance Use Related
36%Other
Program Violations
64%
FY12 - Categorical Reasons for Technical Violations
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FY00 FY01 FY02 FY03 FY04 FY05 FY06 FY07 FY08
12 Month 14.4% 13.4% 14.6% 15.2% 15.4% 16.4% 18.3% 16.7% 14.6%
24 Month 23.9% 26.5% 25.7% 23.9% 23.9% 27.8% 29.3% 28.1% 26.8%
0.0%
10.0%
20.0%
30.0%
40.0%
50.0%
60.0%
70.0%
80.0%
90.0%
100.0%
Re
cid
ivis
m R
ate
Recidivism Data in Community Corrections
Terminations from FY00 Through FY08
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
EBP Interventions Used in Colorado
Community Corrections • Risk Needs Assessment
• Treatment Matching
• Cognitive-Behavioral Therapy
• Therapeutic Communities
• Support with Families and Natural Communities
• Motivational Interviewing (in progress)
• Contingency Management (under development)
• Risk-Based Sanctioning (under development)
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
New Evidence-Based Interventions in Community
Corrections • Behavioral Shaping Model and Reinforcement Tool (B.SMART)
▫ The Behavioral Shaping Model is a structured sanctions grid that assists providers in responding to program violations in a manner that is consistent with evidence-based principles..
▫ The Reinforcement Tool is a structured process in order to implement Contingency Management which is a well-researched evidence-based approach to effecting long-term behavior change. This process provides structured incentives to offenders who exhibit pro-social behavior in order to reinforce their habitualization of conventional and desired behaviors.
• Evidence Based Progression Matrix ▫ The goal of this project is to develop evidence-based criteria for offenders to progress
through the community corrections residential level system before being released to Non-Residential or ISP-I status.
• Motivational Interviewing (EPIC) ▫ A grant-funded initiative through the Department of Public Safety. The Evidence
Based Practices Implementation for Capacity (EPIC) staff in CDPS are working to implement MI in some community corrections programs
• Structured Progress Feedback ▫ This process is one of the current CCCS supported by evidence-based principles and is
required of all providers. In 2012, OCC staff developed a technical assistance and coaching manual to implement this standard which facilitates implementation of the Risk/Needs/Responsivity principle for offenders
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Implementation Strategy
for EBP in Community Corrections
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Challenges Toward Implementation (Integrating Regulatory Standards and EBP)
Behavioral Health
Standards
Corrections Standards
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Challenges Toward Implementation (Integrating Regulatory Standards and EBP)
Behavioral Health
Standards
Corrections Standards
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Challenges Toward Implementation (Integrating Regulatory Standards and EBP)
Behavioral Health
Standards
Corrections Standards
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Challenges Toward Implementation (Integrating Regulatory Standards and EBP)
Behavioral Health
Standards
Corrections Standards
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Challenges Toward Implementation (Integrating Regulatory Standards and EBP)
Behavioral Health
Standards
Corrections Standards
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Challenges Toward Implementation (Integrating Regulatory Standards and EBP)
Behavioral Health
Standards
Corrections Standards
Local Regulatory Standards
ACA Standards
State Community Corrections Standards
Managed Service Organization
Behavioral Health
Organization
Mental Health Best Practice
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Challenges Toward Implementation (Integrating Regulatory Standards and EBP)
Behavioral Health
Standards
Corrections Standards
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Challenges Toward Implementation (Integrating Regulatory Standards and EBP)
Behavioral Health
Standards
Corrections Standards
Local Regulatory Standards
ACA Standards
State Community Corrections Standards
Sex Offender Management Standards
Managed Service Organization
Behavioral Health Organization
Mental Health Best Practice Standards
Substance Use Disorder Standards
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Challenges Toward Implementation (Integrating Regulatory Standards and EBP)
Behavioral Health
Standards
Corrections Standards
Local Regulatory Standards
ACA Standards
State Community Corrections Standards
Sex Offender Management Standards
Managed Service Organization
Behavioral Health Organization
Mental Health Best Practice Standards
Substance Use Disorder Standards
Prison Rape
Elimination Act
(PREA)
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Integrating 3 Parts Into a Whole
• While Mental Health and Substance Abuse systems are learning from each other (integrated Dual Dx agency), this same integrating system must also learn from the correctional/criminal justice system.
Residential Dual Diagnosis Supervision and Treatment
Corrections
Mental Health
Substance Abuse
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Other General Challenges
• High staff turnover
• Static Per Diem and only partial collections on subsistence
• Recruiting and retaining clinical staff – especially in rural areas
• Challenges with progress reporting from community-based treatment providers
• 37% of DOC releases go through Community Corrections
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Challenges with Sex Offender Management
• High staff turnover results in high demand for SOMB training for staff (Longevity of sex offender specialists is a benefit for long-term compliance)
• Low offender income – high treatment costs • Computer access – limits job search options (some
employers require online applications) • Access to mental health services is even more
limited for sex offenders • Beginning treatment immediately – due to inability
to pay • Poor treatment progress reporting from treatment
providers
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Current Factoids:
Sex Offenders in Community Corrections
(February 2013)
Factoid Info
# of Boards with Residential Facilities 15
# of Boards that accept Sex Offenders 13 (87%)
# of Boards that accept SVP 5
# of Residential Facilities 34
# of Residential Facilities that accept Sex Offenders 16 (47%)
# of Diversion Sex Offenders in Community Corrections 80
# of Transition/Parole Sex Offenders in Community Corrections 131
Total Number of Sex Offenders in Community Corrections 211
# of Budgeted Specialized beds for Sex Offenders in Community Corrections
30
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Colorado Commission on Criminal and
Juvenile Justice (CCJJ)
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A Macroscopic View of Community Corrections
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Pace of Growth
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Implementation
FY03 FY13 10 Year Growth
$36 Million Budget $56 Million 56%
33 Regular Programs 36 Regular Programs 9%
5 Specialized Programs 21 Specialized Programs 320%
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Residential Supervision of Diversion and Transition
Felons
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Residential Supervision of Diversion and Transition
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Non-Residential
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Residential Supervision of Diversion and Transition
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Therapeutic Community
Non-Residential
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Therapeutic Community
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Non-Residential
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Therapeutic Community
Modified TC for Dually Diagnosed
Intensive Residential Treatment
Non-Residential
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Non-Residential
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Dual Diagnosis
Higher Risk Offenders
Intensive Residential Treatment
Non-Residential
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Residential Supervision of Diversion and Transition
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Therapeutic Community
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Dual Diagnosis
Sex Offenders Higher Risk Offenders
Intensive Residential Treatment
Non-Residential
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Residential Supervision of Diversion and Transition
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Therapeutic Community
Modified TC for Dually Diagnosed
Dual Diagnosis
Sex Offenders
Higher Risk Offenders
Intensive Residential Treatment
Condition of Parole
Non-Residential
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Residential Supervision of Diversion and Transition
Felons
Therapeutic Community
Modified TC for Dually Diagnosed
Outpatient TC
Dual Diagnosis
Sex Offenders Higher Risk Offenders
Intensive Residential Treatment
Condition of Parole
Non-Residential
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Residential Supervision of Diversion and Transition
Felons
Therapeutic Community
Modified TC for Dually
Diagnosed
Outpatient TC
Dual Diagnosis
Sex Offenders
Higher Risk Offenders
Condition of Probation
Intensive Residential Treatment
Condition of Parole
Non-Residential
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Residential Supervision of Diversion and Transition
Felons
Therapeutic Community
Modified TC for Dually
Diagnosed
Outpatient TC
Dual Diagnosis
Sex Offenders
Higher Risk Offenders
Housing for Homeless
Parole
Condition of Probation
Intensive Residential Treatment
Condition of Parole
Non-Residential
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Residential Supervision of Diversion and Transition
Felons
Therapeutic Community
Modified TC for Dually Diagnosed
Outpatient TC
Dual Diagnosis
Sex Offenders
Higher Risk Offenders
Housing for Homeless
Parole
Emergency Housing for
Dually Diagnosed
Condition of Probation
Intensive Residential Treatment
Condition of Parole
Non-Residential
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Residential Supervision of Diversion and
Transition
Felons
Therapeutic Community
Modified TC for Dually Diagnosed
Outpatient TC
Dual Diagnosis
Sex Offenders
Higher Risk Offenders
Housing for Homeless
Parole
Emergency Housing for
Dually Diagnosed
Misdemeanor Drug
Offenders
Condition of Probation
Intensive Residential Treatment
Condition of Parole
Non-Residential
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General Societal Demands of a Product
or Service
Good
(Effective)
Fast
(Efficient)
Cheap
(Affordable)
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
General Societal Demands of a Product
or Service
Good
(Effective)
Fast
(Efficient)
Cheap
(Affordable)
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
General Societal Demands of a Product
or Service
Good
(Effective)
Fast
(Efficient)
Cheap
(Affordable)
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
General Societal Demands of a Product
or Service
Good
(Effective)
Fast
(Efficient)
Cheap
(Affordable)
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Summary/Themes • The 2013 definition of local support is broader
and deeper than local control in 1974
• Colorado Community Corrections is relatively young and has grown rapidly
• Offenders in Community Corrections are higher risk and higher need than in the past
• Community Corrections is becoming increasingly specialized
• Community Corrections is highly regulated and many state standards are not evidence-based
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Opportunities for Growth • Increase the “37%” statistic • Carefully, methodically, and scientifically infuse
EBP into community corrections • Define the goals/expectations/demands • Address the need for enhanced sex offender
supervision • Address other areas such as high turnover/staff
retention • Increase success rates/control technical violation
rates • Resource the state and local level to meet the
desired goals • Resolve the good/fast/cheap dilemma
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013
Director, Office of Community Corrections Division of Criminal Justice Colorado Department of Public Safety 303.239.4448 [email protected]
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Colorado Commission on Criminal and Juvenile Justice 5/10/2013