All the Way Home: Re-entry and Housing. NAEH Conference July 13, 2005 Richard Cho

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1 All the Way Home: Re-entry and Housing NAEH Conference July 13, 2005 Richard Cho

2 Prison and Jail Re-entry Overview Approx. 2 million individuals are incarcerated in State and Federal prisons in the U.S. Another 605,000 are incarcerated or detained each day in local and county jails. Approximately 625,000 individuals are released from State and Federal prisons each year, and another 10 million releases are made annually from local and county jails. 2

3 Health and Behavioral Health Disorders Among Inmates Mental Illness Approx. 700,000 adults with SMI enter jails each year 16% of state inmates reports mental illness. (Twice as high as in the overall U.S. population) Health and Infectious Disease 2.2% of state prison inmates have HIV-infection; 0.55% have AIDS diagnosis Hepatitis C rates of state prisoners est. at 18% 1-22% of state/federal inmates have TB infection; about 700 reported to have active TB cases 3

4 Homelessness among people leaving correctional institutions Nationally, among people who homeless (in shelters) 49% report previous time in jail 18% report previous time in prison In CA, 10% of state s parolees are homeless In SF and LA, 30-50% of parolees are homeless In NYS, 11.4% of state prisoners released to NYC entered the shelter system. Persons serving index time for parole violation entered shelters at higher rates of 13.5% Persons with mental illness entered shelters at even higher rates of 18.1% 4

5 Homelessness increases risk of recidivism Of the 5,520 state inmates released to New York City shelters, 32.8% were re-incarcerated in two years Parole violators had re-incarceration rates of 39.8% Persons with mental illness had re-incarceration rates of 53% Parolees released to NYC are 7x more likely to be rearrested in the first month out than those who had housing. 5

6 Supportive housing is a flexible and cost-effective model Combines affordable (subsidized) permanent housing with flexible on- or off-site supports to end and prevent homelessness Cost-effective: 57% decrease in emergency room visits; 58% drop in the number of inpatient days 100% drop in the usage of public residential mental-health program facilities 6

7 And has been proven to reduce involvement in prisons Impact of NY/NY on State Prison Involvement 100 Pre-Placement Post-Placement NY/NY Controls NY/NY Controls PERSONS INCARCERATED INCARCERATION EPISODES 7

8 Housing barriers faced by people leaving prison/jail Economic Income vs. cost of housing Competition for priority for assistance with deserving poor or other populations Regulatory/Statutory Persons with certain felony convictions are barred from Public housing and Section 8 rental assistance Most persons leaving criminal justice custody not considered officially homeless and therefore are ineligible for federal homeless assistance funding (McKinney) Policy No specific housing policy focus on people leaving justice system 8

9 Current strategies for preventing post-incarceration homelessness Improve discharge planning with special focus on housing search and placement and family reunification Increase targeting of affordable and supportive housing units to people leaving prison/jail Specialized re-entry housing projects Diversion and alternatives-to-incarceration 9

10 The New York City Discharge Planning Effort An ongoing effort by the City Departments of Correction and Homeless Services and their community-based partners to reduce recidivism and homelessness among people released from jail

11 Unique challenges of a city jail context New York City has the second largest jail in the country Every year, the New York City DOC releases between 80-90,000 individuals from custody Both sentenced inmates and detainees Most inmates have short-term stays with rapid turnaround: 53% of all released inmates stay only 14 days 25% stay 3 days or less 11

12 The context for the collaboration Not driven by funding/grant Political/governance Business-minded mayor set tone of finding efficiencies in goverment Litigious New York City has long history of lawsuits, with most recent requiring City to provide discharge planning to jail inmates with mental illness (Brad H. v City of New York) Relational Commissioners of DOC and Dept. of Homeless Services were collegial and were located in same office building 12

13 DOC/DHS Data Match A data match between NYC DHS and DOC revealed of all single adults who had a stay in a DHS facility from , 30% (20,712) had at least one jail admission from 1994 to These individuals had a mean of 4 admissions per person. 13

14 Time Between Jail Exit and Shelter Entry Time Between DOC Exit and DHS Entry for Matched Individuals Discharged to the Community 100% Cumulative Percent of Individuals 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% 1 Week 28% 74 Days 51% Same Day 9% 1 Year 6 Months 1 Month 5 Years 6 Years 8 Years 7 Mo 14 2 Years 3 Years 4 Years Days between DOC exit and DHS entry

15 The collaboration Public and non-profit partnerships Six city agencies (correction, probation, homeless services, health/mental health, social services, employment) Services/housing providers, advocates, legal experts, intermediaries and technical assistance providers Framework for process Commitment to ongoing high-level participation Participation entails accountability for deliverables Committee structure punctuated by quarterly strategy and planning retreats 15

16 The process 1. Understand/disaggregate the problem(s) and population(s) 2. Design/create appropriate responses to address each problem/population 1. Assume no new funding available (i.e. exercise discipline in designing solutions) 3. Assign working groups to tackle each issue area with short, intermediate, and long-term deliverables 4. Evaluate results 16

17 Priority populations Sentenced inmates can receive traditional discharge planning services and aftercare Short-stayers discharge planning is impossible for individuals released within 3 days of admission Frequent flyers some individuals cycle repeatedly between shelters and jails and represent the highest cost/highest need shared population 17

18 Other barriers and problems Engagement and capacity How can we reach more inmates given that participation in jailbased discharge planning services is voluntary? Benefits continuity - SSI, Medicaid, and public assistance benefits are terminated when people enter jails and reinstatement after release is challenging Housing resources Lack of affordable housing and legal/regulatory barriers to housing Lack of post-jail employment opportunities 18

19 Tasks and activities Improve traditional discharge planning capacity, scope, and engagement Divert short stayers from jail altogether Break cycle of jail and shelter among frequent flyers Increase access to benefits, employment and affordable/supportive housing Data and evaluation 19

20 Improve traditional discharge planning capacity Contracts with five providers to perform discharge planning for city sentenced inmates Increase provider access to inmates through streamlined processing, reduced red tape, and video conferencing Increase inmate participation through improved marketing of services Trainings around housing assessment, search and placement 20

21 Divert short stayers Develop a comprehensive strategy to identify alternatives to short-term incarceration Explore with judges increased use of probation as an alternative-to-incarceration Evaluate bail practices Evaluate arrest practices Deliver rapid discharge planning in detention centers 21

22 NYC s frequent flyers of jail and shelter A growing number of individuals cycle regularly between jails and homelessness: Data match between DHS and DOC found 1,725 individuals that had at least 4 jail stays and 4 shelter stays over a 9 year period When ordered by the number of days spent in both, the top 25% of users spent, on average, 102 jail days and 104 shelter days a year Average of 14 substance abuse tx (detox) episodes over past 28 years Two Year Jail-Shelter Utilization DHS DOC DHS DOC DHS DOC DHS DOC DHS DOC DOC DHS DOC DHS DOC DHS DOC DHS 1-Jan Jan Jan-01 3-Feb Feb-01 9-Mar Mar Jun Jun Jul Jul-01 4-Aug-01 7-Sep Oct Nov Dec-01 8-Mar-02 9-Mar-02 5-Apr-02 8-Apr-02 2-Aug Dec-02 DHS DOC Neither System 22

23 Frequent flyer supportive housing initiative Perform in-reach in jails and shelters to recruit 23

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