Implementing The Life Line Concept: Report Of The Task Force On Long Term Offenders

Research on Successful Reintegration of Lifers and Long Term Offenders

The following describes a research study that would take approximately six months to complete. The overall objective should be to identify as clearly as possible factors or characteristics that distinguish the "successful" from the "unsuccessful" offender.

Step 1: Define what is meant by "successful reintegration"

The minimum period of time in the community on full parole should be defined as five(5) years. Completion of Day parole would not qualify since there are significant controls/conditions beyond the offender's control. Experience supports the conclusion that this period is required generally to achieve a full, constructive, contributory reintegration into the community. The criteria for "success" should be somewhat flexible, i.e. not returning to custody for a new offence. This would allow some minor reoffences (such as driving violations) but not serious enough to require reincarceration. Also, technical violations should be included as a separate category for the purposes of this research. It is a sign neither of successful reintegration nor of failure in itself, but the role and nature of technical violations requires study.

Step 2: Include a comprehensive literature review

This should a) enable comparisons of the current Canadian experience with other countries, b) identify previous historical patterns in Canada or elsewhere (if such information exists), and c) identify other issues or features of reintegration of lifers or long term offenders which may not have been considered to this point. This review should focus only on release of lifers and long term offenders.

Step 3: Conduct empirical research - data collection and analysis

• How many lifers and long term offenders are or were in the community with 5 years or more on full parole? It will be useful to include offenders on statutory release for similar periods, since, if they have been successful in not committing further offences this would meet the success criterion, even though the release was not a discretionary or "risk based" release by the National Parole Board.

• key demographic characteristics of this group: including age, length and type of sentence, sex, race, region, etc.

• file review to determine a "snapshot" of the offenders both prior to and following release to compare their situations at both points in time. This would include static background factors: previous criminal history (length and type of offence) prior to current offence, prison history, i.e. where the offender spent most of the sentence, security level, what "institutional career" was followed, adjustment/discipline problems when incarcerated, etc. - and the changeable or criminogenic factors: education and skills on entry to penitentiary and on release, employment history prior to and following release, physical health, identified mental health issues, family contact prior to and following incarceration, financial management ability, substance abuse, attitudes and personal/emotional orientation, etc. - on incarceration and on release. In addition, information should be gathered on the correctional interventions (programs or others) offenders received before and after release.

• file review to determine how release was structured, i.e. how Escorted Temporary Absencess, Unescorted Temporary Absences, Day Parole, and Full Parole flow over what period of time, special or additional conditions, where in the sentence release process began (i.e. at eligibility or later); were there interruptions (reincarceration due to violations) in the release pattern, whether release was attempted on more than one occasion. For technical violations, specific information on the conditions broken and precipitating situation would be useful. For returns to incarceration, information is required on the specific underlying causes.

• compare experience of matched samples (one "successful" and the other "unsuccessful") of offenders to determine similarities and differences on all the factors identified.

• interview a randomly selected, representative group of offenders who have served at least ten years in prison, and have successfully maintained full parole for five or more years or reached warrant expiry following a period of at least five years on parole, to determine what they identify as the key factors in the community and during their incarceration which contributed to success.

Summary/conclusion of Research:

The result of this work will be a view of the successful and the unsuccessful lifer and long term offender from three perspectives:

1) Demographic view, i.e. those things that cannot change (age, sex, race, etc.)

2) Sociological factors which might be influenced, such as mental health, employment skills, etc.

3) A picture of the offenders from their own perspective and an identification of the factors they believe were most significant in re-entry into the community.

This will also provide a view of the offender at three points in the sentence, i.e. entry to the federal system, at release, and several years later.

Each of these perspectives should be analyzed in the final report to determine how the various sets of factors within each of them interact, and whether or not there are correlations. The most important results will be the identification of what makes the difference for the offender between success or failure in reintegration.

Incorporating results in overall management

The most critical factor in incorporating research results into operations is that the research must be designed from the beginning with this requirement in mind, which the Task Force has attempted to do. The results should allow the ranking of the factors which impact the most on successful reintegration of lifers and other long term offenders. This should also confirm whether there are distinct differences between this group of offenders and others serving shorter, determinate sentences . Historically programs, policies and procedures have not differed significantly for offenders serving long sentences or life sentences from those serving shorter sentences. Research might indicate that they should. There are three areas to focus on:

1) Institutional programs and placement: Once the most significant factors are known, better correctional planning for specific groups or categories of offenders should be possible. As an example, different case management approaches may apply for lifers as compared to other long term offenders. It is possible that previous criminal history is a significant factor and programs may have to be tailored for those with little or no criminal history versus those with well established criminal patterns. The research results should also provide useful information on which to base time-sequencing of sentence management, i.e. at what time are interventions best implemented.

Race, sex, age and health will determine how to manage and plan for some offender groups. If it is determined that there are distinct groups of offenders for whom the factors affecting successful reintegration are different, this should lead to establishment of a range of programs and institutional policies which best suit each group.

2) Release Policies If there is a correlation between the release pattern (structured and gradual vs. fewer faster steps) and successful reintegration, current policies should be reviewed to determine if they are supported by the research. One example would be National Parole Board's reluctance to use 5&2 type day paroles prior to Full Parole eligibility - will the research support this policy for all types of cases? Additionally, potential changes to legislation would be better supported if research indicates that specific issues are not addressed or are reflected inappropriately in the legislation. For example, the length of time between eligibility for Day Parole for lifers and Full parole eligibility (3 years) may not be seen as a factor contributing to successful release.

3) Community Resources and Programs It is important to know which community programs, services or conditions of living most supported offenders who were successful. Documented information on the factors affecting technical violations and re-offending is also required. As with the institutional phase, the results of this study should guide correctional planning in the community. Also, there is a need to know whether specific approaches are required for certain age groups, members of minority groups or for women. Those working with lifers or long term offenders in the community would be better assisted if they knew the results of this study as it might apply to different profiles of offender populations and the potential success or failure of various correctional interventions.

It is recommended that research on factors affecting the reintegration of lifers and long term offenders be conducted using the Task Force's outline as part of the framework.