Pennsylvania's
Motivational Boot Camp Program
2000 Legislative Report
Introduction and Overview
Legislative Background of Pennsylvania's Boot Camp Program
In 1990, the legislature passed Act 215, which established a state Motivational Boot Camp Program. The Boot Camp, which is located in Quehanna, Clearfield County, opened in June 1992. It serves as an alternative to traditional state prison and allows eligible inmates to serve a reduced six-month sentence upon successful completion of the program. The impetus behind the legislation was the recognition of the severe overcrowding situation in the state correctional system. Further, there was legislative interest in offering an alternative to prison that would provide a more intense rehabilitative setting conducive to achieving the goal of crime reduction. Of particular concern was that the Boot Camp Program provide substance abuse treatment as most offenders have been found to have drug and/or alcohol problems. In light of these legislative concerns, the enabling legislation outlined the following objectives for the establishment of the Boot Camp program:
(1) To protect the health and safety of the Commonwealth by
providing a program which will reduce recidivism and promote characteristics
of good citizenship among eligible inmates.
(2) To divert inmates who ordinarily would be sentenced to traditional forms
of confinement under the custody of the department to motivational Boot Camps.
(3) To provide discipline and structure to the lives of eligible inmates and
to promote these qualities in the postrelease behavior of eligible inmates.
Statutory Eligibility Criteria for Boot Camp
Act 215 of 1990 required that potential Boot Camp candidates meet certain legislative criteria. Act 86 of 1996 modified the eligibility criteria and became effective for offenders sentenced on or after September 3, 1996. Below are the current statutory criteria for Boot Camp with the 1996 modifications in italics:
Act 215 also mandated the Pennsylvania Commission on Sentencing to determine criteria concerning the identification of appropriate candidates for the Boot Camp. As the number of potential Boot Camp candidates recommended by judges has historically been low, the Commission continues to utilize the minimum sentence allowed by statute to identify potential candidates for judges to consider in their recommendations for Boot Camp.
Procedure for Selection of Boot Camp Participants
Statute requires that the sentencing judge recommend the offender for participation in the Boot Camp Program and that the Department of Corrections make the final determination concerning which offenders will be admitted into the program. The Department of Corrections will notify the sentencing judge if a new inmate appears to be a good candidate for the Boot Camp but has not been designated eligible by the judge. In such cases the judge will often modify the offender's sentence to enable the offender to participate in the program. The two primary reasons that offenders receiving judicial recommendation for Boot Camp are rejected are due to the offender having outstanding detainers or medical problems. The Boot Camp Program is voluntary and once admitted, an offender can withdraw from the program at which point he/she forfeits the right to immediate parole upon graduation from the program. Rather, the offender returns to the state correctional institution to serve the remaining portion of the minimum sentence prior to being reviewed for release by the Parole Board.
The specific steps involved in the selection of Boot Camp participants are as follows:
1. The Pennsylvania Commission on Sentencing identifies appropriate Boot Camp candidates through the sentencing guidelines.
2. The sentencing judge, using the guidelines, indicates whether the defendant is to be considered for the Boot Camp Program. The offender must meet the legislative criteria that are outlined in the previous section.
3. The judge indicates on the sentencing order and the Guideline Sentence Form the minimum and maximum sentence and whether the offender should be considered for the Boot Camp. By identifying an inmate as eligible for this Boot Camp Program, the judge is agreeing to allow the inmates to be released prior to the expiration of the minimum sentence.
4. Potential Boot Camp candidates go through an expedited classification process at Camp Hill if the offender is a male, and Muncy if the offender is a female.
5. The inmate must apply to the Department of Corrections for admission into the program.
6. The Department of Corrections makes the final determination as to whom will get admitted into the program.
7. Upon successful completion of the six-month program, the inmate is to be released on intensive parole supervision.
Act 215 of 1990, which created the Motivational Boot Camp Program, included a mandate to The Pennsylvania Commission on Sentencing to report annually on the progress of the Program to the House and Senate Judiciary Committees. These reports have primarily focused on two issues: 1) providing information on the type of offender who is eligible, recommended, and admitted into Boot Camp and 2) examining whether the Boot Camp Program has been successful in reducing recidivism.
The second issue of recidivism was addressed for the first time
in the Fourth Annual Evaluation, which was released in 1996. Prior to that evaluation,
there was an insufficient number of Boot Camp graduates to track for recidivism
purposes. The Fifth Annual Evaluation, released in 1997, expanded the recidivism
study by including an additional year of graduates and providing a longer tracking
period. The findings from the two studies, however, were inconsistent. That
is, the 1996 study found lower recidivism rates for Boot Camp graduates than
for the comparison prison group [35% vs. 43%], while the 1997 study found similar
re-arrest rates for the two groups [32% vs. 33%, respectively]. Thus, while
the Boot Camp graduates had virtually the same recidivism rate in the two studies,
the prison group had a lower recidivism rate reported in the 1997 study than
in the 1996 study.
As additional resources had not specifically been allocated for a Boot Camp
evaluation, the scope
of the recidivism study has traditionally been limited. Further, the unavailability
of data necessary to conduct a comprehensive study made it difficult to draw
meaningful conclusions with confidence. In 1998, the Sentencing Commission established
a Boot Camp Subcommittee to address these concerns and to discuss with the Department
of Corrections and the Pennsylvania Board of Probation and Parole the best approach
to evaluating the success of Pennsylvania's Boot Camp. The three agencies agreed
upon an evaluation plan, along with a commitment to devote time and resources
to the project. As a result of these agencies' efforts, this year's report is
able to include the findings from an extensive recidivism study comparing offenders
who graduated from the Boot Camp Program with offenders who were released from
traditional prison.
Boot Camp Offender Survey
Last year's report included a summary of the findings from a pilot survey of Pennsylvania's Boot Camp graduates. This survey, which was developed by a Management Intern Team under the direction of the Research Director at the Pennsylvania Board of Probation and Parole, was a pioneering effort as it was the first to measure offender perceptions of both Boot Camp and parole aftercare. The survey found that the majority of offenders [82%] felt that the Boot Camp Program was a positive influence in their lives. Further, those offenders who were less likely to recidivate were also more likely to report a favorable experience on parole and less likely to associate with their previous friends upon returning to the community.
As a follow-up to last year's survey, the Sentencing Commission decided to continue this effort and to expand the survey to include both an attitudinal survey and a self-report survey [see Appendix D for a copy of the surveys]. The attitudinal survey measures attitudinal changes along several dimensions found to be related to criminal behavior [e.g. self-control, family ties, friends, and substance abuse] and addressed through the programmatic aspects of the Boot Camp program. This survey also measures offender perceptions and expectations of the program. The survey will be administered to the offenders upon arrival to the Boot Camp and upon completion of the program, as well as six months after release. The second survey is a self-report survey that includes questions about the offender's prior criminal behavior, use of drugs/alcohol, employment history, and family stability. This survey will be given once, upon the offender's arrival to the Boot Camp.
In May 2000 these surveys were submitted to The Pennsylvania State University's Institutional Review Board [IRB], which provides oversight of all research involving human subjects. In July, the IRB granted approval to the Sentencing Commission to conduct this research and in October, the first surveys were administered. The Boot Camp's Educational Coordinator has agreed to assist the Sentencing Commission in giving the survey to each new platoon of offenders, which generally involves the arrival of about forty offenders on a monthly bases. Next year's report will include the findings from these surveys.
Description of Pennsylvania's Boot Camp Program
Pennsylvania's Boot Camp Program was developed to address the legislative objectives of reducing recidivism by providing a program that promotes discipline, structure, and characteristics of good citizenship. More specific programmatic features were provided in the legislative definition of Boot Camp: "a program in which eligible inmates participate for a period of six months in a humane program for motivational Boot Camp programs which shall provide for rigorous physical activity, intensive regimentation and discipline, work on public projects, substance abuse treatment services licensed by the Department of Health, ventilation therapy, continuing education, vocational training and prerelease counseling"
The Boot Camp is modeled after military Boot Camps and instills discipline and structure through regimented sixteen-hour days consisting of work and program activities with very little free time. Intensive regimentation is provided through Drill Instructors working with the inmate platoons to teach traditional military drills and physical exercise. The Boot Camp reinforces the military training throughout the day by requiring the inmates to demonstrate respect [e.g. use proper titles when addressing staff and Mr. when addressing peers], follow instructions, use military bearing [e.g. stand at attention, show erect and proud posture], maintain neat and clean personal quarters, display a positive attitude, and use their time constructively. A typical day begins at 5:30 with reveille followed by an hour of physical training. The remainder of the day is tightly scheduled with educational and rehabilitative classes and work. Inmates are allowed visits every other weekend and have limited phone privileges on weekends when there are no visitations. Radios and televisions are not allowed.
A hallmark of the program is its emphasis on the rehabilitative needs of the offenders, such as substance abuse education and treatment. While the majority of inmates have demonstrated a need for such treatment, those who do not have problems with drugs or alcohol are still required to participate in this portion of the program. Inmates participate in both individual and group counseling sessions with individualized treatment plans developed upon the inmate's arrival to the Boot Camp. The group sessions meet about 2.5 hours per day for seven days a week. During these sessions the inmates learn how to deal with issues related to substance abuse such as: stress and anger management, the effect of drugs on the body, dysfunctional family systems, self-defeating behaviors, building self esteem, developing healthy relationships, relapse prevention, employability, financial budgeting, and getting ready to return to the community. Community meetings are also held nightly for an hour to provide the opportunity to discuss individual problems. Alcoholics Anonymous, Narcotics Anonymous, and Gamblers Anonymous are offered on a weekly basis.
The Boot Camp Program has a mandatory education program for inmates who do not have a high school diploma, while those who have graduated from high school often serve as tutors. Students attend education classes for 24 hours a week and cover six main subject areas: math, grammar, literature, social studies, science and essay writing. Classes engage in pre-GED testing procedures and when students attain a satisfactory level, a GED test date is scheduled. Those who pass the GED are released from education class to work detail while those who do not pass remain in the education program. Approximately 20% of the inmates who have attended Boot Camp test for their GED with 92% of those receiving their GED, which is higher than the 67% passing rate of inmates at other state correctional institutions.
Aside from educational and counseling programs, inmates work on community projects involving other agencies such as the Department of Conservation and Natural Resources, the Pennsylvania Department of Transportation, and the Fish and Boat Commission. The inmates' work consists of activities such as: repairing and installing broken gates, clearing brush, planting trees, painting buildings, and repairing fences. Since the inception of the Community Work Project in 1995 through November 19, 1999 inmates have worked a total of 82,042 hours. Inmates also are instilled with the work ethic, as well as learning useful skills, through their involvement in routine maintenance and upkeep of the Boot Camp itself.
In July 1999, the Boot Camp opened a newly renovated facility, which has potential to accommodate 400 offenders. This facility provides space for a new food-service area, expanded health care, drug and alcohol treatment, education facilities and an indoor physical training area. Generally, there are around 230 offenders participating in the program at any one time, with about 40 offenders entering the program per month. Upgrades to the water and sewage systems will allow for a capacity of over 550 offenders.
ASPIRE aftercare facility. In August 2000, a new aftercare facility, ASPIRE, opened in Philadelphia for Boot Camp graduates without a home plan. The ASPIRE program is operated by a non-profit agency, Volunteers of America, which contracts with the Department of Corrections to provide a six- month residential aftercare group home with treatment services. The residential portion of the program is followed by an additional six months of community supervision. The program focuses on teaching the offenders life skills, enhancing their educational capabilities, providing substance abuse relapse counseling, and assisting them in securing employment. The Volunteers of America Agency has arranged with employers in the Philadelphia area employment opportunities for offenders who have participated in this program. The facility can currently house 24 Boot Camp graduates and has the potential for expanding its programmatic features to non-residential Boot Camp graduates.
Parole Supervision of the Boot Camp Graduate
Statute mandates that upon successful completion of the six-month program, the Boot Camp graduate is automatically released to intensive parole supervision. To provide for the transition from Boot Camp to parole, the Parole Board has field staff conduct interviews with new arrivals at the Boot Camp to advise them of release expectations and to conduct parole education classes. The Parole Board has initiated a program whereby field agents from alternating regions visit the pending graduating class approximately six weeks prior to graduation. They discuss with the cadet the requirements and expectations of parole supervision with emphasis on the importance of aftercare treatment. All efforts are made to investigate this component of the release plan prior to graduation/parole so there is no delay in receiving this service.
Graduates from the Boot Camp who have a home plan and a job plan move directly from the Boot Camp to intensive parole supervision. Traditionally, the standard of intensive supervision used by the Parole Board has been that the parolee is required to have: one weekly face to face contact with the parole agent, one weekly urinalysis, one monthly home visit, one monthly employment verification, referral to drug and alcohol treatment, as appropriate, with monthly contact with treatment provider, participation in Narcotics Anonymous and Alcoholics Anonymous meetings, as appropriate, and use of electronic monitoring as available. Prior to March 21, 1995 Boot Camp graduates received this standard of intensive supervision for one month while the amount of time was increased to two months after that date.
In 1993 The Parole Board received federal funding to provide more intensive supervision of offenders with significant drug problems and as a result, new intensive supervision units were opened in Erie, Pittsburgh, Harrisburg, Scranton, Allentown, Philadelphia and Chester. Many of the Boot Camp graduates were placed in these new intensive supervision units. New standards for intensive supervision of offenders with drug problems were developed that increased the weekly contacts to three per week and the urinalysis testing to twice a week for the first six months of supervision. During the next six months there was a gradual reduction in supervision with the minimal contact being one per week. Reduced federal funding, however, has required the closing of these units in all but Philadelphia, which has four units, and Allentown.
In April 1996 the Parole Board initiated a new intensive supervision program, Parole Re-entry Programs [PREP] in Philadelphia, Harrisburg, and Pittsburgh. Under this program, which includes Boot Camp graduates, parolees are required to meet three times a week with their parole agent for the first two months of parole. During these visits, parolees also meet with treatment providers to establish individual treatment plans that are required as part of their intensive supervision. In those counties where intensive supervision units do not exist, Boot Camp graduates are still required to have one contact a week and two visits a month with their parole agent during the first two months of parole. The Parole Board is currently pursuing additional programs to meet the need of the Boot Camp graduate.
Graduates of the Boot Camp without a home plan or job plan are placed in a Community Corrections Center [CCC]. During recent years, about 30% of the Boot Camp graduates were released to a CCC following graduation. It is the perception of the Parole Board that parolees who first go to a CCC do better than those who go directly to the street. The CCC provides a structured re-entry, an intervening layer for continuation of work, networking, interaction and support to get over the transitional hurdles with those people with whom they graduated. This is quite different than parole supervision, where association with convicted felons is prohibited.
In March, 1999 the Department of Corrections, in conjunction with the Parole Board, was awarded a $967,845.00 grant from the Pennsylvania Commission on Crime and Delinquency to implement a Comprehensive Transitional Employment Program for Boot Camp graduates returning to the Philadelphia area [Bucks, Chester, Delaware, Montgomery, and Philadelphia counties]. This three-year pilot program will provide a comprehensive range of services including: life skills education, basic education {GED}, job readiness training, job placement and retention services, and on-going placement services. The program is scheduled to start in early Spring 2001 and plans to target 63 Boot Camp graduates during the first year, with an expected target population of 312 Boot Camp graduates by the third year of the program.