Viewing Justice Reinvestment from a Correctional Officer's Perspective
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POLICY BRIEF FEBRUARY 2021
Viewing Justice
Reinvestment from a
Correctional Officer’s
Perspective
Benjamin Forman and Anusha Rahman1
For many years, Massachusetts’ correctional popula-
tion defied gravity, remaining extremely high despite Key Themes
steadily falling crime. However, more recently the With falling crime, changes in
numbers have finally started to drop, aided by con- sentencing, and COVID-19 releases,
certed efforts to keep those with behavioral health incarceration rates in Massachusetts are
conditions out of prisons and jails, changes to man- returning to pre-“tough on crime”-era
levels. This presents an opportunity
datory-minimum sentencing statutes, and thousands to rethink corrections and operate
of dismissals due to problems at the state’s crime labs. facilities focused on rehabilitation and
Releases to prevent the spread of COVID-19 and the recidivism reduction.
temporary cessation of legal proceedings during the
Achieving this policy goal is conditional
first phase of the pandemic have pushed prisoner on correctional officers. As frontline
counts down even further. Massachusetts now has workers, they perform a vital function
an unprecedented opportunity to make better use of identifying prisoner needs and
supporting therapeutic intervention.
limited public safety resources by keeping the incar-
cerated population low and reinventing correctional Despite ample evidence that
practices. correctional officers support reform
As policymakers contemplate such a strategy, goals and stand to benefit directly
from a greater operational focus on
they must place correctional officers front and center. rehabilitation, most reform efforts in
“Tough on crime”-era laws caused enormous injury Massachusetts have left correctional
to these public servants. While circumstances have officers on the sideline.
undoubtedly improved since the days when facilities
As Massachusetts examines
were extremely overcrowded and understaffed, there correctional budgets and develops
is no doubt that conditions just before the pandemic capital plans to refurbish aging
continued to take a heavy toll on officers. Facing the facilities, it is critical to bring
correctional officer perspective and
elevated threat of COVID-19 in institutional facilities
professional judgment into the justice
has imposed further harm on an already overstressed reinvestment policy discussion.
labor force with lasting consequences.It is within this context that we from the 1970s suggest these officers to create truly therapeutic environ- 2
must now consider how reforms were strongly in favor of rehabil- ments that improve the well-being of
Viewing Justice Reinvestment from a Correctional Officer’s Perspective
aimed at making rehabilitation the itative models. When researchers both staff and prisoners.
primary goal of incarceration can could not find evidence that correc- The legislature’s correction-
improve safety inside of facilities, tional programming had an impact al expenditure commission, which
offer more rewarding professional on the likelihood of repeat offend- has been charged with examining
experiences, and increase job sat- ing and prematurely concluded that spending on prisons and jails in
isfaction for correctional officers. “nothing works,” politically motivat- the Commonwealth and advancing
Criminal justice reform efforts have ed leaders quickly responded with recommendations to achieve basic
largely overlooked these frontline calls to make prison life as punitive standards for rehabilitation, treat-
workers. This is unfortunate because as possible. Governor Weld’s famous ment, and efficiency, provides a
not only are correctional officers 1990 campaign trail quip that he powerful platform for charting this
major potential beneficiaries, they would seek to reintroduce prisoners new course.
are central to the ultimate success to the “joys of busting rocks” epito- At this critical juncture, we seek
of reform. Moreover, many of these mizes this political framing. to further this conversation by ex-
frontline workers are inclined to Tough on crime sentencing amining the role of correctional of-
support change. Studies consistent- laws and practices sent the state’s ficers in justice reinvestment. This
ly find that officers believe rehabili- incarcerated population spiraling policy brief charts decarceration
tation is an important goal and that upward, leading to overcrowding so trends in Massachusetts, examines
they see themselves as playing the severe that many facilities struggled criminal justice reform from the
most important role in their agen- to comply with the basic constitu- correctional officer perspective, and
cies helping incarcerated individuals tional prohibition against cruel and lays out strategies to guide future in-
desist from crime.2 unusual punishment.4 As recently vestments. The paper concludes by
To better position correction- revealed by Senator Warren’s inves- offering high-impact policy propos-
al officers as champions of reform, tigation into the American Correc- als. As with all MassINC research,
they must be meaningfully engaged tional Association, lax accreditation we present this information to frame
in policy development. Policy is al- standards and minimal accountabil- the problem and further the pub-
ways better when it is shaped by the ity have allowed conditions to per- lic debate. We hope these ideas will
end user, particularly when the aim sist that are harmful to correctional help bring correctional officers, civic
of policy is to increase organization- workers, prisoners, and the cause of leaders, and elected officials together
al performance. While this is true public safety.5 to mount a timely response.
for any organization, it is especially Massachusetts is finally in a po-
so for corrections. The nature of the sition to turn the page on this dif-
job forges a strong internal culture, ficult chapter. The state’s landmark
which gives employees greater abili- 2018 criminal justice reform law
ty to resist external forces when they provides the framework for rebuild-
are not in favor of the strategy.3 ing the corrections system with a
As policymakers work to engage heavy focus on rehabilitation and
the field in conversations about the recidivism reduction.
future, it is important to recognize Growing attention to racial jus-
that the professional views of cor- tice and the need to provide greater
rectional officers were not consid- support and second chances to those
ered when flawed tough on crime- who face disadvantage and discrimi-
era policies were developed. Surveys nation should strengthen our resolveI. Decarceration Trends in Massachusetts 3
To provide important context for a county houses of correction and crime and the general growth of the
Viewing Justice Reinvestment from a Correctional Officer’s Perspective
richer discussion about the challeng- jails. Since that time falling crime Massachusetts population over the
es and opportunities of justice rein- rates and a series of sentencing re- past three decades, we present change
vestment in Massachusetts at this forms have led to significant re- relative to 1990 rates in Figure 2.
crossroads, we begin by examining ductions in the state’s correctional Roughly two decades after crime
how correctional populations are population. In 2019, the population peaked in the early 1990s, county
moving in relation to crime, changes dropped to 17,000 or about one- incarceration rates were still dou-
in crowding levels at correctional fa- third below 2008 levels. COVID-19 ble 1990 levels and DOC rates were
cilities, and the physical state of our releases and court closures led to an roughly 20 percent higher. In 2019,
prisons and jails. even sharper reduction. In July 2020, violent crime was down by more than
state and county facilities held just half and property crime was at just 26
12,000 prisoners. County popula- percent of 1990 rates; in comparison,
A. Changes in Incarceration tions rrose slightly toward the end of DOC incarceration rates were still at
Relative to Crime last year; the DOC continued to see 75 percent of 1990 levels and county
In 2008, the Massachusetts correc- more releases than admissions in the incarceration rates remained close to
tional population peaked at over second half of 2020 (Figure 1). 30 percent above 1990 rates. After the
25,000 prisoners at Department To provide additional perspec- COVID releases, incarceration rates
of Correction (DOC) prisons and tive on how these patterns relate to are much closer to falling back into
Figure 1: DOC and County Correctional Populations, 1990 – 2021
30,000
Marijuana Drug Mandatory
DOC Population CJ Reform
Decriminalization Minimum Reductions
County Population
25,000
20,000
15,000
10,000
5,000
0
1990 1992 1994 1996 1998 2000 2002 2004 2006 2008 2010 2012 2014 2016 2018 2020
Source: Massachusetts Department of Correction, Quarterly Overcrowding Reports and Weekly Count SheetsFigure 2: Relative Change in Incarceration Rate and Crime Rates, 1990 – 2019 4
250
Viewing Justice Reinvestment from a Correctional Officer’s Perspective
DOC Incarceration Rate County Incarceration Rate
Violent Crime Rate Property Crime Rate
200
150
129
100
75
79
65
50 44
26
0
1990 1992 1994 1996 1998 2000 2002 2004 2006 2008 2010 2012 2014 2016 2018 2020
Source: Massachusetts Department of Correction and FBI Uniform Crime Reports
line with crime levels. B. The End of Overcrowding were originally designed to serve.
While there is considerable de- and Understaffing A decade ago, more than one-third
bate about how much the rise in Without question, the dramatic re- of DOC facilities and nearly half of
incarceration rates contributed to duction in incarceration presents county facilities had at least 50 per-
the steep drop in crime that we ex- opportunities to think anew about cent more prisoners than they were
perienced over the past two decades, correctional practices. For the first built to house.
studies generally find the increased time in decades, space is no longer In addition to freeing up space,
use of incarceration played a limited a heavy constraint for most correc- falling prison populations have sig-
role. Substantial evidence suggests tional facilities in Massachusetts. At nificantly reduced pressure on cor-
sending thousands of residents to the moment, just one facility is op- rections workers. While staff head-
crowded, understaffed facilities and erating above its design capacity. In count has fallen at both the DOC
returning them to the community the first quarter of 2020, immediate- and county correctional facilities,
with little support has actually led ly prior to COVID’s impact on ad- staffing reductions have not been
to increases in crime in Boston and missions and releases, only three (11 nearly as steep as the decline in the
many other urban communities.6 percent) DOC facilities and just one prisoner population. Between 2011
county facility (5 percent) held sig- and 2021, the number of individu-
nificantly more prisoners than they als incarcerated fell by about half inboth systems; in contrast, the DOC Figure 3: Change in Average Daily Population vs. Change in Staff, 5
and county facilities have reduced 2011 – 2021
Viewing Justice Reinvestment from a Correctional Officer’s Perspective
staffing by approximately 12 percent
Average Daily Population All Staff Security and Supervision Staff
and 16 percent, respectively. The
counties retained more security and
-5%
supervision staff, whereas the DOC
reduced security and supervision -12%
-16%
positions at a slightly faster rate than
-20%
overall employment (Figure 3).
County
Despite these reductions, securi- DOC
ty and supervision prisoner-to-staff
ratios are much lower than in the past.
As of January 2021, the counties held
1.5 prisoners per security and super- -50% -49%
vision staff member, down from 2.9 Source: Massachusetts Department of Correction, Weekly Count Sheets and
in 2011. DOC facilities housed 1.8 Massachusetts Office of the Comptroller, CTHRU Payroll
prisoners per security and supervi-
sion staff, compared to 2.8 a decade agency with the highest ratio today, departments now earn, on average,
ago (Figure 4). While aggregating has half that number (Figure 5). just over $78,000 annually including
the sheriffs does obscure significant In addition to lowering ratios overtime pay. Security and supervi-
variation across agencies, the decline to a safer and more effective range, sion staff at the DOC earn almost
in populations has brought them the declining populations have also $100,000 annually inclusive of over-
all down to relatively low ratios. In afforded opportunities to increase time. Adjusting for inflation, this is
2011, Plymouth had more than five pay for correctional staff. Full-time a 20 and 32 percent increase from
prisoners for every security and su- employees working in security and 2011 salary levels for county and
pervision staff person. Worcester, the supervision roles in county sheriffs DOC staff, respectively.
Figure 4: Security and Supervision Population-to-Staff Ratios, Sheriffs and DOC, 2011 – 2021
2.9
2.8
Sheriffs
DOC 1.8
1.5
2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021
Source: Massachusetts Department of Correction, Weekly Count Sheets and Massachusetts Office of the Comptroller, CTHRU PayrollFigure 5: Security and Supervision Population-to-Staff Ratios, Large Sheriffs, 2011 – 2021 6
5.1
Viewing Justice Reinvestment from a Correctional Officer’s Perspective
Bristol Essex
Hampden Middlesex
Plymouth Suffolk
Worcester
3.4
2.6 2.5
1.8
1.3
0.8
2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021
Source: Massachusetts Department of Correction, Weekly Count Sheets and Massachusetts Office of the Comptroller, CTHRU Payroll
C. Deteriorating Facility DOC facilities with these sig-
Conditions nificant capital needs include MCI
The sprawling system that once Cedar Junction, MCI Norfolk, MCI
housed over 25,000 individuals on Framing, Old Colony, Bridgewater
any given day still covers the land- State Hospital, and MASAC-Plym-
scape. All told, it includes nearly outh. In the county system, the most
500 buildings with nearly 10 million deteriorated structures are those of
square feet of space between them. Barnstable, Norfolk, and Dukes.
A recent review by the state’s Divi- These metrics on population
sion of Capital Asset Management trends, crowding, staff ratios, com-
(DCAM) found these facilities re- pensation, and capital needs are crit-
quire substantial maintenance. More ical considerations as Massachusetts
than one-third of facilities require contemplates the role of incarcera-
total renovations or a complete re- tion in an era focused on public safety
placement. Another 20 percent re- strategies grounded in public health,
quire a major renovation. The as- racial justice, and depoliticized evi-
sessment found repairs required dence-based decision making.
over the next 10 years will cost the
state more than $700 million.7II. Approaching Criminal Justice Reform from the Correctional Officer 7
Perspective
Viewing Justice Reinvestment from a Correctional Officer’s Perspective
A large body of research dating back of this new hazard has even led manner; when this style is reflexively
to the 1980s documents the im- many to exit the field.10 brought home to difficult family con-
pact of tough on crime-era polices “Role strain” from balancing versations, it can aggregate conflict.12
on correctional staff. These studies the competing demands to provide Unlike members of the military
demonstrate how the status quo fails both security and rehabilitation also or those in other public safety pro-
correctional officers, prisoners, and creates significant stress for many fessions, correctional officers gen-
the public. They also point to how officers. Institutions often strictly erally do not receive goodwill from
correctional institutions are likely prohibit correctional officers from the community for their service. Be-
to respond to calls for change and fraternizing with prisoners. Training cause they are behind the walls, the
innovation. Below we describe the emphasizes preventing relationships public rarely sees correctional offi-
challenges and opportunities this lit- and avoiding friendships with pris- cers. People form impressions about
erature reveals. oners as a matter of safety. When cor- the profession largely through media
rectional officers see their coworkers accounts, which are almost always
cross these boundaries, it leads to negative. Studies suggests this image
A. Correctional Officer higher levels of stress and concern.11 contributes to stress, dissatisfaction,
Stress The nature of the job also leads and burnout. By bringing attention
Current correctional practices place to significant work-family conflict. to heavily punitive conditions of
officers responsible for providing Prisons must operate continuously confinement, criminal justice re-
care and custody to prisoners under with appropriate staffing levels at all formers may have inadvertently re-
a variety of forms of intense stress. times. Correctional officers are of- inforced these negative stereotypes.13
The inherent danger of the work is ten called upon to cover additional The combination of these var-
the most widely recognized. Correc- shifts without advance notice, which ious sources of stress takes a heavy
tional officers are significantly more disrupts personal lives and relation- toll on officer well-being. Chronic
likely to be injured on the job than ships and becomes its own source of illnesses induced by stress, including
those serving in other public safety stress. Beyond scheduling, research heart disease and hypertension, are
occupations, including police offi- suggests it can be difficult for officers alarmingly elevated in correctional
cers and firefighters. Even when cor- to constantly adjust between home officers.14 Estimates suggest that be-
rectional officers are not the target life and life in the facility. For exam- tween 20 and 50 percent of officers
or victim of an attack, they are con- ple, officer training emphasizes com- experience PTSD.15 Controlling for
stantly exposed to elevated risk and municating with an authoritative demographic and other related vari-
frequently observe violent events.8
The presence of pathogens is
another persistent source of danger. Unlike members of the military or those
Long before COVID-19, research on
the stressors that make correctional
in other public safety professions,
work so difficult regularly pointed correctional officers generally do not
to fear of contracting HIV, hepati- receive goodwill from the community
tis, and other infectious diseases.9
A study conducted just before the for their service. Because they are
pandemic found fentanyl and other behind the walls, the public rarely sees
synthetic opiates had become the
highest exposure concern among
correctional officers.
correctional officers; the emergenceables, correctional officers are 40 ities converted classrooms, recre- oner mental health issues.23 Similar- 8
percent more at risk of death from ational facilities, and even medical ly, the severity of the problem is evi-
Viewing Justice Reinvestment from a Correctional Officer’s Perspective
suicide than non-correctional offi- spaces to housing units. This left dent in a recent study of correctional
cers.16 On average, studies find the prisoners with far fewer opportuni- officer suicide in the Massachusetts
stress of the job reduces the life span ties to participate in rehabilitative Department of Correction.
of officers by 16 years. programming and earn time off their Over a five-year period between
Particularly disturbing, a study sentences, which led to longer stays 2010 and 2015, the DOC lost at least
of correctional officers in Connecti- and elevated rates of recidivism, ex- 20 current and former officers to sui-
cut found that these negative health acerbating the crowding problem. cide. The study found the incidence
impacts take hold rapidly. While Understaffing made it more difficult of suicide among DOC officers was
new officers began their careers in for correctional officers to recognize roughly four times higher than the
good physical condition, after three mental health crises and other pris- rate in this high-risk group nation-
years on the job, they exhibit rates of oner needs, increasing violence and ally. Two-thirds of the DOC officers
high blood pressure, obesity, and de- drug use inside the facilities.20 lost to suicide had worked at one of
pression comparable to officers with One response to increasing dis- the state’s two maximum-security
15 years of experience on the job.17 order was a move to higher-security facilities or Bridgewater State Hospi-
From an operational perspec- facilities. In 1990, less than 8 percent tal. Together, these institutions rep-
tive, the high level of stress among of DOC prisoners were confined resented over 90 percent of reported
officers is also costly. It leads to low- in maximum-security facilities. By assaults on staff. Through interviews
er job satisfaction, less organization- 2010, the share of prisoners held in with close contacts and reviews of
al commitment, increased absen- these harsh conditions had more personnel files, the researchers found
teeism, higher turnover, and unsafe than doubled to 17 percent or nearly these officers had been subject to ex-
working conditions.18 2,000 prisoners. Research suggests tremely high levels of exposure to
moving prisoners to these highly violence and prisoner suicide while
restrictive environments increases working within these facilities.24
B. The Lingering Impact of problematic behavior.21 To maintain Continued use of maximum-se-
Tough on Crime-Era Policies control under these conditions, pris- curity facilities also has troubling
Regardless of whether correctional ons turned to the use of long-term consequences for public safety. The
agencies and their workers endorsed isolation, a practice abandoned in most recent data, for 2019, show
the tough on crime-era shift away the 19th century due to its severe 313 prisoners were released from
from rehabilitative practices and to- consequences on both the physical maximum-security DOC facilities
ward a more punitive environment, and mental health of prisoners.22 directly to the community. Moving
they were forced to go along because Even though the crowding that prisoners from a total-control set-
of the intense crowding that result- led to these total control facilities is ting to independent living is a recipe
ed. Overcrowding was so extreme no longer an issue, Massachusetts for failure. Studies show how these
that judges found the unsafe and continues to operate two maxi- conditions have debilitating effects
unsanitary conditions violated the mum-security facilities. The extreme on independent decision-making
constitutional rights of prisoners in behaviors and sense of hopelessness and social interaction. In numerous
several Massachusetts counties, in- that these facilities breed has an instances, releases from these facili-
cluding Barnstable, Bristol, Middle- extremely detrimental impact on ties have led to violent re-offending
sex, and Worcester. Prisoner rights correctional officers. This is clearly with tragic consequences for inno-
groups were still filing lawsuits well reflected in the US Department of cent members of the public.25
into the 2010s.19 Justice’s recent findings regarding
To address overcrowding, facil- the DOCs lack of attention to pris-C. The Pro-Reform 9
Orientation in the Profession
Studies repeatedly find that correctional
Viewing Justice Reinvestment from a Correctional Officer’s Perspective
The above concerns are in no way
indicative of the field overall. In state officers who approach the job with
and county facilities throughout this human service orientation find the
Massachusetts, correctional officers
currently play an intensive role sup-
work more rewarding and less stressful.
porting rehabilitation. Skilled offi- This translates to less turnover,
cers increase the psychiatric stability
which largely explains why research
of prisoners, appropriately tailoring
their responses to prisoner behav- consistently shows officers with more
ior. Working with clinicians, who years of experience have a stronger
have only brief contact with pris-
oners, officers support treatment
orientation toward rehabilitation.
teams by determining what works
and encouraging prisoners to com-
ply with treatment protocols. Many conclusion is backed by one study in law and regulation and frequent
facilities train correctional officers that looked explicitly at how officers court intervention increasing the
to recognize criminal thinking and respond to innovation and found populations and prescriptively set-
help correct thought distortions. Of- that those working in institutions ting terms for serving these pris-
ficers also aid in the transition to the that are actively working to improve oners. The post-tough on crime era
community by serving as liaisons to their performance report higher is an opportunity to establish new
partner organizations working be- levels of job satisfaction. However, precedents and elevate the profes-
hind the walls.26 research also suggests this support sionalism of the field’s knowledge-
Studies repeatedly find that cor- is likely contingent on engaging offi- able frontline workers.
rectional officers who approach the cers in the change process.28
job with this human service orienta- In most workplaces, job stress
tion find the work more rewarding and satisfaction are tied to a collabo-
and less stressful. This translates to rative environment and the ability of
less turnover, which largely explains employees to influence change. This
why research consistently shows of- is especially true in correctional set-
ficers with more years of experience tings, where new policies and prac-
have a stronger orientation toward tices have serious implications for
rehabilitation. Conversely, in facil- employee safety and well-being. A
ities where organizational culture large body of research shows correc-
does not embrace rehabilitative ap- tional input into decision-making
proaches, officers who believe in lowers job stress and increases job
a strong rehabilitative role exhibit satisfaction and organizational com-
greater stress levels.27 mitment. Officers who believe that
The extensive body of research their agency values and encourages
on the philosophy of officers sug- innovation also report greater job
gests they will embrace reform mod- satisfaction.29
els that create working environments Throughout the tough on crime
that enable them to safely and suc- era, external forces often drove
cessfully support rehabilitation. This working conditions with changesIII. Reinvesting in Corrections 10
The thrust of the justice reinvest- environment based on kindness, provide benefit to cities, towns, hos-
Viewing Justice Reinvestment from a Correctional Officer’s Perspective
ment reform agenda has been driv- compassion, mutual respect, and pitals, police and fire departments,
ing down the correctional pop- trust. Officers working in these units and social service agencies. Many
ulation to free up resources for report significantly lower levels of sheriffs also have substantial correc-
community-based services, particu- stress and higher job satisfaction. tional industries or vocational skills
larly in urban areas with high rates With support from Vera and others, programs. Plymouth and Worcester
of incarceration. While this must several correctional facilities in Mas- offer agricultural opportunities. As
remain a central focus, thinking sachusetts have developed young with animal caretaking, the direct
about how we resource and operate adult units. These pilots can inform sensory contact with plants these
correctional facilities more effective- the development of more transfor- programs provide has been shown
ly in the future merits an equivalent mative efforts to reinvent the culture to produce especially large benefits
amount of attention. The scan below and operation of facilities through- for prisoners suffering from trauma
frames three key considerations as out the state. and depression.32
we contemplate reinvestment in cor- Fundamentally, this change Partnering with the Educational
rections: institutional culture and must involve a move away from a Justice Institute at MIT and Vera in
operations, facility design and main- culture of “us versus them.” For this the Massachusetts Prison Education
tenance, and hiring, training, and to occur, facilities can no longer op- Consortium (MPEC), the DOC,
officer wellness. erate in a manner that forces prison- Probation Department, and Parole
ers to be idle while officers primarily Board has spent several years lay-
perform guard duty. Education and ing the groundwork for a post-sec-
A. Institutional Culture and vocational programming, which re- ondary education continuum for
Operations duce violence within facilities and currently and formerly incarcerat-
Efforts to reduce violence within establish the healthy patterns that ed people. MPEC hopes to provide
correctional facilities are most suc- prisoners must develop to success- more access to college coursework
cessful when the approach is embed- fully return to the community, are during incarceration along with
ded in the culture of the institution the basis for forming such a culture. support to sustain connections in
as opposed to operating as a stand- While these opportunities re- the community so students can
alone program.30 The Vera Institute main limited, Massachusetts has un- complete a post-secondary degree.
of Justice’s Reimagining Prison Ini- derappreciated strengths that should Congress’ recent reversal of the 1994
tiative has examined opportunities be recognized and built upon. For crime bill’s ban on eligibility for fed-
to create healthier environments instance, the DOC partners with eral Pell grants puts the state in a
through visits to European facilities, NEADS, a nonprofit that trains ser- significantly better position to pro-
which were not set back several de- vice dogs, to operate animal-training vide these learning opportunities at
cades by the misguided policies bur- programs in several facilities. Care- greater scale.
dening their US counterparts. Early taking of dogs has been shown to Efforts to improve the culture
efforts to replicate what they found increase self-esteem and self-worth, and operation of facilities have fo-
overseas have centered around spe- leading to fewer problems in the fa- cused largely on conditions of pris-
cialized units for young adults. cility and lower recidivism upon re- oners. However, it is also important
In these units, officers are en- lease.31 Similarly, the DOC’s correc- to consider operational changes
couraged to develop relationships tional industries program provides that will directly reduce the stress
with both the young adults and their prisoners with opportunities to de- on staff. For instance, agencies can
family members. Together, officers velop meaningful vocational skills, rotate employees to other func-
and prisoners build a therapeutic fabricating a range of products that tions such as electronic monitoringand work release. Studies shows good-time incentives for program an interior wall improves a patient’s 11
increasing job variety significantly participation, this will help reduce recovery from surgery.37 Residents
Viewing Justice Reinvestment from a Correctional Officer’s Perspective
improves job satisfaction and reten- prisoner misconduct. randomly assigned to relatively bar-
tion.33 Declining populations creates A large body of literature draws ren public housing developments
additional opportunity to rotate offi- a direct relationship between other report more aggression and violence
cers into the community to increase aspects of prison design and health among residents than those living in
job variety. In addition to helping and safety. Prison designs have im- developments with trees and grass.38
workers de-stress, establishing posts proved over the years, providing Providing natural views is often chal-
in the community could aid reentry staff with more control over the fa- lenging in a prison setting because
efforts, create more opportunities cility and prisoners with a greater each exterior opening introduces a
for leadership and professional de- degree of privacy and independence. security risk. This can be managed
velopment, and increase visibility These changes have reduced stress creatively in a new design. However,
and appreciation for the positive on prisoners and improved their in existing buildings, simply install-
contribution officers make as public relationships with correctional of- ing murals depicting nature scenes
safety professionals. ficers. However, considerable room can produce a measurable reduction
Correctional facilities are also for improvements remains, espe- in stress among correctional staff.39
developing new models to protect cially as evidence from neuroscience Noise is another major con-
officers from injurious prisoner be- provides a much better understand- cern for both architects designing
havior, particularly female correc- ing of how light, noise, and air qual- prisons and correctional staff man-
tional officers who face an added set ity influence the health of the people aging them. Exposure to annoying
of stressors when working in primar- who live and work in correctional or startling sounds forces alertness,
ily male facilities. One example is the facilities.35 elevating stress. Inability to control
Dignity Assaults Initiative developed Studies suggest access to natu- exposure to noise can also produce
in Michigan. This program increases ral light and a view of the outdoors high levels of stress and contribute
awareness of sexually deviant behav- are particularly important to re- to poor health outcomes.40 With
ior directed at staff and ensures that ducing stress among both prisoners many buildings in poor condition,
correctional officers consistently re- and workers.36 This finding is con- indoor air quality is another major
spond to these serious incidents in sistent with a large body of research concern. Problems with heating,
an appropriate manner.34 in other fields. For instance, having ventilation, and air-conditioning or
a view of the outdoors compared to leaking roofs can create significant
B. Facility Design and
Maintenance
Achieving conditions centered In addition to helping workers de-stress,
around rehabilitation will require establishing posts in the community
considerable attention to facility lay-
outs. Challenges moving prisoners
could aid reentry efforts, create more
to lower-security levels perpetually opportunities for leadership and
hinder efforts to provide appropriate
professional development, and increase
programming and services. Declin-
ing populations present more flexi- visibility and appreciation for the
bility to move prisoners to different positive contribution officers make as
security levels within the campus.
Coupled with correctional reforms
public safety professionals.
strengthening parole and earnedexposure risk to prisoners and cor- in 2019 to examine this challenge dence-based coping strategies. These 12
rectional officers.41 emphasized the need for agencies training efforts are most effective as
Viewing Justice Reinvestment from a Correctional Officer’s Perspective
Research shows that correction- to communicate their commitment part of a broader employee wellness
al staff are particularly attuned to to professionalism, rehabilitation, program that begins at the acade-
how facility design impacts the op- and evidence-based programming my and continues through retire-
eration of the facility. As Massachu- to widen the potential pool of can- ment. These programs destigmatize
setts works to address the long main- didates. The task force also called for occupationally induced stress and
tenance backlog and develops plans improved hiring processes, includ- protect the confidentiality of those
to achieve building efficiencies with ing reducing the time to hire and us- who seek support. They also provide
declining populations, correctional ing evidence-based selection criteria listening and educational sessions
officers can play a very important and screening tools.43 with staffs’ family members to alert
role informing future investments.42 Experts on reinventing correc- them to signs of stress and depres-
There are also increasing opportuni- tions for the post-tough on crime era sion, and direct them on how to get
ties to develop partnerships with the also point to a need to improve train- help. When traumatic incidents do
state’s considerable talent in archi- ing with a focus on instilling a sense occur, a response team debriefs the
tecture and building technology. For of professionalism and ethics. To pro- employees involved within 48 hours
decades, the Academy of Architec- vide appropriate training in the most of the event and connects them with
ture for Justice, a subcommittee of effective modes, correctional officers a range of voluntary and confiden-
the American Institute of Architects, should have a major role identifying tial supports.
has worked with correctional staff training needs and best practices and UMass-Lowell’s Center for the
and researchers to plan and design developing and delivering training. Promotion of Health in the New
correctional campuses that improve Systematizing these processes helps England Workplace (CPH-NEW) is
well-being. With growing public at- ensure that the institutional culture a national leader, collaborating with
tention to criminal justice reform, supports labor-management collabo- correctional officers throughout the
leaders in design industries are in- ration and continuous improvement. country to develop employee well-
creasingly interested in engaging on It also serves as a retention tool for ness programs and evaluate their
these issues. a millennial workforce more accus- impact. DOC and county correc-
tomed to greater voice and agency in tional agencies have been stiving to
decision-making.44 develop training and employee as-
C. Hiring, Training, and In addition to a heavy emphasis sistance programs. However, much
Officer Wellness on rehabilitation, training on sup- work remains to standardize best
Corrections work is often more dif- porting individuals suffering from practices and adequately resource
ficult than other public safety pro- trauma and mental illness is critical- these programs across the field.
fessions, and it almost always offers ly important, particularly as steadi-
less compensation and prestige. This ly improving science in these areas
combination makes it very difficult provides correctional officers with
for agencies to attract and retain more effective methods. Correc-
employees. Declining correctional tional institutions must also address
populations have made it possible to cultural competency, particularly as
improve pay, but to capitalize on this correctional officers play a larger role
development agencies must improve in providing counseling support.45
the hiring process. An expert task Above all, training helps officers
force assembled by RAND on behalf manage the considerable psycho-
of the National Institute of Justice logical demands of the job with evi-IV. Moving Forward 13
Together Massachusetts leaders seeking to take
Viewing Justice Reinvestment from a Correctional Officer’s Perspective
Massachusetts leaders seeking to
advantage of declines in incarceration
take advantage of declines in in-
carceration to enhance the perfor- to enhance the performance of the
mance of the state’s criminal justice state’s criminal justice system must
system must focus greater attention
on the role of correctional officers. focus greater attention on the role of
This includes appropriately staffing correctional officers.
facilities to meet the needs of correc-
tional facilities tasked with achieving
substantial reductions in recidivism,
maintaining a healthy and highly Develop post rotations in the are dated and relate to operation-
qualified professional workforce, community. Research shows al practices during the tough on
and aligning capital investment in that programs delivered in the crime era. There is good reason to
facilities with the operational needs community have the greatest abil- believe that as the field asks offi-
of agencies in the future. As present- ity to reduce recidivism.46 In ad- cers to perform higher-level hu-
ed below, Massachusetts can take a dition to providing opportunities man service functions in addition
range of steps to advance this im- for officers to destress, establish- to providing security, the returns
portant work: ing posts in the community will from post-secondary education
help correctional agencies build will increase.
Utilize the NIC process to bridges and continuity between
develop minimum staffing programs and across systems.
In addition to increasing pay
levels for all facilities. Ade- Efforts to build post assignments for officers with college degrees,
quate staffing is central to both that support community-based agencies should also increase tu-
achieving reform and preventing diversion and reentry efforts ition reimbursements. Correc-
staff burnout. Through the state’s could prove particularly timely tional officers currently receive
correctional expenditure com- if they lend support to organiza- the same limited tuition discount
mission, correctional agencies tions funded through the state’s at public colleges as other state
will be implementing a protocol new justice reinvestment grant. employees. Increasing this benefit
developed by the National Insti- would help attract a professional
tute of Corrections (NIC) to ana- Increase educational incen- workforce. It would also ensure
lyze facilities to determine how to tives and benefits. Correction- that officers have the same access
efficiently staff them in a manner al contracts currently offer very to a free college education as pris-
that ensures safety and enables little additional pay for officers oners in their custody, increasing
appropriate levels of program- with two- or four-year college support for college in prison pro-
ming. Once established, correc- degrees. While this is consistent grams. As these programs grow,
tional budgets must ensure that with the existing body of research, agencies could ask the providers
facilities are able to meet these which does not find a strong re- to offer opportunities for officers
minimum ratios without the use lationship between officer per- to complete courses at their facili-
of forced overtime. formance and post-secondary ties as well.
training, most of these studies Develop clear budgets for Update the corrections mas- Survey correctional officers to 14
training and employee well- ter plan with heavy involve- understand changing needs
Viewing Justice Reinvestment from a Correctional Officer’s Perspective
ness programs. Just as reform- ment of officers. The state’s and perceptions in the field.
ers have long sought to ensure master plan for correctional fa- In education, statewide teacher
that prisoners in facilities across cilities is more than a decade old, surveys have provided critical in-
the state have more even access and it was built on operational formation about whether positive
to high-quality evidence-based practices and assumptions for teaching and learning conditions
programs, it is important to en- growth that no longer hold. The are present in schools across the
sure that correctional officers re- recent DCAM facility conditions Commonwealth. These also give
ceive high-quality training and report uncovers an urgent need to policymakers a firm sense of what
employee support in all agencies. revisit space requirements before teachers view as most necessary
While it is not directly in the cor- the state makes significant invest- to improve the performance of
rectional expenditure commis- ments in the upkeep of facilities. their students and organizations.
sion’s charge, it is well within the This type of information would be
body’s preview to examine these Correctional officers can provide especially helpful as policymakers
needs and provide recommenda- a valuable contribution to this seek to learn more about what is
tions to help ensure that budget process, helping planners envi- occurring behind the walls and
makers fully account for the costs sion the most efficient ways to im- how the field is responding to
associated with meeting them. prove upon the current building change.47
stock and meet operational needs,
consistent with a focus on health,
rehabilitation, and maintaining
ties to family and community.Endnotes 15
Viewing Justice Reinvestment from a Correctional Officer’s Perspective
1
Ben Forman is the Research Director at MassINC. Anusha Rah- 10
Sandra Bucerius and Kevin Haggerty. “Fentanyl Behind Bars: The
man is a Senior at Tulane University double majoring in neurosci- Implications of Synthetic Opiates for Prisoners and Correctional
ence and psychology. She contributed to this research project as a Officers.” International Journal of Drug Policy 71 (2019).
MassINC Summer Intern. 11
Eric Lambert and others. “The Effects of Perceptions of Staff-In-
2
Richard Tewksbury and Elizabeth Ehrhardt Mustaine. “Correc- mate Boundary Violations and Willingness to Follow Rules Upon
tional Orientations of Prison Staff.” The Prison Journal 88.2 (2008). Work Stress.” Security Journal 31.2 (2018).
3
Mike Vuolo and Candace Kruttschnitt. “Prisoners’ Adjustment, 12
Chiwekwu Obidoa and others. “Depression and Work-Family
Correctional Officers, and Context: The Foreground and Back- Conflict among Corrections Officers.” Journal of Occupational and
ground of Punishment in Late Modernity.” Law & Society Re- Environmental Medicine 53.11 (2011); Marie Griffin. “Gender and
view 42.2 (2008). stress: A Comparative Assessment of Sources of Stress among Cor-
rectional Officers.” Journal of Contemporary Criminal Justice 22.1
4
Craig Haney. “Prison Effects in the Era of Mass Incarceration.” The
(2006); Eric Lambert and others. “The Impact of Work-Family
Prison Journal (2012).
Conflict on Correctional Staff: A Preliminary Study.” Criminology
5
“The Accreditation Con: A Broken Prison and Detention Facility & Criminal Justice 6.4 (2006).
Accreditation System That Puts Profits Over People.” (Washington, 13
Jamie Bennett. “The Good, the Bad and the Ugly: The Media in
DC: The Office of Senator Elizabeth Warren, December 2020).
Prison Films.” The Howard Journal of Criminal Justice 45.2 (2006);
6
Todd Clear and others. “Predicting Crime through Incarcera- Samuel Vickovic and others. “Depictions of Correctional Officers
tion: The Impact of Rates of Prison Cycling on Rates of Crime in in Newspaper Media: An Ethnographic Content Analysis.” Crimi-
Communities.” Final Report to the National Institute of Justice. nal Justice Studies 26.4 (2013).
(Washington, DC: U.S. Department of Justice, 2014); Steven Levitt, 14
Jaime Brower. “Correctional Officer Wellness and Safety Literature
“Understanding Why Crime Fell in the 1990s: Four Factors That
Review.” (Washington, DC: US Department of Justice, 2013)
Explain the Decline and Six That Do Not,” The Journal of Economic
Perspectives, 18(1) (2004); Franklin E. Zimring, The Great Ameri- 15
Lisa Jaegers and others. “Post-Traumatic Stress Disorder and Job
can Crime Decline (New York, NY: Oxford University Press, 2007); Burnout among Jail Officers.” Journal of Occupational and Envi-
Steven Meesner and others, “Cross National Homicide Trends in ronmental Medicine 61.6 (2019); Lois James and Natalie Todak.
the Latter Decades of the Twentieth Century: Losses and Gains “Prison Employment and Post‐Traumatic Stress Disorder: Risk and
in Institutional Control?” in Control of Violence: Historical and Protective Factors.” American Journal of Industrial Medicine 61.9
International Perspectives on Violence in Modern Societies, edited (2018).
by Wilhelm Heitmeyer and others, (New York, NY: Springer Sci- 16
Steven Stack and Olga Tsoudis. “Suicide Risk among Correctional
ence+Business Media, 2011); Manuel Eisner. “Modernity Strikes
Officers: A Logistic Regression Analysis.” Archives of Suicide Re-
Back? A Historical Perspective on the Latest Increase in Interper-
search 3.3 (1997).
sonal Violence (1960–1990).” Journal of Conflict and Violence 2
(2008); Christopher Hartney. “US Rates of Incarceration: A Global
17
Mazen El Ghaziri. “Correctional Workforce Health and Wellness.”
Perspective.” (Oakland, CA: National Council on Crime and Delin- CPH News and Views, Issue 40. (Lowell, MA: University of Massa-
quency, 2006); Eric Baumer and Kevin Wolff. “Evaluating Contem- chusetts Lowell, 2014).
porary Crime Drop(s) in America, New York City, and Many Other 18
Caitlin Finney and others. “Organizational Stressors Associated
Places.” Justice Quarterly (2012). with Job Stress and burnout in correctional officers: a systematic
7
“Facility Condition Assessment of Correctional Facilities.” Presen- review.” BMC Public Health 13.1 (2013).
tation to the Special Commission on Correctional Funding (De- 19
For example, see findings from the US Department of Justice: “In-
cember 4, 2020). vestigation of the Worcester County Jail and House of Correction,
8
Caterina Spinaris and others. “Post-Traumatic Stress Disorder in West Boylston, Massachusetts.” Letter to Governor Deval Patrick
United States Corrections Professionals: Prevalence and Impact from Grace Chung Becker, Acting Assistant Attorney General, dat-
on Health and Functioning.” Desert Waters Correctional Out- ed April 29, 2008.
reach (2012). 20
Christine Tartaro and Marissa Levy. “Density, Inmate Assaults,
9
Deborah Hartley and others. “Fear is a Disease: The Impact of and Direct Supervision Jails.” Criminal Justice Policy Review 18.4
Fear and Exposure to Infectious Disease on Correctional Officer (2007); Wayne Gillespie. “A Multilevel Model of Drug Abuse Inside
Job Stress and Satisfaction.” American Journal of Criminal Jus- Prison.” The Prison Journal 85.2 (2005).
tice 38.2 (2013); Theodore Hammett. “HIV/AIDS and Other In- 21
Marie Griffin and John Hepburn. “Inmate Misconduct and the
fectious Diseases among Correctional Inmates: Transmission, Institutional Capacity for Control.” Criminal Justice and Behav-
Burden, and an Appropriate Response.” American Journal of Public ior 40.3 (2013); Kate King and others. “Violence in the Supermax:
Health 96.6 (2006); Eric Lambert and others. “Workplace Demands A Self-Fulfilling Prophecy.” The Prison Journal 88.1 (2008).
and Resources as Antecedents of Jail Officer Perceived Danger at
Work.” Journal of Crime and Justice 41.1 (2018).22
Peter Smith. “The Effects of Solitary Confinement on Prison In- 33
Connie Clem and others. “Recruitment, Hiring, and Retention: 16
mates: A Brief History and Review of the Literature.” Crime and Current Practices in US Jails.” (Washington, DC: National Institute
Justice 34.1 (2006). of Corrections, 2000); Eric Lambert. “The Impact of Job Charac-
Viewing Justice Reinvestment from a Correctional Officer’s Perspective
teristics on Correctional Staff Members.” The Prison Journal 84.2
23
“Investigation of the Massachusetts Department of Correction.”
(2004).
United States Attorney’s Office, District of Massachusetts (Novem-
ber 17, 2020). 34
Katy Cathcart and Jones Susan. “The Dignity Assaults Initiative
Implementation within the Michigan Corrections Organization:
24
Natasha Frost and Carlos Monteiro. “The Interaction of Personal
Staff Acceptance and Application of a Contemporary Policy Ap-
and Occupational Factors in the Suicide Deaths of Correction Offi-
proach.” Corrections (2019).
cers.” Justice Quarterly 37.7 (2020).
35
Karen Morin. “The Late‐Modern American Jail: Epistemologies
25
Shelley Johnson Listwan. “The Pains of Imprisonment Revisited:
of Space and Violence.” The Geographical Journal 182.1 (2016);
The Impact of Strain on Inmate Recidivism.” Justice Quarterly 30.1
Robert Morris and John Worrall. “Prison Architecture and Inmate
(2013).
Misconduct: A Multilevel Assessment.” Crime & Delinquency 60.7
26
For example, see: Kenneth Appelbaum and others. “The Role of (2014); David Bierie. “Is Tougher Better? The Impact of Physical
Correctional Officers in Multidisciplinary Mental Health Care in Prison Conditions on Inmate Violence.” International Journal of
Prisons.” Psychiatric Services 52.10 (2001); Paul Gendreau and oth- Offender Therapy and Comparative Criminology 56.3 (2012); Kar-
ers. “The Theory of Effective Correctional Intervention: Empirical in Beijersbergen and others. “A Social Building? Prison Architec-
Status and Future Directions.” Taking Stock: The Status of Crimi- ture and Staff–Prisoner Relationships.” Crime & Delinquency 62.7
nological Theory 15 (2006); and Joseph Galanek. “Correctional Of- (2016).
ficers and the Incarcerated Mentally Ill: Responses to Psychiatric 36
Dominique Moran. “Back to Nature? Attention Restoration Theory
Illness in Prison.” Medical Anthropology Quarterly 29.1 (2015).
and the Restorative Effects of Nature Contact in Prison.” Health &
27
Dominic Kelly. “Punish or Reform? Predicting Prison Staff Puni- Place 57 (2019).
tiveness.” The Howard Journal of Criminal Justice 53.1 (2014); Craig 37
Roger Ulrich and others. “A Review of the Research Literature on
Dowden and Claude Tellier. “Predicting Work-Related Stress in
Evidence-Based Healthcare Design.” HERD: Health Environments
Correctional Officers: A Meta-Analysis.” Journal of Criminal Jus-
Research & Design Journal 1.3 (2008).
tice 32.1 (2004).
38
Frances Kuo and William Sullivan. “Aggression and Violence in the
28
Eric Lambert and Nancy Hogan. “Wanting Change: The Relation-
Inner City: Effects of Environment via Mental Fatigue.” Environ-
ship of Perceptions of Organizational Innovation with Correctional
ment and Behavior 33.4 (2001).
Staff Job Stress, Job Satisfaction, and Organizational Commitment.”
Criminal Justice Policy Review 21.2 (2010); Eric Lambert and Eu- 39
J. Farbstein and others. “Effects of a Simulated Nature View on
gene Paoline. “The Influence of Individual, Job, and Organizational Cognitive and Psycho-Physiological Responses of Correctional Of-
Characteristics on Correctional Staff Job Stress, Job Satisfaction, ficers in a Jail Intake Area.” Washington, DC: National Institute of
and Organizational Commitment.” Criminal Justice Review 33.4 Corrections (2009).
(2008). 40
Tom Rice. “Sounds Inside: Prison, Prisoners and Acoustical Agen-
29
See literature review in Lambert and Hogan (2010). cy.” Sound Studies 2.1 (2016); Tjeerd Andringa and others. “How
Pleasant Sounds Promote and Annoying Sounds Impede Health:
30
Katherine Auty and others. “Psychoeducational Programs for Re-
A Cognitive Approach.” International Journal of Environmental Re-
ducing Prison Violence: A Systematic Review.” Aggression and Vio-
search and Public Health 10.4 (2013).
lent Behavior 33 (2017).
41
Wilson Guo and others. “A Systematic Coping Review of Envi-
31
Molly Allison and Megha Ramaswamy. “Adapting Animal‐Assisted
ronmental Health Conditions in Penal Institutions.” International
Therapy Trials to Prison‐Based Animal Programs.” Public Health
Journal of Hygiene and Environmental Health 222.5 (2019); Joseph
Nursing 33.5 (2016); Gennifer Furst. “Prison-Based Animal Pro-
Ofungwu. “Indoor Air Quality Investigation and Health Risk As-
grams: A National Survey.” The Prison Journal 86.4 (2006); Angela
sessment at Correctional Institutions.” Integrated Environmental
Fournier and others. “Human-Animal Interaction in a Prison Set-
Assessment and Management: An International Journal 1.2 (2005).
ting: Impact on Criminal Behavior, Treatment Progress, and Social
Skills.” Behavior and Social Issues 16.1 (2007); Dana Britton and 42
Victor St. John and others. “Architecture and Correctional Ser-
Andrea Button. “Prison Pups: Assessing the Effects of Dog Train- vices: A Facilities Approach to Treatment.” The Prison Journal 99.6
ing Programs in Correctional Facilities.” Journal of Family Social (2019).
Work 9.4 (2006). Jenifer Drew and others. “The Power of Prison 43
Joe Russo and others. “Building a High-Quality Correctional
Pups: The Impact of the NEADS Program on Inmate Dog Train-
Workforce: Identifying Challenges and Needs.” (Santa Monica, CA:
ers, MCI/Framingham, and the Community.” (Newton, MA: Lasell
Rand, 2018).
College, 2013).
44
Alexander Burton and others. “Creating a Model Correctional Of-
32
For example, see: Barb Toews and others. “Impact of a Na-
ficer Training Academy: Implications from a National Survey.” Fed.
ture-Based Intervention on Incarcerated Women.” International
Probation 82 (2018).
Journal of Prisoner Health (2018).You can also read
