Title: Promising Practices and Strategies for Victim Services in Correction Series: Promising Practices Compendium Author: Office for Victims of Crime Published: OVC, July 1999 Subject(s): Corrections, victim services, crime prevention, impact statements, victim protection, victim compensation, victims' rights, and restorative justice 77 pages 150,000 bytes ------------------------------- Figures, charts, forms, and tables are not included in this ASCII plain-text file. To view this document in its entirety, download the Adobe Acrobat graphic file available from this Web site or order a print copy from Office for Victims of Crime Resource Center at 800-627-6872 (301-947-8374 for TTY users). ------------------------------- U.S. Department of Justice Office of Justice Programs Office for Victims of Crime Promising Practices and Strategies for Victim Services in Corrections Office for Victims of Crime The National Center for Victims of Crime July 1999 NCJ 166605 ------------------------------- U.S. Department of Justice Office of Justice Programs 810 Seventh Street NW. Washington, DC 20531 Janet Reno Attorney General Raymond C. Fisher Associate Attorney General Laurie Robinson Assistant Attorney General Noel Brennan Deputy Assistant Attorney General Kathryn M. Turman Acting Director, Office for Victims of Crime Office of Justice Programs World Wide Web Home Page http://www.ojp.usdoj.gov Office for Victims of Crime World Wide Web Home Page http://www.ovc.gov For grant and funding information contact U.S. Department of Justice Response Center 1-800-421-6770 OVC Resource Center 1-800-627-6872 OVC Resource Center Home Page http://www.ncjrs.gov This document was prepared by the National Center for Victims of Crime under grant number 96-VF-GO-K003, awarded by the Office for Victims of Crime, Office of Justice Programs, U.S. Department of Justice. The opinions, findings, and conclusions or recommendations expressed in this document are those of the authors and do not necessarily represent the official position or policies of the U.S. Department of Justice. ------------------------------- The Office for Victims of Crime is a component of the Office of Justice Programs, which also includes the Bureau of Justice Assistance, the Bureau of Justice Statistics, the National Institute of Justice, and the Office of Juvenile Justice and Delinquency Prevention. ------------------------------- Promising Practices and Strategies for Victim Services in Corrections Message from the Director When the Office for Victims of Crime stepped forward in 1990 to take the issues of crime victims into the correctional arena, it did so amid an atmosphere of misunderstanding and suspicion. Sometimes the mere mention of victims to corrections officials and of corrections to victim advocates was enough to provoke an anxious or angry response. Breaking down these barriers would require nothing less than the changing of attitudes and correctional practices across America. In 1987, following the savage murder of Lisa Bianco, committed by her ex-husband upon his release from prison on a work furlough, an American Correctional Association (ACA) task force issued a set of recommendations for responding to victims. The murder had sounded an alarm to corrections officials across the country, proving that the actions of corrections agencies--in this case, failure to notify the victim in spite of the murderer's violent history and continued threats--can be matters of life and death. The ACA Task Force on Victims of Crime represented the first major step taken by the corrections field to address the needs of victims and launched a full-fledged campaign to implement corrections-based victim services. We have been extraordinarily successful. The success has come, however, because correctional practitioners themselves have realized how important and rewarding it is to serve crime victims. They have taken the initiative to make victim services an integral part of their agencies' missions. All the major professional correctional associations now have active victim communities, and serving victims is recognized as a professional role in the corrections field. Promising Practices and Strategies for Victim Services in Corrections, developed by the National Center for Victims of Crime in cooperation with national correctional associations, highlights the efforts of corrections agencies to reach out to crime victims. It provides a comprehensive overview of correctional practices responding to victims and offers a wealth of ideas on establishing and enhancing corrections-based victim services. I hope that those agencies and individuals involved in the postsentencing phases of cases will find this compendium a valuable resource in improving their efforts to aid crime victims. Kathryn M. Turman Acting Director ------------------------------- Acknowledgments This compendium of corrections-based programs and services for victims was developed as part of the Promising Practices and Strategies for Victim Services in Corrections project, sponsored by the National Center for Victims of Crime et al. with support from the Office for Victims of Crime. The project has benefited from the significant contributions of practitioners and researchers in institutional and community corrections and victim services nationwide. This overview compendium of promising practices and strategies was developed by Project Manager Anne Seymour with significant contributions and editing support from the following professionals: Mary Achilles Pennsylvania Board of Probation & Pardon Diane Alexander National Center for Victims of Crime Kay Crockett Missouri Department of Corrections Sharon English California Youth Authority Trudy Gregorie Project Director National Center for Victims of Crime Ellen Halbert Texas Board of Criminal Justice Karin Ho Ohio Department of Rehabilitation and Correction Susan Laurence Project Monitor Office for Victims of Crime U.S. Department of Justice Mark Lazarus Florida Department of Corrections Brett MacGargle South Carolina Department of Juvenile Justice Sandi Menefee California Department of Corrections Cranston Mitchell Missouri Board of Probation & Parole Bill Stutz Washington State Department of Corrections In addition, OVC is grateful to the National Center for Victims of Crime and to the many correctional agencies who provided summaries and samples of their promising practices and strategies for victim services in corrections that are incorporated throughout this text. ------------------------------- Table of Contents Foreword Executive Summary Introduction Agency Mission Statements Program Planning Developing Policies and Procedures Establishing a Victim Services Advisory Committee Program Staffing Public Awareness Networking Victim Notification Victim Impact Statements The Importance of Restitution Restitution Procedures Helping Victims Document Their Losses Assessing the Offender's Ability to Pay Alternative Methods of Restitution Collection Victim Protection Handling Complaints from Victims and Witnesses Parole Processes Staff-Related Issues Responding to Workplace Violence in Correctional Settings Monitoring Legislation Program Evaluation Client Needs Assessment Technology to Enhance Corrections-Based Victim Services Fundraising for Victim Services Restorative Justice Victim/Offender Programs Conclusion Appendixes Appendix A. Position Statement on Crime Victims' Issues (Texas Corrections Association) Appendix B. Strategic Planning Form (U.S. Bureau of Prisons) Appendix C. Victim Services Program Policies and Procedures (California Department of Corrections) Appendix D. Victim Services Advisory Committee Policy Statement (Pennsylvania Department of Corrections) Executive Order for Council on Victims Justice (Ohio Department of Rehabilitation and Correction) Appendix E. State Director's Announcement of New VOCA-Funded Victim Services Unit (Illinois Department of Corrections) Appendix F. Duty Statement for Victim Services Representatives (California Department of Corrections) Job Description for Supervision Clerk (Courts), Community Supervision and Corrections Department (Tarrant County, Texas) Appendix G. Telephone Rolodex Card (Ohio Department of Rehabilitation and Correction) Appendix H. National Toll-Free Information and Referral Telephone Numbers on Victims' Rights, Services, and Criminal Justice Resources (Victims' Assistance Legal Organization) Appendix I. Sample Victim Impact Statements (National Center for Victims of Crime) Appendix J. Sample Financial Worksheet for Victims' Losses (National Center for Victims of Crime) Appendix K. Proposed Federal Constitutional Amendment for Victims' Rights (Senate Joint Resolution 6) Appendix L. Two Examples of Victim Assessment Surveys (Delaware County Juvenile Court Victim Services Unit, Pennsylvania) (Marion County District Attorney's Victim Assistance Program, Oregon) Appendix M. Compendium of Helpful Online Services Appendix N. Policy on Charitable Fundraising Campaigns (California Department of Corrections) Appendix O. Calendar of Victim-Related Annual Commemorations (National Center for Victims of Crime) ------------------------------- Forward The Promising Practices and Strategies for Victim Services in Corrections project, sponsored by the National Center for Victims of Crime et al., with support from the U.S. Department of Justice, Office for Victims of Crime, contains three texts that are designed to help adult and juvenile correctional agencies develop and enhance services for victims of crime: o "Victim Services in Corrections." o "Responding to Workplace Violence and Staff Victimization." o The "Victim Impact Classes/Panels for Offenders" program curriculum for teachers and offenders/students. Within each of these curricula are extensive strategies for program planning and development, victim and public outreach, education and awareness, and information related to the creation of policies, procedures, and protocols that provide the foundation for corrections-based victim services. In addition, numerous programs are highlighted as models worthy to consider for replication in local, State, and Federal jurisdictions. This compendium is designed to provide the reader with a high level overview of the most essential components of corrections-based victim services. It is important to note that every topic highlighted in this compendium is expanded upon in the three curricula noted above. It is the hope of the Promising Practices and Strategies for Victim Services in Corrections project team to offer innovative ideas and practical applications to agencies and professionals who seek to initiate or improve corrections-based victim services. This compendium provides a foundation that, when combined with the full project curricula, can help improve the treatment of crime victims in the postsentencing phases of their cases and encourage interagency collaboration to improve victims' rights and services. Executive Summary When convicted offenders are sentenced to a term of imprisonment, the State Department of Corrections or Federal Bureau of Prisons assumes responsibility for their supervision. The State Depart-ment of Corrections (or Federal Bureau of Prisons) houses offenders for their period of incarceration; implements and monitors work; makes educational and treatment activities available to inmates; and coordinates any release into the community with paroling authorities. Historically, the majority of adult and juvenile corrections agencies' primary goals were to strive to do the following: o Preserve "public safety." o Reduce the risk of repeat criminal behavior through incarceration and community supervision. o Effect offender behavioral change. Gradually, the criminal justice system has become more aware of the need to integrate victim services as part of its responsibilities. Not only should corrections protect the public safety and welfare but also provide assistance to victims which includes the following goals: o Being an advocate for the victim. o Providing direct services to victims (i.e., restitution collection, victim/ offender meetings, victim notification of offender parole hearing, etc.). o Protecting victims from intimidation or harassment by offenders. o Training staff regarding sensitivity to victims' issues. o Holding the offender accountable for his/her behavior. o Educating offenders about the impact of crime on victims (California Youth Authority, Office of Prevention and Victims Services). In addition to the above mentioned goals, corrections departments are becoming aware of the impact of workplace violence on their employees. Due solely to the nature of correctional populations, the risk of being victimized on-the-job is greater for correctional professionals than for most other jobs. Also, unlike most victims who have the option of completely removing themselves from "the scene of the crime," (i.e., leaving their communities, getting a new job, changing identities, etc.), in corrections, victimized staff are, in many cases, expected to "return to the scene of the crime"--often very soon after the incident occurs. The stress that develops from the job and from victimization frequently is magnified when correctional agencies fail to adopt strong policies and procedures that promote worker safety and victim assistance when an employee is victimized on- or off-the-job. Thus, the criminal justice system, including corrections, has come to recognize the need to be more responsive to victims' needs, including those within the correctional setting. The Promising Practices and Strategies for Victim Services in Corrections project contains three texts that are designed to help adult and juvenile correctional agencies develop and enhance services for victims of crime: o "Victim Services in Corrections." o "Responding to Workplace Violence and Staff Victimization." o The "Victim Impact Classes/Panels for Offenders" program curriculum for teachers and offenders/students. Within each of these curricula are extensive strategies for program planning and development, victim and public outreach, education and awareness, and information related to the creation of policies, procedures, and protocols that provide the foundation for corrections-based victim services. In addition, numerous programs are highlighted as models worthy to consider for replication in local, State, and Federal jurisdictions. The purpose of this project is to offer innovative ideas and practical applications to agencies and professionals who seek to initiate or improve corrections-based victim services. This compendium provides a foundation that, when combined with the full project curricula, can help improve the treatment of crime victims in the postsentencing phases of their cases, encourage interagency collaboration to improve victims' rights and services, and develop policies that respond more fully to workplace violence in the correctional setting. This compendium of corrections-based programs and services for victims was developed as part of the Promising Practices and Strategies for Victim Services in Corrections project, sponsored by the National Center for Victims of Crime with support from the Office for Victims of Crime. The project has benefitted from the significant contributions of practitioners and researchers in institutional and community corrections and victim services nationwide. Introduction The discipline of corrections-based victim services is a relatively new phenomenon in the United States. Historically, crime victims and their allies focused on the "front end" of the criminal justice system: law enforcement, prosecution, the judiciary, and courts. It wasn't until the late 1980's that the postsentencing phases of victims' cases were addressed in a systematic manner. Professionals and volunteers in the corrections community, with support from national victim advocates, provided the leadership to initiate and enhance victim services in adult and juvenile institutional corrections and parole. A number of landmark activities comprises the rich history of corrections-based victim services: o 1986: The American Correctional Association (ACA) published a broad policy statement that said victims should be treated with dignity and respect by correctional agencies and should be notified of the status of their offenders. o 1987: The ACA appointed a Victims Task Force that developed 15 recommendations relevant to implementing corrections-based victim services. o 1989: The Director of the Office for Victims of Crime (OVC) within the U.S. Department of Justice testified before the ACA Task Force and announced support for a national Crime Victims and Corrections training and technical assistance project. o 1990: The first national conference to address corrections-based victim services, sponsored by OVC and a project team spearheaded by the National Center for Victims of Crime, was held in Sacramento, California with 150 participants from 40 States. o 1991: A national survey of adult and juvenile correctional agencies and paroling authorities identified the scope of corrections-based victim services. o 1991: The American Probation and Parole Association (APPA) and Association of Paroling Authorities International (APAI) established Victim Issues Committees. o 1991-1994: Eight States and the military received intensive training on corrections-based victim services with technical assistance for program implementation provided to an additional 15 States. o 1995: The ACA Victim Committee issued the landmark Report and Recommendations on Victims of Juvenile Offenders. o 1995: The Promising Practices and Strategies for Victim Services in Corrections project was sponsored by OVC and expanded to include victim services in jails. o 1996: A national survey of jails provided data on the scope of jail-based victim services. o 1996: The National Survey of Adult and Juvenile Correctional Agencies and Paroling Authorities, originally conducted in 1990, was updated and offered data on trends in the implementation of corrections-based victim services over a 5-year period. o 1996: The Association of State Correctional Administrators (ASCA) established a Victims Committee. o 1996: The ACA established an ad hoc Restorative Justice Committee that included victim advocates and corrections professionals. o 1996: The National Institute of Corrections (NIC) conducted a public hearing with testimony offered by national and State victim advocates relevant to corrections-based victim services. o 1997: OVC sponsored a training-for-trainers project spearheaded by the National Center for Victims of Crime on Responding to Workplace Violence in Correctional Settings. o 1997: The U.S. Department of Justice, Corrections Office, OVC, and NIC as well as ASCA and the Promising Practices project cosponsors produced films that articulate the vision of State corrections directors on the importance of and need for victim services. A number of factors have affected the significant increase in corrections-based victim services, including the following: o Strong leadership from ACA, ASCA, APPA, and APAI, with support from OVC, NIC, the Corrections Office, and the National Center for Victims of Crime, has provided impetus for initiating and improving victim services in corrections. o More correctional agencies today perceive victims as "clients" of their agencies who deserve rights and services (see the Texas Corrections Association Position Statement on Crime Victims' Issues, Appendix A). o Federal and State laws increasingly expand the scope of victims' rights in the postsentencing phases of their cases. o As of November 1996, 29 States have adopted constitutional amendments that, in most jurisdictions, mandate victim notification, impact statements, protection, and restitution throughout correctional processes. o The need for increased accountability from juvenile offenders, as well as the juvenile justice system, has expanded victims' rights and services in this arena. o More correctional agencies are incorporating the principles of restorative justice into their missions, policies and programs--values that include crime victims, offenders, and the community. Core Elements in Corrections-Based Victim Services In 1997, the ASCA Victims Committee, with support from the Promising Practices and Strategies project, developed 10 core elements that should form the foundation of a corrections-based victim services program. Guidelines for implementing these core elements are incorporated throughout this handbook. The ASCA Victims Committee 10 core elements recommend that correctional agencies do the following: 1. Incorporate victims' rights and needs into the overall agency mission statement and develop a mission/vision statement specifically for victim services. 2. Designate a full-time staff person to plan and implement a comprehensive victim services program and designate victim service representatives at institutions and regional offices to augment the agency's centralized victim services. 3. Provide core services to victims of crime that include notification of offender status; protection from intimidation, harassment, and harm; victim input into parole proceedings; victim restitution; and information and referral to supportive services in the community. 4. Create a Victim Advisory Council (comprised of victims and practitioners from corrections, victim services, and allied professions) to guide program implementation. 5. Establish written policies and procedures for victims' rights and services. 6. Develop a public information plan and outreach program that describes the services and assistance provided to victims by the agency, including an informational brochure and training curriculum for victim service and allied justice professionals. 7. Develop and utilize a training curriculum for orientation and continuing education for all agency staff on victims' rights and needs, agency services and related policies, legisla-tive mandates, and national/State/ community-based services for information and referral. 8. Develop and implement policies, procedures, and protocols on how to respond to incidents when correctional staff are victimized on- or off-the-job. 9. Implement the "Victim Impact Classes/ Panels for Offenders" program to help offenders understand the impact their crimes have on their victims, communities, and families, utilizing the curricula and related resources available from the California Youth Authority. 10. Designate an agency representative to participate in local, State and regional victim services coalitions and serve as the agency's liaison to the victim services community. Agency Mission Statements The majority of adult and juvenile corrections agencies and paroling authorities have mission or philosophy statements that address their overall goals. Yet according to data derived from the 1996 National Victim Services Survey of Adult and Juvenile Corrections and Paroling Authorities (conducted by the National Center for Victims of Crime as part of the Promising Practices and Strategies for Victim Services in Corrections project), only 40 percent of adult corrections, 51 percent of juvenile corrections, and 66 percent of paroling authorities include any reference to crime victims or victim services in these statements. The inclusion of victims' rights and needs is important for three reasons: 1. The overall concept of "public safety," for which corrections agencies strive, will not be a reality unless "victim safety" is considered. 2. The inclusion of victims' rights and needs sends a strong message that victims are considered "clients" of the agency who deserve services and support. 3. A balance in philosophy can be achieved that recognizes correctional agencies can be "victim-centered" while they are "offender-directed." There are two approaches commonly utilized for mission/philosophy statements: Overall Agency Mission Statements Some correctional agencies have broad mission statements that cite victims. The Oregon Board of Parole's mission statement is as follows: The Board's mission is to work in partnership with the Department of Corrections and local supervisory authorities to protect the public and reduce the risk of repeat criminal behavior through incarceration and community supervision decisions based on applicable laws, victims' interests, public safety and recognized principles of offender behavioral change. Following a comprehensive victim services training program on victims' rights and services, the District of Columbia Board of Parole developed a mission statement that addresses victims, offenders, and the community: The mission of the District of Columbia Board of Parole, a quasi-judicial criminal justice agency, is to protect the public safety and welfare, to provide for the rights of victims of crimes of violence, to promote the rehabilitation and community adjustment of offenders, to protect parolees' individual rights, to enhance juvenile justice services, and to promote a safer community for the citizens and visitors in the District of Columbia. The Board accomplishes its mission by determining if and when to grant or revoke parole, establishing the terms and conditions of parole, supervising parolees in the community with a special focus on young adult offenders, and administering the Juvenile Justice and Delinquency Act Program. Other agencies, such as the Maine Department of Corrections, have "guiding principles" that support its broad mission statement. Of Maine's six guiding principles--risk management, risk-focused intervention, prevention, restorative justice, applied research, and quality services--two specifically address victims: o "Prevention is our moral and professional obligation. We will promote, support and facilitate prevention activities by working with families and communities to address these factors which put children at risk, and to protect children from those risks." o "Restorative justice challenges us to design and administer a system that places the needs of the victims and the harm done by the offending behavior at the center of the process by which we sanction and hold the offender accountable." Victim Service Program Mission Statements Written statements that specifically guide the protocols, policies and services of corrections-based victim service programs provide a strong foundation for program development and implementation. For example, the California Youth Authority, Office of Prevention and Victims Services adopted the following mission statement: "The Youth Authority and staff are aware of and sensitive to the plight of victims of crime, and will provide assistance to them by: 1. Being an advocate for the victim, i.e., legislation, representation. 2. Providing direct services to victims, i.e., restitution collection, victim/ offender meetings, notification, etc. 3. Training staff regarding sensitivity to victims' issues. 4. Holding the offender accountable for his/her behavior. 5. Educating offenders about the impact of crime on victims." Similarly, the Pennsylvania Board of Probation and Parole has a mission statement for its Office of the Victim Advocate, which "is dedicated to representing, protecting and advancing the individual and collective rights and interests of crime victims." Victim service program mission statements, as evidenced above, can contain the program's basic philosophy as well as program goals and specific initiatives that are relevant to both victims in terms of rights and services and to offenders in terms of accountability. Program Planning The following text boxes identify the five purposes of program planning and five barriers to effective planning. ------------------------------- Five Barriers to Effective Program Planning: 1. The agency's general climate. 2. Insufficient information. 3. Lack of time. 4. External forces. 5. Inadequate funding. ------------------------------- Five Purposes of Program Planning: 1. Identify target population(s) and problem(s). 2. Specify nature of program services. 3. Describe program goals and objectives. 4. Define action steps to achieve goals. 5. Give a step-by-step "blueprint" of service provision. Source: Guide to Enhancing Victim Services Within Probation and Parole published by the American Probation and Parole Association in 1991. ------------------------------- Any agency seeking to initiate or enhance a victim services program must first ask the question: "Who will this program affect?" It is a good idea to establish a planning committee that involves the key stakeholders in the program who fall into two categories: internal and external. Potential internal planning committee members could be as follows: o Representative of the director. o Public information officer. o Therapeutic staff. o Program staff. o Staff training officers. o Line staff. o Institutional superintendents. o Victim service coordinator. Potential external members of the committee could be as follows: o Crime victims. o Victim service providers. o Allied criminal justice officials such as law enforcement, prosecutors, public defenders, courts, and other correctional agencies. o Allied community-based professionals, such as mental health, social services, medical professionals, clergy members, schools, higher education, academia, etc. The planning committee should be manageable in terms of size (10-12 members), and should be diverse by gender, culture, and area of expertise. Planning Committee Responsibilities Depending upon the scope of the victim services program that an agency wants to create, there are eight objectives that are listed below in order of importance to program development: 1. Develop short- (1 year) and long-range (2-5 years) plans for the victim services program (which will incorporate the objectives that follow). 2. Draft policies and procedures. 3. Plan and implement a victim task force. 4. Identify program staff and responsibilities. 5. Develop a plan for public awareness and victim outreach. 6. Develop a plan for networking with allied professionals at the local, State and national levels. 7. Develop a plan and schedule for internal training. 8. Identify benchmarks for program evaluation. Guidelines for fulfilling these and other related objectives that the planning committee may develop are incorporated throughout this handbook. The Planning Process Once the planning committee has been established and planning issues have been identified, the planning process can begin. A facilitated session with committee members can help identify the priority in which planning issues can be addressed. Planning time lines can vary, depending on the agency's overall strategic planning initiatives, as well as any deadlines related to pending issues. Time lines can be as follows: o Short-term (usually 90 days in duration). o Annual (a plan for 1 year). o Long-term (usually 3-5 years, and coinciding with the overall strategic planning initiatives of the agency). Strategic plans should clearly specify a variety of information and resources related to the plan's implementation, including the following: o Overall activity that describes the general scope. o Goal of this activity. o Objectives to be taken to accomplish this goal. o Tasks (numbered in order) to be accomplished in conjunction with each objective. o Staff responsible for implementation of each task (this can include more than one staff, department, or even agency). o Resources needed to accomplish each task. o General budget for each task. o The date each task is due. o Status (that determines progress in completing each goal/objective/task). Strategic planning forms can be automated to include "reminder notices" when deadlines are approaching. A Strategic Planning Form developed for victim service programming implementation for the U.S. Bureau of Prisons, based upon a restorative justice model that delineates categories of inmates, staff, and victims/ community, is included in Appendix B. Developing Policies and Procedures Policies and/or procedures must be written to guide program development and to clearly identify roles and responsibilities for program implementation. Services and issues that require written policies and procedures include the following: o Victim notification. o Victim input at parole hearings. o Victim restitution. o Responsibilities of internal or external program advisory committees. o Responding to incidents of workplace violence in correctional settings. o Victim/offender programs, such as "Impact of Crime on Victims" classes, victim impact panels, mediation, etc. o Protecting victims from intimidation, harassment, and/or harm. o How to handle complaints from victims. o Program principles or values based upon the premises of restorative justice. Written agency policies and procedures for the victim service program should include the following types of information: o Authority (either by legislative mandate, correctional agency policy, or both). o Purpose statement. o Applicability (to victims, offenders, staff, members of the public, or combinations of the preceding). o Definitions (of persons, offices, and programs involved). o Person(s) and/or unit(s) responsible for implementation of policy and/or procedure. o Policy that states goals and objectives. o Procedures that clearly delineate how program objectives will be achieved (i.e., the "who, what, when, where, how and why"). o Funding (if applicable). o Any provisions for suspension of policy or procedures (usually in cases of emergency). Victim service program-related policies should be reviewed and updated (as needed) on an annual basis. Departmental bulletins should be issued that explain new or revised victim-related policies in detail; in addition, victim service program policies and procedures should be incorporated into staff orientation and continuing education training. While program policies should be developed and approved in accordance with established agency procedures, examples of victim service program policies and procedures from the California Department of Corrections are included in Appendix C. Establishing a Victim Services Advisory Committee The importance of creating a program Advisory Committee was stressed by a recently-appointed parole-based victim service coordinator, who said: "If corrections agencies do only one thing in developing their victim service programs, it should be to sponsor a Victim Services Advisory Committee." An Advisory Committee can serve a variety of purposes: o Making recommendations for program development and implementation to the Department. o Contributing to expanded victim outreach efforts. o Coordinating victim services with allied criminal justice, state-level and community-based agencies, and serving as liaisons to these professions. o Enhancing public education about victims' rights and services in corrections. o Developing curricula for inservice training, educational efforts directed toward victim service providers, and cross-training programs with allied justice and victim service professionals. o Proposing and supporting legislation to enhance and enforce victims' rights. Committee members should be appointed by the agency director. The structure of the Advisory Committee should incorporate the following issues: o Committee size (with a maximum identified). o Designated membership slots (i.e., specific justice or victim service agencies/coalitions represented; diversity by culture, gender, and geography; victim representation, etc.). o Committee responsibilities. o Term of office (rotating appoint-ments help maintain continuity in membership). o Responsibilities. o Frequency and location of meetings (i.e., two to four times a year). o Reimbursement (usually for expenses only). A sample policy statement developed by the Pennsylvania Department of Corrections for its Victim Services Advisory Committee is included in Appendix D. In Ohio, the Council on Victims Justice was established by Executive Order, included in Appendix D. Victim advocate Ellen Halbert describes the Texas Department of Criminal Justice Victim Advisory Board as the "springboard for the development of the partnership between crime victims and corrections that we all want to happen. It is rare to see crime victims' groups complain about the agency any more; they are educated and they are listened to." Program Staffing When corrections-based victim service programs were first established in the 1980's, many agencies utilized existing staff to conduct program operations. This approach was usually necessitated by considerable restrictions on agency budget and personnel. However, as the specialized discipline of corrections-based victim services has evolved, most agencies have designated staff with agency line item budgets. When State legislatures pass new laws that mandate important victims' rights and services for which correctional agencies have responsibilities (such as notification, restitution, victim involvement at parole, and victim protection), efforts should be made to secure designated funding for staff positions. Support for such funding should be sought from crime victims, service providers and statewide victim service coalitions--all of whom stand to benefit from the implementation of victim services in corrections. Another possibility for funding corrections-based victim services is the Victims of Crime Act (VOCA) fund, which supports victim compensation and victim services at the Federal level, and in all 50 States and the District of Columbia. VOCA monies are derived from fines and assessments on persons convicted of Federal crimes. Since "victim notification," "case disposition information," and "post-conviction advocacy for victims" are all victim services eligible for VOCA funding, some State VOCA programs fund direct services in adult and juvenile corrections agencies and paroling authorities. The decision to provide VOCA funding for these purposes lies with the VOCA Administrator in each State (a roster of State VOCA Administrators is included in the "Resources" section of the Promising Practices and Strategies for Victim Services in Corrections notebook). Corrections officials interested in pursuing this possibility should contact their State's VOCA Administrator directly. (See Appendix E for the Illinois Department of Corrections Director's announcement article for a VOCA-funded victim services program recently begun within his department.) Victim Services Representatives Currently, most corrections-based victim services programs have one centralized unit with core staff located at the agency's main office. However, more and more agencies are developing an internal network of employees at each work site--either institutions, parole, or probation offices--to provide victims with services, information, and referrals. For example, the Ohio Department of Rehabilitation and Correction has designated a victim services representative at each institution and community corrections division office. A percentage of these employees' time is designated by the site administrator for victim assistance purposes. Group training programs, held once or twice a year or even quarterly, keep victim services representatives up-to-date on policies and procedures (which they can help revise, as needed, based upon their experiences), trends in both victimization and victim services, and victims' most salient needs. The use of victim services representatives serves a number of valuable purposes such as-- o Providing direct assistance to victims at their local work location. o Serving as the site liaison to the central victim services unit. o Participating in local victim service coalitions and commemorative activities. o Providing training about the agency's victim services to local service providers and allied criminal justice professionals. o Organizing victim/offender programs on site. o "Trouble-shooting" to make sure that victims' needs, which are often diverse by their location and access to support and services, are met by the department. A duty statement for the California Depart-ment of Corrections victim services representatives is included in Appendix F, as well as a job description for the Tarrant County (Texas) Community Supervision and Corrections Department position of supervision clerk (courts), who reports to the victim services coordinator. Use of Interns and Volunteers Many agencies have recruited and obtained volunteers and interns to assist with the many tasks associated with victim services. Volunteers and interns, who should represent the cultural diversity of the victims served by the agency, require intensive supervision and on-going training to fulfill their jobs in their respective agencies. However, volunteers and interns can augment professional staff in a variety of capacities: o Sending letters to victims requesting notification. o Processing victim information into the computerized notification database. o Providing information and referrals to victims in person, in writing, or by telephone. o Helping to develop and disseminate information about victim services in corrections to crime victims, service providers, and concerned citizens. o Other duties deemed appropriate by correctional staff. A promising practice initiated in 1997 by the Missouri Department of Corrections involves a partnership with the Missouri Organization for Victim Assistance. A network of volunteer advocates will be established and trained to accompany victims to parole hearings. Many colleges and universities offer paid and nonpaid internship programs in a variety of disciplines for their students, including criminal justice, corrections, social work, sociology and communications. The Chairpersons of these departments should be contacted for information about internship programs, that provide additional staff for the victim services program while, at the same time, offer students a valuable learning experience that will benefit them as they enter the professional job market upon graduation. The AmeriCorp Program, which provides matching funds to public service agencies that hire college students, is another good source of talented staff. Volunteers can be sought for both long-term, institutionalized program efforts, as well as for specific events or activities (such as victim impact panels or commemorations of National Crime Victims' Rights Week in April). The following are potential sources for volunteers: o State victim service coalitions and/or local victim service programs. o United Way Voluntary Action Centers. o County/Community Volunteer Centers. o Retired Senior Volunteer Program (RSVP). Some local newspapers (especially weeklies) also provide free classified advertisements for volunteers. Corrections-based victim service programs should provide volunteers and interns with clear job descriptions that clarify duties, responsibilities, and agency expectations and also meet the needs of the volunteer employee. Volunteer programs must consider and be responsive to liability issues relevant to the use of volunteers and interns, especially when they have access to confidential victim information or have responsibilities that expose them to inmates or offenders under community supervision. Public Awareness One of the key elements of any corrections- based victim services program is its public awareness and victim outreach efforts. There are four good reasons to focus on this area: 1. Unless victims know that rights and services are available to them, they will not seek to access them. 2. Many of the program's efforts require cross-disciplinary efforts with allied justice professionals, as well as state-level and community-based victim and social service programs. 3. The agency's victim services can provide positive influences on public policy makers who make decisions that affect the direction and funding resources available to correctional agencies. 4. Perhaps most importantly, the agency's program offers excellent public relations opportunities that will cast a positive light on correctional efforts, that benefit crime victims and the victim service community, and that promote public safety and offender accountability at the same time. Public awareness, with a focus on victim outreach and education, can be accomplished in the following ways. Direct Victim Outreach In many States, officials in the "front end" of the justice system provide pocket-size cards to victims that enumerate their rights including those in the postsentencing phases of their cases. These cards also include contact information for State and/or local victim services, including toll-free information numbers, and should list the telephone number for the corrections-based victim services program. Some States have passed constitutional amendments that provide victims with rights to be present, heard, and informed throughout the criminal justice system, such as Arizona and Colorado. A multi-copy, color-coded, pressure sensitive form is utilized that allows victims or their lawful representatives to simply check the rights they request or waive. These forms, available for victims of both adult and juvenile offenders, are then provided to the following individuals: o Victim or his/her lawful representative. o Law enforcement agencies. o Custodial agencies. o Prosecutor. o Victim/witness program. o Corrections-based victim services program. o Court/diversion programs. This form provides consistency in both victims' requests for enforcing or waiving their rights, and in the chain-of-accessibility of this vital information across agencies within the criminal or juvenile justice system continuum. A sample of the "victim request for, or waiver of, rights" is included in the "Victim and Community Notification" section of the Promising Practices and Strategies for Victim Services in Corrections notebook. Toll-free Telephone Number For many victims, a long distance telephone call poses a financial burden. As such, many correctional agencies have toll-free telephone numbers, often with automated answering systems available 24 hours-a-day, 7 days-a-week that refer inquiries to the appropriate staff. This type of service is particularly beneficial to victims for whom location or cost might be barriers to accessing rights and services. Brochure Many victims, citizens, and even victim service providers don't fully understand correctional systems--how they work and integrate with other justice agencies, the differences between community and institutional corrections, and the differences between probation and parole. All victim services programs should have a brochure that provides the following information: o Description of the agency. o Victims' rights and services available from the agency, and how they are accessed, e.g., victim notification enrollment requirements, upon request only, by completing certain forms, etc. o How (or if) the agency interacts with allied justice agencies. o The most common questions victims ask about rights and services. o Confidentiality provisions (if applicable). o Contact information (address, telephone number [toll-free, if applicable], fax, e-mail address, and agency Web site address). o Contact information for supporting victim services at the State and community level, e.g., victim compensation, statewide coalitions, etc. o A list of national toll-free information and referral numbers for additional victim assistance. In addition, some States--such as Kansas, Washington, Pennsylvania, and South Carolina--have a brochure panel dedicated to victim notification requests that is detachable and can be mailed to the victim services program for enrollment for this service. Brochures should be developed in conjunction with the agency's communications or public information office and can be designed to have a "family look." Sample brochures are featured in the appendixes of the "Public Awareness and Victim Outreach" section of the Promising Practices and Strategies for Victim Services in Corrections notebook. Telephone Rolodex Card A Rolodex card that includes contact information for the agency's victim services program, including address, telephone number, and e-mail information, is an excellent outreach tool for crime victims, service providers, and allied professionals. An example of the Rolodex card utilized by the Ohio Department of Rehabilitation and Correction is included in Appendix G. Posters A number of agencies, such as the parole boards in the District of Columbia and Georgia, have designed posters that enumerate victims' rights, how victims can access these rights and related services, and who to contact for additional information. Such posters are excellent, cost- effective tools for both victim and public outreach and should be distributed to victim service organizations, allied justice agencies, and sites where important public service information can be posted (such as community bulletin boards, libraries, student centers at universities, etc.). Public Service Announcements Victim services programs can work in conjunction with the agency's audio/visual services to develop 30- and 60-second public service announcements, in both audio and video formats, for statewide distribution to television and radio stations. In Maine, an excellent video public service announcement that describes victims' rights and provides the Department of Corrections' toll-free telephone number for victim assistance was developed as a volunteer project by students from Southern Maine Technical College. The script was prepared by the Department and narrated by Jeff Merrill, Warden of the Maine State Prison. Victim-Directed Publications The Department of Corrections in Oklahoma and Ohio have published excellent compendia of victims' poetry and writings for widespread dissemination. These publications display a true commitment to the agencies' efforts to generate broader understanding of victims' feelings, needs, and personal experiences. Many correctional agencies also publish newsletters that focus specifically on victim-related issues. A sample copy of the Oklahoma Department of Corrections Victim Services Unit's monthly newsletter, Trends for Victims, is included in the "Public Awareness and Victim Outreach" section of the Promising Practices and Strategies for Victim Services in Corrections notebook. Educational Videotape In 1991, the California Department of Corrections Victim Services Program developed an 11-minute videotape entitled "Helping Crime Victims" which describes the agency, provides basic information about what happens to prisoners, and enumerates on available victims' rights and services. Produced through a partnership between the agency's Victim Services Program and Department of Communications, the videotape is an excellent promising practice for replication. All victim service representatives utilize copies of the videotape for presentations to victims, victim service agencies, and public forums. The videotape is also used for in-staff training. Criminal or Juvenile Justice System Videotape In South Carolina, the Victim Assistance Network utilized VOCA funds to produce an outstanding 30-minute film that depicts "a walk through the criminal justice system" for victims of crime. Beginning with law enforcement and culminating with corrections and parole, the speakers on the videotape, who are actual justice and victim service professionals, provide simple, specific information about victims' rights and services at their juncture in the criminal justice system. The continuum of victim services is emphasized as crucial to providing quality, comprehensive victim assistance. Electronic Outreach As corrections "enters the Information Age," many agencies are establishing sites on the World Wide Web that provide public information about their mission, programs, and services. Agency Web sites should include a page designated specifically to victim services, such as that sponsored by the Ohio Department of Rehabilitation and Correction (www.drc.ohio.gov). In addition, Web sites can offer electronic linkages to other Web sites dedicated to victim assistance issues such as that sponsored by the National Center for Victims of Crime (www.nvc.org). Another innovative application of Web sites hails from the Illinois Department of Corrections. Crime victims who have specific identifying information for their incarcerated offenders can access information about that offender's status and location through the Department's Web site. National Crime Victims' Rights Week Since 1981, victims, advocates, and justice professionals have sponsored public awareness activities nationwide to commemorate National Crime Victims' Rights Week (NCVRW), which is held during April each year. In many States, correctional agencies sponsor or cosponsor special events and activities: o Inmate and staff fundraisers in California that raise hundreds of thousands of dollars for victim services programs. o Training conferences in many States that focus on victims' needs, rights, and services throughout the justice system, including community and institutional corrections. o Distribution of brochures, public service posters and buttons about victims' rights and services. For example, in Ohio an inmate designed the artwork for the 1997 NCVRW button with the State slogan "Tying the Knot With Victim Services." This tradition continues from year to year as inmates design button artwork hoping their design is chosen to represent NCVRW. o In 1996, the California Youth Authority published a "newspaper" dedicated to victims' issues and concerns, which was distributed statewide and even at national victim service and correctional conferences. o A tree-planting sponsored by the Missouri Department of Corrections in 1997 at 38 district offices and 19 prisons, with the ultimate goal being the creation of "peace parks." Trees were donated by the State Conservation Department, and the event was planned in collaboration with local victim service providers in each community. o Ceremonies that honor the memories of crime victims such as those sponsored over many years in Texas and California. A National Crime Victims' Rights Week Resource Guide sponsored by the U.S. Department of Justice, Office for Victims of Crime, which is available free to correctional agencies from the OVC Resource Center by calling 800-627-6872, contains a variety of public education and victim outreach resources in camera-ready format for simple replication and distribution. Organizational members of the National Center for Victims of Crime receive an annual National Crime Victims' Rights Week Strategies for Action Kit, which includes suggestions and guidelines for public awareness activities and special events along with a series of public service posters to promote victims' rights during National Crime Victims' Rights Week and throughout the year. Many States have planning committees to coordinate National Crime Victims' Rights Week activities that would welcome involvement and input from correctional agencies. Networking In the 1990s, the victim services discipline has focused many of its efforts on creating comprehensive, multidisciplinary approaches to victims' rights and related programs. This focus seeks a seamless web of communications among all entities that have responsibilities for the enforcement of victims' rights and the provision of victim services, and attempts to ensure that victims don't "fall through the cracks" of a system that should be designed to protect them. Corrections-based victim services are an integral component of these important networking efforts. There are several useful "tools of the trade" to enhance multidisciplinary networking efforts, including the following: Information and Referral With over 9,000 victim service organizations nationwide, there are endless sources of valuable information and victim support available of which corrections-based victim service programs must be aware. Each program should be capable of making referrals to the following: o Local, State, and national victim services programs and services, including victim compensation. o All local and State criminal justice agencies. o The national toll-free information and referral telephone numbers that specifically provide assistance and support to victims of crime and criminal justice resources (see Appendix H). o The U.S. Department of Justice-sponsored resource centers that are accessible by telephone, in writing, or by electronic mail such as the Office for Victims of Crime Resource Center and the National Criminal Justice Reference Service. o The numerous Web sites and victim chat rooms/discussion forums available on the Internet that provide information and peer support for victims. (A roster of victim-related Web sites is included in the "Resources" section of the Promising Practices and Strategies for Victim Services in Corrections notebook.) o Local, State, and national training opportunities in which victims who contact corrections agencies might be interested in attending. o State and local programs that seek victims as volunteers. Cross-Training Each corrections-based victim services program should develop training modules to inform and educate allied professionals, including victim service providers, about its programs and services. The same types of information can be condensed or expanded to fit training time requirements; 30-minute, 60-minute and 120-minute modules are most appropriate. The use of audio/visual materials, including brochures, fact sheets, videotapes, and overhead transparencies, enhance the quality of presentations. Similarly, correctional agencies should seek opportunities to train their employees about victims' rights and services in their State available from both system- and community-based agencies. Segments can focus on the following topics: o Victims' rights and agency responsibilities within law enforcement, courts, and other correctional agencies. o Victims' rights and services that require a continuum of cross-agency collaboration, such as restitution monitoring and ensuring that victim notification requests made to the prosecutor are forwarded to the correctional agency and/or paroling authority. o Victims' needs, rights, and services relevant to specific victims, including victims of property crime, child abuse, sexual assault, family violence, elder abuse, drunk driving, juvenile offenders, and survivors of homicide. Guest speakers from allied agencies should be invited to present these topics at orientation and continuing education classes. Their curricula and related resources can be incorporated into standardized staff training manuals. Interagency Agreements Often, victims' rights and services are not properly implemented because different agencies believe another entity has responsibility for their delivery. The best way to overcome this obstacle, which often re-victimizes victims who need and expect their rights to be enforced and services to be provided, is to develop interagency agreements that detail the following issues: o Authority of specific rights and services, i.e., by law, agency policy, etc. o Who is responsible for implementation, i.e., individual(s) and/or agencies. o Time frame for implementation. o The chronological order of implementation. o Any rights or remedies a victim has when his/her rights are not enforced, or mandated services are not provided. Interagency agreements fill gaps in service delivery, and provide a "safety net" for victims who need assistance. Victim Notification At the very core of most corrections-based victim services programs are notification services that inform victims (and sometimes witnesses) about the status of offenders under the supervision of the agency. Three-fourths of adult correctional agencies, over half of juvenile correctional agencies, and 8 out of 10 paroling authorities have requirements to notify at least some types of victims about changes in the status of their offenders. As of 1997, 23 States provide victims with the constitutional right to notification of an offender's status in the postconviction release and/or release proceeding--a public policy approach that is rapidly gaining widespread application. While the "Victim and Community Notification" section of the Promising Practices and Strategies for Victim Services in Corrections notebook contains detailed information about initiating and enhancing corrections-based victim notification programs, there are ten core elements for consideration in notification program development: 1. Policies and procedures to guide program implementation. 2. Program staffing--including central office staff and/or work site staff. 3. How victims and/or witnesses are qualified for notification services. 4. Who is eligible for notification, i.e., all or some victims/lawful representatives and/or all or some witnesses. 5. Program enrollment process and requirements for enrollees. 6. Specific types of notification for which victims/witnesses are eligible. 7. When does notification occur (e.g., how far in advance of an offender's movement?). 8. Victim confidentiality of notification requests and related information. 9. Use of paper-based versus electronic notification tracking systems. 10. Handling victims' reactions to notification or handling needs that arise from notification (e.g., accompaniment to court for hearing or released offender to work too close to victim's home). In addition, correctional agencies must have comprehensive victim outreach resources--including brochures, enrollment cards, public service posters, etc.--that publicize the availability of victim notification services and how victims and witnesses can access such services. Victim Impact Statements The right to be heard at key stages of the justice and corrections processes has, historically, been one of the key tenets of the victims' rights discipline. Most States provide victims with varied rights relevant to victim impact as stated in the National Center for Victims of Crime's 1996 Legislative Sourcebook: o Forty-four States provide victims with the right to be heard as part of a presentence report. o All 50 States provide for the right to be heard at sentencing. o Forty-three States provide for the right to be heard at parole hearings. o Sixteen States provide for the right to be heard at pardon, commutation, and/or clemency proceedings. Types of Victim Impact Statements There are currently eight types of victim impact statements (VIS) that are utilized by courts and correctional agencies in the United States: 1. Written VIS, accepted either in a written statement/letter from the victim, or on a designated VIS form. 2. Oral VIS (also known as "allocution"), where the victim personally addresses the sentencing court or paroling, commutation, or clemency authority. 3. Audiotaped VIS. 4. Videotaped VIS. 5. Closed-circuit televised VIS (which are especially applicable with cases involving victim/witness intimidation). 6. Child VIS offered in measures that are commensurate with the child victim's age and cognitive development. 7. Teleconferenced VIS (which are especially applicable for out-of-town victims, and/or victims with disabilities). 8. Community impact statements, utilized in Federal cases involving drugs and/or gang activities in which representatives from affected neighborhoods are invited to submit written VIS or oral testimony, at community meetings about how crime, drugs, and gangs affect the quality of life in their homes and neighborhoods. The Value of Victim Impact Statements In general, VIS provide victims with the opportunity to discuss the physical, financial and emotional effects the crime has had on their families, as well as themselves. Such input is vital to helping courts and correctional authorities make informed decisions about sentencing and release. In addition, VIS provide useful information about the following issues: o Restitution. o Other financial obligations (such as child support, rent/mortgage payments, costs for medical bills and counseling, insurance, living expenses, etc.). o Financial losses (including repairs for crime-scene cleanup and replacement value of lost or stolen property). o Measures to promote victim safety and security (including protective orders, noncontact orders, supervised child visitation, and special conditions of probation or parole). o Victims' wishes relevant to their participation in victim/offender programs (such as mediation/ dialogue, family group conferencing, community reparation boards, etc.). o Victims' recommendations for offender treatment and supervision (including attendance at victim impact panels, alcohol, or other substance abuse treatment, sex offender treatment, anger management, job skills development, etc.). Barriers to Effective Victim Impact Statements There are eight barriers identified by victims and service providers that may inhibit effective, comprehensive usage of VIS: 1. Indifferent forms. 2. Multiple forms that must by completed more than once by victims and that are not shared among criminal/juvenile justice and correctional authorities. 3. Using VIS as a restitution document only. 4. The format of some VIS forms that do not ask appropriate questions to garner the most useful information nor provide ample space for answers. 5. Limited explanation of instructions for completing the VIS. 6. Language barriers. 7. Confidentiality concerns, i.e., whether or not the convicted offender and/or his/her counsel have access to the VIS information. 8. Lack of consideration of VIS by judicial and correctional authorities. Special Considerations for Victim Impact Statements Courts and correctional authorities should be aware of and, to the degree possible, provide the following special services for victims in completing their VIS: o Interpreters for oral VIS when victims speak languages other than English, including sign language. o Assistance for illiterate victims to complete written VIS. o Child victim impact statements. Measures to Increase and Improve the Use of Victim Impact Statements The most significant measure to expand and improve the use of VIS is training and crosstraining of prosecutors, judges, probation and paroling authorities, and victim service providers. In addition, victims should be informed of their statutory or constitutional right to submit VIS at every juncture of the criminal and juvenile justice systems. Agencies should practice due diligence in locating victims to secure VIS information, for example, by contacting the prosecuting attorney or sending a certified letter to the last known address. They should take care to guarantee the confidentiality of such information. Plea bargain, sentencing, and parole hearings should be postponed until victims who choose to submit VIS are allowed to do so. Finally, VIS provided at the time of presentencing or sentencing should be included in a confidential section of offenders' case files, and should be reviewed by paroling, commutation, and/or clemency authorities at the time of the offender's consideration for release. Samples of VIS, derived from the Victim Impact Statement: A Victim's Right to Speak, A Nation's Responsibility to Listen manual published by the NCVC and MADD with support from the U.S. Department of Justice, Office for Victims of Crime, are included in Appendix I. The Importance of Restitution The importance of victim restitution is demonstrated by the following factors: o Victims suffer considerable monetary losses as a result of crime, many of which are not recoverable through insurance, victim compensation funds, or other forms of financial recovery. o Offender accountability must incorporate measures to directly reimburse victims for their financial losses related to the criminal or delinquent act. o Victim compensation programs cannot begin to fulfill the demands for financial recovery from victims, and compensation programs can be augmented by restitution payments to their funds. o When restitution orders are not enforced and collected, ultimately America's victims and taxpayers bear the burden of financial responsibility that should belong to offenders. o The fulfillment of restitution obligations comprises a tenet of restorative justice that encompasses efforts among offenders, victims, and communities to attempt to repair the harm caused by crime. o Restitution payments are a necessary and important reminder to offenders about the direct harm they have caused to victims and to their community. o While restitution cannot begin to fully compensate for the harm victims endure, it is a "good faith" effort by offenders to "right their wrongs." Furthermore, restitution is a strong measure of the effectiveness of America's criminal and juvenile justice systems. When citizens assess whether or not the justice systems are accomplishing their mission, restitution is an important evaluation criterion. As such, not only should offenders be accountable for victim restitution, but our justice systems should be held equally accountable for the enforcement of restitution orders. Restitution Procedures While all 50 States, the District of Columbia and the Federal government have statutory provisions for victim restitution, it is one of the most under-enforced of all victims' rights. There are a myriad of barriers to the enforcement of restitution including the following: o Judicial orders of restitution that are not carried through to paroling authorities to incorporate as conditions of community supervision. o Other financial obligations such as court costs, fees, fines, costs of incarceration, and even payments to the Crime Victims Compensation Fund often take precedence over restitution to the individual crime victim. o The often misguided belief that "you can't squeeze blood from a turnip," referring to offenders who appear to be indigent. o Lack of coordination among agencies regarding who collects and disburses restitution to victims. o Lack of automated systems to manage and expedite restitution collection and disbursement. Correctional agencies must acknowledge, through policies and practice, that restitution is a basic right that holds offenders financially accountable for their criminal actions, and provides victims with some monetary compensation to cover their losses resulting from crime. These include property loss, medical expenses, costs of counseling, funeral and burial expenses, lost wages, and many other considerations. Restitution should be ordered from adjudicated persons in every case, regardless of the sentence or disposition imposed, in which a crime victim suffers a loss, unless compelling and extraordinary reasons exist to the contrary. The basic principles of a corrections-based victim restitution program should include the following: o Understanding of and adherence to State laws that govern the ordering, collection, and disbursement of victim restitution. o Policies and procedures that clearly state who within the agency is responsible for restitution collection and disbursement. o Interagency agreements among courts, community corrections, institutional corrections and relevant victim agencies (such as victim compensation) regarding the man-agement of restitution collection and disbursement. o Cross-training programs among agencies having any responsibility for victim restitution that identify and fill gaps in program implementation. o Written information made available to victims that clarifies their rights to restitution as well as the specific roles and responsibilities of individuals and agencies to implement these rights. Helping Victims Document Their Losses To ensure accurate and complete restitution orders, victims are required to document their losses in writing for the court or paroling authority. It is important to provide victims with guidelines about the types of documentation that are needed to depict their out-of-pocket and projected expenses for the future. Some considerations for guidelines that should be provided in writing to victims include the following: o Employer statements (letters or affidavits) that document unpaid time off from work the victim took as a result of injuries from the crime or involvement in justice processes. o Documentation of any workers' compensation claims submitted and/or claims payments received by the victim. o Copies of bills for services directly related to victims' financial recovery from the crime. o Any receipts for items or services. o Documentation that estimates the value of stolen property. o Photos of valuables that were stolen. o Copies of any documentation, often provided by local law enforcement agencies (e.g., records of serial numbers, photos, etc.), that is intended to aid victims in the recovery of stolen property. o Any law enforcement records that indicate the status of stolen property (e.g., property recovered, recovered but damaged, etc.). o Copies of victims' applications to and/or copies of checks received from the State victim compensation fund. o Copies of insurance claims and related correspondence between the victim and his/her insurance company, as well as copies of checks the victim may have received to cover losses. Immediate Losses During the presentence investigation, victims should be asked to report information about their losses by completing or updating a financial worksheet and providing documentation as described above. A sample financial worksheet is included in Appendix J. The range of these losses can include the following: Medical Care o Emergency transportation to the hospital. o Rape kit examinations that are not immediately paid by a third party. o All expenses related to the hospital stay, including the room, laboratory tests, medications, x-rays, and medical supplies. o HIV testing expenses, if applicable. o Expenses for care provided by physicians (both inpatient and outpatient), medication, and medical supplies. o Fees for physical or occupational therapy. o Replacement of eyeglasses, hearing aids, or other sensory aid items damaged, destroyed, or stolen from the victim. o Rental and related costs for equipment used for victims' physical restoration, i.e., wheelchairs, wheelchair ramps, special beds, crutches, etc. Mental Health Services o Fees for counseling or therapy for the victim and his/her family members. o Any costs incurred as a result of the victim's participation in support or therapy groups. o Expenses for medications that doctors may prescribe for victims to help ease their trauma following a crime. Funeral Expenses o Costs associated with burials, i.e., caskets, cemetery plots, memorial services, etc. o Expenses for travel to plan and/or attend funerals. Time Off From Work o To repair damage following property crimes. o To attend or participate in court or parole proceedings. o To attend doctors' appointments for injuries or mental health needs directly resulting from the crime. Other Expenses o Crime scene cleanup. o Costs of replacing locks, changing security devices, etc. o Expenses related to child or elder care when victims have to testify in court. o Relocation expenses. o Fees incurred in changing banking or credit card accounts. Projected Expenses Victimization often results in injuries or losses that are long-term in nature. While it is not possible to accurately document such projected expenses, it is possible to document expert opinions as to future financial obligations the victim might incur as a direct result of the crime. Victims should be advised to seek documentation (a letter or affidavit) from professionals who are providing them with medical or mental health services that offers an estimate of the victims' future treatment needs, as well as related expenses. Such costs can include the following: o Long-term medical treatment. o Physical or occupational rehabilitation or therapy. o Mental health counseling or therapy. o Time that must be taken off from work to receive any of the above services. The justice professional responsible for assessing victims' restitution needs should provide this documentation to the court or paroling authority. Assessing the Offender's Ability to Pay The "other side of the coin" of victim documentation of financial losses is conducting an assessment of the offender's ability to pay in order to recommend an appropriate restitution payment plan. The responsible justice agency should evaluate the offender's current and future financial status in making recommendations about both the amount of restitution as well as the payment schedule. The following are issues for consideration: o Current employment status, including salary, benefits, and pension plans. o Projections on future employability (that assess the type of job and the remuneration offenders might secure). o Assets not essential to the offender's quality of life (excluding home or automobile ownership) that include such assets as savings accounts, investments such as stocks, bonds and mutual funds, income from investment properties, etc. o Potential contingency funds, such as State and Federal income tax returns, winnings from lotteries, or inheritances. In Summit County, Colorado, the Fifth Judicial District Probation Department trains its officers to examine the entire financial situation of offenders when looking at issues concerning their ability to pay restitution. For example, if an offender owes restitution and owns expensive, nonnecessity items (e.g., television or compact disc player), then the probation officer can ask the judge to order the offender to sell their possessions to pay restitution to the victim(s). Alternative Methods of Restitution Collection At times, it becomes necessary to employ innovative and more controlled methods for collecting restitution when offenders fail to pay as scheduled. Efforts implemented by a variety of agencies and jurisdictions include the following: o Civil remedies. o Forfeiture of bond money for restitution obligations. o Collection of restitution while offenders are institutionalized as well as when they are placed on parole. o Providing incentives for incarcerated offenders to pay restitution. o Acceptance of credit card payments. o Converting restitution orders to community service. o Extending the term of community supervision until offenders fulfill their restitution obligations. o Use of private collection agencies. Additional resources relevant to victim restitution are included in the "Restitution" section of the Promising Practices and Strategies for Victim Services in Corrections notebook. Victim Protection One of the most effective ways to encourage victim participation in the entire criminal justice process is to ensure their safety from intimidation or harm by offenders, or those associated with offenders. Whether "participation" denotes serving as a witness for the prosecution, providing victim impact statements, or offering testimony relevant to parole revocation hearings, victims and witnesses are more likely to be involved if efforts are made to promote their personal safety. Correctional agencies have an important obligation to protect victims from intimidation, harassment and/or harm by offenders under their supervision. A combination of sound policies and modern technology offer many innovative approaches to increasing and enforcing victim protection measures such as follows: o Protective orders, restraining orders, or "no contact" orders issued upon the victim's request at no cost (with the most effective orders having no time constraints, but rather issued as "permanent" orders by judges or paroling authorities). o Protection for victims of domestic violence and/or stalking through JurisMonitor--a unit in the victim's home that signals the victim, local law enforcement, and a centralized operations center when an offender, who is wearing an electronic monitoring device, comes within a 150-500 foot perimeter of the victim's home. o Cell phones automatically pro-grammed to dial "911" when a victim feels threatened or at any risk from an offender. o Panic buttons on necklaces that are linked to "911." o Inmate phone systems that only allow pre-approved telephone contacts that can preclude the victim. o Institutional correctional agencies' policies and practices that monitor inmates' outgoing correspondence and phone calls. Paramount to victim protection are clearly written policies and procedures that require the following: o Conform with and enforce provisions of all State laws relevant to victim protection, including protective orders, anti-stalking statutes, etc. o Define intimidation, harassment, and/or harm. o Clarify what victims must do to seek protective measures and which individual(s), agency(s), or unit(s) are responsible for enforcement. o Provide guidelines to victims for documenting instances of intimidation or harassment. o Provide for interagency agreements that clarify respective roles and responsibilities for victim protection and security. Additional information about protecting victims is included in the "Protecting Victims from Intimidation, Harassment or Harm" section of the Promising Practices and Strategies for Victim Services in Corrections notebook. Handling Complaints from Victims and Witnesses The majority of correctional agencies have received complaints from victims and witnesses about harassment, intimidation, or retaliation by offenders and their families, and/or about issues related to offenders' release and location. Yet only 40 percent of adult correctional agencies, 48 percent of juvenile correctional agencies, and 50 percent of paroling authorities have formal procedures for handling victims' complaints. The following policies and procedures for handling victims' complaints must be developed: o Designate to whom a victim should address his/her complaints and concerns. o Establish guidelines for investigating the validity of complaints. o Identify the range of responses an agency can take when complaints are found to be valid. o Notify the victim of the agency's response to his/her complaint. The agency should educate victim service providers about its process for handling victim complaints so they can explain procedures and provide appropriate contact information for victims, upon request. Parole Processes For many victims, the parole process can be an intimidating and frightening experience. Any feelings of safety or security they have had due to the offender's incarceration are jeopardized by even considering the inmate for parole. The need for information about the parole process becomes vital; similarly, the importance of victim input into parole proceedings cannot be underestimated. There are 12 basic rights and services that paroling authorities should provide to crime victims before, during, and after the parole process: 1. Information about the parole process (including parole hearings), available in written, audio, and/or video formats in languages commensurate with victim populations in the agency's State. 2. Notification (upon request and in writing) of upcoming parole proceedings at least 60 days in advance of any hearing. 3. Designation of professionals or volunteers to accompany victims to parole hearings. 4. Procedures to keep victims and offenders separate by sight and sound at parole hearings, if victims so desire, (i.e., in States where victim presence at the parole hearing does not require offender presence at the same time). 5. Waiting areas for victims that are separate by sight and sound from the offender and his/her family and friends. 6. Acceptance of victim impact statements before or during parole hearings in person by the victim (allocution), written, audiotaped, and/or videotaped, and in measures that are commensurate with the victim's age, cognitive development, and culture (multilingual). 7. Confidentiality of victim information and victim impact statements from the offender and his/her counsel before, during, and after parole hearings. 8. Timely notification of the outcome of any decisions resulting from parole hearings. 9. Notification of parole violations and relevant hearings to both the victim of the original offense that resulted in incarceration as well as the victim of the offense for which the revocation hearing is being conducted. 10. Information for victims about parole supervision, conditions of parole, the name of the parole agent, and who to contact within the paroling authority for additional information or resources. 11. Training for all staff involved in parole proceedings about basic victimology theory, along with an overview of State law, policies and victim services relevant to the agency. 12. Training for all State and local victim service providers about the parole process and related victims' rights. These rights and services should be described in detail in policies, procedures and staff duty statements. Additional information is included in the "Victim Services in Parole" section of the Promising Practices and Strategies for Victim Services in Corrections notebook. Staff-Related Issues There are four key issues relevant to all staff in the correctional agency, as well as its victim services program team: 1. Internal training. 2. Informational bulletins. 3. Internal advisory committee. 4. Departmental forums. Internal Training All correctional agencies should incorporate a 4-hour training program for new employees, and at least a 2-hour training program for veteran employees as a component of their annual training. The following issues should be addressed: o Agency policies and procedures related to victims' rights and services. o An overview of State victims' rights laws, especially those that mandate corrections-based victims' rights and services. o A system-wide perspective of victims' rights and services from law enforcement through corrections, focusing on interagency collaboration. o Victimology theory, victim trauma, the range of victim reactions to crime and the criminal justice system and victims' needs specific to the crimes that were committed against them. o National, State, and local resources for victim information and referrals. When possible, victims and local service providers should be asked to copresent at any internal training sessions sponsored by the agency. Agencies should also establish internal training goals that focus on how the training will translate to improved programs and services for victims of crime. The Texas Department of Criminal Justice (TDCJ) incorporates divisions responsible for community justice assistance, institutions, State jails, and parole and established 10 program goals that can be obtained through comprehensive training: 1. To ensure that victims are treated with respect and dignity by all TDCJ personnel. 2. To ensure that victims are provided with accurate information in the most expedient manner possible. 3. To ensure victims are aware of their rights in the criminal justice process regarding notification and parole protest procedures. 4. To ensure that TDCJ personnel are trained in victim sensitivity issues. 5. To develop and assist a statewide professional victim liaison network in each Community Supervision and Corrections Department, District Parole Office, and Institutional Division prison unit. 6. To create a Crime Stoppers program "behind the walls" of the Texas Department of Criminal Justice Institutional Division facilities. 7. To provide victims of violent crime the opportunity to have a structured, face-to-face meeting with their offender(s) in a secure, safe environment, in order to facilitate a healing recovery process. 8. To develop a staff victimization and crisis response program for the TDCJ. 9. To provide for the creation of a library for victims, victim advocates, and TDCJ staff on a statewide-access basis. 10. To provide opportunities for the greatest possible access and use of volunteers within TDCJ Victim Services. Informational Bulletins The concept of informational bulletins, developed by the California Department of Corrections Victim Services Program, provides information to internal staff, as well as to agencies throughout the State and nation that are interested in corrections-based victims' rights and services. The bulletins (published quarterly) contain information about the Victim Services Program's policies, services, current activities and programs, and future plans. In addition, issues that are most important to victim clientele, such as restitution, notification, allocution, protection, etc., are summarized with innovative solutions to meeting victims' needs offered whenever possible. Informational bulletins are helpful tools to keep agency staff apprised of program activities and changes in policies or procedures relevant to victim services, especially changes that may involve or affect them. For other correctional agencies and allied professional justice agencies, such as prosecutors and the courts, the bulletins share innovations and ideas that can be easily replicated at the local, State, and national level in other jurisdictions. Internal Advisory Committee Members of the internal departmental advisory committee serve in an advisory and review capacity to staff of the victim services program and assist in the development of program policies, procedures, and resources. Departmental Forums Departmental training forums provide staff with an understanding of various victim issues and concerns as well as ongoing activities and programs within the agency. Activities include the identification of topics (which are often tied to current trends affecting victims and/or the agency in the State), resources needed, research of current activities and issues, and the presentation of information to departmental staff. The best place to host departmental forums is on institution or department grounds. Considering the possibility that victim service providers may be involved in the forums, this is a good way to introduce them to the department as well. Departmental forums should be conducted as "trainings-for-trainers" so that participants can return to their work sites and educate other staff. Forums should be held at least quarterly throughout the year. Presenters can include the following: o Victim services program staff. o Community-based victim service providers. o System-based victim service providers, e.g., law enforcement, prosecutors, public defenders, courts, etc. o Crime victims and witnesses. Responding to Workplace Violence in Correctional Settings Physical assaults. Sexual harassment. Hostage-taking incidents. Spitting and throwing feces and urine. Rape. And the ultimate violation: murder. What to some people appears to simply be a litany of our worst violent crime fears is, for many correctional professionals, a daily threat in their workplace. While much attention has been focused on increasing incidents of workplace violence in America, little attention has been paid to the violent acts committed against those who dedicate their lives to public safety and protection: corrections, probation, and parole professionals. There is a flawed assumption that people who choose corrections as their profession must accept risks to their personal safety, and that being victimized is "just part of the job." Certainly, corrections is a tough job that is made even more difficult by the threat and carrying out of violent acts. Additionally, such difficulties are enhanced when correctional agencies fail to adopt strong policies and procedures that promote worker safety and victim assistance when an employee is victimized on- or off-the-job. Stress, Trauma, and the Corrections Professional Stress theory, developed by Dr. Hans Selye and others, notes that individuals exist in normal states of equilibrium where they establish their own personal boundaries, usually based on a certain order and understanding of the world. Occasional stressors will move the individual out of the state of equilibrium, but the majority of people most of the time stay within a familiar emotional range. Trauma throws people so far out of their range of equilibrium that it is difficult for them to restore a sense of balance in life. When they do establish a new sense of balance, it will often be different than prior to the trauma, with new boundaries and new definitions. Like most people, corrections professionals face developmental stressors that come from transitions in life, such as marriage and divorce, parenthood, and retirement. However, the level of chronic stressors that occur over and over again is extraordinarily high for corrections professionals: supervising heinous criminals; job tensions; and feeling unsafe on an ongoing basis due to the clientele with whom they interact. When corrections professionals are faced with the sudden, arbitrary acute stressor of a violent act perpetrated against them, which compounds the many other stressors they endure, the resulting trauma can be overwhelming. Responding to Workplace Violence: Ten Suggestions for Correctional Agencies and Administrators Every correctional agency has an important obligation to its employees to promote their safety and well-being. In order to shape the issues that must be addressed, California Youth Authority, Office of Prevention and Victims Services, Assistant Director Sharon English and public safety consultant Anne Seymour developed 10 suggestions for agencies and administrators to respond to workplace violence: 1. All corrections, probation, and parole agencies should have clear policies and procedures for responding to workplace violence that encourage reporting of criminal incidents and provide support for the victimized staff, witnesses, and entire unit or office in which the critical incident occurred. The victim services provided for staff and the rights staff have as victims should be clearly described. 2. All agencies should have emergency response teams available around the clock with members trained in vic-timology theory, responses, and interventions. 3. Staff safety training programs should incorporate victim assistance in addition to worker safety and critical incident prevention. 4. Management and administrative staff should be professionally trained in death notification procedures that include in-person sensitive notifications, crisis intervention, and onsite and continuing support for murdered employees' family members. 5. Supervisors and managers must receive training on how victimization affects their employees' career choices, how victimized employees might treat inmates, parolees, or probationers, and how victimized staff are viewed by their co-workers. 6. Procedures on staff reintegration must be established and practiced, focusing not only on the victimized staff member but also on his/her professional peers as well. 7. Corrections professionals should be involved in any disciplinary hearings or criminal proceedings resulting from their victimization, including notification of case status; the right to be present at key proceedings; submission of a victim impact statement; and protection from intimidation, harassment or harm. 8. Corrections has an ongoing responsibility to the family of victimized staff members. Efforts should be made to provide them with information, input and support, not only at the crisis stage of the victimization but also in the months that follow. 9. Agencies should establish policies and procedures for rumor control following a staff victimization or critical incident, which includes a brief statement of facts for agency employees, as well as for the news media. 10. Corrections, probation, and parole agencies should establish strong affiliations with local victim service organizations. Over 9,000 local agencies can provide crisis intervention, support groups for victimized staff, and training on victim trauma and reactions following a crime. Appropriate Treatment for Victims and Survivors of Workplace Violence/ Victimization Agencies can lay a strong foundation upon which to implement workplace violence strategies by clarifying employees' rights when they are victimized in the line-of-duty. Just as crime victims in all 50 States and at the Federal level have a "Victims' Bill of Rights" that guides how the criminal justice system should treat them and how their cases will be handled so should correctional agencies articulate similar rights for the fair treatment of correctional staff who are victimized by violence in the line-of-duty. Guidelines for Correctional Employees Who Are Victimized in the Line-of-Duty The following guidelines, modeled after "Victims' Bills of Rights" adopted in most States, provide correctional agencies with ideas for appropriate treatment of victimized staff, and offers employees a "checklist" of supportive services that can be provided by the agency: "As a victim of a serious crime committed while you were performing your duties, you will: 1. Be treated with dignity and respect by the Department and all of its employees. 2. Be provided with direct assistance and support from the Department's Office of Victim Services for both you and your family. 3. Be informed of these guidelines, as stated here, by your immediate supervisor within 48 hours following the critical incident. 4. Receive timely information about the status of the administrative and/or criminal proceedings related to the critical incident. 5. Have a timely disposition of your case. 6. Be allowed to be present, upon request, at any administrative proceedings related to the critical incident--or to have a representative of your choice present at such proceedings--and to be present at any criminal proceedings related to the critical incident, pursuant to [S]tate law. 7. Have the opportunity to submit a victim impact statement--either written, oral, audiotaped or videotaped--prior to the administrative disposition of the case, and to have a record of your victim impact statement maintained in a confidential section of the offender's case file, and to be afforded this right in the event of a criminal prosecution, pursuant to [S]tate law. 8. Be notified about the final disposition of the case in a timely manner. 9. Be encouraged to enroll in the Department's Victim Notification Program--regardless of whether your case is pursued as an administrative or criminal matter--in order to be kept informed of the offender's status and location, pursuant to state law and agency policy, and to have your notification request and related information kept confidential from the offender. 10. Be provided with reasonable protection from the accused. 11. Receive restitution from the offender, either monetarily or as an appropriate form of community service within the corrections community, based upon a recommendation from you. 12. Receive workers' compensation and/or victim compensation, and to receive assistance with completing the associated requirements. 13. Receive referrals for mental health counseling, upon request, for both you and members of your immediate family from a competent professional who is qualified in providing crisis intervention and sensitive trauma response. 14. Receive information about and a referral to supportive victim services and assistance in your community." * The rights in criminal proceedings must be defined by individual correctional agencies in accordance with [S]tate (or [F]ederal) law. Additional information about policies, protocols, and programs relevant to violence in the corrections workplace is included in the "Responding to Workplace Violence and Staff Victimization" section of the Promising Practices and Strategies for Victim Services in Corrections notebook. Monitoring Legislation Many corrections-based victim services are mandated by law. Of the 27,000 Federal and State statutes that currently guide the implementation of crime victims' rights, many apply to correctional agencies. In addition, 29 States have passed state-level crime victim constitutional amendments, the majority of which address victims' rights to participate throughout the correctional process. The proposed Federal constitutional amendment for victims' rights introduced in the 104th Congress in 1996 (see Appendix K) also provides for victims to participate and be heard in the corrections and parole processes in adult, juvenile, and military justice systems. Corrections-based victim services programs, along with agency legislative divisions, should work closely with state-level victim service coalitions to determine victims' needs and concerns that can be addressed by new laws. These important partnerships help develop mutual understanding of roles and responsibilities relevant to victims. It also enhances the increasingly popular approach of offering "team testimony" to legislative committees relative to corrections-based victims' rights. Representatives of correctional agencies testify with victims and service providers about not only proposed mandated rights and services but also fiscal notes that determine the money necessary to enforce new mandates. The National Center for Victims of Crime in Arlington, Virginia has a legislative database with 27,000 victims' rights statutes. Its 1996 Victims' Rights Sourcebook offers a compilation and comparison of victims' rights laws, many of which are pertinent to corrections. Correctional agencies can tap these valuable resources to compare their States' corrections-based victims' rights, and secure samples of other States' statutes, which affect victim notification, protection, restitution, victim input, and other topics, to use as models for replication. Program Evaluation This overview of program evaluation is derived from the "Program Design, Devel-opment and Evaluation" chapter of A Guide to Enhancing Victim Services within Probation and Parole, published by APPA with support from the U.S. De-partment of Justice, Office for Victims of Crime in 1994. Program design, development and staffing are the critical first phases of a victim services program. These steps lay the foundation for program implementation that includes a specification of program features, identification of a target population, articulation of program policies and procedures, and a scheme for selecting, hiring and training program staff. Programs are never instituted in a vacuum, i.e., they often can have significant repercussions or effects on other areas of department operations and functions. They are also rarely installed without a variety of problems or complications. Moreover, programs are obliged to demonstrate that they are fulfilling claimed objectives, and they are servicing an identifiable, needy population. Programs should not be inaugurated without a method to learn about their planning, structure, methodology, and impact. Hence, there is a need for program evaluation. What is Program Evaluation? Program evaluation is a set of tools for gathering information to examine program formulation, implementation, and outcomes. It is a means to document the establishment of the program and to show whether the program is achieving its purported goals and serving its targeted clients. Program evaluation is actually a multidisciplinary field of applied social science that draws on concepts and research protocols from psychology, sociology, education, economics, administration and statistics. Program evaluation ultimately seeks to improve the quality of program services through the application of skills and methods for determining whether the program achieves its intended goals. Purposes of Program Evaluation Program evaluation can accomplish a variety of purposes, which includes the following: o Determines whether a particular program or programs are needed in a specific area of service. o Assists in the planning, staffing, and budgeting of programs. o Ascertains whether a program has been implemented according to its original design and intent. o Helps to determine whether a program should be continued as implemented, expanded, modified, or altogether eliminated. o Gathers information to improve ongoing program practices and services and to monitor the effectiveness of programs. o Measures the intended and unintended impact of programs and establishes if a program is achieving its goals and objectives. o Yields information to satisfy internal recordkeeping requirements, as well as requests for information from funding bodies, the public, and outside agencies. o Provides a systematic, running record of program expenditures. o Helps make a choice between different programs or approaches being offered in the same area of services. o Aids in ensuring that a program is performing according to set standards. (E. Posavac and R. Carey, Program Evaluation: Methods and Case Studies. Englewood Cliffs, NJ: Simon and Schuster, 1989.) Types of Program Evaluations Evaluations of programs may be conducted from a number of different viewpoints and can be differentiated by the kinds of questions asked and the kinds of answers needed to make informed decisions about programs. Therefore, the scope of an evaluation depends on the specific purposes for which it is being considered. (Peter Rossi and Howard Freeman. Evaluation: A Systematic Approach. Beverly Hills, CA: Sage, 1982.) The four general categories of evaluations are need, process, outcome, and expenditures. Need Evaluation An assessment of need is designed to answer questions about the target populations such as their background characteristics, problem areas, and the kinds of services they perceive to be important and helpful. Need evaluations occur during the program planning stages and provide data to shape program structure and services. They may also suggest that a program is unnecessary because the proposed services can be found elsewhere; because a target population cannot be identified clearly; or because the identified population does not express a strong desire for services or assistance. A need evaluation of a victim services program would attempt to answer these questions: o What types of victim services are currently offered through local criminal justice agencies? o Will the prospective services supplement, replace, overlap, or complement existing victim services? o Based on a survey (written, telephone, or in-person), what are the most pressing needs of local crime victims as expressed by the victims themselves, and by probation, parole, and corrections staff? o What are the present procedures for collecting victim restitution (or notifying victims, seeking impact statements, providing protection from intimidation, etc.)? How would the future program coincide with current operations? o Are victims' reported needs serious and broad enough to warrant a special victim service program? o Are there alternative mechanisms in the department to meet victims' needs other than the proposed program? o Approximately how many potential clients can be served by the proposed program? o Given the program's initial conceptualization, what victims should be targeted for services? Which of these victims would be easiest to access and most likely to be helped by the program? Why? Process Evaluation An assessment of process is designed to answer questions about program implementation. Once a program has been administered, evaluators can document the extent to which the program was implemented as designed and is serving the target population. Process evaluation is an examination of the effort invested in a program and does not seek to establish program effectiveness. Rather, it provides a systematic exploration of whether a program is being administered in conformity with its original conceptualization (Rossi & Freeman, 1982). A process evaluation of a victim services program would attempt to answer these questions: o How many victims are being assessed and contacted by program staff (daily, weekly, monthly, yearly)? o How many times, on average, is each victim contacted? What is the nature of these contacts (i.e., mail, phone, in-person, at home, or within the agency)? o How closely do written procedures correspond to the actual delivery of services? What are the specific disparities between plans and practice, and how seriously do they affect operations? o How does the victim services program interface with other department programs? Are program policies and procedures consistent with those of the host agency? o How often do other department staff interact with program personnel? What is the purpose of those interactions (i.e., referral, advice, or complaint)? o Are program services being delivered within a reasonable period of time? Are there ways to expedite service delivery? Outcome Evaluation An assessment of outcome traditionally has been the major focus for program evaluators and is designed to answer questions about program effects. Outcome evaluations are conducted after the program has been running long enough to register an impact on its clients. An outcome evaluation gauges the degree to which a program has influenced changes in the desired directions. To conduct an outcome evaluation, a researcher must show persuasively that impact was a function of program interventions and cannot be accounted for in other ways (Rossi & Freeman, 1982). An outcome evaluation of a victim services program would attempt to answer these questions about program success: o How satisfied are victims with the following program services? --Types and range of services offered. --Correspondence between their particular needs and program services. --Number and nature of contacts they have had with program caseworkers. --Their caseworker's responsiveness and sensitivity to their problems and needs. --Outcome of their case. --Amount of restitution and compensation they have received. --Timeliness of their case notifications. --Information they were given about victim services and crime prevention. --Services they received through referrals. --Comfort and safety of the program office environment. o Are crime victims served through the program better off physically, emotionally, and economically when compared to nonparticipating crime victims? o Do program services correspond with mandated victims' rights? o How do other department staff and allied justice professionals rate the performance of the program with respect to professionalism, staffing, dedication, and service? Expenditure Evaluation An assessment of expenditures is designed to answer questions about program economics. Specifically, expenditure evaluations address the cost-effectiveness of programs (i.e., do the benefits of the program justify the investment needed to provide the services?) and the cost efficiency of programs (i.e., is the program the most economical way to provide services or can other programs provide the same services at a lower cost?). A comprehensive evaluation of expenditures requires estimates of the tangible and intangible benefits of the program(s), as well as the direct and indirect costs of undertaking the program(s). Cost analysis techniques have been well developed in business and industry and can be adapted to study human service programs. An evaluation of expenditures for a victim services program would attempt to answer these questions: o What is the per capita cost of handling a case through the program? How does this cost compare with the costs reported by other programs in probation, parole, and corrections? o What are the total overhead (including such costs as office space, telephones, copy/fax machine use, and e-mail) and personnel costs of the program (salaries and benefits)? o Is the program exceeding its original budgetary allocation? Why are there cost overruns? Can any services be cut back or eliminated to save expenditures? Will these reductions jeopardize program operations? Client Needs Assessments This section is taken from the "Program/Service Outcome Evaluation" chapter of the training and resource manual Focus on the Future: A Systems Approach to Prosecution and Victim Assistance published by the National Center for Victims of Crime with support from the U.S. Department of Justice, Office for Victims of Crime in 1994. It was written by Promising Practices and Strategies Project Director Trudy Gregorie. One of the most valuable tools for a victim services program is regular assessment of its clients concerning the effectiveness, sufficiency, and quality of its services, and the effectiveness and professionalism of its staff. All programs receive some informal feedback from their clients, in the form of letters, commendations, complaints, or telephone calls, etc. But most programs survey their clients more systematically at one time or another in order to find out how they feel about the program's services, and to receive input on improving program services. Victim assessments can be conducted through written surveys that are given to clients as they exit the program or are mailed to them after the conclusion of their case. One disadvantage of mail surveys is that many people do not respond, and it is difficult to be sure whether those who do respond are truly representative. Assessments can also be conducted by telephone or in person. These evaluations can be either random or routine. Victim assessment surveys can help program personnel examine their current policies, protocols and procedures to ensure that the program and service providers exemplify the needed sensitivity and effectiveness when dealing with crime victims. The useful data collected should indicate needed changes, enhancements, or revisions to improve the program's delivery of services and enforcement of victims' rights. Two examples of victim assessment surveys that can be easily modified for correctional agencies--developed by the Delaware County Juvenile Court Victim Services Unit (Pennsylvania) and the Marion County District Attorney's Victim Assistance Program (Oregon)"--are included in Appendix L. Technology to Enhance Corrections-Based Victim Services This section is adapted from the 1996 National Victim Assistance Academy curriculum sponsored by the Victim Assistance Legal Organization with support from the U.S. Department of Justice, Office for Victims of Crime. It was written by Promising Practices and Strategies Project Manager Anne Seymour. Information is power. With the explosion of the information age and the expansion of the "information superhighway," victims, service providers and criminal justice professionals have myriad opportunities to augment their individual and collective power by accessing and sharing information electronically. Information comprises the very foundation upon which many victims' rights and services are based, including the following: o Victims' rights mandated by statute and case law. o Victim services available locally, at the State level, or nationally. o Case status. o Offender status. o Research that documents trends in crime and victimization. o Personal support and resources available to help victims reconstruct their lives following a crime. In 1997, virtually all of this type of information is available on-line to anybody who has a personal computer, telephone line, and modem. The growth in technological applications to manage the expansion and development of victim service organizations, to enhance case management and tracking information for both victims and offenders, and to simplify and expand communications through the worldwide "information superhighway," holds great promise for the discipline of corrections-based victim services. Knowledge about and use of existing and emerging technologies can save greatly needed time, money and human resources for victim advocates as well as crime victims. The primary purpose of the victim service discipline is to help crime victims obtain three basic objectives: rights, recovery, and respect. Yet victims are often barred from securing these objectives by ignorance, mis-impressions, and lack of information. In a very real sense, information is the key that allows access to victims' rights, recovery and respect. Unless victims are made aware of their rights as well as how and when to exercise them, such rights have no meaning or usefulness. Simply put, information is the means to victim service providers' ends. Indeed, it is the stock and trade of the victim service discipline and the driving force behind most services for victims of crime. How victim advocates are able to gather, synthesize, analyze, expand, distribute, and dispense this precious commodity has a direct impact on the success of the victims' rights movement. Barriers to the Use of Technology to Benefit Victims There are five common barriers to the implementation of technologies that could benefit victims of crime: 1. "Technophobia." 2. Cost. 3. Security of victim information. 4. The need for change management. 5. Government and judicial policies relevant to technology. "Technophobia" "Technophobia" is the fear of utilizing new technologies. Victim services and, indeed, the entire criminal justice system have traditionally operated on a paper basis. The volumes of information relevant to crime victims, in both criminal cases and in the provision of quality services, can generally be found in paper format and files. While some agencies are equipped with personal computers, are able to communicate via facsimile machines, and have access to the "information superhighway" through the Internet, many others utilize no tech-nology applications in their day-to-day activities. Undoubtedly, the victims' rights discipline and, to some degree, the field of criminal justice have been slow to harness the powers of technology. Very real fears exist about technology applications: Will computer files be lost? What if the electricity shuts off and our systems go down? Can we protect the confidentiality of victim information? How can we become "computer literate"? However, all these and other fears can be overcome with careful planning, training, technical assistance, and implementation of technology applications that benefit victims. While initial efforts to become technologically savvy are challenging, and at times difficult, service providers must view "the big picture" in terms of the time, money, and human resources that can be saved through advances in technology, keeping in mind that the ultimate beneficiaries are victims of crime. Cost For many agencies, the cost of technology appears to be prohibitive to implementation. However, the cost of not harnessing the effective powers of technology will soon outweigh the initial investment. Both corporate America and the technology industry are reaching out to social service organizations to augment their use of technology as well as their expertise relevant to computerization and management information systems. For example, clearinghouses exist that provide used computers to nonprofit organizations for free. More and more victim service agencies are securing the volunteer support of technology professionals on their Boards of Directors or in advisory capacities to initiate and enhance the use of computers. As the competition among technology firms grows more fierce, victim service providers benefit from the marketing of software packages that are inexpensive and adaptable to most personal computer systems. Furthermore, public policy developments are beginning to support the implementation of technologies that improve the provision of victim services (such as the Violence Against Women Act passed by Congress in 1994 that authorizes the use of technologies that benefit victims as a fundable outcome). Security of Victim Information Victim confidentiality is a priority for correctional agencies, crime victims, and service providers. Much victim information related to corrections is confidential by law or by agency policy. However, technology today easily accommodates the security of any information that is deemed confidential by the courts, including victim information. Access to computer screens with confidential information can be limited only to authorized users with passwords when software packages are developed. The use of encryption or "scrambling" of documents that are electronically transferred further prevents unauthorized access. In developing technologies that benefit victims, careful consideration and planning relevant to the security of specific information must be a priority. This can be accomplished by partnerships among criminal justice and victim service professionals as well as technology experts who develop software packages and offender management information systems. The Need for Change Management Change management is the means by which organizations successfully integrate technology with operations and people. While possessing the most advanced technology to benefit victims is important, it is not enough to ensure success. The best system can fail if it is not accepted by the people whose job it is to use it. There are four key components to change management: 1. Leadership: Setting and articulating a compelling vision, mission, and agenda for change, then making this commitment visible, constant, and contagious. 2. Ownership: Creating an environment for the attitude, motivation, and commitment of individuals and groups within and allied to our nation's victim service discipline, resulting in "buy-in" and ownership of change from early involvement through the total change process. 3. Enablement: Providing professionals with the knowledge, skills, processes, technologies, structures, tools, and advice to perform new roles in a changing workplace and discipline. 4. Navigation: Creating the environment to manage, integrate, and coordinate multiple change initiatives. (The preceding section is an excerpt from Andersen Consulting, Change Management workshop, International Integrated Justice Symposium, June 1995, New Brunswick, Canada.) For corrections-based victim services programs, change management means that they must do the following: o Understand the benefits to victims that technology has to offer. o Be actively involved in planning activities that relate to applying technology to victim services, criminal justice, and corrections. o Be flexible in their willingness to adapt to new ways of doing age-old tasks. Government and Judicial Policies Relevant to Technology Often State legislatures and/or judicial authorities must pass new laws and regulations that guide the implementation of technology. The acceptance of electronic data, imaging, and signatures has been accompanied by legal mandates that authorize their acceptance as official documents within the criminal justice system. The National Center for State Courts in Williamsburg, Virginia has shown great leadership in seeking changes in rules and laws that allow for technological advances that streamline justice and benefit crime victims. Offender Management Information Systems In the United States today, there is an important and welcome move toward incorporating vital victim information into offender management information systems. Instead of having multiple databases that relate to an offender's case, and hence the victim's case, many jurisdictions are centralizing databases that include victim information with substantial security protections to ensure confidentiality. One example is the statewide automated juvenile justice tracking system utilized in Oklahoma. A variety of data about juvenile offenders is included in the system such as demographic, social, and family information; case status and disposition; gang affiliations; juvenile profiles; and supervision and placement tracking. Two other key elements are victim notification and victim restitution. Juvenile justice and allied professionals who are authorized to access this information (from anywhere in the State utilizing a personal computer that taps into the centralized database repository) can quickly surmise if the victim has been notified of the juvenile offender's status or release, and if restitution has been ordered, collected, and/or paid. The incorporation of these and other vital data, such as victim impact information and protective orders, into centralized offender management information systems, with appropriate security precautions built in to ensure victim confidentiality, should be a goal of corrections-based victim services programs. Case Tracking Technology An important and recent phenomenon utilizes the power of current technology to track offenders and their victims throughout the criminal justice process. Case tracking serves five important purposes: 1. Maintains up-to-date information on an offender's status and release. 2. Provides substantial information about access to victim services and whether or not victims' rights as mandated by law are being upheld. 3. Holds the criminal justice system account- able by providing useful and timely data on case dispositions, including arrests, plea bargains, judicial sentences and time served on actual sentences. 4. Provides valuable data about victim and offender typologies. 5. Provides law enforcement, criminal justice, corrections and victim service providers with historical data related to victims and offenders that can guide their approach to intervention. The more America knows about criminal activity, the better our nation can be equipped to prevent and combat crime. Equally as important, the more America knows about victims--who they are, what types of services they need and are able to access, and whether or not their rights are implemented--the better our nation can be equipped to serve and assist victims. The Automation of Victims' Rights and Services Technological developments have been particularly beneficial to victims and service providers in two areas: victim notification and victim restitution. Victim Notification More than half of America's correctional agencies have automated victim notification processes, as depicted in the following data derived from the 1996 National Victim Services Survey of Adult and Juvenile Corrections and Paroling Authorities (conducted by the National Center for Victims of Crime as part of the Promising Practices and Strategies for Victim Services in Corrections project): Computerized approaches to the implementation of this significant victims' right save time, money, and human resources and ensure that victims are notified of an offender's release or impending parole hearing in a timely manner that is in accordance with law. The process of automated victim notification generally includes the following: o Victims who request to be notified of an offender's release (either through a prosecutor, victim service provider, Department of Corrections, or paroling authority) have their name, address, and telephone number entered into a centralized database. o The victim contact information is on a security screen, which means that only authorized personnel (such as the victim service program manager or case records personnel at institutions) have access to it. o Computerized notification letters designed to provide details on the offender's status, including release, upcoming release hearing, or death, are keyed into the system, and matched to the relevant victim information file. o At the appropriate juncture mandated by law (such as 60 days prior to release), the letter is automatically printed out by the computer and disseminated by the victim services program (in centralized systems) or case records personnel (in decentralized systems). The likelihood of victims "falling through the cracks" of notification processes is significantly decreased with the use of automated systems. Automating Victim Restitution The frustration many victims face in receiving restitution that has been ordered by a court or paroling authority can be significantly decreased by automated restitution management software programs utilized by a number of courts, correctional agencies, and paroling authorities. At minimum, a centralized software system tracks restitution orders and compliance with such orders and provides victims with disbursement checks, as well as information about delinquent accounts. One innovative restitution management program features the following functional specifications: o Links multiple defendants, victims, cases, and responsible officials in a single case folder. o Provides complete financial ledgers. o Provides for pro rata distribution of partial payments. o Provides 1,000 different levels of distribution priority. o Provides for joint and several, as well as partitioned, liability. o Accommodates the assignment of restitution to third parties (such as insurance companies). o Calculates "ability to pay" worksheets. o Determines payment schedules. o Prints receipts for money collected, either individually or in batch mode. o Provides delinquency tracking. o Employs three levels of security. o Prints disbursement checks. o Tracks unclaimed funds. o Provides a comprehensive set of reports including collection reports, case histories, ledgers, impact statements, delinquency reports, and payment reports. The application of this technology simplifies the complex and frustrating process of restitution collection for the criminal justice system, victims, service providers, and offenders, and helps ensure that offenders are held financially accountable to their victims. U.S. Department of Justice Electronic Information Resources There are a variety of resources available electronically from the U.S. Department of Justice, Office for Victims of Crime Resource Center and National Criminal Justice Reference Service. An array of on-line services that can be helpful to corrections-based victim services programs includes a World Wide Web page; anonymous file transfer protocol (FTP) site; Justice Information (JUSTINFO) electronic newsletter; and an e-mail information and help line. A complete compendium of these services, compiled for the 1996 National Victim Assistance Academy text, is included in Appendix M. Fundraising for Victim Services In recent years, there has been an evolution of networking among victim service providers and correctional personnel. Correctional agencies realize that if they are going to provide either mandated or voluntary services to victims of crime, they need the input and assistance of experts in the field: crime victims and victim service providers. Unfortunately, most community-based victim service programs are insufficiently funded. Generally, they are not-for-profit agencies that have been founded and operated by people who have been personally touched by crime. Victim services programs operate on minuscule budgets with limited personnel who work long hours for low pay, or work as volunteers. A growing number of these agencies are interested in helping correctional agencies meet the needs of victims. There are many dedicated victim service providers and victims who will give tirelessly to help correctional agencies develop and operate victim services programs. However, when it comes to weighing where they utilize their limited personnel resources, they also need to examine where their financial support is coming from. Often, this places corrections-based victim service programs at the bottom of their lengthy priority list. Some correctional agencies are able to reimburse victims and service providers for their mileage expenses to attend meetings or provide educational services such as the "Impact of Crime on Victims" programs or Victim Impact Panels for offenders. Others provide a small stipend in addition to, or in place of, mileage reimbursements. Increasingly, correctional agencies have found unique ways to raise funds for victim services programs in the communities where their institutions, offices, or work sites are located. Fundraising Policies It is important to have clearly delineated policies and procedures for fundraising activities that involve inmates, offenders under community supervision, and/or staff. All donations must be strictly voluntary. A copy of the California Department of Corrections policy on charitable fundraising campaigns is included in Appendix N. Fundraising Activities Sponsored by Offenders Offenders under the supervision of the California Department of Corrections are encouraged to participate in fundraisers for victim services programs and to make monetary donations of their own. Often, fundraising events are held in conjunction with National Crime Victims' Rights Week during April of each year. Offenders who choose to organize and participate in these activities do so to show their appreciation of victims and service providers who voluntarily participate in inmate education programs. Some offenders also view their contributions as a way to help make amends for their own crimes. Correctional staff are also encouraged to help plan for and participate in fundraising activities. In fiscal year 1995, the California Department of Corrections raised hundreds of thousands of dollars in donations that were provided to local victim services programs, many of which were located in the same communities as the work sites/institutions that raised the money. In addition to special events and monetary contributions, offenders can offer many in-kind contributions to victim service organizations and crime victims. o In South Carolina, parolees build baby furniture for local domestic violence and homeless shelters. o In Texas, female inmates make rag dolls that are distributed to needy and abused children. o In some States, part of the profits of sales of inmate artwork are given to victim services programs. o The Association of Paroling Authorities, International provided a check to Ellen Levin, Director of Justice for All, which was derived from proceeds from its annual conference. There are many creative ways that correctional professionals and the offenders they supervise can support victim services such as the following: o Organizing or participating in walk-a-thons or fun runs. o Selling buttons, mugs, t-shirts, and other items. o Food sales (including baked goods and candy). o Raffles. o Clothing, toy, and food drives. o Banquets. o Portraits/photos (paid for by inmates who like to have pictures to send home to their loved ones). o Craft sales and art auctions. o Sporting competitions. o Recycling of aluminum cans. o Benefit concerts. In addition, correctional agencies often support the charitable and public awareness activities of State and local victim services programs. Many of these activities are held in conjunction with annual commemorative weeks such as National Domestic Violence Awareness Month and National Drunk and Drugged Driving Awareness Week. Correctional personnel should seek opportunities to serve on planning activities for these special events and encourage their professional peers to get involved through either in-kind or direct monetary donations. A calendar of victim-related annual commemorations is included in Appendix O. The Angola "Break-in Run and Walk," an annual event sponsored by the Louisiana Department of Public Safety and Corrections, has corporate sponsorship from a local casino. Proceeds went to the State's Crime Victims Reparation Fund and the Department's inmate scholarship fund. Fundraising for victims' programs not only improves the scope and quality of services for victims, it also helps cement the bond between professionals in the disciplines of corrections and victim services--a bond that provides the foundation for increased mutual understanding, respect, and cooperation. Restorative Justice As the justice community continually seeks new, innovative approaches to fulfill its mission and goals, the concept of restorative justice has emerged as an approach that incorporates crime prevention, violence reduction, offender accountability, victim assistance, and public safety. In the restorative model, offenders, crime victims, and the community are all considered clients of justice processes, including corrections. As such, the involvement and interests of these three client populations become core to the planning, development, implementation, and evaluation of justice-related programs and services. At a national teleconference on restorative justice sponsored by the National Institute of Corrections (NIC) in December 1996, a panel of experts identified seven core values of restorative justice: 1. Crime is an offense against human relationships. 2. Victims and the community are central to the justice process. 3. The first priority of justice processes is to assist victims. 4. The second priority of justice processes is to restore the community to some degree if possible. 5. The offender has personal responsibility to victims and to the community for crimes committed. 6. The offender will develop improved competency and understanding as a result of the restorative justice experience. 7. Stakeholders share responsibilities for restorative justice through partnerships for action. As described by Dr. Gordon Bazemore, Director of the Balanced and Restorative Justice Project at Florida Atlantic University in Fort Lauderdale, the conceptual framework of this approach to justice can best be described as a combined emphasis on three programming priorities (NOTE: Bazemore's model was developed specifically for juvenile offenders): "Accountability: Restitution, community service, and victim/offender mediation create an awareness in offenders of the harmful consequences of their actions for victims; require offenders to take action to make amends to victims and the community; and, whenever possible, involve victims directly in the justice process. "Community protection: Intermediate, community-based surveillance and sanctioning systems channel the offender's time and energy into productive activities. . . . A continuum of surveillance and sanctions provides a progression of consequences for noncompliance with supervision requirements and incentives that reinforce the offender's progress in meeting competency development and accountability objectives. "Competency development: Work experience, active learning, and service opportunities provide opportunities for offenders to develop skills, interact positively with conventional adults, earn money, and demonstrate publicly that they are capable of productive, competent behavior." The shift from what some call "retributive justice" to restorative justice has many implications for victims of crime. Key to these changes is active involvement in the justice process as well as a defined role in achieving offender accountability. This shift is depicted in the chart below and on the following page (which includes definitions of "retributive" and "restorative" justice developed by noted author Howard Zehr, and "implications for victims" developed by public safety consultant Anne Seymour). Victim/Offender Programs In the United States, the concept of victim/ offender programs is relatively new, spanning just two decades of development and growth. While these programs share many goals, there is usually one important underlying principle: to provide forums that promote greater understanding of the impact that crime has on victims and their families, offenders' families, neighborhoods, and communities and to promote offender accountability and a positive learning experience for all involved participants. Why would victims who have been harmed by criminal or delinquent activities want to be face-to-face again with the person who hurt them? For many victims, burning questions in the aftermath of a crime need to be answered: o Why did you choose to victimize me instead of somebody else? o Does my offender realize the emotional, physical, and financial losses I have endured as a result of his/her action? o Does my offender feel any remorse? o Can my offender, through words or actions, be directly accountable to me so I can reconstruct my life in the aftermath of a crime? For juvenile delinquents and criminal offenders, victim/offender programs can offer substantial value by developing the following: o An understanding of the impact offenders' crimes have on their victims and communities. o Incentives for personal accountability in the forms of apologies, financial restitution, and community service. o Educational opportunities that can provide positive alternatives to criminal and delinquent activities. Crime and delinquency affect not only the direct and indirect victim. The "domino effect" of any crime, regardless of its severity, increases communities' fears and feelings of vulnerability. Therefore, communities as a whole also stand to benefit from the implementation of victim/offender programs: o In many victim/offender programs, the active involvement of community representatives sends a strong message that crime will not be tolerated and that investment in individual and public safety is a community priority. o Victim/offender programs often provide cost-effective alternatives to more retributive forms of justice. o When victims are provided with positive tools to reconstruct their lives, they are able to function better as contributing members of a community-- a universal benefit that cannot be overlooked. The Implementation of Victim/Offender Programs Victim/offender programs and services are not for everybody. Such programs should not operate in a vacuum but rather be an integral component of system- and community-based services for both victims and offenders. Eleven recommended guidelines for the implementation of victim/offender programs include the following: 1. A clearly stated mission statement that supports goals and objectives, guides program development, focuses on outcomes and possible benefits relevant to victims, offenders, and the community. 2. Leadership from a "change champion" --either an individual or entity who can provide vision and guidance in program implementation. 3. Consistent involvement in program planning and implementation from victims and victim service providers. 4. Structure that clarifies the role of the program within the criminal or juvenile justice system as well its role related to community-based activities. 5. Comprehensive knowledge of research and theory related to victimization, crime, juvenile justice, and offenders to provide a basis for program development. 6. Intensive training and cross-training to establish and clarify program expectations and increase knowledge of professionals and volunteers involved with program planning, development, and evaluation. 7. Written policies, procedures, and protocols to guide planning and implementation. 8. Measures to ensure that victim participation is strictly voluntary, with no perceptions of coercion. 9. Policies and plans that address program evaluation. 10. Understanding of existing victim/ offender programs to facilitate knowledge exchange so as to avoid repeating what has already been done. 11. Written documentation of key program activities (planning, implementation, and evaluation) to facilitate knowledge expansion by exchanging information among victim/offender program practitioners and allied professionals. Examples of Victim/Offender Programs A number of victim/offender programs are being successfully implemented in both institutional and community corrections settings: 1. Community reparation boards, consisting of community members appointed by the Department of Corrections, provide a sentencing option for non-violent offenders to make reparation to victims and the community. Reparative activities include restitution, community work service, mediation/dialogue, cognitive skills development sessions, victim empathy programs, and decision-making programs. 2. Community/neighborhood impact statements provide an opportunity for citizens whose lives are detrimentally affected by crime such as drug- and gang-related illegal activities to inform the court about how such crimes affect their quality of life. 3. Family group conferencing involves the youthful offender and his/her family; the victim and his/her family or designated representative; and a representative of the juvenile justice system. The outcome of family group conferencing is the formulation of a plan that holds offenders accountable, provides victims with input and restitution, and helps offenders learn new skills that will help them to avoid future reoffending. 4. Victim/offender dialogue (also called "mediation") is a structured, voluntary meeting between a victim and offender with a trained facilitator to discuss the impact of the crime, and develop an agreement that attempts to hold the offender accountable and to make amends to the victim, as well as provide the offender with educational opportunities. 5. Restitution to crime victims provides monetary compensation for losses they endured as a result of crime. Restitution can also be made to crime victim compensation programs or victim service agencies. 6. Restorative community service performed by offenders can improve the quality of life for both the community and victims. Examples include work crews that clean graffiti, direct service to the victim if he/she chooses, and improving safety measures (such as locks) for elderly citizens' homes. 7. Community work service programs provide opportunities for offenders to work, develop new skills, and be paid so they can, in turn, fulfill their restitution obligations. 8. Victim awareness education programs/ panels provide an educational opportunity for offenders to learn about how their delinquent and criminal activities detrimentally affect their victims, their communities, their own families, and themselves. Such programs range from 2-hour panels to a structured 40-hour educational program. 9. Victim impact statements allow the victim to tell the court about the psychological, physical and financial impact a crime had on them. Victim impact statements can be delivered in writing, in person, or by audio/videotape, and in measures that are commensurate with the victim's age, cognitive development, ability, and culture. 10. Victim notification of the offender's status keeps the victim apprised of the case status, from arrest through sentence, community corrections, or detention placement. Additional information and resources relevant to this topic can be found in the "Victim/Offender Programs" section of the Promising Practices and Strategies for Victim Services in Corrections notebook. Conclusion This compendium was developed to provide a comprehensive overview of corrections-based victim services. A more indepth examination of the topics contained in this compendium, along with a wide range of resources for promising practices, is provided in the Promising Practices and Strategies for Victim Services in Corrections notebook. Four additional manuals are recommended as resources for professionals who seek to initiate or enhance corrections-based victim services: 1. Promising Practices and Strategies for Victim Services in Probation and Parole published by the American Probation and Parole Association (APPA). 2. National Victim Assistance Academy Curriculum Notebook published by the Victim Assistance Legal Organization (VALOR). 3. Focus on the Future: A Systems Approach to Prosecution and Victim Assistance published by the National Center for Victims of Crime. 4. Helping Victims and Witnesses in the Juvenile Justice System: A Program Handbook published by the U.S. Department of Justice, Office of Juvenile Justice and Delinquency Prevention. In addition, a variety of projects sponsored by OVC, NIC, the Corrections Office, and ASCA are currently in development and address topics including the following: o Responding to workplace violence in correctional settings (training-for-trainers series). o Restorative justice. o Victims of juvenile offenders. o Promising practices and strategies in technology to benefit victims. o Victims of gang violence. Information about these and other valuable resources is available from the U.S. Department of Justice, Office for Victims of Crime Resource Center by calling (800) 627-6872. ------------------------------- For copies of this guide and/or additional information, please contact: Office for Victims of Crime Resource Center (OVCRC) P.O. Box 6000 Rockville, MD 20849-6000 Telephone: 1-800-627-6872 or 301-519-5500 E-mail orders for print publications to puborder@ncjrs.gov E-mail questions to askovc@ncjrs.gov Send your feedback on this service to tellncjrs@ncjrs.gov Refer to publication number: NCJ 166605