THE WOMEN'S PRISON ASSOCIATION110 SECOND AVENUENEW YORK, NEW YORK

A STUDY IN NEGLECT:

A REPORT ON WOMEN PRISONERS

July 15, 1972 - October 15, 1972

REPORT SUBMITTED BY: OMAR HENDRIXFORD FOUNDATIONTRAVEL-STUDY GRANTEE

ACKNOWLEDGEMENTS

The Women's Prison Association is a private, non-profit agency

founded in 1845 to provide direct assistance to women in conflict with

the law. In addition to providing services before and after release

and a residence, the Hopper Home, at 110 Second Avenue, New York,

New York, we also sponsor a court diversion program for women and a

program for the children of women offenders.

We wish to acknowledge with gratitude that the financing of this

study was made possible by a grant from the Ford Foundation. We wish

to thank the many people who responded so enthusiastically to our

national survey. Also we wish to extend our appreciation to Benjamin

Malcolm, Commissioner of the New York City Department of Correction

and to Mrs. Essie Murph, Superintendent of the New York City Correction

Institution for Women, for their cooperation in allowing us to conduct

our local survey, and especially we thank the Correction Aides who

administered the interviews.

The Executive Board of the Women's Prison Association accepts in

principle the recommendations made in this report. Subsequently, we

have decided to launch a public education effort to insure that the

recommendations receive the attention, we feel, they deserve. Only

through the general public's recognition of the problems faced by

women offenders will we begin to have the resources to meet their needs.

Ira S. Robbins, , Mrs, Carolyn Thompson

President Executive Director /Women'8 Prison Association Women's/Prison Association

The Women'8 Prison Association110 Second Avenue

New York, New York 10003(212) 674-1163

FOREWORD 1

INTRODUCTION 4

Survey of New York City

Correction Institution for Women.. 9

National Survey 28

Analysis of National Survey 37Recommendations .*..• .41

FOREWORD

The Executive Officers and staff of the Women's Prison

Association have become Increasingly concerned in the last

few years with the lack of information on female offenders.

Who are they? What crimes do they commit? What happens to

them in court and in prison? And what happens to them when

they are released? It is difficult to find answers for even

these relatively simple questions. Literature on women

prisoners is scarce, and statistics on them are even less ,

reliable than on males. In fact, the President's Commission

on Law Enforcement and Administration of Justice did not

Include a single paragraph or statistic on the female

offender. Characteristically, male officials in the criminal

justice system regard the problems of female offenders as

Insignificant.

In conducting this survey, we often heard officials re-

mark that women represent only a small percentage of the

prison population of this country and that with the limited

financial resources alloted for correction, these resources

must be stretched to meet the needs of the greatest number

of people. We do not deny this unfortunate lack of financial

assistance, but at the same time we feel that such easy

answers often mask a lack of concern for these women. Too,

- 2 -

this convenient ratio does not tell the entire story.

There is evidence to Indicate that children of offenders

often become the next generation's offenders. And when

67 per cent of our sample of interviewees at the Correction

Institution for Women in New York indicate that they have

children, this does not bode well for the future.

Acting on our mandate that we draw attention to the

problems of women prisoners and emphasize their need for

services, the WPA initiated in July, 1972 a study of women

prisoners on both a local and national level. The study

was made possible by a travel-study grant from the Ford

Foundation. This report reflects the findings and con-

clusions of two surveys which were conducted by the travel-

study grantee.

The Introduction is a discussion of trends in female

crime, statistical information on women prisoners, and an

over-view of some of their problems.

Part I gives the results of a survey conducted at the

New York City Correction Institution for Women. This survey

was aimed at developing an inmate profile for that institution.

Part II is the compilation of a national survey, the

result of a mailing to approximately 250 correction institu-

tions and agencies that deal with female offenders.

The surveys were conducted over a three month period,

July, 1972 - October 15, 1972. This was not adequate time

- 3 -

to follow up on many of the questions that were raised,

and with the national survey, did not allow for on-site

visits to confirm the response to questions regarding

programs and services for female offenders. Also we found

that in many States demographic data is not maintained on

the prison population. Still we were encouraged by the

response - approximately one-third of the questionnaires

were returned. Many of the respondents pointed out the

need for such a survey and joined with us in criticizing

the lack of research, and ultimately, the lack of concern

for women prisoners.

We hope that the Information in this report will aid

those institutions and agencies that work with women offend-

ers, and that it will prompt other groups and individuals to

give both their time and resource to improving methods of

assisting these women.

Finally, we hope that this information will be of interest

to those in the criminal justice system - the police, judges,

and correction officials, and that it will improve their know-

ledge of the women who come under their jurisdiction.

- 4 -

INTRODUCTION

I. FEMALE CRIME STATISTICS AND TRENDS

A. Female Crime Doubles in Last Decade

The ratio of male to female arrests for 1970 was

6 to 1. The arrests of women made up 17 per cent of

the serious or Crime Index type offenses. Women were

involved in 19 per cent of all property arrests and

10 per cent of the arrests for violent crimes. While

this data may seem reassuring, a look at long-term

trends changes the picture. Arrests rates for females

have more than doubled in the past decade compared

with the rates for males. Over-all, arrests of women

for violent crimes increased 69 per cent from 1960 to

1970 while the total crime rate for women rose 74 per

cent during that decade. The percentage increase in

the total crime rate for men was 25 per cent. '

B. Rise in Female Crime Related to Female Emancipation

In the absence of reliable data, we have to specu-

late on the reasons for this increase in female crime;

however we can safely suggest that changes in female

criminal behavior result in part from female emanci-

pation and increased overt behavior. It has been

1) Federal Bureau of Investigation, U.S. Department ofJustice, Crime in the U.S., Uniform Crime Reports -1970, Washington, D.C., U.S. Government Printing Office-

- 5 -

asserted that female crime will increase in direct

proportion to the increase in emancipation, and that

as emancipation becomes more evident, the degree of

chivalry on the part of male dominated law enforce-

ment agencies will decline. If we accept this propo-

sition, then we can expect female crime to continue

to increase.

c» Sex-Based Legal Discrimination Continues to Exist

Sex-based legal discrimination continues to exist

at many levels of the criminal justice system. One

of the more pronounced examples of statutory sex-

based differences is Pennsylvania's Muncy Act. it

prescribes different and frequently more severe treat-

ment for females than males for the same crime, other

laws, under which women can be sentenced for longer

terms than men are found in Connecticut, Maryland, Ohio,

2)Massachusetts, and Kansas. Primary among these types

of crime is prostitution in which its definition labels

as criminal the conduct of only the woman.

IIo WOMEN IN THE CORRECTION SYSTEM

A. No Reliable Statistics on Women Prisoners

Of 21,000 federal prisoners, the Federal Bureau of

2) Edith E. Flynn (Assistant Professor of Sociology,University of Illinois, Urbana, Illinois). Paper pre-sented at National Conference on Corrections, December,1971.

- 6 -

Prisons indicates that approximately 1,000 are women.

There are no reliable statistics on the number of

women in State, county, and local institutions; how-

ever one source indicates that of the third of a

million prisoners in the country, 5 per cent are adult

women. This would account for approximately 18,000

women; however we would emphasize the fact that this

figure is only an estimation, and suggest that it is

underestimated since there has never been a compre-

hensive survey done on women in county and local jails.

B. Female Institutions Patterned After Male Institutions

Most women's institutions are patterned after male

facilities. Special requirements for women and necessary

differences in programs are often ignored. In many

State and local correctional agencies, the small number

of female offenders necessitates that they be housed in

a separate wing or a segregated area of a male institution.

This arrangement often leads to total isolation and little

participation in rehabilitation and recreation programs.

Although most correction officials readily agree that

women present less of a security problem during incar-

ceration, the actuality remains that most women's

3) Ben H. Bagdikian, The Shame of the Prisons. WashingtonPost Series, Pocket Book Edition, 1972, p. 82.

- 7 -

institutions are maintained under the same strict,

maximum security measures as in male facilities*

C. Women Prisoners Have Available to Them Fewer Services

While most male institutions have some services In

the areas of education, vocational training, drug

addiction, etc., women's institutions have fewer re-

sources. Often women are included in these programs

as an after-thought with little consideration given to

the special problems of women or their needs on release.

It is difficult to determine the amount of federal crime

control funds that go toward programs for women, but

many people feel that women do not get their propor-

tionate share.

D. Women Prisoners Have Special Problems

Women offenders often carry more burdens than other

women. Our surveys indicate that the vast majority of

female offenders have children, and that they are the

sole means of support for these children. The social

stigma of having been a convicted criminal is greater

for women than for men, making their return to their

family, their community, and to society in general more

difficult. Employment opportunities, limited enough

for male offenders, are even scarcer for women, and job

training programs almost non-existent.

- 8 -

E. The Children of Women Prisoners Present AdditionalProblems

The children of women prisoners often become in-

direct victims. When women are arrested and sent to

prison, little concern is given to the welfare of

their children. In 1971, the WPA initiated the Children

of the Offender Program in an attempt to identify exactly

what happens to these children. Staff members worked

with 123 such children during the first phase of the

program. Of these 123, 93 were public charges, supported

either by public assistance funds or foster care funds.

Eleven are in institutions. Sixteen were born addicted,

three are drug addicts, and eight have already been in

conflict with the law. Although there are agencies

mandated by law to protect the rights of these children,

numerous service gaps exist, and in many cases these

agencies are not aware of the whereabouts of the children,

nor are they cognizant of their special needs.

_ 9 -

PART I

Inmate Profile at NYC Correction Institution for Women

The Mew York City Department of Correction does not

compile detailed demographic information on offenders under

its jurisdiction, therefore in the past, it has been diffi-

cult to identify exactly who the female offenders are in the

New York City area. Estimates have been used, but exact

information on their age, race, educational level, marital

status, criminal record, etc. has not been available.

The questionnaire used in gathering the information in

this survey was developed by WPA and the travel-study grantee.

It was administered by Correction Aides, a new social service

group of employees in the Department of Correction. Approxi-

mately ten Aides participated in this survey. Since we were

interested in determining exactly how female prisoners per-

ceived themselves, the Aides were instructed to record verbatim

the response to the questions. Because of time and the lack

of information, it was not possible to verify the responses.

However, the data was shared with the Superintendent of the

institution and her assessment was that the findings are

consistent with her knowledge.

The NYC Correctional Institution for Women houses women

from all five boroughs of New York. It serves as both a

- 10 -

detention and a short term sentence institution. The popu-

lation ranges around 650 females. On October 21, 1972, the

sentence population was 250 and the detention population

awaiting trial was 383. Women from the New York City area

who are sentenced to over a year are sent to Bedford Hills,

the New York State Institution for Women; however some women

serving consecutive sentences stay longer than the one year.

Our sample involved 158 women* 93 detention, and 65

sentenced. This represents one-fourth of the inmate population.

- 11 -

DEMOGRAPHIC INFORMATION

TABLE 1

Age Group

17-22 yrs .

22-30 y r s .

30-40 yrs .

40 yrs .& Over

NoResponse

TOTAL

Percentage

No. ofFemaleOffend-ers

41

81

22

8

6

158

7.

26

51

14

6

3

ion

ETHNIC

White

3

7

2

1

1

14

9%

Black

32

60

17

4

4

117

74%

P.R.

5

11

2

2

1

21

13%

NoRe-sponse

1

3

1

1

6

4%

EDUCATION

Lessthan10th

7

12

7

4

2

32

20%

10th-12th

25

48

13

4

90

577.

H.S.Equlv.

3

9

3

15

97.

C o l l .

5

12

2

1

20

147.

NoRe-sponse

1

ij

1

MARITAL STATUS

Single

33

F1'f

10

1

89

567.

Marr.

5

26

5

4

1

41

26%

Sep.

2

5

3

3

13

8%

Div.

1

4

1

1

1

8

6%

Wid.

1

2

2

1

6

4%

NoRe-sponse

1

1

RELIGION

Prot.

28

44

13

1

1

87

55%

Cath.

9

14

5

6

3

37

23%

Muslim

1

6

1

8

6%

None

3

17

3

1

2

26

l t t

- 12 -

TABLE 2

Length of Stay for Detainees

1 day - 2 wks.

2 wks. - 1 mo.

1 mo. - 2 mos.

2 mos. - 4 mos.

4 mos. - 6 mos.

6 mos. - 1 yr.

More than 1 yr.

Not Indicated

TOTAL

No. ofWomen

6

7

23

25

11

9

3

9

93

%

6

7

25

27

12

10

3

10

1007.

TABLE 3

Length of Stay for Sentenced Offenders

1 day - 2 wks.

2 wks. - 1 mo.

1 mo. - 2 mos.

2 mos. - 4 mos.

4 D O S . - 6 mos.

6 mos. - 1 yr.

1 yr. or more

Not Indicated

TOTAL

No. ofWomen

3

5

18

3

16

18

2

65

X

0

5

8

27

5

25

27

3

100%

- 13 -

PLACE OF BIRTH

New York (no specificManhattanBrooklynQueensBronxStaten Island

Sub

ArgentinaColumbia, s.A.Jamaica, W.I.MexicoPuerto RicoSt. Thomas, V.I.

AlabamaArizonaCanadaConnecticutFloridaGeorgiaIllinoisLouisianaMarylandNebraskaNorth CarolinaOhioPennsylvaniaSouth CarolinaTennesseeVirginiaWest Virginia

Not IndicatedSub

No. ofWomen

borough) 14569444

Total 88

1111121

31121622116143181

9Total 70

TOTAL 15JL

- 14 -

WOMKH WTTH CHTIARCN

Age Group

17 - 22 yrs.

22 - 30 yrs.

30 - 40 yrs.

40 yrs. & Over

Ho Response

Total

Percentage

No. ofWomen

41

81

22

8

6

158

PWithoutChildren

25

18

5

2

1

51

33%

Pregnant

1

1

WithChildren

16

62

17

6

5

106

67%

iNo. ofChildren

17

114

47

15

6

199

TABU 6

WHERE CHILDREN LIVE

1. With Mother/Grandmother/Family

2. Father

3. Foster Parents

4. Court Custody/Shelter

5. Aunt

6. Godparents

7. Alone

8. Father's Family

9. Not indicated

TOTAL

No. OfChildren

109

16

17

10

15

3

2

21

199

%

55

8

8

5

7

1

4

1

11

100%

- 15 -

WTTH CHTIASSN

Out of 158 women, 106 have children for a total of

199 children. Only one woman in the sample indicated that

she was pregnant; however, the Superintendent indicated

that approximately 20 women in the total population were

usually pregnant.

104 women in the sample indicated that they were the

heads of their households. This number matches with the

106 who have children.

Table 6 indicates where the children of these women

are presently living. This information does not indicate

how many of the children lived with their mothers before

incarceration, nor does it reflect the length of stay at

these locations. Only 8% of the children are in foster

homes; however, some of those children whose mothers

indicated that they lived with "family" might be in

foster homes.

I

- 17 -

ARRESTS AMD COMVICTIOMS

Information on arrests and convictions indicate that

contrary to the prevailing impression women are not going

to prison for prostitution* Only 5% of the sentenced women

indicate a conviction for prostitution. The following table

reflects a listing of previous arrests or convictionst

TABLE 8

# of timesMentioned %

34%22%23%6%14%1%

100%

For those women in detention, crimes against persons

amounted to the highest percentage of arrests. 12 women wer®

detained for homicide, whereas under the sentenced population

there were no convictions for homicide. Presumably women con-

victed for homicide would receive sentences of over a year,

and thus would be sent to Bedford Hills.

Arrests and convictions for drug offenses have been

estimated to be as high as 80% for offenders in the New York

City area. Information here indicates a much smaller percentagei

however, many of the person and property offenses could be drug

related.

PropertyPersonDrugsPublic OrderMoralsOther

52343510222

155

- 18 -

The recidivism rate in New York City has been estimated

to be as high as 75%. Information on women with previous

arrests or convictions substantiate these estimates. In our

sample, 62% of the detained women had previous records. A

certain percentage of the 13% not responding probably have

had previous arrests. 80% of the sentenced women have previous

records.

- 19 -

TABLB 9

SOURCE OF INCOME

Previous Employment Head ofHousehold

Source of IncomeNo. ofFemales Yes No

NotIndi-cated Yes No

Not—Indi-cated

1. Employment 37 23 36 27

2. Welfare 39 25 28 11 26 11

3. None 32 20 18 14 19 13

4. Illegal Activities(Prostitution,Sale of Drugs,Theft)

17 11 10 10

5. Illegal Combinedw/ Welfare

Illegal Combinedw/Employnent

7. Parents/Family

8. Boyfriend

9. No Response 21 13 IS 2 17 4

Total 158 115 40 104 51

Percentage 100* 7396 25* 65% 2%

- 20 -

OF IBCOMB

Here we were interested in finding out how the women

perceived their Beans of livelihood. Although only 2354

indicated that their source of income was employment, the

majority, 73%, said they had been employed. The Super-

intendent indicated that she felt that the 73% figure was

mich too high. Also we did not take into account the length

of employment.

In response to the question, "Do you consider yourself

the head of your particular household?" 65% of the women

answered, yes. This compares with the 67% who have children.

Also, 74% of the women were not married.

- 21 -

Jobs Held

1.2.3.4.5.6.7.8.9.10.11.12.13.14.15.16.17.18.19.20.21.22.23.24.25.26.27.28.29.

ClericalFactoryRestaurant/FoodTelephone Co.SalesBeauticianNurses AidePost OfficeBank Clerk/TellerDog GroomingLaundryIBM KeypunchJewelry PainterLab. WorkerBabysittingX-Ray TechnicianPsychiatric AttendantDomesticBookeeperDrug CounselorChild Care WorkerInsurance Co.UpholstererDieticianDental TechnicianAirline TraineeAmerican Express

3421161197765544223113121111111

Dept. of Social Serv. 1Dept. of Health 1.

TOTAL 153

•These figures indicate thenumber of times these parti"cular Jobs were mentioned •

- 22 -

TABLE 11

Institutional Services

1.2.3.4.5.6.7.8.9.10.11.12.13.14.15.16.17.18.19.20.21.22.23.24.25.

Services

Social ServicesSchoolMedical/DiagnosticCorrection Aide ProgramLegal AideJohn Jay CollegeArts/Crafts/Singing/DancingReligious ServicesFriendly VisitorsJob TrainingLibraryGymHigh School EquivalencyInstitutional JobsCounselingMethadone MaintenanceHarlem ConfrontationDrug Free ProgramVillage HavenSalvation ArmySewingParole CounselingInnate CouncilSecond ChoiceBeauty Culture

18 Did Not Respond25 Answered None

ServicesAvailable

5354273534191520111122861433211191118

ServicesUtilised

32327231215415371123822111141116

7 Answered "All Services Available"

- 23 -

INSTITUTIOHAL 8EMV1CB8

In this table, services available reflect the woaen's

perception of services and prograas that exist in the

institutionf services utilized indicate their participation

in these prograas. The figures indicate the nuaber of tiaes

these services or prograas were aentloned. The survey and

on-site visits by the travel-study grantee attest to the fact

that there is no dearth of prograas at the NYCCCIPW; however,

an assessaent leads us to conclude that these services are

poorly coordinated and often duplicate one another. This has

resulted froa an Influx over the last few years of a nuaber

of coaaunity groups Involved in carrying out prograas in the

institution, a developaent which should be encouraged; however

over-all coordination of these groups and other services should

be a priority of the Department of Correction to insure that

the greatest nuaber of woaen are served.

- 24 -

TABLE 12

Institutional Services Needed

1.2.3.4.5.6.7.8.9.

10.11.12.13.14.15.16.17.18.19.

20.21.22.23.24.25.26.27.28.29.30.31.

NoneJob TrainingBetter Medical ServicesBetter Education ServicesMore Counseling/TherapyMore Correction AidesMore OfficersBetter RecreationBetter FoodBetter ClothesPost Release ServicesArts/CraftsMore Legal AssistanceMore Social Service StaffWork Release ProgramBetter Social ServiceOpen VisitsOrientation to Prison LivingBetter Understanding Between Officers &

InmatesBetter Mail ServiceTelephones on FloorsBetter Dental ServicesMagazines/NewspapersReligious ServicesBetter Court ProceduresMore Drug ProgramsMusic AppreciationHigh School EquivalencyDances for Males & FemalesMore Friendly VisitorsAll Services Needed

92718478668532321411

1111121112116

- 25 -

INSTITUTIONAL SERVICES NEEDED

Table 11 reflects a broad range of services and

programs which the women feel are lacking in the insti-

tution. The figures represent the number of times these

services were mentioned. The need for more job training

was mentioned most often, and it should be noted that job

training programs available to the women are limited. There

are sewing classes, some typing, and institutional jobs in

which women might indirectly learn a skill, but by no means

is there a comprehensive program to train women to become

useful and productive members of the community once they're

released.

Only one woman mentioned work release. Legally a work

release program is permissible in New York City; however,,

at this time only one woman out of the entire population

participates in the program.

- 26 -

TABU 13

Services Heeded On Release

1. Welfare

2. Jobs

3. Hotasing

4, Financial Assistance

5. Rehabi11tatlon/S.S./Therapy

6. Drug Free Program

7, Mftthadone Maintenance Program

8. School/&igh School Equivalency

9. Child Care

10. Clothing

11. Medical Services

12. Legal Assistance to Get Children Back

13. All Services

TOTAL

No. of TinesMentioned

58

66

27

10

18

10

11

10

2

7

3

2

2

226

%

26

29

12

4

9

4

5

4

1

3

1

1

1

100*

13 Answered "None"16 Did Not Respond

- 27 -

Table 13 clearly indicates that "correction" or

concern for these women cannot end at the point of

release» After having been dependent upon the institu-

tion for their needs, with little preparation for re-entry

into the free community, they are faced now with difficult

decisions and, as their responses indicate, a wide range

of problems. These problems must be dealt with by the

institution before the women are released; otherwise we

can expect them to remain statistics in future studies of

female crime.

Again, jobs are indicated as the greatest need. Con-

sequently, because jobs are not available, welfare is chosen

as the only remaining alternative. 12% of the women require

housing and another 9% mention their need for a drug free

treatment program or a methadone Maintenance program.

The agencies providing these services must be involved

prior to the release of the women. Follow-up cannot be

left to the obvious inadequacies of a referral slip. When

the women are released a caseworker, or job developer, or

drug counselor should be present to see that the women

receive the services they require.

- 28 -

PART II

National Survey of Women Prisoners

The questionnaire used in conducting this survey was

developed by WPA and the travel-study grantee. The sailing

included approxiaately 135 correction institutions, federal.

State, county, and municipal} 40 halfway houses; and approxi-

aately 70 private agencies and interested individuals.

Responses were received on approxiaately one-third of

the questionnairest

State Institutions - 24

County and City - 26Private Agencies - 8Other-No statistics - 28

We were encouraged by the number of responses and con-

vinced that this indicates the severe lack of Information on

women offenders. This suggests that those in the field need

more reliable data in order to carry out their work.

Primarily we were interested in developing a demographic

profile of women prisoners. In addition we posed questions

on programs and services and encouraged the respondents to

discuss the unmet needs of women prisoners in their particular

area. Most of the institutions indicated that a range of

services were provided - educational, vocational training,

counseling, medical - however, for us to develop a reliable

picture of these ^ervices, we feel that on-site visits would

- 29 -

have to be made to assess such variables as time, staff

allotted, and the number of women who participate in the

services.

The majority of institutions and agencies maintain

at least some demographic data on women offenders; however

approximately one-half of the respondents recorded only

partial data or gave estimates. Still we were able to

compile sufficient data for each category to indicate, what

we think, is a reliable picture of women prisoners in the

country.

The data from this survey is presented in three parts:

Table 1 - State Institutions

Table 2 - County and City Institutionsand Community Based Facilities

Table 3 - Private Agencies

Table 4 - Gives the totals of the 3 Groupsand Percentages for the data ineach category.

On a few of the questionnaires, the number of female

prisoners served is calculated on a yearly basis.

- 30 -

TABLE

STATE INSTITUTIONS

State

ColoradoConnecticutHawaiiIdaho (contractswith Oregon)IndianaKentuckyMichigan (con-tracts w/City of De

! MinnesotaMissouri

| Montana (contractswith Nebraska^

I NebraskaNew JerseyNew MexicoNew YorkNo. CarolinaNo. Dakota (con-tracts w/Nebraska)OregonPennsylvania

i So. Carolinaj So. Dakota: Texas1 Utah! Virginia> Wyoming (con-1 tracts with Nebrasli TOTALS

No., ofFemaleOffenders

751705

11151110

troit)5591

6025023330373

761601508

60311245

a)2,957

Felons

75935

1192110

5591

59

23265238

761521508

603

192

2r2?8

Misd.

?5

59

1

65135

8

53

346

Pre-trial

51

51

ETHNIC

White

3765

118277

4155

34759

119132

5783443

2067

105

1,242

Black

28102

6933

1039

211753

211237

1072106

^ 3251

L 140

1.422

P/R

3

1

3

7

Mex.Am.

9

11

3

721

96

Other

1

5

4

5

5

4

6

5

2

32*

AGE

17-22

1359

13*024

1114

24472

113108

513321

64275

22-30

3459

55735

2235

2613317109122

3454505

254784

1.137

30-40

18425

23523

1817

64726577

2748152

1501

53

653

40 &Over

1010

.32923

| 4_25

42324366

111950

81132

436

*27 - Indian5 - Hawaiian

(cont'd)

- 31 -

TABLE 1 (continued)

STATE INSTITUTIONS

State

ColoradoConnecticutHawaiiIdaho (contractsw/Oregon)IndianaKentuckyMichigan (contractMinnesota

MARITAL STATUS

Single

161192

3037

3 with C26

Missouri i 25Montana ^contractsNebraskaNew JerseyNew MexicoNew YorkNo. Carolina

with Ne20

7180138

No. Dakota (contracts withOregon 14PennsylvaniaSo. CarolinaSo. DakotaTexas

53334

133Utah • 3Virginia • 74Wvoming (contracts with Ke

TOTALS ; 914

Marr. Sep.

28 ' 1217 17

3

4 i3722

ity of1126

>raska)19

104272

Nebras155339O4-

198273

>raska)670

Div.

1514

325 • 4518 • 16

Detroit4 1011 \ 18

10

3

9

173 1880 48

ca)1 ' 34

! 5432177156

1 I111416

424 417

Wid.

43

4147

111

2

21753

13

23

311

26

212

«

EDUCATION

less10th

411331

25547

942

16

5143206

'H.S.10-12 JEquiv.

15 ; 19354

83941

3134

26

3^123I 145

11 ; 1096 401052

5243

125

1,566

42324580

708

2 yrs.Coll.

1(

1466

108

14

1159

4822

381

28

284

10

36

4

4

17

Degree

1

12

1

51

72

1

3

4 11

59 15 _.

\

i

CHILDREN

With |

571022

911975

3960

33

15207

• 28: ' 80,1184

;440: 6

i _ . ....

•1,393

Without

18683

23221

1631

27

8123

4880324

1635_ . . __

681

TABLE 2- 32 -

COUNTY & CITY JAILS

i

' ALASKA' Juneau1 XetchikanI ARIZONAI Marieopa Co. (Phoenix)j CALIFORNIA! Los Angeles (*C.BoF.)| San Diego (Work Furlough)] Contra Costa Co. (Martinez)! Santa Clara Co. (San Jose)1 Los Angeles Co. (Sheriff's Dept.)j Vocare (*C.B.F. - Oakland)i California Rehab. (Patton)j COLORADOi Denver Co. Jail (Denver)i FLORIDA[ Dade Co. (Miami)• MICHIGAN

DetroitMISSOURI

; (*C.B.F.'•••- Kansas City)

1 NEW JERSEY] Essex Co (Newark): Essex Co. (Caldwell). NEW YORK; Erie Co. (Alden)

Nassau Co. (East Meadow), PENNSYLVANIAi Simpson Village (*C.B.F. - Phila.)! VIRGINIA

Richmond City• WASHINGTON

Pioneer Cooperative (*C.B.F. - Seattle;Seattle City Jail

! TOTALS

No..ofFemaleOffen.

395

30

25182193756500185

30

70

271

2

4253

7828

25

37 i

2434

2,390

Felons

212

22

20

37

500

42

224

2

3718

7822

21

1817

1,072

Misd.

183

8

7

16

28

47

535

6

16

617

544

Pre-Trial

2140

ETHNIC

Wht.

116

20

19101460

200114

12

21

106

1

17

1910

7

7

1318

676

Blk.

1

2

46410

20037

9

35

159

P/R

1

11

4145

5816

18

30

1011

6S7

1

1

3

Mex.Am.

3

2

120

5030

8

4

118

Other

179

5

21

10

504

1

14

2

11

15

**177

AGE

17-22

28

7

1610

12812528

12

44

59

1

179

188

25

11

613

556

22-30

331

12

1477

415250148

9

18

144

1

1815

2912

12

1515

1,175

30-40

28

7

832

1381259

6

6

55

211

126

10

14

433

40 &Over

8

4

2

I75

3

2

24

518

192

4

CM

CN

174

*C.B.F. - Community Based Facility **931470

IndianCubanOther (cont'd)

TABLE 2 (continued) - 33 -

COUNTY & CITY JAILS

ALASKAJuneauKetchikan

ARIZONAMaricolpa Co. (Phoenix)

CALIFORNIAI Los Angeles (*C.B.F.)

Contra Costa Co. (Martinez)Vocare (*C.B.F. - Oakland)California Rehab. (Patton)

COLORADODenver Co. Jail (Denver)

; FLORIDA; Dade Cn. (MiamilMICHIGAN

DetroitMISSOURI

! (*C.B.F. - Kansas City)1 NEW JERSEY

Essex Co. (Newark)Essex Co. (Caldwell)

NEW YORKErie Co. (Alden)Nassau Co. (East Meadow)

PENNSYLVANIASimpson Village (*C.B.F. - Phila.)

VIRGINIARichmond City

WASHINGTONPioneer Cooperative (*C.B.F.-Seattle)Seattle City Jail

TOTALS

MARITAL STATUS

Single

133

8

58

2533

3

27

110

1

3021

3612

25

18

622

424

Marr.

38

5

135

10059

6

13

61

611

268

10

35

369

Sep.

11

2

530087

9

12

45

1

513

102

6

51

505

Div.

122

8

62

50

9

10

50

1

46

3

95

186

Wid.

1

7

11

256

3

8

16

1, 8

2

11

81

EDUCATION

Less10th

140

8

2

5097

1

30

46

1

614

138

10

12

4

343

10-12

10

19

19

40086

15

24

180

1

2122

358

13

19

2113

888

HOS.Equiv.

244

1

2

25

9

13

47

1113

2610

2

6

9

220

2 yrs.Coll.

1

2

1

252

4

2

5

44

42

27

65

Degree

1

1

1

11

5

CHILDREN

With

21

20

148

18

51

2

3143

20

6

25

1717

420

W/Out

2

9

5

37

12

19

1110

8

19

12

717

168

*C.B.F. - Community Based Facility

- 34 -

TABLE 3

PRIVATE AGENCIES

Jewish Family Service (Philadelphia)

Delaware Council on Crime & Justice(Wilmington)

Jewish Family Service (New York)

Argus Community (New York)

Magdala Foundation (St. Louis)

The Osborne Assoc. (N.Y. City)

Bureau of Rehab, of Nat'l. Capital Area(Washington,D.C.)

Heartline (Detroit, Michigan)

TOTALS

No. ofFemaleOffen.

20

12

4

14

120

13

211

55

449

Felons

1

2

4

8

114

5

29

163

Misd.

19

10

6

6

8

26

75

Pre-Trial

ETHNIC

Wht.

17

1

4

48

2

22

28

122

Blk.

2

8

9

72

7

188

21

307

P/R

1

5

4

10

Mex.Am. Other

1

6

7

AGE

17-22

3

2

8

4

39

30

86

22-30

8

6

1

5

7

108

18

153

30-40

8

2

2

1

1

38

5

57

40 &Over

1

1

1

26

2

31

(cont'd)

- 35 -

TABLE 3 (cont inued)

PRIVATE AGENCIES

Jewish Family Service (Philadelphia)

Delaware Council on Crime & Justice(Wilmington)

Jewish Family Service (New York)

Argus Community (New York)

The Osborne Assoc. (N.Y. City)

Heartline (Detroit, Michigan)

TOTALS

MARITAL STATUS

Single

8

3

7

7

34

59

Marr.

7

3

3

5

4

22

Sep.

2

4

3

1

10

20

Div.

2

2

6

10

Wid.

1

2

1

4

EDUCATION

Less10th

1

10

4

8

31

54

10-12

8

9

3

20

40

H.S.Equiv.

7

2

2

3

14

2 yrs.Coll.

4

1

5

Degree

1

1

2

CHILDREN

With

2

9

4

5

28

48

W/Out

18

1

8

27

53

- 36 -

TABLE 4

TABLE TOTALS

STATE INSTITUTIONS(Table 1)

COUNTY & CITY JAILS(Table 2)

PRIVATE AGENCIES

(Table 3)

TOTALS

PERCENTAGES

No. ofFemaleOffen.

2,957

2,390

449

5,796

100%

Felons

2,298

1,072

163

3,533

78%

Misd.

346

544

75

965

21%

Pre-Trial

51

51

1%

ETHNIC

White

1,242

676

122

2,040

42%

Black

1,422

697

307

2,426

49%

P/R

7

. 3

10

20

1%

Mex.Am. j

96

118

214

4%

Other

32

117

7

216

4%

AGE

17-22

638

556

86

1,280

23%

22-30

1,137

1,175

153

2,465

45%

30-40

653

433

57

1,143

21%

40 &Over

436

1

174

31

641

11%

STATE INSTITUTIONS(Table 1)

COUNTY & CITY JAILS(Table 2)

PRIVATE AGENCIES(Table 3)

TOTALS

PISCENTAGES

MARITAL STATUS

Single

914

424

59

1,397

31%

Marr.

670

369

22

1,061

2 4 % •-

Sep.

4?4

505

20

1,059

23%

Div.

417

186

10

613

14%

Wid.

212

81

4

293

8%

EDUCATION

Less10th

1,566

343

54

1,963

46%

10-12

708

888

40

1,636

38%

H.S.Equiv.

284

220

14

518

12%

2 yrs.Coll.

59

65

5

129

3%

Degree

15

5

2

22

1%

CHILDREN

With

1,393

420

48

1,861

67%

W/Out

681

168

53

902

33%

- 37 -

ANALYSIS OF NATIONAL SURVEY

A. Number of Women Prisoners Perhaps Underestimated

In our survey we've accounted for 5,796 women. In

addition, the Bureau of Prisons responded to our question-

naire by indicating that approximately 1,000 women were in

the federal system but gave no demographic data on these

women. Together, these would account for approximately

7,000 women.

A reliable figure on the exact number of women prisoners

in the country is non-existent. One source estimates that of

the one-third million prisoners, 5% are women. This would

be approximately 16,670 women. Since we have accounted for

approximately 7,000 through the response to our limited

mailing, we would suggest that the 5% figure is underesti-

mated. Consequently, we suggest the need for a much more

extensive survey that would attempt to account for the women

detained in county and local jails.

B. Analysis of Demographic Data

Many of the respondents supplied incomplete data, thus

totals vary for each category, but the information lends

itself to the following conclusions:

a. Although specific information on the nature of

their crime is not available, 78% of the women

are charged with felonies. This supports the

- 38 -

national trend toward more serious offenses

for female offenders.

b. 42% of the women are white, a figure which

certainly suggests that female crime is

not a racial issue as is so often asserted

in discussions of criminal trends.

c. 45% of the women fall within the 22-30 age

group. 51% of our sample in the New York

City survey fell within this age group.

d. Likewise, only 24% of the women are married,

compared with 26% for Mew York City.

e. A sharp difference is found in the education

level. In the national survey, 46% of the

women have less than a 10th grade education,

whereas in New York City, only 20% fall

within this range.

f. In both surveys, 67% of the women have

children, a fact which suggests the magni-

tude of the problems that are facing most

of these women. Also, the question of what

happens to these children becomes even more

critical.

- 39 -

c. Nature and Location of Prisons for Women

Most States have a single institution for women prisoners,

a fact which suggests several problems. The institutions

usually are located in rural areas which means that visits

from family and children are difficult. Also there are

fewer resources for Schooling, work-release, and specialized

training.

Several of the States — five out of our sample of 24 —•

contract with nearby States for the imprisonment of their

female prisoners. This means that contact with family and

children becomes even more remote. For these States with

small numbers of women prisoners, the question of community

based correction presents itself. Why can't these States

sponsor a small facility which would house the women near

their families and lend itself to improved programs for

job training, individual counseling, and schooling.

D. Need for Improved Programs

Most of the respondents indicated a range of institutional

programs and services; however the nature of these programs

for the most part revolved around sewing, cooking, and beauty

culture. In sharp contrast with this situation is the over-

whelming response that jobs and job training represent the

greatest unmet needs of the women. This disparity in services

to the women and what their needs are remained a consistent

- 40 -

pattern in most of the responses. Certainly, there is no

need to question that the means of making a livelihood is

the single most critical problem facing these women. The

fact that the majority have children and are not married

supports this conclusion.

On the other hand/ there were a few examples of insti-

tutions permitting school release, work-release, and weekend

furloughs to visit family or childrena These special pro-

grams should be assessed in more detail and consideration

given to duplicating these programs in other parts of the

country.

- 41 -

RECOMMENDATIONS

A. Record Keeping Procedures on Women Prisoners Needto be Revised

Police, courts, and correction agencies should

revise their record keeping procedures to include case

history and demographic information on women offenders.

Annual reports should reflect information about the nature

and trends of female crime« Given the paucity of reliable

data on women offenders, it is critical that a thorough,

on-going statistical survey be continued. In conjunction

with this, a comprehensive evaluation of institutional and

post-release programs for female offenders should be under-

taken to insure that new programs are designed to meet their

needs„

B. Improved Methods of Treatment are Needed to ReduceRecidivism

Since female crime is increasing, an all-out effort

should be made to reduce the recidivism rate before the

female prison population becomes even greater. Compared

with male offenders, the number of female prisoners is still

relatively small, and thus conducive to new methods of

treatment. Intensified rehabilitative efforts aimed at this

smaller group may well lead to improved methods which would

benefit the entire prison population.

- 42 -

C. First Priority Should Be Jobs and Job Training

Host women prisoners are left to their own re-

sources to make a living, thus the first priority is to

provide job training opportunities for these women. In

both surveys covered in this report, job training and jobs

were identified as the greatest need. Further it is meaning-

less to talk of reducing the recidivism rate when many of

these women come out of prison without jobs. The business

community and other potential employers should be alerted

to this problem and, through a concerted public education

program, mobilized to provide training and jobs.

D. Expansion of Diversionary Treatment Programs

Diversionary treatment programs for women should be

expanded. Imprisonment should be imposed only in the instances

when it is absolutely necessary for the protection of the

community. The high rate of recidivism attests to the fact

that prisons do not deter, nor do they rehabilitate. Thus

alternatives must be found. Supervised diversion whereby

women can maintain contact with their children and family

and receive counseling, job training, job placement, medical

assistance, and other services is an important step toward

providing the individual treatment which institutions, for

one reason or another, cannot provide.

- 43 -

E. More Emphasis on Community-Based Correction

A program of community-based correction, using small

facilities which can provide a diversity of programs and a

recognition of Individual needs, should be pursued. This

effort must be coupled with a community education program

which will assist the citizens and the institutions of that

community to be more responsive to the needs of the women

offenders.

F. Expansion of Work-Release and School-"Release

Women who are incarcerated should have available

to them work-release and school-release programs. Also,

furloughs on holidays and other special occasions, for

exemplary behavior, should be permitted.

G. More Attention Should Be Given to the Children ofWomen Offenders

The children of offenders remain the hidden victims

of a criminal life style„ Public officials, agencies which

are mandated to represent these children, and the general

public must be alerted to their problems and more concern

shown for their well-being. Private agencies which sponsor

child advocacy programs should be encouraged to include

these children as a top priority in their advocacy efforts.

- 44 -

H. Abolish Sex-Based Discrimination in the CriminalJustice System

Statutory provisions which violate equal treatment

guaranteed by law and disparity of sentencing due to sex-

based discriminatory practices must be abolished.

I. Need for Public Education Program to Emphasize Problems

It is unrealistic to expect that these recommenda-

tions, along with others that have been made in recent years,

will receive the proper attention without the support of the

general public. Thus it is crucial that the various groups,

both private and public, form a closer working relationship

and endeavor to win support for reform and alternative means

of assisting female offenders. This would facilitate an

exchange of information and experience, but more important

such a coalition could serve as a lobby representing women

prisoners.

***

STATE INSTITUTIONS - Addendum

ETHNIC AGE

State # ofF.O. Felons Misd.

Pre-trial White Black P/R

Kex. 17- 22- 30- 40-&Amer. Other 22 30 40 Over

Arizona

Arkansas

California

Delaware

Florida

Iowa

Maine

Maryland

Massachusetts

Ohio

Tennessee

Vermont

West Virginia

Totals

40

45

580

360

401

59

17

120

112

2 74

120

7

31

4045

580

65

401

59

7

48

94

273

120

31

259

10

72

18

1

2217

321

108

148

38

17

36

105

66

13

28

182

252

253

16

84

169

53

24

54 23

8

12

8

130

143

16

7

24

44

79

18

20

12

267

198

129

30

8

72

34

106

42

57

178

18

73

8

2

12

13

54

36

714

127

14

56

5

12

21

39

24

8 8

2 , 1 6 6 1 , 7 6 3 36~0~ 804 1,057 58 31 495 927 414 327

STATE INSTITUTIONS - Andpndum

State

Arizona

Arkansas

California

Delaware

Florida

Iowa

Maine

Maryland

Massachusetts

Ohio

Tennessee

Vermont

West Virginia

Totals

Single

13

12

144

188

23

8

60

55

95

6

5

609

MARITAL

Marr.

18

10

126

98

7

2

36

20

137

30

10

494

STATUS

Sep.

5

54

58

10

7

12

16

42

2

199

Div.

7

10

36

38

10

6

16

36

4

170

Wid.

2

8

19

3

6

5

6

10

59

Lessthan

16

16

406

306

217

19

9

84

46

99

72

12

1.302

EDUCATION10-

10th 12

19

24

124

36

103

29

5

30

58

42

23

13

506

H.S.Equiv.

4

18

3

2

59

16

6

108

2 yrs.Coll.

2

1

7

1

6

8

3

9

37

Degree

1

2

3

CHILDREN

with

2

31

234

266

36

5

178

102

21

875

with-out

38

14

126

135

23

-. 1 2

54

18

10

430