CIC | DC Corrections Information Council...Washington: Federal Bureau of Prisons, May 2015...

CIC|DCCorrectionsInformationCouncil

290114thStreet,NW,GroundFloor,WashingtonDC20009|202.478.9211|dc.cic@dc.gov|www.cic.dc.gov

September7,2016

To: StefanieSkroch,ContractingOfficerFederalBureauofPrisons(FBOP)

From: DCCorrectionsInformationCouncilRE: RFP-200-1270-ESforResidentialReentryCenterandHomeConfinementServices TheCICisanindependentmonitoringbodymandatedtoinspect,monitor,andreportontheconditionsofconfinementatfacilitieswhereDCresidentsareincarcerated.InNovember2012,afterhearingmanyconcernsaboutHopeVillagefromDistrictleaders,communitymembers,andreturningresidents,theCICconductedaninspectionofthefacility,andinMay2013itpublishedareportofitsfindings.TheCICcontinuestomonitorHopeVillage’scurrentpracticesandtheirimpactonreturningmenthroughinterviewswithcurrentandformerresidentsandserviceproviderswhointeractwiththefacilitystaffandresidents.Thissummer,legalandundergraduateinterns,underthesupervisionofProgramAnalystLashoniaThompson-El,conductedresearch,interviews,andsitevisitspertainingtoFBOP’srecentrequestforproposalsforamaleresidentialreentrycenter(RRC)intheDCarea.ItisourhopethattheinformationprovidedinthismemorandumwillassistBOPasitconsiderspendingFBOPRRCproposals.

ProposedLocations

Atpresent,HopeVillageistheBOP-contractedmaleResidentialReentryCenter(RRC-alsoknownasahalfwayhouse)inWashington,DC,withtwocontractsthatexpirein2016and2017.1TheFBOPissuedarequestforproposalsfromJanuary11,2016untilApril26,2016foramaleRRCproviderwithatleast300bedsand150spacesforhomeconfinement.2Potentialprovidersmustagreetofollowthe2015StatementofWork(SOW)andmeettheminimumguidelinessetforthbytheFBOPandtakeintoaccountlocalconcernsofconstituents.ThroughcommunityinteractiontheCIClearnedaboutfour

1 See “Final CIC Hope Village Report May 24, 2013.” DC Corrections Information Council, 24 May 2013. Web. 18 July 2016 <http://cic.dc.gov/sites/default/files/dc/sites/cic/publication/attachments/FINALCICHopeVillageReport052413.pdf> 2 See “Residential Reentry Center Services and Home Confinement Services within the counties of Prince Georges County and/or Montgomery County, Maryland; and/or Arlington County and/or Fairfax County, Virginia; and/or the District of Columbia (DC).” Department of Justice, Bureau of Prisons, Solicitation: RFP-200-1270-ES. Fed Biz Opps. 22 Oct. 2015. Web. 18 July 2016. <https://www.fbo.gov/index?s=opportunity&mode=form&id=630b96440b11bf2ca506503422a1c736&tab=core&_cview=1>

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proposalsfromvariouscorporationsincludingHopeVillage,whoareseekingtoobtainthecontractwiththeFBOPtoprovideRRCplacementfortheDistrict’sreturningmen.

475SchoolStreetSW

GEOReentry,Inc.hasproposedalocationat475SchoolStreetSW.3Thelocationcurrentlyfeaturesafive-floorofficebuilding.Thelocationis226feetfromtheWashingtonGlobalPublicCharterSchooland0.3milesfromtheFederalCenterSWmetrostation.

810PotomacAvenueSE

CoreDChasproposedalocationat810PotomacAvenueSE.4CICstaffspokewithasecurityguardondutythatconfirmedtheproposal.Thelocationis476feetfromtheEagleAcademyPublicCharterSchoolandclosetothe92and96busroutes.

*GoogleMaps

81014thStreetNE

Athirdproposedlocationislocatedat81014thStreetNE.Previously,thislocationservedasaRRCExtendedHouse.ThislocationisontheX1,X2,andX9busroutes.

*GoogleMaps

3 See “The Federal Bureau of Prisons has initiated a proposal to put in a 300 Bed Male Prison Halfway house 200ft. away from the Washington Global Middle School.” Prince of Petworth. Popville. 23 May 2016. Web. 18 July, 2016. <http://www.popville.com/2016/05/federal-bureau-of-prisons-sw-dc/> 4 See “Criticisms Abound for Plans for Halfway House in Lower Barracks Row.” Michelle Goldchain. DC Curbed. 23 May, 2016. Web. 18 July 2016. <http://dc.curbed.com/2016/5/23/11745848/halfway-house-barracks-row>

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2844LangstonPlaceS.E.

ThecurrentRRCprovider,HopeVillageisaproposedlocationforthenewmaleresidentialreentrycentercontract.HopeVillageislocatedinWard8incloseproximitytoCongressHeightsMetroStation.HopeVillageisalsonearTheMayor’sOfficeonReturningCitizenAffairsandUnityHealthCenter,bothofwhichprovidesubstantialsupportservicestoreturningmen

andwomen.HopeVillageisalsoinahighcrimearea.

CICstaffmemberscontinuetobeincontactwithHopeVillagestaff,residents,communityadvocates,andserviceproviders.TheCIChaslearnedoftheconstructionofaRocketshipElementarySchoolcampus36feetfromHopeVillage,whichissettoopenitsdoorsinFall2016.

DCMunicipalZoningRegulations

Under11DCMR§199,residentialhalfwayhouses,convalescenthomes,socialservicecenters,andother“residentialfacilitiesforpersonswithacommonneedfortreatment,rehabilitation,assistance,orsupervisionintheirdailyliving,”areconsideredcommunity-basedresidentialfacilities.

ThethreepotentialsitesarecommercialdistrictsinWard6andarezonedC-3-CorC-3-A.5Under11DCMR§741.5(c),community-basedresidentialfacilitiesshallbepermittedinaC-3districtasamatterofright.OverlayzonesintheareaareHStreetOverlayDistrict(HS-A)andEighthStreetSoutheastNeighborhoodCommercialOverlayDistricts(ES).6Neitheroverlayzoneexplicitlyforbidscommunity-basedresidentialfacilities.7

WhileplacementnearaneducationalinstitutionisnotforbiddenunderDCMunicipalRegulations,theMayormustgiveatleast60dayswrittennoticetotheDCBoardofEducationorthegoverningbodyofaprivateschooloftheproposedestablishmentofacorrectionalfacilityorhalfwayhousetobelocatedwithin400feetofaschoolinDC.8Additionally,theMayorisrequiredtogivegreatweighttowrittencommentsoftheDCBoardofEducationwithregardstotheestablishmentorcurrentoperationofacorrectionalfacilityorhalfwayhousewithin400feetofaDCpublicschool.9

5 See “D.C. Office of Zoning, Interactive D.C. Zoning Map” DC Office of Zoning. Web. 18 July 2016. <http://maps.dcoz.dc.gov/> 6 Ibid. 7 11 DCMR § 1309, 1320-26 8 DC Code §38-3201 9 Ibid.

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LocalConcernsCommunityoppositionincludesaletterwrittenonApril29,2016fromCouncilmanCharlesAllen(Ward6)toStephanieSkroch,theContractingOfficerfortheFederalBureauofPrisons,regardinghisdisapprovalofGEOReentry,Inc.’sproposalsubmissionforthepropertyat475SchoolStreet.10CouncilmanAllenstated,“Thisproposalisincompatiblewiththesurroundingneighborhood,anditsimmediateproximitytoWashingtonGlobalPublicCharterSchool...wouldbeparticularlyinconsistentwiththeneedsofthatlocation.”Hecontinuedtosaythat,“[I]tremainsunclearwhetherthisuseisallowedundercurrentDCZoningRegulations.”CouncilmanAllenisjoinedinoppositionwiththeANC6(AdvisoryNeighborhoodCommission)andMetropolitanPoliceDepartmentCommanderforthearea.Similarconcernshavealsobeenraisedagainstaproposalat810PotomacAvenueSEregardingitsproximitytoRichardWrightPublicCharterSchool,allowanceunderzoningregulations,andlackofsupportresources.11

StatementofWork(SOW)

TheFBOPrequirestheproposedhalfwayhousesitestocomplywiththecurrentStatementofWork(SOW)12.ThecurrentStatementofWorkwhichoutlinespoliciesandprocedureforRRCproviderscouldaddresssomeoftheconcernsmentionedinthe2013CICReportonHopeVillageandbymorerecentresidentsofHopeVillage13Currently,HopeVillageisnotgovernedbythisSOW;however,ifHopeVillageisawardedthependingRRCcontract,itwillbe.Below,theCICreportsoninformationobtainedfromresidentsandserviceprovidersaboutimportantissuesofconcerntocurrentRRCresidents.

CommunityRelations

TheStatementofWorkplacesanemphasisonCommunityRelationsstating,“itisextremelyimportantandvitaltodevelopandmaintainpositivecommunityrelations”.14Thefacilityisrequiredtoprovidewrittenpolicyandproceduresthatofferongoing,positivecommunicationbetweenthefacility,localcommunity,electedofficials,lawenforcement,andcitizens.ThefacilityisrequiredtodescribetheapproachtoeducatingthecommunityaboutthegoalsandmissionoftheRRC.Theyarealsoresponsibleformaintainingthesupportofthecommunity.TheRRCprovidertheFBOPchoosesshouldmakeitaprioritytoinformandengagethecommunityregardingitsactivities.

10 See “Opposition Letter CM Allen” Popville. Web. 18 July 2016.<http://www.popville.com/wp-content/uploads/2016/05/475School_Oppo_Ltr_CM_Allen_Final.pdf> 11 See “Rehab Center Proposes 300 Bed Facility for Lower Barracks Neighborhood.” Larry Janezich. Capitol Hill Corner. 22 May 2016. Web. 18 July 2016. <https://capitolhillcorner.org/page/2/> 12United States. Federal Bureau of Prisons. Residential Reentry Management Branch. Residential Reentry Center Statement of Work. Washington: Federal Bureau of Prisons, May 2015 (Corrected).13 See “Final CIC Hope Village Report May 24, 2013.” DC Corrections Information Council, 24 May 2013. Web. 18 July 2016 <http://cic.dc.gov/sites/default/files/dc/sites/cic/publication/attachments/FINALCICHopeVillageReport052413.pdf> 14 Residential Reentry Center Statement of Work, page 9.

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StaffandProgramming

TheStatementofWorkalsohighlightstheimportanceoftheroleofstaffandprogramming.TheSOWstates,“ThecontractorwillclearlyidentifyintheIndividualizedProgramPlan(IPP)howtheywillprioritizeandassisttheoffenderinaddressingelementsoftheIPP,andincludespecificprogramactivitiesandatimetableforachievementofthesegoals.”15CurrentandformerHopeVillageresidentsmentionedthattheprogrammingwasnothelpful.AcurrentHopeVillageresidentstatedthathewasrequiredtocompletea12-hourlifeskillscoursebutthatthecoursewasneitherhelpfulnorinformative.Theonlybenefitofthecoursewasthat,aftercompletingthecourse,theresidentcouldbeginsearchingforemployment.Inthe2013reporttheCICrecommendedthatHopeVillageuseexpertconsultantstofacilitatejobreadiness,andtransitionalplanningcoursesinanefforttosupplementthelackofeffectiveprogramming.16ThecurrentHopeVillageresidentalsocommentedthatwhileHopeVillagedoeshaveaGEDclasstwiceaweek,onlyGEDstudentsmayusethecomputersonsite.TheGEDstudentsmayonlyusethecomputersforGEDpreparation.ComputerandInternetaccessarenotavailableatHopeVillageforresidentstoconductjobsearchesorusetheemail.ResidentsareinsteadreferredtotheSkylandWorkforceCenterforcomputeraccess.BeingforcedtousethecomputeroutsideofHopeVillageaddstothedigitaldivideforReturningCitizensandposesasabarriertoconnectingreturningresidentstocommunityresources.

ThecurrentresidentexpressedthathedidnotlearnaboutcommunityresourcesorreentrysupportservicesfromstaffatHopeVillage.Rather,helearnedfromanotherresidentaboutProjectEmpowerment17andservicesprovidedthroughtheMayor’sOfficeonReturningCitizenAffairs.TheresidentinterviewedalsostatedthattherewasonlyonestaffmemberatHopeVillagewithgoodconnectionstohelpresidentsfindjobs.

TheCICspokewithalocalserviceproviderwhoworkscloselywithintheHopeVillageaboutcommunicationbarriersbetweenserviceprovidersandHopeVillagestaff.ThetelephoneistheonlylineofcommunicationbecauseHopeVillagestaffmembersdonotprovideemailaddresses.PhonecallsmadebyserviceproviderstoHopeVillagestaffusuallygotovoicemail.Theprovidersharedanon-goingissueofHopeVillagestaffcallingserviceproviderstoconfirmappointments,notleavingamessage,sayingtheycouldnotreachtheprovider,andthendenyingresidents’passesbasedonthisgapincommunication.Theserviceproviderstatedthatcasemanagersandvocationalcounselorsneedemailaddressessothatinformationandcommunicationscanbecomemoreefficient.Thiswillalsoenablecorrespondencestobedocumented.

15 Residential Reentry Center Statement of Work, page 49. 16 "CIC Hope Village Report May 24, 2013." 17 “Project Empowerment is a transitional employment program that provides job readiness training, work experience, and job search assistance to District residents who face multiple barriers to employment”. (http://does.dc.gov/service/project-empowerment-program)

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Transportation

TheStatementofWorkstates,“Thecontractormustprovidetransportationorpublictransportationvoucherstoassistoffendersseekingemployment.”18Italsostates“thecontractorisrequiredtoensurealloffendershavetransportationtoallrequiredCommunityTreatmentService(CTS)appointments.”19CTSappointmentsinclude:drugoffender,mentalhealthandsexoffendertreatment.In2013theCICfoundthatitwasdifficultforHopeVillageresidentswhowereindigenttoobtaintransportationassistance.InJuneof2016theCICinterviewedacurrentHopeVillageresidentanddeterminedthatobtainingtransportationassistanceremainsaconcern.AccordingtoHopeVillage,tokensareprovidedtoindigentresidents.However,currentresidentsreportthattheydonothaveaccesstotokensevenwhentheyrepeatedlyrequesttokens.Theyfurtherstatethat“indigent”statusisdeterminedonacase-by-casebasisandisusuallydeniedifaresidenthasreceivedfundsfromfamilyorfriends.CommunityserviceprovidersalsostatethatHopeVillageclientshavedifficultywithcommutingtoandfromHopeVillagewhensearchingforjobs,obtainingidentification,andtravelingtohealthcarevisits.

DisciplinaryProcedure

AccordingtotheSOW,“Thecontractorwilldesignateandtraintwoormorestaffmemberstoholdformalhearings…ifcircumstancesdonotallowforthein-personhearing(e.g.,permissioncannotbeobtainedbytheholdingofficialortheoffenderisonescapestatus),theCDCwillconductthehearinginabsentiaandnotifytheResidentialReentryManagementBranch(RRM).”20AcurrentresidentstatedthatHopeVillageresidentsarenotreceivinghearingsfor300leveldisciplinaryinfractions21.Ifhearingsarebeingconducted,theyaredonesowithouttheresidentpresent.AserviceprovideralsotoldCICstaffthatshehasneverheardofanyonegettingahearingaboutanythingatHopeVillage.ThisserviceprovideralsoinformedCICstaffthatwhenanindividualisbeingsentfromHopeVillagetoPiedmontRegionalJailinVirginia,locatedover50milesaway,foraruleviolation,aUSMarshalwillshowup,puttheresidentinshackles,andtransfertheresidentwithoutahearing.CurrentHopeVillageresidentsbelievethatthehearingprocesscurrentlyinplacedoesnotallowsufficientopportunityforthemtodefendagainstallegationsofwrongdoing.

Subsistence

Subsistenceisafeethatresidentsmustpaytocovertheircostofconfinement.Thisfeeis25percentoftheirgrossincome,nottoexceedtheperdiemratefortheRRCcontract. TheCICpleasedtoreportthattheFBOPpolicychanges(ProgramStatement7320.01,HomeConfinementandProgramStatement7300.09,CommunityCorrectionsManual)setforthonAugust1,2016,discontinuethesubsistencerequirementforindividualsonhomeconfinement.22

18 Residential Reentry Center Statement of Work, page 54. 19 Residential Reentry Center Statement of Work, page 62. 20 Residential Reentry Center Statement of Work, page 80. 21 300 level infractions are considered moderate infractions such as being out of bounds, disobeying an order, or having contraband. (http://etikallc.com/disciplinary-matters-in-federal-prison-part-1/) 22 https://www.bop.gov/resources/news/20160803_policy_change.jsp

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ForresidentsstillhousedattheRRC,subsistencepaymentsarestillrequired,but“[subsistence]waiverswillbeconsideredonacase-by-casebasisafterconsideringtheoffender’sdebts,assets,employmentstatus,andspending.”23AHopeVillageresidentinterviewedbytheCICrequestedtohavehissubsistencewaivedbecausehewashomeless.Priortoobtainingthewaiver,theresidentreceivedastipendfromanemploymentprogramonadebitcard,forwhichnopaystubswereissued.UponhisreturnfromtheprogramtoHopeVillage,theresidentwasdeniedhissocialpassforfailuretopaysubsistenceorpresentpaystubsfortheemploymentprogramstipendpay.

AsecondresidentinformedCICstaffthathewasahomelessfatherwhoappliedforasubsistencewaiver.Hiscasemanagersaidhewouldhavenoproblemgettinghissubsistencepaymentwaived.OtherHopeVillagestaffmembers,however,toldhimthathewouldhavetopayhissubsistence,orhewouldlosehisweekendpassandnotbeabletovisitwithhischildren.Itappearsthattheprocessofobtainingasubsistencewaiverisflawedandthedrawbackforthosewhoapplyforasubsistencewaiverisreducedfamilyengagement,ahallmarkofsuccessfulreentry.

Safety

Currentandformerresidents,inadditiontocommunityserviceproviders,haveinformedtheCICthatindividualsdonotfeelsafetravelingtoandfromHopeVillage.Movementandmealshavebeenrestrictedfrequentlyduetocriminalactivityinthearea.MenhaveturneddowntheopportunitytobereleasedfromprisonearlytogotoHopeVillagebecauseofthesafetyconcerns.

TravelPasses

Atravelpassiswrittenpermissionforaresidenttoleavethefacilityforexternalappointmentsandsocialvisits.AresidenttoldCICstaffthatHopeVillagerandomlydeniespassesand/orlimitstimedespiteresidentsbeingincomplianceandhavinginitialapprovalfromcasemanagersorvocationalspecialists.AserviceprovideralsotoldCICthatHopeVillagefrontdeskstaffwilltellresidentsthattheyarenotallowedapasseventhoughfrontdeskstaffisnotauthorizedtodoso.Thesameprovideralsostatedthatthereisanongoingissueofpaperpassesbeingmisplaced.Residentsfilloutpassesandplacetheminacasemanager’smailbox.Thecasemanagersignsthepassesandgivesthemtothefrontdeskstafftohandouttoresidents.However,Frontdeskstafffrequentlytellresidentsthattheyneverreceivedpassesfromcasemanagers.

PromisingPractices

Inanefforttoremainsolution-focused,theCIChaslookedatafewpromisingpracticesthatcouldaddresssomeofthecurrentRRCconcernsandcreateamoreefficientenvironmentwithintheRRCthattheFBOPchoosesforthenewcontract.

RutgersUniversity,CenterforBehavioralHealthServices&CriminalJusticeResearch

23 Residential Reentry Center Statement of Work, page 59.

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TheCenterforBehavioralHealthServices&CriminalJusticeResearchatRutgersUniversityfacilitatedthreeroundtablediscussionsbetweenAugustof2012andNovemberof2012.Thepurposewasforresearchers,policy-makers,advocates,andpractitionerstodiscussissuesregardinghalfwayhousemodelsandoperations.Asaresultofthesediscussionsareportwasgeneratedentitled,HalfwayfromPrisontotheCommunity:FromCurrentPracticetoBestPractice.WhendiscussingideallocationsforRRCs,thereportemphasizesthatRRCsshouldbelocatedincommunitiesclosetowheretheirresidentswilleventuallylive,topublictransportation,andtooptionsforemployment.RRCsshouldbelocatedfarawayfromillegalactivitiesanddistractions,makingiteasierforformerlyincarceratedpeopletodrawonlocalsupportandcreatesuccessfulintegrationconnectionswiththecommunity.24Thereportalsonotesthatlow-riskoffendersshouldnotbehousedinRRCsbecausetherearemorecosteffectivealternatives,suchasGPSmonitoringortransitionalhouseswithcommunitysupervision.SeparatingindividualsbyrisklevelandfocusingthecapacityofRRCsonmediumandhigh-riskindividualsincreaseperformancewithinRRCs.

VolunteersofAmerica,Chesapeake

VolunteersofAmerica,Chesapeakeisanon-profit,faith-basedorganizationbasedinBaltimore,Marylandthathas,formorethan30years,helpedex-offenderscompletingthelastthreetosixmonthsoftheirsentencesintransitioningbackintothecommunity.VolunteersofAmericautilizetheProgramforReturningOffenderswithMentalIllnessSafelyandEffectively(PROMISE)toserveparoleeswithmentalillnesswhoaretransitioningoutofprison.25Theprogramoffershousing,medicalandmentalhealthcare,casemanagementservices,familyengagementinitiatives,accesstopublicbenefitsandotherhelpfulreentryservices.Theprogramhasserved303clientstodatewith138havingapositivedischargeand105livinginsupportivehousing.Also,asof2015,VolunteersofAmericaarepartneredwithover50communityorganizations.

Pre-ReleaseandReentryServices,MontgomeryCountyDepartmentofCorrectionandRehabilitation(RockvilleCenter)26

TheMontgomeryCountyDepartmentofCorrectionandRehabilitation,Pre-ReleaseandReentryServicesoverseethe171-bedMontgomeryCountyPre-ReleaseCenter(PRC).TheDivisionservespre-trialadultsandincarceratedadultstobereleasedwithin12monthsfromthecounty’stwodetentioncentersaswellasstateandfederalprisonswhoarereturningtoMontgomeryCountyorthelargerWashingtonmetropolitanarea.TheCICobservedanumberofpromisingpractices:

• PRCsellstokenstoindigentresidentsatadiscountedrate.Ifaresidentdoesnothavesufficientfundstopurchasetokens,tokensareprovidedonaloan,andthemonetaryamountiswithdrawnatalatertime.

24 See “Halfway From Prison to the Community: From Current Practice to Best Practice.” Rutgers. 25 Rutgers, “Halfway From Prison to the Community: From Current Practice to Best Practice” 26 Montgomery County Department of Correction and Rehabilitation, Pre-Release and Reentry Services, http://www.montgomerycountymd.gov/cor/prrs/index.html

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• Passesaresubmittedinwrittenformatoncarboncopydocuments.Residentssubmitthetopwhitesheettostaffmembersandkeeptheunderlyingyellowsheetasverificationofsubmission.

• Pre-GEDandGEDclassesareofferedforprogramparticipantsfournightsperweekandaretaughtthroughcollaborationwithMontgomeryCollege.

• TheJobReadinessandRetentionProgramisaone-weekworkshop.Residentsareprovideddiscussiontipsandaregiventheopportunitytodiscusstheircriminalbackgroundswithpotentialemployers.

• TheWelcomeHomeProgramisafaith-basedmentorshipprogramthatpairsacommunityvolunteerwitharesident.

• TheThinkingforaChange(T4C)programprovidesparticipantswiththeopportunitytoconsiderthethinkinganddecision-makingpatternsthatcontributedtotheircontactwiththecriminaljusticesystem.Allnewresidentsreceiveafive-hourintroductorymodule.

• FamilyandFriendsSupportProgramallowsfamiliestopartnerintheparticipants’reentryprocess,fromreentryplanning,tocommunityservicesreferralstohomeconfinementservices.

Conclusion

ResidentsandserviceproviderscontinuetopresentanegativepictureofcurrentRRCservices.ItistheCIC’shopethatwhentheFBOPmakesitsdecisionaboutthependingRRCcontract,notonlywillthechosenprovidermeetthe2015SOWrequirements,buttheproviderwillalsoseektoimplementsomeofthepromisingpracticesabove.ThesepracticeswillenabletheprovidertobemoreefficientandprovideamoreproductivetransitionalexperienceformenreturningfromincarcerationbacktotheDistrictofColumbia.ImprovingRRCoperationswillincreasepublicsafetyandincreasethelikelihoodofreentrysuccessforDCmenreturninghomefromincarceration.