The Professionalization of the Correctional Officer And the Role of Higher Education

In order to enhance agency effectiveness, higher education for criminal justice pracitioners has been advocated as a crime control strategy for a number of years. However, there remains a lack of consensus regarding correctional officer education (Ross, 1988). Criminal justice programs within institutions

of higher education see a growing number of students interested in the corrections field, but when questioned, students have no interest in working within institutional corrections. This is not surprising considering the level of pay, lack of professional status, working conditions, threats to personal safety, and few opportunities to contribute to the future well-being of the offender housed within facilities.

Many advocates of correctional officer education suggest that the lack of consensus regarding the professionalization of the field may be attributed to a perception based on the historic view of the correctional officer as simply a custodian of inmates. On a daily basis, correctional officers face many challenges. They must learn to deal with inmate populations with scarce resources in a complex and rigid environment, organize their duties in a manner consistent with prescribed policies and procedures, and deliver the available services and programs to residents who are themselves subject to other pressures within the confines of the inmate culture. The correctional officer must also work without public recognition and, therefore, without acceptance of institutional corrections as a professional occupation.

With exploding prison and jail populations at a time when the United States is combating global terrorism and war, resources that in the past have been available to build facilities and maintain prison populations are now being redistributed to meet other national priorities (Buisch, 2003). New solutions to meeting institutional and public safety needs of communities and providing inmate services must be reconsidered. Better use of the correctional officer may be one solution. This research looks at the potential role higher education may have in facilitating the preparation of the correctional officer.

Knowledge, Skills and Competencies

A series of studies was undertaken in New Mexico to determine the relevancy of the corrections and criminal justice curriculum to the needs of correctional and law enforcement employers (Blevins, 1997). The outcomes of these studies suggest that the criminal justice field, including institutional corrections, recognizes and desires to employ individuals who have highly developed critical thinking skills and are able to apply those skills when working with at-risk populations. This alone is not an unexpected finding in some career fields such as juvenile or adult probation. Surprising, however, was the finding that suggests that within institutional corrections, select New Mexico correctional supervisors view the role of the entry-level correctional officer as more than a custodian of inmates. Within this group, there appears to be a rethinking of the role of the correctional officer.

The information gathered suggests that now may be an opportune time to bring constituent groups together, such as state and local correctional administrators, correctional accreditation associations and institutions of higher education, to begin to discuss, design and facilitate the development of a professional role and status for the correctional officer. Such an effort has great potential to promote inmate change and reduce institutional disturbances, while making better use of the most valued but underused resource within the correctional facility - the correctional officer. The findings suggested by the employer surveys indicate the knowledge, skills and competencies valued by correctional supervisors are many of those already identified as important and currently integrated into other professional schools within colleges and universities. As such, this appears to be an opportunity for universities and colleges to serve correctional employees by enhancing educational curricula to develop a professional role for the correctional officer, while increasing the potential for inmate behavioral change.

Employer Survey

The employer surveys focused solely on a sample of select New Mexico state and local correctional facilities, law enforcement agencies and a federal judicial district. The first study concentrated on select state correctional and detention facilities (Blevins, 1997). The second study reviewed community corrections and law enforcement agency needs (Blevins, 1998). The final study examined agencies that employed criminal justice graduates within both law enforcement and correctional agencies (Blevins, 2002). The studies took place during a five-year period, providing some longitudinal data. The respondents included prison and detention supervisors, juvenile and adult community corrections service providers at both the state and federal level, and municipal and county law enforcement officials.

The purpose of the studies was to determine if the criminal justice curricula at two New Mexico regional universities were meeting current and future expectations related to employer needs for entry-level employees. Specifically, what knowledge, skills and competencies were valued when hiring criminal justice graduates? The responses have been surprisingly similar over time and across agencies, and suggest the growing necessity for academia to address the need to prepare graduates to enter the work force to do more than control, repress and restrain at-risk populations.

As the research evolved, the question became, were the respective institutions meeting the mission and goals of the criminal justice program as stated within their catalogs, that being career preparation. The first university curriculum was mainly application oriented - the program consists of a police academy, the Associate of Arts, and the Bachelor of Science program in criminal justice. Faculty members included a former police officer, a prosecutor and a correctional officer. The curriculum at the second university was theoretical in nature, focusing its attention on conditions and consequences of crime. Until recently, faculty possessed academic credentials with no direct agency experience. Given this difference, the expectations were that some basic differences would exist between the curriculum and the successful preparation of students for career placement, at least when assessing agency needs. However, upon reviewing each curriculum, both universities were found to be inadequate in meeting employer expectations.

Three general themes emerged from the results of the employer data that may have significant implications for current and future criminal justice curricula and suggest an opportunity for universities and colleges to work in conjunction with professional accreditation associations, such as the American Correctional Association, to professionalize the role of correctional officers. There is a trend developing that suggests that the agencies value an entry-level employee who:

* Is a highly effective communicator;

* Can demonstrate ability to assess complex problems and apply effective strategies to reduce or resolve the problems at hand; and

* Has knowledge unique to the profession (criminal justice system) and working with at-risk populations.

It is also important to note the employers' sentiments suggesting that it is reasonable to expect the college graduate to have acquired these highly developed skills and competencies prior to being employed. In fact, they have a high expectation that the graduate will have the basic foundation of knowledge, skills and competencies that the agencies can build on within their own training programs. This should serve to challenge criminal justice programs to review and modify their curricula to meet agency expectations in developing the higher order cognitive skills being advocated by agency participants.

Effective Communicator

A review of the agency responses that placed being an effective communicator as the No. 1 priority of employers identified knowledge, skills and competencies related to:

* Reading and understanding legal documents;

* Writing complete forms and reports;

* Observing and documenting behavior;

* Having highly developed verbal skills;

* Testifying and interviewing skills; and

* Being adept at using computer technology.

The information obtained from the institutional employers indicates that they perceive the role of the correctional officer as requiring the skills to interact with the offender in a manner consistent with maintaining a safe and secure environment for both inmates and staff. Although maintaining a safe and secure facility may suggest a custody function for the correctional officer, any treatment or rehabilitation potential within a facility cannot exist unless the facility is operated in a safe and secure manner. In other words, a safe and secure facility is the first requirement to offering treatment services (Dilulio, 1987).

There is significant literature that supports the transition of the correctional officer to performing duties beyond security and control functions (Philliber, 1987; Saylor and Wright, 1992; Williamson, 1990). A 1997 study by the author suggests that correctional supervisors already perceive the role change potential, and do not indicate resistance to such a change. Although their comments suggest that a clear role separation should exist between custody and treatment, the correctional supervisors acknowledged and recognized the positive aspects the human service role has in the correctional officer assisting and referring inmates to the appropriate correctional services.

The findings from the study suggest a dual role for the correctional officer, the first being the security function necessary to maintain a safe and secure facility for all who live and work in that environment. The other role is the potential use of the correctional officer as a facilitator who transitions the inmate into rehabilitation/education services available at the respective institution. The employers cited advantages of the role shift, indicating that the change would result in fewer hostilities between inmates and staff, and increased communication and interaction.

The information gathered from the literature and the employer findings related to the correctional officer being adept with computer technology referred to the operation of complex security hardware (Blevins, 1997). However, it is suggested that institutional corrections needs officers who are able to appropriately access and use information and are able to envision different strategies that may serve inmate and institutional needs (Weiner and Johnson, 1981).

The knowledge, skills and competencies associated with being an effective communicator are consistent with the knowledge, skills and competencies related to the human service or treatment function. These include:

* Reading and comprehending legal documents;

* Developing strategies surrounding skilled persuasion;

* Developing independent thought and action;

* Developing verbal skills (interviewing);

* Developing the ability to listen effectively;

* Developing the power of observation; and

* Documenting subtle forms of human behavior.

These are components consistent with any college or university program that prepares students for a professional role within their respective careers. However, both university criminal justice programs were found to be inadequately preparing students in the art of effective communication. It was determined that few expectations were placed on students' writing skills. As a result of this study, faculty at one of the New Mexico universities evaluated the writing components within each course offering and modified the curriculum to include more extensive writing across the curriculum. Further assessment must be completed to determine what writing outcomes occurred because of those changes. However, it seems appropriate that college and university criminal justice curricula align core learning within their respective prorams to ensure prospective employers that beginning employees have the fundamental skills to be effective communicators.

Assess and Manage Complex Problems

A review of the agency responses that placed being a problem solver as the second priority of employers were abilities related to:

* Being able to assemble information;

* Being competent to analyze and recommend a course of action;

* Being able to understand and apply rules and laws;

* Being able to understand, apply and adhere to professional ethics; and

* Respecting confidentiality.

Skills and competencies associated with assembling and analyzing information that allows appropriate recommendations for problem resolution enhances the ability of the correctional officer to engage in problem-solving within many settings and contexts. The development of such skills allows individuals to view problems and issues from multiple perspectives, evaluate the quality of the information gathered, and test their own assumptions related to the specific problem when faced with ambiguity and uncertainty. The education literature identifies these qualities as higher order cognitive skills (Angelo and Cross, 1993).

The information obtained from the corrections respondents indicates that even though the role and performance expectation of correctional officers is security focused, they, by virtue of the highly complex environment they function in and are responsible for, use higher order cognitive skills on a daily basis dealing with inmate populations. These skills are identified in part as treatment or human service-related. One institutional employer referred to the correctional officer as being the first person to have contact with the inmate and the first to observe and assist the inmate in the transition to confinement (Blevins, 1997). The officer's ability to observe, identify, and document abnormal behavior and mental instabilities and make appropriate referrals are critical to both the custody and the treatment function.

In some instances, the custody and treatment functions may overlap, but they are still thought to be separate and distinct functions by many supervisors. For example, the employers highly value an officer's ability to recognize and resolve hostility and conflict before physical confrontation occurs. Is this intervention considered a security or a treatment response? It can be both - it is security in that applying appropriate conflict or crises intervention strategies can reduce or eliminate hostilities leading to physical aggression, and it is treatment in that the officer's behavior and demeanor can show the inmate alternatives to resolving hostilities, therefore, potentially increasing the inmate's coping skills. Regardless of the employers' reasons, it is clear that they want correctional officers to be able to draw upon these skills when needed. A correctional officer's ability to resolve conflict and enhance coping skills appears to be consistent with the treatment and/or human-service function.

The integration of knowledge related to solving problems in various contexts is again associated with any professional college or university program. The subsequent curriculum review indicated that overall, students were not taken beyond the "knowledge" level associated with criminal justice concepts. The content analysis outcome from the first university suggests that even though students were sufficiently exposed to legal concepts, the students were not being taken to the next level of assessing and critiquing legal issues within a broader context, therefore, not developing the students' critical problem-solving skills. Such skills have potential for reducing the frustration, anger and conflict that is a normal part of institutional life. Who better than correctional officers to have at their disposal problem-solving strategies that can be immediately called on to resolve the multiple conflicts that arise within facilities?

Knowledge Unique To The Profession

A review of the participant responses that placed having an understanding of knowledge unique to the criminal justice field and working with at-risk populations as the third priority of employers, indicated the necessity of knowledge, skills and competencies related to:

* Recognizing mental instability;

* Knowledge and strategies related to substance use, abuse and treatment;

* Being skilled in the art of crises intervention and conflict resolution; and

* The application of legal concepts and client rights.

. The above characteristics enhance correctional officers' ability to recognize and interpret events that affect inmates' at-risk behavior within the constraints of the institution. The timely resolution of the problem or conflict will better ensure the safe and effective operation of the facility as well as help the inmate seek whatever services and programs may be available.

The specific knowledge areas, such as counseling, social work and alcohol/substance abuse treatment programs, parallel those associated with many professional schools found within college and university settings. However, the problems associated with substance abuse, conflict resolution and the like, are found in many traditional career environments and are addressed in such academic content areas as management, human resources and organizational development. In response to the survey results, the first university did recommend the addition of a conflict resolution course with further study as to how to incorporate more human services-related content into the curriculum. The second university has the content areas available through the student minor areas of study, but further study needs to be completed to determine the effectiveness of those content areas to student learning.

Higher Education And Professional Recognition

There is clearly a role for higher education in partnering with correctional accreditation associations and correctional facilities in professionalizing the role of the correctional officer. The literature addresses the advantages of higher education in assessing and solving problems in highly complex societies. Prisons have been identified as highly complex cultures requiring an array of skills to manage the diverse populations housed in those environments (Ellis, 1993; Ross, 1988; Saylor and Wright, 1992; Williamson, 1990). In spite of reduced budgets, political and legal constraints and inmate resistance, corrections is faced with the challenge of becoming more accountable to the public for the services it performs (Buisch, 2003). It is suggested that the correctional officer, having the most consistent and intense contact with the offender, may be instrumental in increasing institutional effectiveness if allowed to work with the inmate as a facilitator of behavioral change (Ross, 1988; Sluder and Sapp, 1994) in concert with security functions. For this to occur, a redefinition of the traditional custody and security role to a "human service" role may be appropriate (Ellis, 1993; Jackson, 1995; Thompson and Mays, 1991).

The question is no longer whether correctional officers should be properly prepared for their roles, but what preparation is required to meet the needs and expectations of institutions, inmates and communities. In the 1970s, ACA established critical standards for training such as minimum training hours and the necessity of having administration support training. Beginning in the 1980s, and despite the lack of formal recognition as a profession, the corrections field began adopting many of the characteristics found in professional occupations such as member certification, the development of special knowledge and skills, agreed-upon standards of performance and a code of ethics.

Although accreditation associations have recognized and worked toward enhancing the role of the correctional officer, institutions of higher education have been slow to respond to any program or curriculum evaluation that might be useful to determine program relevancy in preparing graduates for their careers. A result of this apparent complacency can be seen in national calls for assessment of student learning that have forced most, if not all, public universities to assess their ability to carry out the mission and goals for student learning and academic achievement. As admirable as this sounds, the difficulty becomes one of definition, documentation and measurement - what defines/constitutes instructional excellence, and how such excellence is documented and measured.

Higher education is no longer the private domain of the select and privileged few. Many state-supported institutions of higher education are mandated to open their doors to individuals who ascribe to the American dream of upward mobility and financial success. However, there has been little research into what, if any, linkage exists between the university curricula and employer needs, or what that means in terms of student learning and career development.

Overall, universities have little evidence to suggest how, if or what part of a learning component of their programs directly affect graduates' career options or ability to successfully compete in the work place. As such, a challenge for university programs is to somehow determine what employers desire when making hiring decisions. Unfortunately, curricula decisions are often made by faculty and committees who have no direct knowledge of what employing agencies are seeking. The problem is further exacerbated by a general lack of coordinating the curriculum in a meaningful way that will enhance the learning process. The result is that many criminal justice content areas are taught within an educational environment that considers constraints other than student learning.

For years, universities have focused on how to build enrollment, but not on building enrollment through program relevancy. Both universities in this study have experienced a steady decline in enrollment during the past several years. This phenomenon is not unique to these two institutions nor does it imply that universities with increasing enrollments offer programs that are any more relevant to their students or future employers. However, institutional survival of small regional universities may be more dependent on program assessment and curriculum relevancy to enhance the marketing of their respective programs to the very constituent groups that they are in the business of providing a product for - students and employers. This seems particularly relevant given the two basic need areas suggested by this research: communication and problem-solving skills. What is more basic to or an expectation of an education than these?

Conclusion

Even though there has still been little public recognition or acceptance of institutional corrections as a profession, there is a greater need than ever before to better use the correctional officer to facilitate inmate change, which will serve the institutions' needs to control costs and improve public safety.

The employer survey findings suggest a potential change of attitude within agencies and institutions related to correctional officers who work directly with at-risk populations. There appears to be the need and the desire on the part of agencies for frontline employees who can operate and function within very complex environments in a safe and humane manner that may enhance future inmate behavior change. This change signals the recognition that the correctional officer may be at the fulcrum of serving the needs of the institution, the inmates and the community in a manner that will improve the operational effectiveness of the institution, facilitate inmate change and, therefore, increase public safety.

There could be significant implications for universities as they are asked to become more accountable to students and the public. If improvements are made in the curricula that reflect the educational needs of employers, the university will be better prepared to respond to pressure regarding program effectiveness. This, in turn, may promote a more positive perception of the respective programs by employing agencies and cause them to seek out the university program graduates. This could also serve to enhance student enrollment.

Professionalizing corrections through higher education may also ameliorate public expectations related to offender rehabilitation, which will help legitimize the field. In addition, higher education requirements would enhance performance on the part of the correctional officer, which would improve institutional effectiveness and promote offender change.

At the beginning of the new millennium, constituent groups should be calling for the full professionalization of the correctional officer, with all the rights and responsibilities associated with such status. Institutions of higher education have, in part, missions that foster and facilitate the learning of the knowledge, skills and competencies identified by the employer agencies. Working with state and national accreditation organizations, current criminal justice program curricula could and should be evaluated to meet the needs of agencies, and at-risk population groups, to reach the end goal of community safety. Cumulatively, the studies suggest a course of action for educators. But all said, it could result in a win-win for all constituent groups.

REFERENCE

REFERENCES

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Blevins, M. 1998. Broadened assessment of agency needs to include community corrections and law enforcement agencies. Unpublished raw data.

Blevins, M. 2002. An employer survey to identify the knowledge, skills and competencies valued when hiring criminal justice students. Unpublished manuscript, Eastern New Mexico University, Department of Psychology, Sociology, Criminal Justice and Political Science, Portales, N.M.

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Jackson, J.A. 1995. Finding and keeping the profession's very best. Corrections Today, 57(4):8.

Philliber, S. 1987. Thy brother's keeper: A review of the literature on correctional officers. Justice Quarterly, 4(l):9-97.

Ross, D. 1988. An analysis of educational requirements for correctional officers for entry level and promotions: Is it necessary? Paper presented at the 43rd International Correctional Educational Association Conference, July, Grand Rapids, Mich.

Saylor, W.G. and K.M. Wright. 1992. Status, longevity and perceptions of the work environment among federal prison employees. Journal of Offender Rehabilitation, 17(3^1): 133-160.

Sluder, R. and A. Sapp. 1994. Peering into the crystal ball to examine the future of America's jails. American Jails, 8(l):81-86.

Thompson, J.A. and G.L. Mays (eds.). 1991. American jails public policy issues. Chicago: Nelson-Hall.

Weiner, R. and R. Johnson. 1981. Organization and environment: The case of correctional personnel training programs. Journal of Criminal Justice, 9(6):441-50.

Williamson, H. 1990. The corrections profession. Newbury Park, Calif.: Sage Publishing.

AUTHOR_AFFILIATION

Melissa J. Blevins, Ed.D., is associate professor in the Department of Social and Behavioral Sciences, Eastern New Mexico University.