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I'nited States Gf ntral Accounting Office
ri Ar~) Report to the Chairman, Select
Committee on Narcotics Abuse and
Control, House of Representatives
February 199.)
DRUG CONTROL
Treatment Alternatives
Program for Drug
Offenders Needs
Stronger Emphasis
^>.yiS^K
GA()/GGD-93-61
192
GAO
United SUtes
General Accounting Office
Washington, D.C. 20S48
General Government Division
B-252082
February a, 1993
The Honorable Charles B. Range]
Chairman, Select Committee on
Narcotics Abuse and Control
House of Representatives
Dear Mr. Chairman:
As part of the Committee's interest in identifying successftil drug abuse
control programs, you asked that we examine the Treatment Alternatives
to Street Crime (tasc) program. Specifically, you asked that we
determine whether tasc has program elements that can be attributed to
successful drug abuse control,
evaluate program results, and
identify any barriers that may limit program potential
You also asked that we discuss tasc's mission and philosophy; tasc model
performance standards; criteria for program success; and cooperation
among federal, state, and local agencies on issues concerning tasc.
TASC is an offender case management program designed to link drug-using
offenders within the criminal justice system to communify-based drug
abuse treatment as an alternative or supplement to criminal penalties.
Elements of the tasc case management model include (1) identifying drug
abusers within the criminal justice system; (2) assessing their need for
treatment; (3) matching them to the most appropriate treatment program;
and (4) monitoring their perfonnance during treatment, which includes
drug testing, tasc programs that follow the model do not provide direct
treatment services to offenders.
Rp<!iil1"<!in Rripf ^*^ appears promising as a way to help reduce offender drug use
according to drug abuse experts and data we obtained. However, several
barriers impede program potential, tasc contains elements found to
contribute to effective drug treatment, such as matching offenders to the
most appropriate treatment and drug testing. Criminal justice officials told
us that tasc enhanced their ability to assess the needs of drug-using
offenders who could benefit from treatment, match offenders with
appropriate treatment, and provide increased supervision of offenders.
Research suggests that tasc may help reduce offender drug use, which
could lead to reduced criminal behavior. However, because evaluation
Page 1 ' GADMiGD-SS-Cl TruLCmoiC Altcnulm ProfrmiB
193
data are limited, program results on tasc's effectiveness at reducing
offender drug use and criminal behavior are not yet conclusive.
The federal government initiated tasc in 1972 and provided initial funding.
By 1982, when direct federal funding ended, programs were located in 39
states. Ten years later in 1992, orUy 26 states and 2 territories had tasc
programs.
The Office of National Drug Control Policy (ondcp) is the f«fderal agency
responsible for developing and coordinating the implementation of the
nation's drug strategy. In its 1992 National Drug Control Strategy, on[)CP
recontunended tasc be expanded. However, ondcp has not targeted any
specific sites for tasc. ondcp is relying on state and local governments to
expand tasc using current federal efforts that provide information and
technical assistance regarding tasc. While ondcp has encouraged states to
use federal criminal justice block grant funds for tasc, these funds are
generally not used for tasc.
Several barriers face tasc program implementation, including
(1) inadequate funding and disagreement between federal oCBcials on how
tasc should be funded, (2) incoi^sistent implementation of the model's
elements, and (3) lack of impact because tasc programs serve oiJy a small
proportion of the drug-abusing population and are not located in many
areas that have m^or drug problems.
Consistent with its responsibility to coordinate implementation of the
nation's drug strategy, we believe that ondcp should take the lead on the
national objective of expandii\g the tasc program. Federal efforts that are
limited to providing only irrformation and technical assistance on tasc,
without addressing such fundamental issues as fundiiig, make it difficult
for ONDCP to carry out national drug control policy. Until such issues are
resolved, we believe tasc's full potential will remain uiuealized.
Rukfn ill rif I ^ '^^^' '^* White House Special Action Office for Drug Abuse Prevention
Dae Kgl U Ul U established tasc in response to a recognized link between drag abuse and
criminal behavior. The overall mission of tasc is to reduce the crimiiul
behavior of drug-abusing offenders by using the threat of legal sanctions lo
motivate them to enter treatment. Appendix I shows how tasc links the
criminal justice and treatment systems to manage drug-abusing offenders.
Pag« 2 QA0M;GI>-M-*1 Traatacac Alurmul«*« Profrui
194
The former Law E^orcement Assistance Adimnistration (leaa) in the
Department of Justice initially funded tasc programs. In 1976, citing
dramatic declines in recidivism for tasc offenders, a federal drug abuse
prevention strategy council reconunended tasc be expanded as rapidly as
possible and no existing programs should lapse.' By September 1978, leaa
had funded 73 tasc projects at a cost of over $35 million. By 1982, when
direct federal funding ended, there were 130 programs in 39 states.
Although there are now 195 tasc programs, only 26 states and 2 territories
have tasc programs, 1 1 fewer than in 1982. State and/or local govenunents
provide most of the funding for tasc programs.
In 1979 we found that adjudicating ofBcials liked the program's objectives
and welcomed tasc as an alternative to incarceration.^ We said that with
greater guidance from the Department of Justice and improved
coordination between Justice and the National Institute on Drug Abuse
(nida), tasc could become an even more useful tool of the judicial system.
Several early studies showed that tasc offenders reduced criminal
behavior while in the program. However, a problem cited by several of
these studies was the lack of follow-up on offenders after they left tasc to
determine whether tasc had any long-term impact on redudi^g drug abuse
or criminal behavior.
The Bureau of Justice Assistance (bja) in the Department of Justice has
assumed responsibility for encouraging and assisting with the
development of effective tasc projects. Through an agreement with the
National Consortium of tasc Programs, a coalition of local tasc programs
headed by a natioital director, bja provides information and technical
assistance to state and local agencies wishiixg to implement a tasc
program.
In 1986, an advisory panel of practitioners and experts approved by bja
developed the tasc program model. The program model consists of 10
elements the panel deemed essential to program success. (See app. II.)
According to the tasc implementation manual, tasc program failures can
be traced to neglect of these essential program elements.
tasc programs vary considerably. For example, tasc programs are located
within crimiiuil justice agencies (e.g., probation department) or
commuiuty health agencies; sometimes they operate as independent
nonprofit entities. Some tasc programs target first-time offenders, while
' Federal Strategy, Dnig AbuM PrevCTtion, the Strategy Council on Dnig Abuse (Nov. 1976). p. 42.
letter (torn GAG to Acting LEAA Administrator, January 30. 1979
Page 3 GA<yQGD-9S-<ll Treatseat Alteraatlvea Prograin
195
others target more hard-core addicts with serious criminal records. Some
TASC programs target adult offenders, while others target juveniles.
Scope and
Methodology
As discussed with your office, we did our field work at three tasc
programs in New York and one each in Phoenix and Chicago. We selected
these programs because ( 1 ) we were told by the tasc national director that
they were among the better programs; (2) each had unique features, such
as a program targeting first-time felons; and (3) they were geographically
dispersed. To supplement our Beld work at these locations, we held
teleconferences with officials with four other tasc programs in Seattle,
Portland, Birmingham, and one in Pennsylvania. The national director said
that these were among the better programs.
To meet our objectives we interviewed officials with tasc; federal, state,
and local criminal justice agencies; health agencies; and treatment
providers. To obtain an additional perspective, we interviewed eight drug
experts familiar with tasc. (See app. HI.) We also analyzed data from tasc
programs and community-based treatment providers but did not verify this
information. We used a National Institute of Justice literature search to
identify TASC-related research. We also referred to previoa» gao
assignments dealing with drug control issues and reports by other
legislative agencies, such as the Office of Technology Assessment (ota). In
addition, we spoke with nine offenders selected bom those who were
available at the tasc programs on the day of our visit We did our field
work between November 1991 and September 1992 in accordance with
generally accepted government auditing standards.
TASC Model
Incorporates
Elements Shown to
Be Effective and May
Help Meet National
Drug Strategy
Objective
Research shows that the tasc program model incorporates many elements