Jail-Based Medication-Assisted Treatment:
The Current Opioid Crisis
Fred Meyer, MA, CJM, CCHP, and Claire Wolfe, MPH, MA
An increasing number of organizations are providing resources to guide correctional facilities in safely and effectively providing medication-assisted treatment (MAT) to their incarcerated population. This is great news, but operational questions and uncertainty still arise. The American Jail Association and the National Commission on Correctional Health Care (NCCHC) are committed to aiding facilities in this journey. This four part series will explore the essential components of jail-based MAT programs and provide guidance on common issues, relevant NCCHC standards, and successful implementation within your facility to ensure safety and security are preserved and enhanced.
With a substantial overrepresentation of those with medical, mental health, and substance use issues entering our facilities each day, any way to reduce critical incidents and increase safety and security should be researched, evaluated, implemented, and monitored if at all possible. While it is estimated that 1% of the general population meets the diagnostic criteria for an opioid use disorder (OUD), evidence suggests that opioid use is associated with increased involvement in the criminal justice system and that approximately 15% of individuals in U.S. jails have an opioid use disorder (Winkelman et al, 2018; Substance Abuse and Mental Health Services Administration [SAMHSA], 2021; National Academy of Sciences, Engineering, and Medicine, 2019). With consistently limited community resources, jails have become de facto detoxification facilities for individuals using opioids and other illicit substances. The implementation of medication-assisted treatment has the potential to make detention and correctional facilities and communities safer for the public, staff members, arrestees, and incarcerated individuals.
Opioid use disorder is a chronic, treatable condition that can be deadly if left untreated. In 2021, over 80,000 people in the United States died from an opioid overdose, many of which were attributed to fentanyl use (Centers for Disease Control and Prevention, 2022). The risk of overdose is extremely high following release from jail and prison (Borschmann et al, 2018). Medication-assisted treatment can be utilized to prevent adverse health outcomes among incarcerated individuals with OUD within our jails and after their release back into our local communities.
Medication-Assisted Treatment
Medication-assisted treatment or medications for opioid use disorder (MOUD) refer to FDA-approved medications methadone, buprenorphine, and naltrexone that are administered according to evidence-based protocols in combination with mental health counseling. Research has repeatedly demonstrated that access to MAT during incarceration is associated with reduced overdose, increased engagement in community-based treatment, and lower likelihood of opioid and illicit drug use post-release. There is also some evidence to suggest that MAT is associated with the potential to reduce crime and recidivism when these individuals return to the community (Marsden et al., 2017; Moore et al., 2019; Evans et al, 2022).
NCCHC recommends that correctional facilities “establish MOUD programs that involve universal OUD screening of people entering, offering treatment with MOUD, and ensuring MOUD treatment continuity upon entry and on discharge in coordination with community MOUD treatment providers” (National Commission on Correctional Health Care, 2021).
Beginning to provide or expand access to MAT in detention and correctional facilities may sound daunting due to barriers, including:
• federal regulations for methadone and buprenorphine
• risk of medication diversion (e.g., inmates smuggling contraband)
• health and custody staff time and professional expertise in this area
• lack of community partners administration, prescribing, and continuity of care
• cultural stigma and common misconceptions about MAT and OUD
These challenges are daunting, but none are out of the reach of our profession, especially with the support of organizations like the AJA and NCCHC. Medications for opioid use disorder can save lives and may help individuals with OUD deal with incarceration better and potentially lead a productive life post-release. While it is the easiest to treat OUD in the community, lack of resources often transfers many responsibilities to our nation’s jails to fill the gap. Our facilities can play an integral role in fighting the opioid epidemic, reducing health risks while in jail, and hopefully creating safer and healthier communities for us all.
The Role of Custody Staff
Leadership and collaboration at all levels are absolutely critical to operational success in any structured organization. This is especially true in a correctional environment where officers, civilian employees, medical staff, and contractors are required to work in and manage all aspects of an incarcerated community. A leadership team approach is critical to success, otherwise a “silo” effect may result, and problems will arise. Life and safety are two critical areas that can be positively impacted by implementing MAT in your facility, a certain win for those working directly with the incarcerated population.
When arrestees arrive at the jail intake area, they are often under the influence of alcohol and/or other illicit substances. Initial processes should include a briefing from the arresting officer about any known medical, mental health, substance use, security, or arrest issues.
There should also be an initial screening by qualified medical personnel to determine acceptability of the arrestee for booking. This is where individuals will be initially identified as being at risk for withdrawal and a referral for medication assisted treatment may be made. It is important that jail personnel share their observations and concerns with health staff, so they have as much information as possible. The first 24 hours are critical, and the first week is when most issues can be identified, managed or treated, and critical incidents can be prevented.
Once booked, individuals that are addicted to substances (alcohol, opioids, etc.) will be placed on an enhanced watch and have additional contact with health staff. It is critical that custody staff assigned to housing regularly communicate changes they see to health staff. This is where MAT really becomes important and helpful to prevent behavioral and medical problems for this population. Whether it is continuing a program that was ongoing in the community prior to arrest or starting a new prescription to treat a substance use disorder, the medical provider can determine what course will best serve the individual. A reduction in behavioral problems and reduced risk of in-custody death are two benefits that directly impact the individual, staff members, and facility as a whole.
An effective MAT program will include education, medication, counseling, and referral to resources in the community upon release. The jail is a central hub and can promote changes to the entire criminal justice system. Working with the courts, additional requirements and resources can be coordinated for individuals upon release from the jail. Working with local medical and mental health providers can reduce the risks of relapse. Working with police, religious leaders, social service providers, and the local hospitals can fill gaps in service and may even reduce recidivism.
New processes and change can be stressful and difficult to accept, especially in a quasi-military agency charged with
managing individuals deprived of their freedom for cause. Remember that, in addition to helping those with addiction, implementation of MAT may make it safer for custody, health staff, and all those working the line.
The sanctity of life is important to us all. Implementing MAT in your jail will save lives and make it safer and more secure for the hard-working staff in your facility. For more information, search “Jail Based MAT” online or on the NCCHC website.
Be on the lookout for the next article in this series, which will provide more insight into starting your MAT program and how to develop a successful plan to structure your operation and implement effective policies and procedures. That article will be followed by the keys to successful implementation and the final article will explore effective discharge planning and building partnerships to ensure continuity of care upon release.
As always, thanks for all you do. Stay safe and healthy!
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Fred W. Meyer, MA CJM, CCHP, is managing director of NCCHC Resources, Inc., the consulting arm of the National Commission on Correctional Health Care. A retired deputy chief, he has more than 25 years of experience in corrections and is a graduate of the National Jail Leadership Command Academy and Jail Executive Development Program. He holds a master’s degree in Criminal Justice from the University of Nevada, Las Vegas. He can be reached at fredmeyer@ncchcresources.org.
Claire Wolfe, MPH, MA, is a program manager at NCCHC Resources, Inc. She holds a Master of Public Health in Epidemiology and has focused her research on opioid use disorder treatment in jails. Previously, she worked for the philanthropic arm of a multi-national IT consulting company and as the chief of staff for a New Jersey State Assemblyman. She can be reached at clairewolfe@ncchcresources.org.
Borschmann R, Tibble H, Spittal MJ, Pirkis J, Preen D, Larney S, et al. The Mortality After Release from Incarceration Consortium (MARIC): Protocol for a multi-national, individual participant data meta-analysis. Int J Popul Data Sci. 2019;5(1):06.
Centers for Disease Control and Prevention (2022, May 11). U.S. Overdose Deaths In 2021 Increased Half as Much as in 2020—But Are Still Up 15%. [Press Release]. https://www.cdc.gov/nchs/pressroom/nchs_press_releases/2021/20211117.htm
Evans, E. A., Wilson, D., & Friedmann, P. D (2022). Recidivism and mortality after in-jail buprenorphine treatment for opioid use disorder. Drug and Alcohol Dependence, 231, 109254. https://doi.org/10.1016/j.drugalcdep.2021.109254
National Commission on Correctional Health Care (2021). Opioid Use Disorder Treatment in Correctional Settings. https://www.ncchc.org/opioid-use-disorder-treatment-in-correctional-settings-2021/
Marsden, J., Stillwell, G., Jones, H., Cooper, A., Eastwood, B., Farrell, M., . . . Hickman, M. (2017). Does exposure to opioid substitution treatment in prison reduce the risk of death after release? A national prospective observational study in England. Addiction, 112(8), 1408-1418. doi:https://doi.org/10.1111/add.13779
Moore, K. E., Roberts, W., Reid, H. H., Smith, K. M. Z., Oberleitner, L. M. S., & McKee, S. A. (2019). Effectiveness of medication assisted treatment for opioid use in prison and jail settings: A meta-analysis and systematic review. Journal of Substance Abuse Treatment, 99, 32-43. doi:10.1016/ j.jsat.2018.12.003
National Academies of Sciences, Engineering, and Medicine (2019). Medications for Opioid Use Disorder Save Lives. Washington, DC: The National Academies Press.https://doi.org/10.17226/25310.
Substance Abuse and Mental Health Services Administration (2021). Key substance use and mental health indicators in the United States: Results from the 2020 National Survey on Drug Use and Health (HHS Publication No. PEP21-07-01-003, NSDUH Series H-56). Rockville, MD: Center for Behavioral Health Statistics and Quality, Substance Abuse and Mental Health Services Administration. Retrieved from https://www.samhsa.gov/data/
Winkelman, T. N. A., Chang, V. W., & Binswanger, I. A. (2018). Health, polysubstance use, and criminal justice involvement among adults with varying levels of opioid use. JAMA Network Open, 1(3). https://doi.org/10.1001/jamanetworkopen.2018.0558