CELEBRATING SECOND CHANCE MONTH

The work of building a better reentry system in Kentucky is not something any one organization can do alone. Kentucky Voices for Health leads the Healthy Reentry Coalition, a growing network of directly impacted advocates, services providers, and community members committed to creating a healthier, more just path home for all incarcerated Kentuckians.

Our goal as a coalition is to provide support through education and awareness of policies and share resources and events among members. This work has traditionally focused on adult reentry, but we are working to bring in more voices from across the Commonwealth, particularly those either directly or indirectly impacted by the juvenile justice system. The coalition meets every third Thursday of the month. Our next meeting is April 16th, and we would love to have you there. If you are interested in joining or learning more, reach out directly to Brittany Elam at brittany@kyvoicesforhealth.org.

THE SEASON OF SECOND CHANCES

After a harsh winter, April is a month of blooming and growth. April also happens to be Second Chance Month in the Commonwealth of Kentucky. Much like the rebirth of all our state has to offer after the dullness of winter, our people are given a second chance at life. Recovery is much like a new Spring and it’s an opportunity to celebrate all of those who have lived lives of harsh winter and who were reborn through opportunity, resources, and the second chances that ultimately saved their lives.

At age 15, I found myself sitting in a holding cell, awaiting transport to the Fayette County Juvenile Detention facility. I had an unhealthy relationship with alcohol that became paramount to all other areas of life. I was consumed from an early age. Most of my family also struggled with various substances, which kept us all in an endless cycle of poverty and turmoil. I followed suit, beginning a life of substance abuse and petty crime and spending most of my adolescence and early adulthood cycling in and out of jails and treatment centers.

“Second chance” is in many ways a misnomer. If only it were so simple as a cookie-cutter two-step program. In reality, however, “second chance” should be read with an asterisk “but also third, fourth or fifth chance”, because, depending on every individual’s context and circumstances, it can take more than two attempts to foster growth and disable destructive patterns and ultimately unlock long-term recovery. 

Research published in Alcoholism: Clinical and Experimental Research found that the median number of attempts before achieving long term sobriety is between 2 and 5. The variability in that number alone shows us that recovery is never a uniform experience. The factors that determine success are rarely about individual choices alone, they are more about what surrounds a person when they walk out of a facility and back into society. While resources may appear readily available on paper, underlying issues like poverty, stigma, and systemic barriers keep far too many individuals trapped in a cycle of recidivism and without hope, even when they desperately want out of a vicious cycle. Fortunately, our state has taken great strides recently recognizing that opportunity, wraparound resources, and a change in thinking toward formerly incarcerated individuals can profoundly impact the health of our entire state.

ACCESS TO HEALTHCARE & KENTUCKY’S REENTRY DEMONSTRATION 1115 WAIVER

One of the most promising developments in Kentucky’s approach to reentry is the Medicaid 1115 Reentry Waiver, which allows states to extend Medicaid coverage to individuals incarcerated in our state prisons and youth detention centers in the period leading up to their release. Historically, incarcerated individuals have been excluded from Medicaid coverage, meaning they exit facilities with no health insurance and no pathway to the care they urgently need. Without coverage while incarcerated, the Kentucky Department of Corrections is financially on the hook for bearing the cost of treatment. According to the Kentucky DOC’s 2024 annual report, the state spends an average of $7,064 per year on medical costs per inmate in state prisons. This cost ultimately falls on Kentucky taxpayers because federal Medicaid dollars cannot follow someone through the prison door. This waiver would enroll all eligible individuals in Medicaid coverage 60 days prior to release, with services extending up to 12 months post release. Upon release, all eligible individuals would leave with a 30 day supply of their medications and any other medically necessary equipment like a breathing machine. 

So, why is this all important?

Physical health and mental health upon release is often fragile because of the lack of continuity of care before and after release. Chronic conditions that were poorly managed or undiagnosed during incarceration like diabetes, hypertension, hepatitis C, HIV, or asthma can all become acute crises after release without consistent care and medication. But it is mental health that may be the most pressing and most neglected reality that individuals leaving incarceration face. In 2024, nearly 66% of those involved in the criminal justice system have some level of mental health issue, ranging from mild to severe. Without timely access to psychiatric care, therapy, and medication management, relapse and recidivism are not just possibilities, they are near certainties.

The 1115 waiver, although delayed, went into effect April 1, 2026 and will help us address the barrier of accessing physical and mental health services post incarceration. It ensures that a person does not leave a facility without necessary healthcare, and that they can see a provider, access medication, and begin outpatient treatment beforehand. 

Every tool used to prevent recidivism, every emergency room visit prevented, every person stabilized in their community represents both a human life preserved and significant cost savings to the state.

THE HEALTH-RELATED BARRIERS THAT FOLLOW PEOPLE HOME

When someone is released from a carceral setting, they are rarely walking out into a stable environment. Instead, they leave with a host of unmet needs that, if left unaddressed, increase the likelihood of recidivism. Every moment after release is critical to a person’s success.

Housing insecurity is often the first and most urgent barrier. There is nothing more discouraging than being released into a sally port with nowhere to call home. Housing insecurity in this instance refers to an individual who could be living in a hotel or bouncing around from couch to couch, just one step removed from sleeping on the street. Without a stable address, individuals struggle to secure employment, maintain sobriety, or access healthcare. Shelters are frequently full or have a wait list, and many transitional housing programs exclude those with certain criminal backgrounds, a cruel irony for those trying hardest to improve their lives. 

In Kentucky, individuals who are trying to find housing are struggling. A 2024 analysis by the Kentucky Housing Corporation found that the state is short more than 206,000 housing units across all 120 counties, with a shortage of nearly 80,000 rentals for households with the least amount of income. Kentucky’s homeless population rose nearly 10% from 2023 to 2024, and in 2023 the state faced a shortage of 1,390 shelter beds. Formerly incarcerated Kentuckians are returning home to navigate this crisis while also carrying a criminal record, giving landlords every reason to turn them away.

For those who do manage to find secure housing, an eviction on their record can justify a landlord’s decision to deny housing. In Kentucky, an eviction filing becomes a permanent public court record the moment a landlord files a suit, regardless of whether the case has been dismissed, resolved, or filed in error. Nationally, 22% of eviction records contain errors, and in 2022, nearly 72% of all eviction filings in Jefferson County, Kentucky were dismissed. Within the last 5 years, more than half of all eviction cases in Kentucky have been dismissed. For a person leaving a carceral setting who carries a criminal record, even a dismissed eviction can create a positive impact on that person’s ability to find stable housing. HB388, now wrapped into SB9, introduced during the 2026 Kentucky General Assembly, would begin that change by requiring the automatic expungement of dismissed eviction records. 

A growing body of research points to housing support post-incarceration as one of the most effective tools in reducing recidivism. Adopting Housing First policies would not only improve reentry outcomes, it would have a measurable, positive impact on public safety and cost savings to the state. 

Food insecurity follows housing instability closely. The federal government’s 1996 welfare reform law established a lifetime ban for people with felony drug convictions. Kentucky has since opted out of that ban to allow individuals with felony drug convictions to participate in SNAP. Nationally, 91% of people released from a carceral setting report experiencing food insecurity, compared to just 12% in the general public.

Decades of policies have treated access to food as a privilege rather than a basic need. When someone leaves a facility, access to food can shape all decisions that follow. SNAP and other nutrition access programs are among the most effective investments our state can make in the health and stability of individuals returning to society. Not only are these programs beneficial to the impacted adult, but often become the only consistent source of nutrition for their children and families. Kentucky should continue to fully fund SNAP and all other nutrition access programs, so that no eligible Kentuckian has access to food.   

Transportation is another barrier that is often overlooked. Without reliable access to a vehicle or public transportation, particularly in rural Kentucky, attending court dates, meeting parole conditions, accessing treatment, and simply getting to the doctor, work or school becomes a daily challenge. One national survey found that roughly 1 in 3 formerly incarcerated individuals report difficulty in finding transportation for emergencies, and approximately 1 in 4 have trouble accessing public transportation. The same study found that nearly 18% of individuals on parole could not access substance use treatment due to inconsistent transportation access. So much of these basic needs that a lot of us take for granted daily are absolute lifelines for those trying to restore their lives. Even with resources available, if a person is without transportation, those resources become unavailable.

Non-emergency medical transportation (NEMT) is a federally mandated Medicaid benefit, administered in Kentucky through the Transportation Cabinet’s regional broker system, that provides rides to and from any Medicaid covered service for eligible members. This includes doctors appointments, mental health and substance use treatment, and other qualifying care. In 2024, Kentucky updated some of the guidelines to cover individuals who need access to medication assisted treatment clinics, or whose vehicle or access to the vehicle in the home is currently unusable or unavailable. Perhaps it’s a three or four person household with one vehicle that manages getting everyone to work and school, so if a doctor’s appointment comes up that conflicts with the vehicle’s availability, 2024 changes are intended to alleviate this barrier. Additionally, and although unclear how implementation will look in practice, accessing this benefit may be changing under the newly proposed HB2, which was vetoed by the Governor on April 13th. That veto is likely to be overridden when the legislature reconvenes for the final 2 days of the 2026 legislative session, ultimately making the bill law. Under this bill, the changes to NEMT eligibility and what their exact impacts will be are currently unclear. For individuals whose circumstances fluctuate, as they often do during reentry, it will be incredibly important to be sure they have accurate information and the resources necessary to navigate transportation needs.

Employment is perhaps the most talked about barrier, and, simultaneously, one of the most neglected in practice. A criminal record can follow a person like a dark shadow, appearing on background checks and closing doors before even being given a chance for conversation. This is where second chance employers, businesses that make a commitment to hiring individuals with criminal records, are not just socially responsible, they are essential to changing the trajectory of a person’s life. There are a growing number of Kentucky businesses that have demonstrated that second chance hiring does not just help transform lives, it also strengthens our workforce and families. One Kentucky specific policy, HB 185, helps to eliminate some barriers to employment by notifying an individual with a criminal background of their eligibility for a position before the hiring process. The intent of this bill is to reduce the amount an individual pays for application fees associated with certain licensures. We must encourage more businesses in the Commonwealth to adopt fair chance hiring policies, like the Ban the Box initiative, and recognize that the worst mistake a person has made does not define who they are.

Continued education can be a powerful predictor of successful reentry, yet access remains deeply unequal. An analysis by researchers at Middle Tennessee State University examined 148 prison education programs across 78 studies between 1980 and 2022. The findings from this study cited that vocational programs reduced recidivism by 16% and college level education reduced recidivism by more than 42%. More recently, Kentucky has made a stronger effort to invest in carceral education programs, including 35 technical education courses across its 14 prisons. A new partnership with Ashland Community and Technical College (ACTC) offers an online option for an associate’s degree for qualifying inmates, all at no cost to Kentucky taxpayers. In addition to current programs, a newly proposed reentry campus at Northpoint Training Center (Burgin, KY) could extend education opportunities to up to 400 inmates per year. Kentucky’s most recently reported overall recidivism rate is 30.81%. Continued investment in education, both inside facilities and upon release, have the potential to halve the recidivism rate.

Most importantly, everything listed above requires identification. Even for those individuals who are eligible for benefits, most who reenter society do so without identification, which makes any application for benefits, housing, or employment unattainable. While incarcerated, obtaining necessary documents to ready yourself for reentry is impossible. All required documents for proof of identification are also usually misplaced, which places another barrier between that individual and getting the identification card needed to properly reenter society. All who send off for a new social security card or birth certificate will face a waiting period to receive those documents in the mail. During this period, individuals are placed in tough situations that sometimes result in criminal behavior as a means of survival.

Kentucky has made some progress here. In 2021, the state launched a two year reentry ID program. In 2023, the program processed 1,659 ID applications. By 2024, that number had reached 2,585. While these efforts certainly deserve recognition, the number of IDs processed were only from 14 state prisons and 20 participating county jails combined. This means the vast majority of county jails in the Commonwealth remain outside of the program entirely, creating a significant gap in access. In addition to access issues, there have been anecdotal reports that cite the program is difficult to implement, alluding to issues with the bifurcated partnership. Cleaning up this effort by determining one entity to oversee the program, allocate funding, and track progress, is needed to ensure success across the state. Every person who leaves any Kentucky facility should be equipped with all required documentation required for living outside of that facility.  

THE BURDEN OF THE EXPUNGEMENT PROCESS

For many, expungement represents a fresh start that makes becoming an honest member of society possible. A clean record opens doors to housing, employment, and professional licensing. And yet, the expungement process in Kentucky, as it is in most states, is stricken with barriers that quietly discourage the very people it is meant to serve. The costs associated with filing, the complexity of the legal paperwork, the waiting periods, and the confusion about eligibility leave many individuals abandoning the process entirely. For someone working a minimum wage job and juggling the demands of reentry, the expungement process can feel less like an open door and more like a locked gate with instructions written in a language they were never taught. When people cannot clear their records, they struggle even more to move forward, and when they cannot move forward, they return to old ideas and behaviors. This is not a failure of character. It is a failure of access. 

About 1.3 million adults in Kentucky have some kind of criminal record. Kentucky lawmakers have recognized expungement as a burden to success for several years. The first Clean Slate Initiative policy was introduced in 2023, which would have automated the expungement process for eligible individuals, removing fees associated with filing, and requiring the state to initiate the expungement process rather than having the individual jump through hoops. That bill never received a hearing. In 2024, the effort was again introduced in both the House and Senate, seeing no progress to final passage. During the most recent legislative session, SB290, another bill to automate the expungement process, passed out of a committee, making it the furthest any Clean Slate legislation has advanced. This policy has stalled during the process and does not appear to become law this year. Simplifying and automating the expungement process in Kentucky is an investment in the Commonwealth. 

IMPACTS ON JUSTICE-INVOLVED YOUTH

The cycle of incarceration does not begin when a young person is arrested. It often begins the moment a parent is taken away and placed in a carceral setting. Kentucky has one of the highest rates in the nation of children who have or have had an incarcerated parent. A family with an incarcerated father is 38% more likely to experience poverty and hardship, and a child with an incarcerated parent is 6x more likely to become incarcerated themselves. In Kentucky, that risk hits Black families hardest. Based on 2021 numbers, Black youth in Kentucky are nearly 10x more likely to be held in a juvenile facility than their white counterparts. This gap continues to grow. Over the last decade, Black youth have been overrepresented in Kentucky’s justice system, growing by 92% and becoming 4th in the nation for the largest increase. Still, the systems we have built were not designed with young people in mind.Historically, most resources for reentry have been focused on helping our adult population. Access to treatment, transitional living, family reunification, and other necessary reentry programs are plentiful for adults, but are lacking for our youth who are experiencing similar hardship. Justice-involved youth face a distinct set of barriers that are significantly different from their adult counterparts. Because they are still moving through cognitive and emotional development, the decisions that are made during this stage can shape the entire trajectory of their lives. Unlike adults, justice-involved youth must navigate their educational success, family dynamics, and personal identity, all with limited resources that are age appropriate. The stigma of a juvenile record, whether sealed or not, can limit that youth’s ability to obtain higher education, employment, and in some cases, housing, which can derail our young people before they have an opportunity to begin. Without targeted, tailored, developmentally appropriate reentry supports, justice-involved youth are far more likely to become justice-involved adults.

Our investment in youth reentry, and the support of preventive policies that promote upstream thinking, have great potential to produce long-term outcomes for individuals, families, and communities.

A NOTE ON HB2

Kentucky recently passed HB2, named the Kentucky Medicaid Reform Act, and at the time of this blog’s publication, it is currently awaiting further action on the Governor’s desk. HB2 could impact nearly every barrier described above. While the bill does contain some genuinely protective provisions for behavioral health issues including substance use disorder, it should be noted that there will be a strong presence of impact on formerly incarcerated Kentuckians.

Some of HB2’s provisions are designed to align Kentucky’s Medicaid program with the federal One Big Beautiful Bill Act of 2025, which established new national standards for community engagement (work reporting requirements) and eligibility redeterminations. It is worth noting that earlier iterations of HB2, before the bill was amended in the Senate, contained provisions that were more harmful than what was passed in the final product. The version that now sits in front of the Governor more closely resembles the federal framework that was given to states by the federal government.  

Beginning September 1, 2026, Medicaid expansion adults between the ages of 19 and 64 will begin receiving notices about work reporting requirements where they will need to demonstrate 80 hours of work, education, or community service per month to maintain their coverage as early as December. For someone navigating the above documented barriers of reentry, this requirement creates a real risk of losing healthcare. Individuals with substance use disorder, mental health diagnosis, or those returning from incarceration, qualify for an exemption. The 1115 Reentry Waiver and initial exemptions will help close some of these gaps, but that coverage is not permanent. Coverage through the waiver extends only 12 months post-release, and when that period ends, it is unclear when the individual will be required to adhere to standard Medicaid rules, including community engagement requirements. Overnight, this requirement will add a tremendous amount of paperwork and reporting that these individuals had not previously been required to submit regularly. It can be confusing and overwhelming and we know that administrative barriers and hard to understand notices lead to disenrollments for individuals who are otherwise eligible for Medicaid coverage.

While individuals who recently returned home from incarceration may be making progress, that progress is rarely linear, and the 12-month mark does not always mean an individual has crossed the threshold of stability. Employment, housing, and overall economic sustainability rarely operate on an upward trajectory. At the end of the 12 month period, those still in need of an incremental, baby-stepped process, the safety net needs to remain available to ensure success. Without clear guidance on exemption timelines, those experiencing reentry are at risk. Kentucky Voices for Health will be monitoring HB2’s implementation closely and will continue to advocate for policies that protect progress this state has made in the reentry space. We encourage partners across the state to do the same.

TENDING THE SOIL TOGETHER

Today, I am celebrating nearly ten years of sobriety. I hold a master’s degree. And I spend my days doing the most meaningful work I have ever known, walking alongside people who are living the life I once lived, and helping them find their way to the other side. 

I did not get here alone. I got here because, at some point, someone extended an opportunity I did not feel I deserved. Someone hired me when they did not have to. Someone believed in my education when I doubted it. Someone sat with me when the pull of my old life was loudest. That is what second chances look like in practice. It’s not a single gesture, but a series of small, sustained acts of belief in another person’s capacity to grow and better themselves. And when the system we have does not always live by those same intentions, leading loudly by example is how we brick by brick lay a new policy foundation that supports improved health outcomes for all Kentuckians.

The people we are celebrating this April are not defined by the worst decisions of their lives. They are defined by what they chose to do next. They are parents showing up for their children. They are employees earning promotions. They are students crossing stages. They are neighbors, volunteers, and mentors. Most importantly, they are the quiet (although sometimes loud), steady evidence that people can and do change.

Spring always comes. But it comes more reliably when we tend the soil together.

This Second Chance Month, I invite you to carry these conversations beyond awareness. Talk about the importance of services and access during reentry with your colleagues, your church members, and your families. Support second chance employers with your business. Advocate for policies that reduce barriers to successful reentry in your community. Welcome those returning to your community with the same grace you would want extended to yourself in your hardest moment.April is Second Chance Month. Honor it not just with recognition, but with action. After all, change starts with us.

To learn more about the author, visit: https://kyvoicesforhealth.org/our-team/.