jus$ce reinvestment in pennsylvania · jus+ce reinvestment offers states a comprehensive...
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Jus$ceReinvestmentin
PennsylvaniaFirstPresenta+ontothePennsylvaniaJus+ce
ReinvestmentWorkingGroup
March9,2016
CarlReynolds,SeniorLegalandPolicyAdvisor
MarcPelka,DeputyDirector
EdWeckerly,ResearchManager
PatrickArmstrong,PolicyAnalyst
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WorkingGroupComposi+on
CouncilofStateGovernmentsJus+ceCenter 2
JoshShapiro
Chairman,
PennsylvaniaCommissiononCrimeandDelinquency
RandyAlbright
Secretary,
OfficeoftheBudget
SallyBarry
ChiefProba+onOfficer,
LebanonCounty
MarkBergstrom
Execu+veDirector,
PennsylvaniaCommissiononSentencing
TyreeBlocker
Commissioner,
PennsylvaniaStatePolice
MarkBrunelle
Execu+veDeputy
ChiefofStafftotheGovernor
TheodoreDallas
Secretary,Pennsylvania
DepartmentofHumanServices
WilliamDanowski
Secretary,
Governor'sOfficeofLegisla+veAffairs
TomDarr
CourtAdministrator
ofPennsylvania
SarahE.GalballySecretary,
Governor’sOfficeofPolicyandPlanning
MichaelGreen
Chairman,Pennsylvania
BoardofProba+onandParole
Senator
StewartGreenleaf
12thSenatorialDistrict
EllenGreenlee
DefenderAssocia+onof
Philadelphia(Ret.)
Hon.Jolene
GrubbKopriva
PresidentJudge,
BlairCounty
MichaelHanna,Jr.
DeputySecretary,
Governor'sOfficeofLegisla+veAffairs
ElliotHowsie
DirectorandChief
PublicDefenderofAlleghenyCounty
MaryIsenhour
ChiefofStaff,
Governor'sOffice
RobertJolley
President,Pennsylvania
ChiefsofPoliceAssocia+on
KathleenKane
Pennsylvania
ATorneyGeneral
LindaKelly
CourtAdministrator,
AlleghenyCounty
Senator
DaylinLeach
17thSenatorialDistrict
Representa$ve
RonMarsico
105thLegisla+veDistrict
EdwardMarsico,Jr.
DistrictATorney,
DauphinCounty
LesNeri
President,FraternalOrder
ofPolice-PennsylvaniaStateLodge
MavisNimoh
Secretary,
PennsylvaniaBoardofPardons
BrindaCarrollPenyak
CountyCommissioners
Associa+onofPennsylvania
Representa$ve
JosephPetrarca
55thLegisla+veDistrict
LindaRosenberg
Execu+veDirector,
PennsylvaniaCommissiononCrimeandDelinquency
DeniseSmyler
GeneralCounsel,
Governor’sOfficeofGeneralCounsel
KeithSnyder
Execu+veDirector,
JuvenileCourtJudges'Commission
JenniferStorm
Vic+mAdvocate,Office
ofVic+mAdvocate
EdwardSweeney
DirectorofCorrec+ons,
LehighCounty
GaryTennis
Secretary,Pennsylvania
DepartmentofDrugandAlcoholPrograms
JohnWetzel
Secretary,Pennsylvania
DepartmentofCorrec+ons
SethWilliams
DistrictATorney,
PhiladelphiaCounty
Hon.Sheila
Woods-Skipper
PresidentJudge,
PhiladelphiaCounty
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SenatePresidentProTempore
JoeScarna$
“Weneedtoreducerecidivismtobenefitourcommuni;esandhelpensurethattaxpayerdollarsthatarebeingsenttoHarrisburgarebeingusedproduc;vely.”
Pennsylvanialeadershaveindicatedstronginterestinand
commitmenttojus+cereinvestment(JR).
CouncilofStateGovernmentsJus+ceCenter 3
HouseSpeakerMikeTurzai“Whenlegislatorsfrombothsidesoftheaisleworktogethertotacklethesetoughissues,wecreategenuineresults.Weprovedthatwithajus;cereinvestmentapproachwetookin2012.”
ChiefJus$ceThomasSaylor
“Jus;cereinvestmentprovidesaclearopportunitytodoathoughIulanalysisofourcriminaljus;cechallenges.”
GovernorTomWolf
“Abrokencriminaljus;cesystemisafailuretodeliveronthepromiseofafairandjustsociety,andwemustallworktogethertoensurePennsylvanialeadsthena;oninrehabilita;onandnotincarcera;on.”
PennsylvaniaJus+ceReinvestmentLaunchEvent,February18,2016
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CouncilofStateGovernments(CSG)Jus+ceCenter
CouncilofStateGovernmentsJus+ceCenter 4
• Na+onalnonprofit,nonpar+sanmembershipassocia+onof
stategovernmentofficials
• Engagesmembersofallthreebranchesofstategovernment
• Jus+ceCenterprovidesprac+cal,nonpar+sanadviceinformed
bythebestavailableevidence
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NextSteps
Jus$ceReinvestment
Presenta+onOverview
5CouncilofStateGovernmentsJus+ceCenter
KeyChallenges
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6
Adata-drivenapproachtoreducecorrec1onsspendingandreinvestsavingsinstrategiesthatcandecreaserecidivismandincreasepublicsafetyTheJus+ceReinvestmentIni+a+veissupported
byfundingfromtheU.S.DepartmentofJus+ce’s
BureauofJus$ceAssistance(BJA)andThePewCharitable
Trusts
CouncilofStateGovernmentsJus+ceCenter
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Jus+cereinvestmentoffersstatesacomprehensive
step-by-stepprocess.
DataAnalysisDatacompiledfromacrossthecriminaljus;cesystemforcomprehensiveanalysis
StakeholderEngagementComplementdataanalysiswithinputfromstakeholdergroupsandinterestedpar;es
DevelopPolicyOp$ons
&Es$mateImpacts
ImplementNewPolicies
TargetReinvestments&
MonitorKeyMeasures
Bipar$san,Interbranch
WorkingGroup
Presentapolicyframeworktoreducecorrec;onscosts,increasepublicsafety,andprojecttheimpacts
Iden;fyassistanceneededforimplementa;onanddelivertechnicalassistanceforreinvestmentstrategies
Assembleprac;;onersandleaders;receiveandconsiderinforma;on,reports,andpolicies
Trackandmonitortheimpactofenactedpoliciesandprograms,andadjustimplementa;onplanasneeded
1
2
3
4
5
6
CouncilofStateGovernmentsJus+ceCenter 7
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CSGhasworkedonjus+cereinvestmentin21states,withfive
underwayin2016includingareturntoPennsylvania.
CouncilofStateGovernmentsJus+ceCenter 8
2016States
HI
NV
AZ
TX
KS
OK
WI
NC
IN
VT
NH
OHCT
MI
WV
RI
ID
AL
NE
WA
MA
MT ND
AR
PA
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Pennsylvania’spreviousJRprojectledtoadata-drivenpolicy
framework,whichwasthenconvertedtolegisla+on.
CouncilofStateGovernmentsJus+ceCenter 9
2012PolicyFramework
• Reduceinefficienciesinthecorrec+onsand
paroleprocess
• Priori+zeCCC/CCFsforhigher-riskparoleeswho
benefitmostfromtheintensiveprograms
• Applyshortenedperiodsofincarcera+onto
technicalparoleviolatorsfollowedbysupervision
• Provideperformance-drivenfundingtohelp
divertmisdemeanantsandtheshort-minimum-
sentenceprisonpopula+on
• Expandlocalresourcestoreducerecidivism
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Althoughimplementa+onofpoliciesenactedin2012hasvariedin
+mingandimpact,ithass+llgeneratedsignificantsavings.
CouncilofStateGovernmentsJus+ceCenter 10
Reducinginefficiencies
inparole
decisionmaking
Addressinefficienciesthatdelaydecision-makinginparolebyincreasingthepropor+onofparolecasesinterviewedpermonth
Efficiencieshave
increasedparoles
Priori$zinguse
ofCCC/CCF
programs
RedesignCCCsandCCFsasparoletransi+onandviola+oncenters,prohibi+ng“pre-release”offendersandpriori+zingtheplacement
ofhigher-riskparolees Some
improvements
butroom
formoreApplyingshorterperiodsof
incarcera$onforparole
violators
Respondtomajortechnicalparoleviola+onswithshortenedperiodsofincarcera+oninSCIfollowedbysupervision.
Addressing
low-level
offendersinprison
Requirelow-levelmisdemeanants(UMandM3)tobesentencedtoasanc+onotherthanprison
Impactless
thanexpected
Diver$ng
theshort-min
popula$on
Providefundingtohelpcoun+esdivertmisdemeanantsandshort-minimumsentencepopula+on(<1yearinprison)
Delayin
fundinghasimpaired
impact
Throughavoidedconstruc+on,facilityclosures,andannualizedopera+ngcostsavings,theDOC
es+matesthatthetotalavertedcostsinthethreeyearssinceJRI2012are$285million.
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Withsavingsincreasingeachyear,nearly$4millionhasbeen
reinvestedsince2012.
CouncilofStateGovernmentsJus+ceCenter 11
Act122
Crea$onofguidelines
forproba$onandparole
violatorsincluding
intermediatesanc$ons
Increasedeligibilityfor
bootcamp,RRRI,and
SIP
Sentencinglow-level
offenders(UMandM3)
toasanc$onotherthan
prison
Crea$onofhigh-
intensitysupervision
programsforcounty
proba$on
Capsonlengthofstay
fortechnicalparole
violators
FY2012–2013$57,000
FY2013–2014$990,719
FY2014–2015$11,812,718
Calcula$onofgeneratedsavings
Totalreinvested
Reinvestments(FY2015–2016Total)
Vic$mservices
$1,000,000
Riskassessment
$400,000
Policing
$668,000
Proba$on
$404,000
Countyshort-mindiversion
$326,000
Localreentry
$62,000
Parolerelease
$93,000
FY2013–201475%
FY2014–2015100%($21mcap)
FY2015–201625%
FY2013–2014$43,000
FY2014–2015$990,719
FY2015–2016$2,953,000
Implementa$on
Duringimplementa+on,stateagenciesrecognizedsomebarrierstoachievingthefullimpactofActs122and196of2012.Important
administra+vepolicyadjustmentsweremadeinthelaTerstagesofthe
implementa+onperiodtoincreaseimpactandgenerategreatersavings.
Savingsrequiredforreinvestment
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36,810
51,51249,914
0
10,000
20,000
30,000
40,000
50,000
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015
Despiterecentreduc+ons,theprisonpopula+onis36percent
higherthanin2000.
PennsylvaniaPrisonPopula+on,2000–2015
Jus+cereinvestmentlegisla+onpassed2013-2015
-3%
CouncilofStateGovernmentsJus+ceCenter 12
2000-2015
+36%
Source:DOCAnnualSta+s+calReports.
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The2016jus+cereinvestmentprojectdiffersfromthe2012
effortin+meline,scope,anddataanalysis.
CouncilofStateGovernmentsJus+ceCenter 13
PennsylvaniaJus$ceReinvestment
2012 2016
Timeline5months
LaunchedinJanuary2012withpolicy
op+onsdevelopedbyMay2012
10monthsProjectlaunchinMarch2016;policy
op+onstargetedforJanuary2017
ScopePrimarilyfocusedon
PrisonandParole
ComprehensiveExamina$onIncludingarrest,diversion,pretrial,sentencing,
proba+on,jail,prisonandparole
AnalysisStateResearchStaff
Provideddiscretedatasetsandanaly+cal
support;cross-systemanalyseslimited
CSGResearchStaffPartneringwithstateresearchstaff
toconductcase-levelanalysis;
linkingofdataacrosssystems
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Presenta+onOverview
14CouncilofStateGovernmentsJus+ceCenter
NextSteps
Jus$ceReinvestment
KeyChallenges
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Keychallengesastheyappearatthebeginningoftheproject
CouncilofStateGovernmentsJus+ceCenter 15
CountyImpactsandOutcomes
• Mostsentencesareservedlocally,onproba+onorinjail
• Resourcesandprac+cesvaryandoutcomesareunknown
SentencingComplexityandVaria$on
• Complexitythatgrowswithlegisla+veenactmentsover+me
• Advisoryguidelinesenablevaria+on
PrisonandParoleVolumes
• Largeprisonpopula+on
• Highestparolesupervisionrateinthecountry
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SentencingGuidelines
GuiltWithoutFurtherPenalty(GWFP)
AcceleratedRehabilita+ve
Disposi+on(ARD)
Thearrest,pretrial,andsentencingstagesprovidenumerous
pathwaystodiversion,supervision,andincarcera+onop+ons.
CouncilofStateGovernmentsJus+ceCenter 16
Sentencing
Incarcera+on
Arrest
PretrialBailDecision,PSI,
RiskAssessment,
BehavioralHealthAssessments
DiversionRestora+ve
Sanc+on(RS)
Fine/CommunityService
Res+tu+on
Proba+on
CountyIntermediatePunishment(CIP)[Restric+veIntermediate
Punishment(RIP)+RS]
StateIntermediatePunishment(SIP)
[Flatsentenceof24monthswith
individualizedSAtreatmentplan]
Par+alorTotalConfinement
[CountyorStateFacility]
Proba+onWithoutVerdict
(PWV)
Disposi+oninLieuofTrial
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Over80percentofsentencesareservedatthecountylevel,
eitheronproba+on,injail,orCIP.
CouncilofStateGovernmentsJus+ceCenter 17
Proba$on
41,744
42%
CountyJail
31,679
31%
CIP
10,480
10%
Prison
13,323
13%
Fine/CS
3%
SIP
1%
FelonyandMisdemeanorSentences,2014
Source:PennsylvaniaCommissiononSentencingAnnualReport,2014.
Mostseriousoffensepercriminalincident,N=100,432
Felony
Sentences
31,844
Misdemeanor
Sentences
68,588
Proba$on
24%
CountyJail
33%
Prison
34%
Proba$on
50%
CountyJail
31%
63%offelonysentencesand93%ofmisdemeanorsentencesarehandledbycountyagencies
CIP
7%
CIP
12%
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30%
25%
15%
7%
21%
CountySupervision
36,34740,636
50,756
CountyJail* StateSupervision(PBPP) StatePrison
Almostaquartermillionpeoplearesupervisedby65county
adultproba+ondepartmentsonanygivenday.
CouncilofStateGovernmentsJus+ceCenter 18
243,767
CriminalJus+cePopula+onsasofDecember,2014
Source:PennsylvaniaBoardofProba+onandParole,CountyAdultProba+onandParoleAnnualSta+s+calReport,2014.
*2014jailaveragein-housedailypopula+on
74,017
Countyproba$on
61,931
Countypost-releasesupervision
followingajailincarcera+on
36,629
Supervisionthrougha
diversion(Accelerated
Rehabilita+veDisposi+onor
Proba+onWithoutaVerdict)or
onbailsupervision
16,498
SupervisionthroughaCounty
IntermediatePunishment(CIP)
program
50,715
Inac+veorAbsconders
Countysupervisionandjailcombinedcomprise75%ofthestatecriminaljus+ce
popula+on
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30%
25%
15%
7%
21%
CountySupervision
Countysupervisiongrowthisdrivenbyinac+ve/absconder
andcountyparoleincreases.
CouncilofStateGovernmentsJus+ceCenter 19
2014243,767
County
Proba$on
CountyParole
Diversion(ARD
orPWV)orBail
Supervision
CIP
Inac$veor
Absconders
79,36674,017
2010 2011 2012 2013 2014
49,18861,931
35,671 36,629
32,678
50,715
16,580 16,498
2010–2014
Trend
-7%
+26%
+3%
0%
+55%
Source:PennsylvaniaBoardofProba+onandParole,CountyAdultProba+onandParoleAnnualSta+s+calReports,2010-2014.,
215,493
243,767
2010 2011 2012 2013 2014
Countysupervisionofalltypesisup13%in
thelast5years
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Supervisionprac+cesthataredemonstratedtoreduce
recidivismdependonmanageablecaseloads.
CouncilofStateGovernmentsJus+ceCenter 20
2014
State
Proba$on/
Parole
County
Proba$on/
Parole
NumberofAgents 498 1,724
Ac+veCases(Allsupervisiontypesandlevels)
33,082 187,707
AverageAc+veCaseloadperAgent 66 109
Thereisnoaccepted,universalcaseloadsizestandard,howeversupervisioncanreduce
recidivismrateswhenthedosageof+meandaTen+onismatchedwiththeriskandneedlevel
oftheclient.Anexampleofpoten+alcaseloadlevelsstra+fiedbyrisk:
Low:120–200casesModerate:50–60casesHigh:20–30cases
Source:APPAhTps://www.appa-net.org/eweb/docs/APPA/stances/ip_CS.pdf,hTps://www.appa-net.org/eweb/docs/APPA/stances/ip_CSPP.pdf.PBPPCountyAdultProba+onandParoleAnnualSta+s+calReport,2014.PBPPMonthlyProgramReport,December2014.
Legisla+veBudgetandFinanceCommiTee,FundingofCountyAdultProba+onServices,February2015
Countycaseloadsaregenerallycomprisedof
lessseriousoffenders
andcouldbehigherthan
statecaseloads.S+ll,
thesecountycaseloadsappeartobehigh.
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StateGrant-in-Aidfundinghasdeclined,andcoun+esbear
mostofthecostoflocalsupervision.
CouncilofStateGovernmentsJus+ceCenter 21
Source:Legisla+veBudgetandFinanceCommiTee,FundingofCountyAdultProba+onServices,February2015.
“StateGrant-in-Aidfundinghasdeclinedmarkedlyinthelast10years,bothinrealdollars
andasapercentageofeligiblesalaries.” “AsstateGIAfundshavefallen,theamountcoun;escontributetotheirproba;onandparoleofficeshasincreased.Onaverage,countyfundscomprised58percentoftotalfundingforcountyproba;onandparoleofficesinFY2013–14.In
FY1998–99,countyfundscomprised,onaverage,only45percentoftotalfunds.”
Addi1onalNotesGrant-in-Aidfundshaveremainedat$16,150,000fromFY2011–12throughFY2014–15.Thisisareduc;onwhenviewedasapercentageofoverallfunding.InFY2013–14,theGIAprovidedonly8percentoftotalproba;onandparolefunding.Thisisincontrasttoour2000report,inwhichwereportedthatGIAwas20.4percentofoverallfunding.
TheGIAprogramisintendedtofinanciallyassistcoun;estoprovideimprovedproba;onandparolesupervisionandprogramsforadultoffenders.TheBoardisresponsibleforestablishingstandardsforcountyadultproba;onandparoleservicesunderthisprogram.InFY2014–15,theGIAprogramwasfundedat$16.15million.
Addi;onally,theCrimeVic;msActof1998requiresthatadultoffenderswhoareunderthesupervisionofcountyadultproba;onofficespayamonthlysupervisionfee.Thesefeesarecollectedbythecountyproba;onandparoleoffices.HalfthemoneyisretainedinaCountyOffenderSupervisionFundandtheotherhalfissenttotheCommonwealth,whichthenreturnsittothecoun;esonadollar-for-dollarbasis.Supervisionfeestotaled$38.2millioninFY2013–14.
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Countyjailshandleabout200,000admissionsandreleases
peryear.
CouncilofStateGovernmentsJus+ceCenter 22
• Thestatewideon-handjailpopula+onisabout36,000,butthereistremendouschurnwith
around200,000admissionsandreleasesoverthecourseoftheyear.
• Pennsylvania’sjailpopula+onincreasedby
9,700peoplefrom1999to2013,thesecond
highestnumberincreaseinthecountryandthe20thlargestpercentagechange(+36%).
• Pennsylvaniahadthe11thhighestjailincarcera+onrateamongstatesin2013
(360per100,000,excludessixstateswithunifiedsystems).
• Highcostperday(rangefrom$37to$112/day);averageis$67.
200,000
Admissions200,000
Releases36,000
Source:BJSCensusofJails:Popula+onChanges,1999–2013,2014PACountyPrisonSta+s+cshTp://www.cor.pa.gov/Facili+es/CountyPrisons/Pages/Inspec+on-Schedule,-Sta+s+cs-And-General-Info.aspx
JailPopula+on
26,996
36,720
1999 2013
+36%
PA
AverageCost
$67perday
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Keychallengesastheyappearatthebeginningoftheproject
CouncilofStateGovernmentsJus+ceCenter 23
CountyImpactsandOutcomes
• Mostsentencesareservedlocally,onproba+onorinjail
• Resourcesandprac+cesvaryandoutcomesareunknown
SentencingComplexityandVaria$on
• Complexitythatgrowswithlegisla+veenactmentsover+me
• Advisoryguidelinesenablevaria+on
PrisonandParoleVolumes
• Largeprisonpopula+on
• Highestparolesupervisionrateinthecountry
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Sentencingguidelineshaveexpandedtoincludepenalty
enhancementsandsentencingop+ons,includingtreatment.
24CouncilofStateGovernmentsJus+ceCenter
1995:Threestrikeslawenacted
2010:SentencingCommissionchargedwithdevelopingrisk
assessmentatsentencing
2015:CommonwealthofPennsylvaniav.Hopkins(Mandatory
minimumsfound
uncons$tu$onal)
2008:Introduc+onoftheRecidivismRiskReduc$on
Ini$a$ve(RRRI)andchanges
toplace-of-confinementrules
2004:StateIntermediate
Punishmentcreated.Mandatoryminimumaddedfor
drugoffenseswithfirearm
1982:SentencingGuidelinesgointoeffect
1988:Guidelinesre-promulgated.
Mandatoryminimumsentences
enactedformanydrugoffenses
1987:SupremeCourtinvalidatesall
guidelinesdueto
proceduralerror
1980 1985 1990 1995 2000 2005 2010 2015
1991:CountyIntermediate
Punishment(CIP)and
BootCampestablishedassentencingop+ons
1997:EnactedguidelinesthatincludedfundingforRIPdrug
andalcoholtreatment
withCIP
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Sentencingpoliciesandprac+ceshaveamajorimpactonthe
systeminvariousways.
CouncilofStateGovernmentsJus+ceCenter 25
Policy Prac$ce
PlaceofConfinement:Lengthofmaximumsentencedetermines
whetherthepersoncompletesthe
sentenceinjailorprison.
Min/MaxRule:Lengthofminimumsentencemay
benolongerthanhalfthelength
ofthemaximumsentence.
ParoleEligibility:Peoplebecomeeligibleforparoleat
theirminimumsentencedate,andif
releasedonparolemustserveun+l
theirmaximumsentencedate.
Sentencingprac+cesaffectthevolume
goingtosupervisionorincarcera+onoran
incarcera+onalterna+ve,suchas
intermediatepunishment.
Proba$on,
Fines,
orCommunity
Service
CountyJailor
County
Intermediate
Punishment
State
Intermediate
Punishment
orPrison
Sentencingguidelinesmatrixprovides
recommendedsanc$onsbasedonseverityof
offenseandanoffender’scriminalhistory,
ooengivingdiscre$ononsanc$oningop$ons.
Sentencingpolicies,suchasplaceof
confinementandthemin/maxrule,can
haveanimpactoncorrec+onsandparole
prac+ces.
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Sentencingop+onsaredirectedthroughasentencing
guidelinesgridwithfivedisposi+onallevels.
CouncilofStateGovernmentsJus+ceCenter 26
LEVEL5:StateIncarcera+on
LEVEL4:StateIncarcera+on
CountyIncarcera+on
LEVEL3:StateIncarcera+on
CountyIncarcera+onCountyIntermediatePunishment
Restora+veSanc+ons
LEVEL2:CountyIncarcera+on
CountyIntermediatePunishmentRestora+veSanc+ons
LEVEL1:Restora+veSanc+ons
IncreasingCriminalHistory
IncreasingOffenseSeverity
Recommended
Sentence
5,605sentences6%
8,211sentences8%
21,143sentences21%
45,239sentences45%
20,119sentences20%
2014Total=
100,317incidents
Source:PennsylvaniaCommissiononSentencingAnnualReport,2014.
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ThemajorityofsentencesareforoffenderswithliTleorno
criminalhistoryandforlower-leveloffenses.
CouncilofStateGovernmentsJus+ceCenter 27
IncreasingCriminalHistory
IncreasingOffenseSeverity
0 1 2 3 4 5 RFEL REVOC
14
13
12
11
10
9
8
7
6
5
4
3
2
1 15% 3% 2% 1 1 2%
2% 1 1 1 1
12% 3% 3% 2% 2% 4% 1
2%
8% 2% 2% 1% 1% 2%
2% 1 1 1
2% 1
1
1
1
5%
Source:Jus+ceCenteranalysisofCommissiononSentencingdata.
CriminalIncident
Sentencing,
2014
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Totalsentencingvolumeisup10percentinthepastdecade.
CouncilofStateGovernmentsJus+ceCenter 28
91,492
100,432
0
20,000
40,000
60,000
80,000
100,000
120,000
2005 20062007 2008 2009 2010 2011 2012 20132014
TotalNumberofCriminalIncidents,2005–2014
Source:PennsylvaniaCommissiononSentencingAnnualReport,2014.
Felony
32%
Misdemeanor
68%
TotalIncidentsbyOffenseLevelandDisposi+onType,2014
CountyJail31%
Proba$on42%
CIP10%
Prison13%
SIP1%
OtherRestora$ve3%
Two-thirdsofsentencedoffenses
aremisdemeanors
andthemost
commondisposi+ons
areproba+onandcountyjail+me.
+10%
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Proba+onsentencesarelargelyfoundwhereexpectedonthe
sentencinggrid;CIPshowssentencesoutsidestandard.
CouncilofStateGovernmentsJus+ceCenter 29
Proba+on,N=41,744
Source:Jus+ceCenteranalysisofCommissiononSentencingdata.
CIP,N=10,480
Bubblesizesonlypropor;onatewithineachsentencingcategory. 95%ofCIPupwarddepartureswereDUIs
CriminalIncident
Sentencing,
2014
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Sentencestojailandprisonalsoshowupwardanddownward
disposi+onal“departures.”
CouncilofStateGovernmentsJus+ceCenter 30
Source:Jus+ceCenteranalysisofCommissiononSentencingdata.
StatePrison,N=13,208
Bubblesizesonlypropor;onatewithineachsentencingcategory.SIP(N=554)andOtherRestora;veSanc;ons(N=2,652)notdisplayed.
CountyJail,N=31,679
78%ofJailupward
departures
wereDUIs
Prisonupwarddepartureswereablendofoffenses:they,simpleassault,burglary,DUI,retailthey,drugoffenses
CriminalIncident
Sentencing,
2014
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Despitethestructureprovidedthroughtheguidelines,varia+onin
sentencingoutcomescans+llexistacrosssimilarcases.
CouncilofStateGovernmentsJus+ceCenter 31
44%
40%
8%
6%
2%
Source:PennsylvaniaCommissiononSentencingAnnualReport,2014.
2014SentencingExample:
MisdemeanorSimple
PossessionDrugOffenses
OffenseGravityScore=3
PriorRecordScore=5
N=1,039
Proba$on
CountyJail
StatePrison
IntermediatePunishmentOtherRestora+veSanc+on
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Keychallengesastheyappearatthebeginningoftheproject
CouncilofStateGovernmentsJus+ceCenter 32
CountyImpactsandOutcomes
• Mostsentencesareservedlocally,onproba+onorinjail
• Resourcesandprac+cesvaryandoutcomesareunknown
SentencingComplexityandVaria$on
• Complexitythatgrowswithlegisla+veenactmentsover+me
• Advisoryguidelinesenablevaria+on
PrisonandParoleVolumes
• Largeprisonpopula+on
• Highestparolesupervisionrateinthecountry
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Pennsylvania’sincarcera+onrateexceedsotherstatesinthe
region,andcrimeratesdonotprovideanexplana+on.
CouncilofStateGovernmentsJus+ceCenter 33
394
0
100
200
300
400
500
CT ME MA NH NJ NY PA RI VT
2,246
0
500
1,000
1,500
2,000
2,500
3,000
CT ME MA NH NJ NY PA RI VT
2014Incarcera$onRate(Sentencedprisoners(>1year)per100,000residentsinNortheastregionstates)
2014IndexCrimeRate(Reportedindexcrimesper100,000residentsinNortheastregionstates)
Source:BJS,Prisonersin2014;UCROnlineDataTool.
170
0
50
100
150
200
CT ME MA NH NJ NY PA RI VT
2014ViolentOffenseArrestRate(Violentoffensearrestsper100,000residentsinNortheastregionstates)
3,340
0
1,000
2,000
3,000
4,000
5,000
CT ME MA NH NJ NY PA RI VT
2014TotalArrestRate(Totalarrestsper100,000residentsinNortheastregionstates)
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Pennsylvania’s2004–2014increaseinincarcera+onratewas
thefourthhighestinthena+on.
CouncilofStateGovernmentsJus+ceCenter 34
16%
19%
4%3%
2% 1%
-14%
-20%
-22%
-30%
-20%
-10%
0%
10%
20%
30%
40%
WV
NE
AR
PA
NH
IN
KY
OH
MN
AL
ND
AZ
OK
IL
ID
SD
MT
FL
MA
WY
OR
VT
ME
NM
RI
TN
NC
LA
UT
KS
MO
IA
WA
VA
AK
WI
GA
MI
NV
DE
MS
CO
CT
MD
TX
NY
SC
NJ
HI
CA
Incarcera+onRatePercentageChange,2004-2014
Source:BJSCorrec+onsSta+s+calAnalysisTool,hTp://www.bjs.gov/index.cfm?ty=nps
PA
Imprisonmentrateofsentencedprisonersper100,000residents(sentencesgreaterthanoneyear).
NY
NJ
CT
Pennsylvania’sincarceratedpopula+ongrewbyabout9,500peoplefrom2004to2014,whichwasthe2ndlargestvolumeincrease
andthe7thlargestpercentagechangeinthecountry.
ME
NH
MA
VT
RI
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Correc+onsspendingincreased55percentoverthelast
decadeandiscurrentlyover$2.3billion.
Source:NASBOStateExpenditureReports,2005-2015
$1,537 $1,575$1,638
$1,834 $1,843 $1,832$1,907
$2,098 $2,110
$2,241$2,384
$0
$500
$1,000
$1,500
$2,000
$2,500
$3,000
FY05 FY06 FY07 FY08 FY09 FY10 FY11 FY12 FY13 FY14 FY15
GeneralFundCorrec+onsExpenditures(inmillions),FY2005–FY2015
CouncilofStateGovernmentsJus+ceCenter 35
26%
55%
Theincreaseingeneralfundcorrec+onalspendingfrom
FY2005toFY2015wastwice
aslargeasthegrowthin
totalgeneralfund
expenditures.
Total
GeneralFund
Spending
Correc$onal
GeneralFund
Spending
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832
8%3% 3%
Alargepor+onofnewprisoncommitmentscon+nuetohave
shortminimumsentences.
CouncilofStateGovernmentsJus+ceCenter 36
2,69626%
1yearorless
3,29932%
Over1to2years
2,91628%
Over2to5years Over
5-10
yrs
Over
10-20
yrs
Over
20yrs
toLife
NewCommitmentstoPrisonbyMinimumSentenceLengthinYears,2014(N=10,321)
Source:DOCAnnualSta+s+calReports,Jus+ceCenteranalysisofDOCdata.
2,4012,696
0
1,000
2,000
3,000
2006 2007 2008 2009 2010 2011 2012 2013 2014 2015
Shortminnewcourtcommitmentvolumehasincreased12%
Prisonerswithaminimumsentenceofoneyearorlesswhowere
releasedfromprisonin2014hadan
averagelengthofstayof15months.
NotethatDOCdefinesShortMinsasthosewithlessthanayearremainingontheirminimumsentenceatintake,aiertaking;meservedintoaccount.Thisexpandsthenumberslightly.
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Nearlyhalfofnewcourtcommitmentstoprisonarefor
propertyordrugoffenses.
CouncilofStateGovernmentsJus+ceCenter 37
Otherfeloniesprimarilyincludefirearmsoffenses.OthermisdemeanorsprimarilyincludeDUI.Violentmisdemeanorsprimarilyincludesimpleassaultandinvoluntarymanslaughter.
OtherMisd11%
Felony
78%
Misdemeanor
22%
TotalViolent32%
2014NewCommitmentstoPrison,N=10,321
Source:Jus+ceCenteranalysisofDOCdata.
DrugMisd1%
ViolentMisd4%
PropertyMisd6%
OtherFelony10%
DrugFelony24%
PropertyFelony17%
ViolentFelony27%
TotalProperty23%
TotalDrug25%
TotalOther21%
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Pennsylvania’srecentdeclineintheprisonpopula+onhas
beenlimitedtodrugoffenders.
CouncilofStateGovernmentsJus+ceCenter 38
27,015 27,123 27,358 27,748 27,752
2010 2011 2012 2013 2014
Violent
6,721 7,044 7,080 7,264 7,119
2010 2011 2012 2013 2014
Property
10,759 10,6329,941 9,658
8,810
2010 2011 2012 2013 2014
Drug
6,826 6,839 6,805 6,842 7,075
2010 2011 2012 2013 2014
Other
Increasedby3% Increasedby6%
Decreasedby18% Increasedby4%
PennsylvaniaDOCPrisonPopula+onbyOffenseType,2010–2014
Source:Jus+ceCenteranalysisofDOCdata.“Other”includesfirearms,DUI,andothernonviolentsexoffenses.Paroleviolatorsareincludedwiththeoriginaloffense.
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Pennsylvaniahasthehighestparolesupervisionrateinthe
country.
CouncilofStateGovernmentsJus+ceCenter 39
Source:OfficeofJus+cePrograms,BureauofJus+ceSta+s+cs,Proba;onandParoleintheUnitedStates,2014.
ParolePopula+onper100,000Residents,2014
U.S.Total
ParoleRate
303
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22,593
41,226
44,410
0
10000
20000
30000
40000
50000
FY00FY01FY02FY03FY04FY05FY06FY07FY08FY09FY10FY11FY12FY13FY14FY15FY16FY17FY18FY19FY20
Statesupervisionpopula+onhasincreasedandisprojected
tocon+nuegrowing.
StateSupervisionPopula+on,FY2000–FY2015,ParolePopula+onProjec+on,FY2016–FY2020
Source:PABoardofProba+onandParole,MonthlySta+s+csReports.CriminalJus+cePopula+onProjec+onsCommiTee,PennsylvaniaCriminalJus+cePopula+onProjec+ons,FY2015/16toFY2019/20.
CouncilofStateGovernmentsJus+ceCenter 40
ProjectedGrowth+8%HistoricalGrowth+82%
Notethatonlyroughly80%ofstatesupervised
casesarestatesentence
paroles;theremainder
arecountyspecial
proba+on/paroleorinterstatecompact
proba+on/parolecases.
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CouncilofStateGovernmentsJus+ceCenter 41
12,56613,546
14,81116,025 16,932
4,1344,011
3,8353,499
3,1631,717
1,8071,793
2,291 1,968
0
5,000
10,000
15,000
20,000
25,000
2010 2011 2012 2013 2014
PrisonReleasesbyType,2010–2014
18,41719,364
20,439
22,063
*Otherincludesreleasesbycourtorder,deaths,transferstootherjurisdic;ons,andreleaseddeten;oners.
68%
77%
Source:DOCAnnualSta+s+calReports.
Thenumberandpropor+onofstateparolereleaseshave
increased,reducingmax-outsbutincreasingsupervision.
Other*
MaxOut
Parole
21,815
Propor$on
paroledisupnine
percentagepoints
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26.1
23.9
30.0
32.5
0.0
10.0
20.0
30.0
40.0
FY2011 FY2012 FY2013 FY2014 FY2015
Recommitments
-9%(median-7%)
MaximumSentenceExpired
+9%(median+11%)
AverageLengthofStayonParoleinMonthsby
ClosureType,FY2011–FY2015(Stateparoleonly)
Since2011,paroleadmissionshaveoutpacedparoleclosures,
andlengthsofstayforsomeclosureshaveincreased.
CouncilofStateGovernmentsJus+ceCenter 42
16,163 15,97616,600
17,508 17,113
13,83214,990 14,554
15,713 15,722
0
2,000
4,000
6,000
8,000
10,000
12,000
14,000
16,000
18,000
20,000
FY2011 FY2012 FY2013 FY2014 FY2015
Admissions
Closures
StateParoleAdmissionsandClosures,FY2011–FY2015
Source:Jus+ceCenteranalysisofPennsylvaniaBoardofProba+onandParoledata.
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Thelargestpropor+onofstatesentenceparolecaseclosures
arerecommitmentstoDOC.
CouncilofStateGovernmentsJus+ceCenter 43
4,1845,138 4,992
5,738 5,718
4,453
4,5384,232
4,630 4,850
447
514582
737853
0
2,000
4,000
6,000
8,000
10,000
12,000
FY2011 FY2012 FY2013 FY2014 FY2015
StateSentenceParoleClosuresbyType,FY2011–FY2015
9,084
10,1909,806
11,421
*Otherincludesadministra;veclosures,deaths,andearlydischarges.
46%
50%
Other*
Maximum
SentenceExpired
Recommitment
11,105
Propor$onrecommisedup
4percentagepoints
(increaseof1,500people)
49%
42%
Source:Jus+ceCenteranalysisofPennsylvaniaBoardofProba+onandParoledata.
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Totalparoleviolatoradmissionshaveincreasedbutthe
diversionofsometoPVCshaslimitedbedconsump+on.
CouncilofStateGovernmentsJus+ceCenter 44
5,623
6,9007,278
5,517 5,854
2,980
3,466
0
1000
2000
3000
4000
5000
6000
7000
8000
9000
10000
FY2010 FY2011 FY2012 FY2013 FY2014
ParoleViolators-CCJ/PVC
ParoleViolators-SCI
ParoleViolatorAdmissionsbyFacilityType,FY2010–FY2014
8,497
9,320
SCI=StateCorrec+onalIns+tu+on
CCJ=ContractedCountyJail
PVC=ParoleViolatorCenter
Source:PBPP’s“201406JPMDashboard.xlsx”
Paroleviolatorscomprisethesamepropor+onoftheDOCtotal
popula+on(~15%)despitemore
admissions.Thisisduetoshorter
lengthsofstayfortechnical
paroleviolators.
ParoleViolatorAverageLengthofStay
atDOCbyFacilityTypeinMonths,2014
9.0
5.5
2.5
SCI
CCJ
PVC
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SummaryofIni+alFindings
CouncilofStateGovernmentsJus+ceCenter 45
CountyImpactsandOutcomes• Thevastmajorityofthecriminaljus+cepopula+oniscontrolledatthelocallevelthroughacombina+onofjail,
CIP,proba+on,countyparole,andothersupervision.
• Countyproba+on/parolecaseloadsarehigh,andthesupervisionpopula+onisontherise.
• 58%ofproba+onfundingisfromcoun+esandtrendingupward.• Thejailincarcera+onrateisrela+velyhigh,andahugenumberofpeoplecyclethroughjailseveryyear.
SentencingComplexityandVaria$on• Anarrayofop+onsandmandatesoverlaystheguidelinesandbasicrules.
• 100,000incidentsaresentencedinayear,and65%areinthelowesttwolevelsofthegrid.
• Sentencingvolumeisup10%,butthepropor+ontoprisonremainsstableat+/-13%.
• Significantvaria+onexistsinspiteoftheguidelines.
PrisonandParoleVolumes• Intheregion,Pennsylvaniahasahighincarcera+onratethatisconsumingmoreandmoreofthestate’sbudget.
• HalfofnewprisoncommitmentsareforpropertyordrugoffensesandaquarterofnewcommitmentsareShort
Mins.
• Pennsylvaniahasthehighestparolesupervisionrateinthecountry,andstateparolenumberscon+nuetorise.• Paroleviolatorreturnstoprisonareup,buttheirlengthofstayhasbeenreduced.
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Presenta+onOverview
46CouncilofStateGovernmentsJus+ceCenter
NextSteps
Jus$ceReinvestment
KeyChallenges
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Ques+onsforFurtherResearch
CouncilofStateGovernmentsJus+ceCenter 47
CountyImpactsandOutcomes
• Whatisthevolumeofmissedopportuni+esfordiversiontotreatmentinlieuofarrest,atthepretrialstage,and
atsentencing?• Whatarepretriallengthsofstayindifferentcoun+es,andwhatreleasedecisions/processesareinplace?
• Whatarerecidivismoutcomesfor:diversionop+ons,proba+on,intermediatepunishments,andjail?
• Whataretheopportuni+esandobstaclesforincreasingevidence-basedprac+cesatthelocallevel?
• Whatisbehindthelargeandgrowingnumberofinac+ve/abscondersoncountysupervision?
SentencingComplexityandVaria$on
• Howdoesthesystemsortoutsentencedpopula+onstosupervisionandincarcera+on,locallyandatthestate
level?• Howarehigh-volumesentences(suchasDUI)affec+ngresourcecapacityandu+liza+on?
• Whatarerecidivismratesforpeopleconvictedoflower-levelfeloniesandmisdemeanorsamongtheavailable
sentencingop+ons:proba+on,intermediatepunishments,jail,andprison?
• Arethereintolerablywidevaria+onsinsentencingacrossgeographicordemographiccategories?
PrisonandParoleVolumes
• WhatfactorscontributetoPennsylvania’sincarcera+onrateandhowdotheycomparetoneighboringstates?
• WhatiscausingPennsylvania’shighrateofadultsoncountyandstateparole,andwhatistheeffecton:supervisionresources,useofcommunitycorrec+onsandviolatorcenters,andrecidivism?
• Whatisdrivingthelargevolumeofstateparoleviolatorsreturningtoprison?
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Acquisi+onofdataisalmostcomplete.
48
DataType Source Status
Arrests PennsylvaniaStatePolice Scopingunderway
Jail Coun+es/JNET Scopingunderway
CourtFilings Administra+veOfficeofPennsylvaniaCourts Pending
Sentencing PennsylvaniaCommissiononSentencing Received
Prison PennsylvaniaDepartmentofCorrec+ons Received
ParoleSupervision PennsylvaniaBoardofProba+onandParole Received
ParoleDecisionMaking PennsylvaniaBoardofProba+onandParole Received
Proba+onSupervision Coun+es/CCAP/JNET Scopingunderway
BehavioralHealth
PennsylvaniaDepartmentofCorrec+ons
DepartmentofDrugandAlcohol
Programs/DepartmentofHumanServices
Received
Pending
CouncilofStateGovernmentsJus+ceCenter 48
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Judges
District
Asorneys
DefenseBar
ParoleBoard
Correc$ons&
Parole
Administrators
Behavioral
Health
Providers
Vic$m
Advocates
County
Officials
ParoleAgents
Law
Enforcement
Proba$on
Administrators
andOfficers
Business
Leaders
Stakeholderengagementwillraiseaddi+onalissues.
CouncilofStateGovernmentsJus+ceCenter 49
PAJR
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TheJus+ceCenterandtheWorkingGroupwillcombine
effortstoachieveasuccessfulprojectoutcome.
CouncilofStateGovernmentsJus+ceCenter 50
PAJR
WorkingGroup
CSGJus$ce
CenterStaff
Endorseproject
scopeofwork
Provideexper$se
onsystemdynamics
andstructures
Approvepolicypackage
Iden$fylegisla$veversus
judicialpolicies
Createmomentumfor
adop$onofjus$ce
reinvestmentpolicies
Serveasdedicated
stafftothestate
Analyzedata
Engage
stakeholders
Deliverpresenta$ons
andfacilitatediscussion
Interpretdata
andassess
trends
Iden$fyaddi$onal
stakeholders
Developdata-driven
policyframework
Iden$fypriori$es
forreinvestment
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Proposed+melineleadingtothe2017legisla+vesession
CouncilofStateGovernmentsJus+ceCenter 51
Dec Jan Feb Mar Apr May Jun Jul
ImpactAnalysis
DataAnalysis
Ini+alAnalysis
DetailedDataAnalysis
Working
Group
Mee$ng
1
FinalReportandBillIntroduc+on
PolicymakerandStakeholderEngagement
StakeholderEngagementandPolicymakerBriefingsPolicyOp+onDevelopment
Ongoingengagement
Aug
WorkingGroupMee+ng
4
2017
Session
WorkingGroup
Mee$ng2
May18
1:30-4:00pm
WorkingGroupMee+ng
3
Sep Oct Nov Dec
WorkingGroupMee+ng
5
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CouncilofStateGovernmentsJus+ceCenter 52
ThankYou
PatrickArmstrong,PolicyAnalyst
ThismaterialwaspreparedfortheStateofPennsylvania.Thepresenta+onwasdevelopedbymembersoftheCouncilofStateGovernmentsJus+ceCenterstaff.Becausepresenta+onsarenotsubjecttothesamerigorousreviewprocessas
otherprintedmaterials,thestatementsmadereflecttheviewsoftheauthors,andshouldnotbeconsideredtheofficialposi+onoftheJus+ceCenter,themembers
oftheCouncilofStateGovernments,orthefundingagencysuppor+ngthework.
c s g j u s $ c e c e n t e r . o r g / s u b s c r i b e