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MontanaCommissiononSentencing:ApplyingJus6ceReinvestmentSeptember2,2015TheCouncilofStateGovernmentsJus6ceCenterCarlReynolds,SeniorLegal&PolicyAdvisorKarenChung,PolicyAnalystDavidSisk,PolicyAnalyst
Presenta6onOverview
2CouncilofStateGovernmentsJus6ceCenter
Jus6ceReinvestment
CriminalJus6ceTrendsinMontana
- Jus6ceReinvestmentProcess- StateExperienceswithJus6ceReinvestment
- KeyChallengesinMontana- Ques6onsforCommissiononSentencing
TheCouncilofStateGovernmentsJus6ceCenter
CouncilofStateGovernmentsJus6ceCenter 3
• Na6onalnonprofit,nonpar6sanmembershipassocia6onofstategovernmentofficials
• Engagesmembersofallthreebranchesofstategovernment• Jus6ceCenterprovidesprac6cal,nonpar6sanadviceinformed
bythebestavailableevidence
FundingandPartnersforJus6ceReinvestment
JusticeReinvestment
adata-drivenapproachtoreducecorrectionsspendingandreinvestsavingsinstrategiesthatcandecreaserecidivismandincreasepublicsafety.
CouncilofStateGovernmentsJus6ceCenter 4
SB224createdMontanaCommissiononSentencingwithamandateforempiricalstudyandevidence-basedprac6ces.
CouncilofStateGovernmentsJus6ceCenter 5
Createdaninterbranchcommissionofcriminaljus6cesystemstakeholdersto(amongotherthings):• “iden6fystrategiestosafely
reduceincarcera6oninstateprisonsandtopromoteevidence-baseddiversionprogramsandothereffec6vealterna6vestoincarcera6on”
• “balancesentencingprac6cesandpolicieswithbudgetconstraints”
• reportrecommenda6ons,includingdataanalysis,to65thlegislature(December2016)
StateleadersrequestedassistancetoconductacomprehensiveanalysisofMontana’scriminaljus6cesystem.
CouncilofStateGovernmentsJus6ceCenter 6
Keycharacteris6csaboutthejus6cereinvestmentprocess
CouncilofStateGovernmentsJus6ceCenter 7
Intensityoftheapproach
Comprehensivedataanalyses
Extensivestakeholderengagement
Consensusreflectedinpolicypackages
Reinvestmentandimprovingcurrent
spending
Holdoffendersaccountable
Directresourcestowardgreatest
recidivismreduc6on
Broadscopeofpolicyop6ons
Focusonimprovingpublicsafety
Jus6cereinvestmentprojectpartnersenabletwophasesoftechnicalassistancetostates.
TargetReinvestmentStrategies&MonitorKeyMeasures
5
PhaseI6–9months
PhaseII12–24months
DevelopPolicyOp6ons&Es6mateImpacts3
EngageSystemStakeholders2
ImplementNewPolicies4
AnalyzeData1
CouncilofStateGovernmentsJus6ceCenter 8
Jus6cereinvestmentdatarequestsarecomprehensive.
CouncilofStateGovernmentsJus6ceCenter 9
Case-LevelData TypicalSources1. CriminalCourtFilingsandDisposi6ons Administra6veOfficeofCourtsorSentencingCommission
2. JailData JailAuthorityorSheriffs’Departments
3. Problem-SolvingCourtData Administra6veOfficeofCourts
4. Proba6onandOtherCommunityCorrec6onsData
Proba6onDepartment/CommunityCorrec6onsAgencies–Local,CountyorState
5. PrisonData DepartmentofCorrec6ons
6. ParoleData DepartmentofCorrec6ons
7. ParoleBoardHearing/DecisionData ParoleBoard
8. CriminalHistoryData StatePolice(asrequestedforspecificcohorts)
9. BehavioralHealthDataonCriminalJus6cePopula6oninCommunity DepartmentofCorrec6ons/DepartmentofHealth
AggregateData/SummaryReports TypicalSources1. CrimeandArrestData StatePoliceorFBI
2. CriminalJus6cePopula6onForecasts DepartmentofCorrec6onsorSAC
3. RecidivismStudies DepartmentofCorrec6onsorSAC
4. Budget/Spending/CostData Legisla6veBudgetOffice/CriminalJus6ceAgencies
Theprocesswillcomplementdataanalysiswithinputfromstakeholdergroupsandinterestedpar6es.
LawEnforcement
LocalGovernmentOfficials
TreatmentProviders
Judges
DefenseAUorneys
CommunityCorrec6ons
Vic6mAdvocates
CountyAUorneys
Correc6ons
ParoleBoard
BusinessLeadersFaithBased/
CommunityLeaders
ReformAdvocacy
CouncilofStateGovernmentsJus6ceCenter 10
SupervisionOfficers
CSGCoS
TribalCommunity
Alongwithcomprehensivedataanalysis,jus6cereinvestmentinvolvesextensivestatutoryandpolicyreview.
CouncilofStateGovernmentsJus6ceCenter 11
Pretrial Typicalbailstatutes,noindica6onofsupervisoryauthority
FelonyClasses Nouniformclassifica6oninspiteofModelPenalCoderoots
NotableOffensesPropertyoffense<$1500=sixmonthsmax;propertyoffense>$1500=10yearsmaxburglaryofabuildingv.dwellingisunclear;statuteuses“occupiedstructure”Robbery(2–40)isundifferen6ated,hasno“aggravated”version
FelonyProba6on >3yearsfordeferredimposi6on>Maximumsentenceforsuspendedexecu6on
MandatoryMinimums Nodeferredorsuspendedforfirst2yearsfor11violentoffenses
Habitual/ExtendedTerms Persistentoffender,twostrikesiflessthan5yearshaveelapsed
TimeServedRequirement Paroleeligibilityaner¼ofprisonsentence;good6mepre-1997
ParoleDecisionmaking §46-23-201,amendedin1989toeliminatelibertyinterestinparole
NotableStatutes
§46-18-201Sentencesthatmaybeimposed§46-18-202judicialdenialofparoleeligibility§46-18-225criteriaandalterna6vesforsentencingnonviolentoffenders§46-18-901SentenceReviewDivision§46-23-1011requiresproba6onofficercaseloadbalancing,‘oneon,oneoff’
Bipar6san,interbranchstateleadersprovidesupportattheprojectlaunchandatkeypointsduringtheprocess.
CouncilofStateGovernmentsJus6ceCenter
WashingtonLawmakers,JudicialLeadersEndorseProposalforJus6ceSystemReformJanuary14,2015Olympia,WA—Abipar6sangroupofstateleadersacceptedajus6cereinvestmentpolicyframeworkforthestate’scriminaljus6ceandcorrec6onssystemsonJan.14,cappingayearofinterbranchresearchandcoopera6on.
AlabamaLaunchesJus6ceReinvestmentIni6a6veJune10,2014Montgomery,AL—Alabama’sstateprisonsareAmerica’smostcrowded,currentlyopera6ngatapproximately190percentofcapacity.Thestatehasthethird-highestincarcera6onrateinthecountryandacorrec6onsbudgetthathasincreasedfrom$309millionto$460millionoverthepastdecade.
12
Sources:csgjus6cecenter.org/jr/alabama/posts/alabama-launches-jus6ce-reinvestment-ini6a6ve,andcsgjus6cecenter.org/jr/washington/posts/washington-lawmakers-judicial-leaders-endorse-proposal-for-jus6ce-system-reform.
ExamplesofJus6ceReinvestmentPublica6onsandReports
CouncilofStateGovernmentsJus6ceCenter 13
OverviewPublica6on
Introductoryreportreleasedatprojectlaunchtoprovidebig-pictureoverviewofsystemtrends
WorkingGroupPresenta6ons
Interimreportsillustra6ngdataandpolicyanalysisandstakeholderinput
FinalReportComprehensivereportsummarizinganalysisandpresen6ngpolicies,impacts,andreinvestments
2017Session
Proposedproject6melinewouldentailintensiveworkin2016leadingintothe65thlegisla6vesession.
CouncilofStateGovernmentsJus6ceCenter 14
Dec.15CommissiononSentencingDeadline/PolicyRolloutandBill
Introduc6on
StakeholderEngagement BillDraning
ProvideInfotoPolicymakersandMediaandKeepStakeholders
Involved
CoS/JRMee6ng#1
ProjectLaunch
CoS/JRMee6ng#2 CoS/JRMee6ng#3 CoS/JRMee6ng#4
Ini6alandDetailedDataAnalysis
PolicyOp6onDevelopment
ImpactAnalysis
Sep Nov DecOct
CommissiononSentencing(CoS)
Mee6ng
2015
2016 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Twenty-onestateshaveusedajus6cereinvestmentapproachwiththeCSGJus6ceCenter.
CouncilofStateGovernmentsJus6ceCenter 15
NV
AZ
TX
KS
OK
WI
NC
IN
HI
VTNH
OHPA CT
MI
WV
RI
ID
AL
NE
WA
MT
Realignsentencingandparolepolicies
2006–2010
16CouncilofStateGovernmentsJus6ceCenter
Statepolicymakersareusingthejus6cereinvestmentapproachtotackleabroaderrangeofstrategiesandpolicies.
Improvesupervisionquality
Structuresupervisionsanc6onsbasedonrisk
Betertarge6ngfortreatmentprograms
2010–2012
Improveres6tu6oncollec6on
Cranwin-winsforstateandcoun6es
Improvepretrialassessment&supervision
2012–2015
Focusonstatewiderecidivismreduc6on
Reducerevoca6onstoprisonandjail
Fundmoretreatmentprograms
Redesignprogramsandtrainingstrategies
Assess/validateriskassessmentprac6ces
Supportdata-drivenlawenforcementstrategies
Integrateevidence-basedprac6cesintreatmentprograms
Fundmoretreatmentprograms
Reducerevoca6onstoprisonandjail
Focusonstatewiderecidivismreduc6on
Fundmoretreatmentprograms
Reducerevoca6onstoprisonandjail
Focusonstatewiderecidivismreduc6on
Improvesupervisionquality
Realignsentencingandparolepolicies
Structuresupervisionsanc6onsbasedonrisk
Betertarge6ngfortreatmentprograms
Idaho’slegisla6ontailorssanc6onsforsupervisionviola6ons,structuresparole,andtracksrecidivism-reduc6onstrategiestoensureimpact.
CouncilofStateGovernmentsJus6ceCenter 17
7,338
8,076
7,000
7,500
8,000
8,500
9,000
9,500
10,000
2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019
9,408
8,362
8,014
Baseline
Administra6veImplementa6on
FullImplementa6on
Alabama’sJRprocessyieldedpoliciestoestablishparoleguidelinesandincreasesupervisionforthoseleavingprison.
CouncilofStateGovernmentsJus6ceCenter 18
0
5,000
10,000
15,000
20,000
25,000
30,00025,874
DesignCapacity=13,318
BaselineProjectedPrisonPopula6on
26,026195%ofcapacity
JRProjectedPrisonPopula6on
21,516162%ofcapacity
$560m
averted costs and savings by FY2017
10
prisons closed since 2011
175 new probation officers in
FY2014 & FY2015
11% drop in crime between
2011–2013
ImpactsofNorthCarolina’sjus6cereinvestmentpolicieshaveexceededprojec6ons.
19CouncilofStateGovernmentsJus6ceCenter
30,000
35,000
40,000
45,000
2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017
June 30, 2014 Actual Prison Population:
37,665 2005 Actual Prison
Population 36,663
Prison Population at JRA Passing June 2011
41,030
8% drop in prison population 41% drop in releases w/o supervision 50% drop in probation revocations
Baseline Projected Prison Population
43,220
JRA Projected Prison Population
38,264
FiscalYear
CouncilofStateGovernmentsJus6ceCenter 20
(1)NewFramework:AmericanLawIns6tuteModelPenalCode—comprehensivesentencingsec6ons(2)OldDebate:“Determinatev.indeterminate”(3)NewDebate:“[T]heideaofsentencingdefendantsbasedonriskfactorsmayhelptoreducetheprisonpopula6on,butincertaincircumstancesitmayruntheriskofimposingdras6callydifferentpunishmentsforthesamecrimes.”[AGHolder](4)NewResearch:oncomponentsandscoringofcriminalhistory(5)OldandNewCaseLaw:developmentsontopicssuchasrighttoajury,“inherent”judicialauthoritytosanc6on,dueprocessforsanc6onsandforfinancialobliga6ons,sentencingbasedonriskfactors,etc.
1.AuthorizedDisposi6onsofOffenders-DeferredProsecu6on-DeferredAdjudica6on-Proba6on-EconomicSanc6ons-CollateralConsequences2.AuthorityofSentencingCommission3.SentencingGuidelines4.AuthorityoftheCourtinSentencing5.ResearchandEvalua6on6.PrisonReleaseandPostreleaseSupervision
UpdatesintheFieldofSentencingPolicy
Presenta6onOverview
21CouncilofStateGovernmentsJus6ceCenter
Jus6ceReinvestment
CriminalJus6ceTrendsinMontana
- Jus6ceReinvestmentProcess- StateExperienceswithJus6ceReinvestment
- KeyChallengesinMontana- Ques6onsforCommissiononSentencing
Montanahadthe29thhighestincarcera6onratein2013.
2013Incarcera6onRate(Sentencedprisonersper100,000popula6on)
U.S.TotalIncarcera6onRate
478
Source:BureauofJus6ceSta6s6cs,Prisonersin2013.
22CouncilofStateGovernmentsJus6ceCenter
-30%
-20%
-10%
0%
10%
20%
30%
40%
WV
AZ
AR
IN
AL
PA
ND
NE
FL
UT
KY
ID
SD
MN
WY
NH
OH
OR
MT
NC
NV
OK
MA
IL
TN
NM
WA
VT
RI
MS
LA
KS
GA
VA
AK
TX
MO
IA
DE
ME
CO
WI
SC
MD
CT
MI
HI
NJ
NY
CA
Montanaisamongstateswithprisonpopula6onpercentageincreasesexceedingthena6onalaveragegrowthof6percent.
PrisonPopula6onPercentageChange,2004–2013
ND
U.S.+6%
Montana+15%
Source:BJS,Prisonersreportshtp://www.bjs.gov/index.cfm?ty=pbse&sid=40
CouncilofStateGovernmentsJus6ceCenter 23
Montana’spopula6onisgrowingsteadilyandisconcentratedinafewcoun6es.
930,0091,023,579
0
200,000
400,000
600,000
800,000
1,000,000
1,200,000
2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
• 59%ofthestatepopula6onlivedinthesixlargestcoun6es,eachwithover50,000residents(Yellowstone,Missoula,Galla6n,Flathead,Cascade,LewisandClark)
• 47ofMontana’s56coun6eshavefewerthan20,000residents
Source:USCensusBureau
2010Popula6onDensity
24CouncilofStateGovernmentsJus6ceCenter
Popula6onChange2004–2014
+10%
AnnualPercentChangeinPopula6onbyCounty,2010–2013
Montana’seasternborderisontheoilpatch,thefastestgrowingareaofthecountry.
Source:U.S.CensusBureauCurrentPopula6onEs6mates,"Popula6on,Popula6onChangeandEs6matedComponentsofPopula6onChange:April1,2010toJuly1,2013,"CountyTotals:Vintage2013.htp://www.prb.org/Publica6ons/Ar6cles/2014/us-oil-rich-coun6es.aspxOfficeoftheAtorneyGeneral,CrimeinNorthDakota,2009and2013.
25CouncilofStateGovernmentsJus6ceCenter
CrimeratesarelowerthantheU.S.totalandgenerallyfollowna6onaltrends,butviolentcrimeincreasedinthelate1990s.
67 241
1,985 2,557
161368
1,726
2,731
0
1,000
2,000
3,000
4,000
5,000
6,000PropertyCrimeRates
ViolentCrimeRates
Source:FBIUCROnlineDataToolandCrimeintheU.S.,2013.
IndexCrimesper100,000Popula6on,1960–2013 ChangeinCrimeRatessince1990
PropertyCrimeU.S.Total-46%Montana-41%ViolentCrimeU.S.Total-50%Montana+51%
Montana
Montana
U.S.Total
U.S.Total
CouncilofStateGovernmentsJus6ceCenter 26
Felonycasefilingsareupsharplyinthelastsixyearsfollowingaperiodofdecline.
CouncilofStateGovernmentsJus6ceCenter 27
8,752
7,249
9,339
0
1,000
2,000
3,000
4,000
5,000
6,000
7,000
8,000
9,000
10,000
2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
Source:MontanaDistrictCourtCaseFilingsandDisposi6ons,2005-2014.
DistrictCourtFelonyCaseFilings
2008–2014+29% MontanaJudicialDistricts
2,3732,537
2,805
0
500
1,000
1,500
2,000
2,500
3,000
200820092010201120122013201420152016201720182019
Steadygrowthisprojectedforcorrec6onalpopula6ons.
CouncilofStateGovernmentsJus6ceCenter 28
ActualPrisonPopula6on
+7%
Source:DepartmentofCorrec6onsPopula6onProjec6on,Version13F-8/19/2013
ProjectedGrowth+11%
Capacity2,573
1,605
2,0092,185
0
500
1,000
1,500
2,000
2,500
3,000
200820092010201120122013201420152016201720182019
ActualAlterna6vePopula6on
+25%
ProjectedGrowth+9%
8,884 8,4379,688
0
2,000
4,000
6,000
8,000
10,000
12,000
200820092010201120122013201420152016201720182019
ActualSupervisionPopula6on
-5%
ProjectedGrowth+15%
Capacity1,932
Capacity8,396
PrisonAlterna6vesandPrerelease/Transi6onalLivingMaleandFemalePrisons
Proba6on,Parole,andSpecializedSupervision
Prisonpopula6onisprojectedtobeat109%ofcapacityattheendof
FY2019
Generalfundcorrec6onsspendinghasincreased39percentsince2006.
$131$138
$158$166 $167 $167 $170
$176 $182
$0
$20
$40
$60
$80
$100
$120
$140
$160
$180
$200
FY06 FY07 FY08 FY09 FY10 FY11 FY12 FY13 FY14
GeneralFundCorrec6onsExpenditures(inmillions),FY2006–FY2014
CouncilofStateGovernmentsJus6ceCenter 29
Source:MontanaDepartmentofCorrec6ons2011,2013,2015BiennialReports.
Admissionstoadultfacili6eshaveoutpacedreleases.
CouncilofStateGovernmentsJus6ceCenter 30
Source:MontanaDepartmentofCorrec6ons2015BiennialReport.
Timeservedbeforeparolereleasehasgrownby16percentsince2010.
CouncilofStateGovernmentsJus6ceCenter 31
In2014,parolewasgrantedin42%of
ini6alparoleappearances.
Atreappearancehearings,75%weregrantedparole.
Source:MontanaBoardofPardonsandParole2015BiennialReport.
Themajorityofallprisonintakeshavebeenforrevoca6onssince1998.
CouncilofStateGovernmentsJus6ceCenter 32
Source:Na6onalGovernorsAssocia6on.PewCharitableTrusts.MichiganCouncilonCrimeandDelinquency,“PolicyOp6onsforImprovingPublicSafety,HoldingOffendersAccountable,andContainingCorrec6onsCostsinMontana
InFY2013,85percentofallprisonintakeswereforrevoca6onsfromcommunitysupervisionandotheralterna6veplacements,ratherthannewcourtcommitments.
Three-quartersofthecorrec6onalpopula6onisincommunitycorrec6ons,mostlyonproba6onorparole.
CouncilofStateGovernmentsJus6ceCenter 33
Source:MontanaDepartmentofCorrec6ons2015BiennialReport.
Montanasentencinglawallowsforseveralpermuta6onsinsentencetype,andtheDOChasnotablediscre6on.
CouncilofStateGovernmentsJus6ceCenter 34
Source:MontanaDepartmentofCorrec6ons2015BiennialReport.
Montanahasnumerousstateandcontractcorrec6onalprogramsandfacili6es,andanecdotally,movespeoplearoundalot.
CouncilofStateGovernmentsJus6ceCenter 35
Source:MontanaDepartmentofCorrec6ons2015BiennialReport.
Anassessmentofprovidersandprogramscanhelpdeterminewhethertheyareeffec6veinreducingrecidivism.
CouncilofStateGovernmentsJus6ceCenter 36
Targetpopula6on
Programtype Program
quality
RecidivismReduc6on
WHO
HOWWELLWHAT
TheJus6ceCentercanconductsomequalityassessmentsintheprocess.
CouncilofStateGovernmentsJus6ceCenter 37
DataAnalysis
Outreach&Interviews
DirectObserva6on
Qualita6veReview
WHO WHAT HOWWELL
• Case-levelrisk/needdataforMDOCoffenders
• Parolereleases
• Parolehearingcasefiles • Programcurricula • Programassessment
results• CurrentQAprocess
• In-prisonprograms• Community-based
programs
• CSGexpertreviewofprogramcurricula
• Programfacilitators,par6cipants,andfacilitymanagementstaff
• Recidivismratesforprogrampar6cipants
• Admissionsprocess• Riskassessments
andreassessments
• Assessmentstaff• Proba6onandParole
Officers
• Programstaff• MDOCresearchstaff
• In-prisonprograms• Community-based
programs
• Programcost• Programdosage
KeyCriminalJus6ceChallengesinMontana
CouncilofStateGovernmentsJus6ceCenter 38
• Montana’sprisonpopula6onhasgrownandisprojectedtogrowto109%ofcapacityattheendofFY2019.
• Felonycasefilingshaveincreasedsharplyinrecentyears,andalthoughMontana’scrimerateshavedecreased,theviolentcrimeratehasincreasedoverthelongrun.
• Lengthofstayinprisonhasincreasedsignificantlyinrecentyears.• Revoca6onsfortechnicalviola6onsareabigdriverofprisonadmissions.• Therearenumerousstateandcontractprogramsandproviders,andthe
statecanbenefitfromanassessmentofhoweffec6vetheyareinreducingrecidivism.
• Thesentencingsystemhasuniquefeatures,andeffects,thathavenotbeensystema6callyexaminedintwodecades.
KeyQues6onsforCommissiononSentencing
CouncilofStateGovernmentsJus6ceCenter 39
v Keypriori6esfortheCommissiononSentencing?• Goals• Areasforanalysis• Stakeholders
v Poten6altopicstocoverinfuturepresenta6ons?
• “Whatworks”toreducerecidivism• JRexperiencesinotherstates• Otherstatesentencingpoliciesandsystems
v Ques6onsaboutjus6cereinvestment?
2017Session
Proposedproject6melinewouldentailintensiveworkin2016leadingintothe65thlegisla6vesession.
CouncilofStateGovernmentsJus6ceCenter 40
Dec.15CommissiononSentencingDeadline/PolicyRolloutandBill
Introduc6on
StakeholderEngagement BillDraning
ProvideInfotoPolicymakersandMediaandKeepStakeholders
Involved
CoS/JRMee6ng#1
ProjectLaunch
CoS/JRMee6ng#2 CoS/JRMee6ng#3
Ini6alData
Analysis
DetailedDataAnalysis
PolicyOp6onDevelopment
ImpactAnalysis
Sep Nov DecOct
CommissiononSentencing(CoS)
Mee6ng
2015
2016 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
CoS/JRMee6ng#4
CouncilofStateGovernmentsJus6ceCenter 41
ThankYouKarenChung,[email protected]
ThismaterialwaspreparedfortheStateofMontana.Thepresenta6onwasdevelopedbymembersofTheCouncilofStateGovernmentsJus6ceCenterstaff.Becausepresenta6onsarenotsubjecttothesamerigorousreviewprocessasotherprintedmaterials,thestatementsmadereflecttheviewsoftheauthors,andshouldnotbeconsideredtheofficialposi6onoftheJus6ceCenter,themembersoftheCouncilofStateGovernments,orthefundingagencysuppor6ngthework.
C SG J U S T I C E C EN T E R . O RG / SUB S C R I B E