December2019

MONTANA CASELOAD STUDY REPORT

Introduction In2019,theMontanalegislatureaskedtheMontanaDepartmentofCorrections(MDOC)toconductanorganizationalassessmentofthesupervisionstructureandallocationofoffendercaseloadsacrossprobationandparolestaffthatisbasedonoffenderrisklevelsdeterminedthroughariskassessment.Tocarryoutthisproject,MDOCrequestedassistancefromTheCouncilofStateGovernments(CSG)JusticeCenter.Throughquantitativeandqualitativeanalysis,CSGJusticeCenterstaffacquiredadeepknowledgeofthepoliciesandpractices,currentreforms,anddatacapacityoftheMDOC,whicharereflectedinthisreport.Thecaseloadreportassessesthefollowing:

1) CurrentpressuresonMontana’ssupervisionsystem

2) MDOC’suseofrisk,need,responsivity(RNR)-basedsupervisionandcaseloads

3) ThestructureoftheprobationandparoledivisionwithinMDOC

4) OpportunitiestoincreasetheefficiencyandefficacyofMDOC’sprobationandparoledivisionandthesupervisionofalmost11,000peopleinMontana(seeFigure1.)

MONTANA’S CRIMINAL JUSTICE SYSTEM AT A GLANCE

SupervisionpopulationincreaseFY2015toFY2019:

17.5%

PrisonpopulationincreaseFY2015toFY2019:

7.5%

CourtcasefilingsincreaseCY2014toCY2018:

37%

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JusticeReinvestmentinMontana

JusticeReinvestmentisadata-drivenprocesstoreducecorrectionsspendingandreinvestsavingsinstrategiesthatcandecreaserecidivismandincreasepublicsafety.InJune2015,MontanastateleadersrequestedandreceivedsupporttoemployaJusticeReinvestmentapproachtostudythestate’scriminaljusticesystem,whichresultedinninepiecesofenactedlegislation:SenateBills59,60,62,63,64,65,67,SenateResolution3,andHouseBill133.

TheMontanaDepartmentofCorrections(MDOC)hasworkedinpartnershipwiththeCSGJusticeCentertoanalyzedata,assesscommunitysupervisionsystems,andimproveevidence-basedpoliciesandpractices.Specificimplementationeffortswerefocusedonparoleboardpractices,supervisionpractices,programevaluationprocesses,anddatacollectionthatwilladdressbothprisonandjailpopulationgrowth,reducerecidivism,andavertsupervisionpopulationgrowth.ItcantakethreetofiveyearsforfullimpactsfromaJusticeReinvestmentprocesstoberealized.

Context and Methodology MDOCandtheCSGJusticeCenterestablishedaworkgroupinOctober2019forthespecificpurposeofgatheringandanalyzingdataandreviewingpolicies,procedures,processes,anddocumentstoguidethisanalysis.MDOC’seight-memberworkgroupconsistedofaprojectmanager,JusticeReinvestmentcoordinator,statisticsanddatastaff,alongwithprobationandparoledivisionleadership.FromOctobertoNovember2019,theworkgroupmetregularlywithCSGJusticeCenterpolicyandresearchstafftoprovideinformation,addcontext,andreviewfindings.

QuantitativeAnalysis

CSGJusticeCenterstaffconductedquantitativedataanalysisbasedonmorethan1.2milliondatarecordsprovidedbyMDOC.Everyattemptwasmadetoidentifytrendsandexaminedataoverafive-yeartimespanfromStateFiscalYear(SFY)2015toSFY2019.TherewasspecialfocusonSFY19tounderstandrecentsupervisionpractices.Inaddition,casefilingdatawasobtainedthroughtheAdministrativeOfficeoftheCourt’spublishedannualreports.Datareviewedincludedthefollowing:

• MDOC2019BiennialReport• Probationandparoledivisionstaffinglevels,SFY15–SFY19• Probationandparoledivisionorganizationalchart,November2019• Districtcourtcasefilings,calendaryear(CY)15–CY18

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• Supervisioncaseloadvolume,SFY15–SFY19• Probationandparoleofficersupervisioncontactswithpeopleonsupervision,SFY15–

SFY19• EarlyreleaseandConditionalDischargefromSupervision(CDFS)considerationsfor

peopleonsupervision,July2018–November2019• Averagelengthofstaymetricsforthesupervisedpopulation,SFY19• Revocationratesbyregion,SFY19

QualitativeAnalysis

CSGJusticeCenterstaffreviewedMDOCpolicy,procedure,andprocesses.TheMDOCworkgroupprovidedadditionalcontextandinsightintothefindingsthatresultedfromthisanalysis.CSGJusticeCenterstafffacilitatedphonediscussionswithmultiplelevelsofMDOCstafftounderstandtasksanddutiesofprobationandparoleofficers(POs),institutionalprobationandparoleofficers(IPPOs),andinstitutionalcasemanagers(CMs).MembersoftheMDOCworkgroupandMDOCleadershipreviewedthefindingsinthisreportforaccuracy.

Research, Findings, and Recommendations Astaffinganalysis,suchasthisworkloadstudy,ofprobationandparoleofficersthatincludesandorganizationalassessmentofthesupervisionstructure,caseloads,anduseofriskassessmentsalsorequiresanindepthanalysisofhowstafffunctionrelativetosupervisionpracticesmoregenerallyandanunderstandingofthesystempressureswhichcontributetoandimpactstaffingandpractices.Usingbothqualitativeandquantitativedata,theCSGJusticeCenterorganizedfindingsandrecommendationsintothreecategories:(1)criminaljusticesystempressures,(2)supervisionpractices,and(3)organizationalstructureandstaffing.CriminaljusticesystempressuresexplorethecurrentchallengesinMontana’scriminaljusticesystem,focusingonissuesaffectingthesupervisionpopulationandstrategiesthatcanimpactthesupervisionpopulation,staffing,andcaseloads.Thesupervisionpracticessectionofthisreportexaminestheworkload(e.g.,reportingrequirements,dataentry,contactrequirements)ofprobationandparoleofficers,whiletheorganizationalstructureandstaffingsectionexploresthecaseloads(e.g.,numberandrisklevelsofpeopleanofficerisassigned)ofPOsandstaffing.FindingsandrecommendationsaregroundedinresearchtoprovidepolicymakersandMDOCleadershipwithafoundationfordecision-makingwithinthestate.

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CriminalJusticeSystemPressuresApproximately4.5millionAmericans,or1outofevery55adults,areonprobationorparole,anincreaseofmorethan300percentsince1980.1Increasesinsupervisionpopulationscancreatehighofficercaseloads,strainresources,andcreatebarrierstorecidivismreduction.Researchshowsthatapproximately70percentofpeoplewhofailonsupervisiondosowithinthefirsttwoyearsofsupervision(seeFigure2.).2Becausemostpeoplefailearlyintheirsupervisionterm,longsupervisiontermlengthsareoftenineffectiveanddrainresources.Approximately30stateshavetackledthisissuebyplacingacaponfelonyprobationtermsof5yearsorless,and35stateshavemechanismsforearlyreleasefromsupervision.3

Findings

1. Overthepastfiveyears,Montanahasseenincreasesinfelony-levelcasefilings,theprisonpopulation,andthesupervisionpopulation.

a. Felonycourtcasefilings.Felonycourtcasefilingshaveincreased37percentfromCalendarYear(CY)2014toCY2018buthavebeguntodeclineinCY2019.4Increasedcasefilingsplaceadditionalpressureonprobationandparolestaffrequiredbylawtoconductpre-sentenceinvestigations(PSIs)within30daysofaguiltypleaorverdict.Since2014,3additionaldistrictcourtjudgeshavebeenaddedinthestate,foratotalof49districtcourtjudges,whichincreasesthevolumeofPSIsrequestedpercourteverymonth.5

b. Montana’sprisonpopulation.Theprisonpopulationincreased7.5percentfromSFY2015toSFY2019,averagingapproximately2percentperyearforthelaststhreefiscalyears.6Theprisonpopulationgrowthisbeingdrivenbyanannualincreaseinprisonadmissions,whichwereparticularlyhighfor

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bothnewcourtcommitments(41-percentincrease)andrevocations(85-percentincrease)betweenSFY2018andSFY2019(seeFigure3).7ItshouldbenotedthatinFY2018,MDOCincreasedbedcapacityby205toreducethecountyjailbacklog,whichaccountsforaportionoftheincreaseMDOChasexperienced.

c. Thesupervisionpopulation(probation,parole,conditionalrelease,andalternativeplacements).Montana’ssupervisionpopulationincreased17.5percentfromSFY2015toSFY2019(seeFigure4).8Thisgrowthimpactedallsixregionsofthestateandallsupervisiontypes;however,thefemalesupervisionpopulationsawthemostsignificantincrease—27.3percent—versusanincreaseof14.1percentformenonsupervision.

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2. Overhalfofsupervisionfailuresafterreleasefromprisonoccurwithinthefirstyear.InMontana,57percentofmenand53percentofwomenwhoreturnedtoacorrectionalfacilityafterreleasefromprison(bothdirectdischargefromprisonwithnosupervisionandparolesupervision)didsowithinthefirstyearafterrelease.10Thefirstyearofsupervisioniscritical,andresourcesforbehaviorchangeshouldbeprioritizedwhenpeopleareatthehighestriskoffailure.Additionally,theimportanceofreentryplanningpriortoreleasedshouldalsobestressed.Longersupervisiontermscanmeanthatcriticalresourcesaredisbursedtowardtheendofpeople’ssentenceswhentheirriskofreturningtoprisonismuchlower.11

3. Peoplearesuccessfullycompletingparoleorconditionalreleaseandarethentransferredtoprobationtoserveasuspendedsentence.Atsentencing,ajudgehastheoptiontoutilizeasuspendedsentenceforapersonconvictedofafelony.Thetermofthesuspendedsentenceisforaperioduptothemaximumsentenceallowed,andthesuspendedsentenceisservedunderthejurisdictionofthecourtandprobationsupervision.Additionally,thesentencingjudgehastheabilitytoutilizeasuspendedsentenceinconjunctionwithaDOCCommitorprisonplacementwherethesuspendedportionofthesentenceisservedaftertheDOCCommitorprisonplacement.InSFY2019,193peoplesuccessfullycompletedparoleorconditionalreleaseandweresubsequentlytransferredtoprobationsupervisiontoserveasuspendedsentence.12Thesupervisionof193peopleforoneyearcoststhestateapproximately$442,935.13

4. SinceJusticeReinvestmentwasenacted,ConditionalDischargefromSupervision(CDFS)andearlyreleasefromsupervisionhaveincreased9.4percent.DetailedcriteriaforCDFSeligibilitywasenactedin2017toallowpeopleon

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supervisiontobereleasedearlybasedoncompliancewithsupervisionrulesandfinancialobligations.CDFSwasstructuredsothatpeopleassessedaslowriskareeligibleatanearliertimeintheirsupervisiontermthanpeopleassessedashighriskbasedonresearchdemonstratingthatunnecessarilykeepinglow-riskindividualsundercorrectionalcontrolcanincreasetheirlikelihoodofcommittinganewoffense.SinceJusticeReinvestmentwasenacted,CDFSforpeopleonprobationhasincreased,whileearlyreleasesfromsupervisionhavedecreased.Thenetresulthasbeenanoverallincreaseofmorethan9percent(seeFigure5).14TheimpactoftheCDFSwasprojectedtobegreaterthanwhathasoccurredinMontana.BasedonthelimiteddataavailableoneligibilityofpeopleforCDFSandapprovalrateofCDFSrequests,itisdifficulttodetermineifeveryonewhoiseligibleisreceivingconditionaldischargefromsupervision.MDOChasimplementedtrackingmeasurestocollectthisinformation;however,ithasnotbeeninplacelongenoughforsufficientevaluation.

Recommendations

MontanaDepartmentofCorrections

§ Examinewhatisdrivinggrowthintheprisonandsupervisionpopulations,aswellastheincreasesinfelonycasefilings.Thesignificantincreaseinprisonadmissionsforbothnewcommitmentsandrevocationsrequiresadditionalanalysis.Understandingwhatisdrivingthehighrateofrevocationscanhelpthestatedevelopappropriatestrategiestoaddresstheincreaseswhilemaintainingpublicsafety.Specificattentionshouldbepaidtotechnicalviolationsandwhetheradditionaltrainingofofficersandprogrammingforpeopleonsupervisioncanlowerthetechnicalviolationrate.Theassessmentofdriversshouldbecompletedforeach

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judicialandprobationdistricttodetermineifcertaingeographicareasofthestatearedrivingtheincreases.

§ Evaluateandreportsupervisionlengthsforbothsuccessfulandunsuccessfulsupervisionterms.CSGJusticeCenterstaffwereunabletoexaminesupervisionlengthsforthisreportduetohowinformationiscollectedintheOffenderInformationManagementSystem(OMIS).Understandinghowlongpeopleareonsupervisionandatwhatpointduringtheirsupervisiontermtheyfailcanhelpidentifypointsintimewheneffectivestrategiestoimprovesupervisionsuccessesandreducerecidivismshouldbeimplemented.Dataonsupervisiontermlengthsshouldbeexaminedforpeopleonprobation,parole,conditionalrelease,andprobationforasuspendedsentence.Thesupervisionlengthsshouldbecross-referencedwiththeriskassessmentlevelthatpeopleonsupervisionwereassigned.

PotentialLegislativeOptions

§ EvaluatetheeffectivenessofsuspendedsentencesonrecidivismreductioninMontana.Reducesupervisionlengthsbycappingsuspendedsentencesterms.ThismaybenefitthesupervisionpopulationinMontanawithoutcompromisingpublicsafety.Longsupervisiontermsincreasecaseloads,consumerresources,andmaybeunnecessarydependingonwhenpeoplefailduringtheirsupervisionterm.

§ Considerallowingpeopleonconditionalrelease(e.g.,DOCCommit)tobeeligibleforCDFSutilizingcurrentcriteria.InMontana,onlypeopleonprobationandparolesupervisionarecurrentlyeligibleforCDFS.PeoplesentencedasaDOCCommit—wherethejudgegrantsMDOCtheauthoritytodetermineplacementinaninstitution,treatmentfacility,orcommunitysupervision(e.g.,conditionalrelease)—areineligibleforCDFS.InSFY2019,1,041peoplewereplacedonconditionalrelease.16

SupervisionPracticesCommunitysupervision(i.e.,probation,parole,andconditionalrelease)providesanalternativetoincarceration,connectspeopletorelevantprogramming,andultimatelyholdsindividualsaccountable.Riskandneedassessments,suchastheMontanaOffenderReentryandRiskAssessment(MORRA)andWomen’sRiskandNeedAssessment(WRNA)usedinMontana,providedirectiontoprobationandparoleofficersontheintensityofsupervisionneeded,programmingandservicesthatwouldbemosteffectivetopromotebehaviorchange,andtheabilitytoseechangeovertime.Officersshouldalsouseassessmentresultstoidentifyresponsivityfactors,suchasalackofmotivationorlanguagebarriers,andtailor

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interventionstoaddresschallengesthatmaylimitaperson’ssuccessonsupervision.Ultimately,officersshouldholdpeopleaccountablebyconfrontinginappropriatebehaviorandsanctioningmisconduct,butalsosupportpeople’srehabilitationbyproactivelyengagingtheminappropriatetreatmentandservicespriortoanyviolationsoftheirsupervisionconditionsandprovidingincentivesandpositivereinforcementforprogressmadetowardthegoalsidentifiedintheircaseplan.TheexaminationofsupervisionpracticesprovidescontextandunderstandingofPOworkloadwhichprovidesinsightintostaffingneedsandorganizationalstructure.

Findings

1. MDOCsupervisespeoplebasedontheirassessedrisklevel.a. Policyandprocedure.Inaccordancewithnationallyrecognizedbest

practices,MDOCpolicyrequiresPOstosupervisepeopleassessedashighriskatahigherlevelthanpeopleassessedaslowrisk.However,anexaminationofcontactrequirementsrevealsthatthereisminimaldifferentiationbetweentheamountofcontactsforpeopleassessedasmoderateandlowrisk.Contactsshoulddecreaseasaperson’srisklevelcorrespondinglydecreases.

Montana17SupervisionLevel Offender

Contacts(PerYear)CollateralContacts

(PerYear)MonthlyReport(Mail/EmailUpdate)

Total

High 24 12 0 36Medium 12 12 0 24Moderate 4 4 8 16Low 4 2 8 14

Administrative 1 0 11 12Idaho18

SupervisionLevel OffenderContacts(PerYear)

CollateralContacts(PerYear)

MonthlyReport(Mail/EmailUpdate)

Total

Level4 2412

(upto12additionalifinprogramming)

0 36–48

Level3 186

(upto12additionalifinprogramming)

0 24–36

Level2 2

2(upto4additionalifin

programming0 4–8

Level1 NoStandard–Respondtocriticalincidentsandevaluateplacementevery180daysLimitedSupervisionUnit

(LSU) 0 0 12 12

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b. Data

i. Contactsbyrisklevel.AreviewofdataonthefrequencyofcontactsbasedonassignedsupervisionlevelsindicatesthatMDOCprobationandparolestaffhaveanincreasedamountofcontactsasthesupervisionlevelincreases;however,theanalysiswasunabletoensurethatthetypeofcontacts(i.e.,offendercontact,collateralcontact,andmonthlyreport)werecompletedaccordingtopolicy.Accordingtopolicy,contactsshouldrangefromanaverageof18peryearforlowsupervisionlevelstoanaverageof39peryearforhighsupervisionlevels.19Formen,low-riskcaseshave18.6contactsperyear,moderate-riskcaseshave29.1contactsperyear,high-riskcaseshave35.9contactsperyear,andveryhigh-riskcaseshave43.5contactsperyear.20Womenhave2to3fewercontactsperyearacrosseachofthefourcategories.21

ii. Typeofcontact.OMIShaseightdifferentcontacttypes,whichwerecollapsedintothreecontacttypesforanalysis:offendercontacts,collateralcontacts,andmonthlyreports.ThedistributionofeachtypeofcontactremainedrelativelyconstantbetweenSFY2015andSFY2017,butinSFY2018andSFY2019,offendercontactsincreased13percent,whilecollateralcontactsandmonthlyreportsdecreased7percent.22Changestotheriskprofileofpeopleonsupervisionduringthesametimeframedonotaccountforthesechangesinthedistributionofcontacttype.Therefore,thischangeislikelyduetoashiftinsupervisionpracticesbeginningin2018.Increasedin-personcontactswithsomeoneonsupervision,withadecreaseinmonthlyreportingcreatesanincreasedworkloadforPOs.Contactsoccurviaface-to-facemeetingsintheoffice,attheperson’shome,orinthecommunity.Thesecontactstaketimeinordertoassessthesafetyandstabilityofthehome,dynamicsofrelationshipswithothersinthehome,andindicationsofnoncompliantbehavior,suchasdrug/alcoholuse,associationwithknownfelons,orthepresenceofweapons.MonthlyreportsrequirePOstoverifythatthepersononsupervisionsubmittedpaperworkprovidingawrittenupdateonsupervisionprogress.Follow-upmaybeneededifapersononsupervisiondoesnotsubmittherequiredmonthlyreport;however,itgenerallytakeslesstimetoverifymonthlyreportsthanitdoestomeetface-to-facewithapersononsupervision.

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2. TheMORRAandWRNAhavenotbeenvalidatedontheMontanapopulation.Revocationratesrangefrom27to40percentdependingontheregioninMontana,yet84percentofthesupervisionpopulationisassessedaslowormoderaterisk(seeFigure6).23Thisshowsthereispotentiallyadiscrepancybetweentheassessedrisklevelandhighratesofreincarceration.Tounderstandthesediscrepancies,theMORRAandWRNAshouldbevalidatedonthepopulationinMontana.

3. Thereareinequitableworkloadsamongprobationandparoleofficers.Nationallyrecognizedbestpracticesindicatethatsupervisionagenciesshouldestablishcaseloadmaximumsbyrisklevelordeveloparubricthatweightshighersupervisionlevelsmorethanlowersupervisionlevelstoensureanequalworkloadamongofficers.MDOCencouragessupervisorstoaccountforrisklevelwhenassigningcases;however,standardstoensureworkloadequitydonotexist.DataonthedistributionofrisklevelsamongPOsinMontanademonstratesinequitableworkloadsamongsupervisionofficers.

4. Informationisnotfullysharedacrossdivisionsandcriminaljusticeagencies.Asaresult,riskassessments,caseplans,andprogrammingtoaddresscriminogenicneedsareoftenduplicatedasapersonmovesfromincarcerationtosupervision.

5. WhileMDOCplanstoimplementanupdatedversionoftheOMISin2020,thecurrentversioncreatesinefficienciesanddatareportingchallenges.

a. Datasystemi. Somedatafieldsdon’tautofillandmayhaveseveralunnecessarystepstocomplete.Theautofillfunctionvariesbyfield,whichcausesinefficienciesandpromotesinconsistenciesindataentry.Additionally,unnecessaryand/orsimilarlywordeddatafieldscancauseinaccuraciesinreportingbystaff.

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ii. Reportsforsupervisorsarelengthyanddonotdisplaydatainauser-friendlyway.Reviewingreports,identifyingerrors,andensuringtimelinessofworkconsumesasignificantamountofsupervisortime,whichtakesawayfromthesupervisor’sabilitytoeffectivelycoachstaff,ensurethatinteractionswithpeopleonsupervisionareeffective,andmonitoraccuracyofassessments.MDOCbegancreatingafewdashboardsbuthasdelayedthesereportsuntilthenewversionofOMISiscompleteandimplemented.

iii. ReportsfromOMISaremostfrequentlyusedtoidentifyerrorsinsteadofdrivedecision-making.ThislimitsMDOC’sabilitytousedatatoinformregulardecision-makingandpolicies.

Recommendations

MontanaDepartmentofCorrections

§ EnsuretheaccuracyoftheMORRAandWRNAbyvalidatingeachtoolbyraceandgender.MDOCshouldimplementqualityassurance(QA)andcontinuousqualityimprovement(CQI)protocolstoensuretheaccuracyofMORRAandWRNAassessments.QAisanauditprocessthatretrospectivelyexaminescompletedassessmentstoensuretheyarefullyfilledoutandscoredaccordingtodesignatedprotocols.CQIrequiresdirectobservationsofstaffconductingassessmentstoensureinterviewsarecompletedappropriatelyandtheassessmentisscoredproperly.BothQAandCQIprotocolsarenecessarytoensuretheaccuracyofassessments.ThevalidationoftheMORRAandWRNAshouldnothappenuntiltheaccuracyofassessmentsisconfirmedthroughQAandCQIprotocols;otherwiseMDOCrisksvalidatingassessmentsonincorrectdata.Oncetheaccuracyofassessmentsisconfirmed,throughQAandCQIprotocols,MDOCshouldvalidatetheMORRAandWRNAassessmentsonthesupervisionpopulationinMontanawithracialandgenderbreakdowns.Totheextentpossible,validationshouldadheretobestpracticesandstandardsthathavebeendevelopedthroughcurrentresearch.24Ensuringaccuracyandvalidatingassessmenttoolswillguaranteethatpeopleonsupervisionaresupervisedattheappropriatelevelandreceivingnecessaryservicestoreducerecidivism.

§ Ensurethatprobationandparoleofficershaveequitableworkloads.Astructuredsystemoffactoringinassessedrisklevelwhenassigningcasestostaffwillensureamorereasonableworkloaddistributionamongststaff.MDOCshoulddevelopcaseloadmaximumsbyrisklevelordeveloparubricthatweightshighersupervisionlevelsmorethanlowersupervisionlevels.Forinstance,inTexas,parolecaseloadgoalsrangefromalowof14peopleperofficerforthemostintensiveGPSsupervision,toahighof75peopleperofficerforaveragetypicalcaseloads.25Alabama

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allowsofficerstohavehighercaseloadsbutlimitsthenumberofhigh-riskpeopleonanofficer’scaseloadto20.26Asaresult,thecaseloadsizesamongprobationandparoleofficersvarybuttheworkloadismoreequitable.

§ Ensurethereisadequatedifferentiationofcontactsandsupervisionbasedonassessedrisklevel.Researchindicatesthatpeopleassessedashighriskdobestwithmorefrequentcontacts,programming,andservices.Asrisklevelsdecreasethecontacts,programming,andservicesshouldcorrespondinglydecrease.27EnsurethatOMIScantrackcontacts,programming,andservicesbasedonassessedrisklevel.Additionally,implementQAandCQIprotocolstoconfirmPOsareusingappropriatesupervisiontechniquestopromotebehaviorchange.

§ Developaunifiedcomprehensivecaseplanthatfollowsapersonastheytransitionfromincarcerationtosupervisionormovefromonefacilitytoanotherandensuresthatinformationissharedacrossagenciesandproviders.WisconsinDepartmentofCorrectionsisanexampleofanagencythatinstitutedunifiedcaseplansthatareupdatedasapersonmovesthroughthesysteminsteadofre-creatingthemateachstage.Thiswillcreateefficienciesandreducestaffworkload.

§ ContinuetheOMISGovernanceCommitteeandidentifyresourcesnecessarytobecomeadata-drivenorganization.InJune2018,MDOCestablishedtheOMISGovernanceCommittee,whichischargedwithoversightofallaspectsofthecorrectionalsystem.Standingdatagovernance,securityandaccessmanagement,recordsanddocumentmanagement,andtrainingcommitteeswerecreated.Thegovernancecommitteemeetsmonthlytoreviewreportsfromthestandingcommittees,assignstaskstothecommittees,andreviewsallsystemchangerequests.MDOCshouldcontinuetoworktowardthevisionofauser-friendlydatasystemtoreducedataentryerrorsandprovidereal-timedataoutputstoalllevelsofstaffinavisualwaythatiseasytoconsumeandunderstandinordertomakedata-drivendecisions.FindingsidentifiedwithOMISarenotadirectreflectionoftheskillsetofstaffemployedbyMDOC,butafunctionofresourcesandstaffinglevelsbeinginadequatetomakeimprovementsinanexpeditedwaytobecomeadata-drivenorganization.TheOMISGovernanceCommitteeshouldexpandpastevaluatingOMISimprovementstoadditionallyidentifyresourcesandstaffingnecessarytomeettheneedsandvisionofMDOCbecomingadata-drivenorganization.

§ Adoptpolicytoexpandtheuseofmonthlyreporting,oradministrativecaseloads.A2019IdahoreportindicatedthatthecreationofLimitedSupervisionUnits(LSUs)hassavedthestate$10millionsince2015.28ThecostoftheLSUinIdahoisapproximately$.45perdaycomparedtotheaveragecostofsupervisioninMontanaof$6.29perday.29Additionally,theLSUhasallowedIdahotoreducecaseloadsizessothatPOswhosupervisepeopleassessedashigherriskhaveacaseloadaverageof51people.Sinceenactment,Idahohasalsoexperiencedacrimeratereductionof9.9percent.30

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OrganizationalStructureandStaffingFartoooften,officershavehighcaseloadsthatlimittheirabilitytofocustheirattentiononpeoplewhoaremostlikelytoreoffendandhelpthemchangetheirbehavior.Whilethereisnouniversallyacceptedstandardforcaseloadsize,officersmusthavecaseloadsizesthatallowthemtoeffectivelyholdpeopleonsupervisionaccountablefortheiractionsandfacilitatebehaviorchange.Withoutmanageablecaseloadsizesthatallowofficerstoprovidetailoredsupervision,effortstoimprovesupervisionpracticeswillfallshortofrecidivism-reductiongoals.Somestatesfundsupervisionatlevelsthatkeepcaseloadslowenoughtoenableofficerstoworkintensivelywithpeopleatahighriskofreoffending.Anevaluationofcaseloadsizesfoundthatwhensupervisionofficersareusingbestpractices,acaseloadof50orfewerwasmoreeffectivethanhighercaseloads.31

Montana System

TheCSGJusticeCenterstaffcomparedMontanaprobationandparoledivisionstaffingtothestatesofNorthDakota,Vermont,andWyoming.EachstateconsistsofaDepartmentofCorrectionswhichoverseesprobationandparoleservicesthroughoutthestate.Inaddition,toprobationandparoledivisionstatistics,statesize,population,andnumberofcountiesinthestatewereincludedasaframeofreference.Figure7providesacomparativeanalysisofthestates.Montanaisthelargeststateintermsofgeographicalsizeandtotalstatepopulation.Thenumbersbelowarenotadjustedforcomparisonbutreflectrawdataonstaffingandsupervisionsize.

Figure7.ComparativeAnalysisofStates

Montana32 NorthDakota33 Vermont34 Wyoming35

TotalStatePopulation 1,062,000 760,077 626,299 555,737

StateSize 147,040mi2 70,761mi2 9,623mi2 97,818mi2

NumberofCounties 56 53 14 23

SupervisionPopulation 10,825(FY19) 6,866(FY19) 8,335(FY15) 6,950(FY19)

SupervisionOffices 23 17 11 25

TotalFieldStaff 244.5 122 253 178IndirectStaff

(supervisors,admin,counselors,etc.)

92.5 94SwornOfficers 56 67

DirectSupervisionStaff 152 Unknown 197 111ClienttoDirectStaff

Ratio 71.2to1 Unknown 42.3to1 62.6to1

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AsimplifiedorganizationalchartfortheMontanaprobationandparoledivisionwascreatedtoprovidedetailsonorganizationalstructureandstaffinglevels(seeFigure8.).36Theprobationandparoledivisionisstructuredintwogeographicareas(eastandwest),sixregionsand23fieldoffices.Theprobationandparoledivisionadministratorpositionoverseesthefunctionoftheentiredivisionwhilethebureauchiefisresponsibleforhalfofthestate.Onedeputychiefisassignedtoeachregionofthestate.POIIpositionsarelocallybasedfirstlinesupervisorsresponsibleforthedirectsupervisionofPOs.InMontana,POIIsalsoconductsanctionhearingswhichrequiredueprocessproceduresforpeopleonsupervisionwhocommitcertainlevelofviolations.Somestatesonlyrequiredueprocesshearingsforpeopleonparolesupervision,butMontanarequiresdueprocessforallsupervisionpopulationswhichcreatesadditionalworkloadandaccountsforwhyPOIIsonlysuperviseapproximately6-8POsperperson.TheorganizationalstructureinMontanaappearsappropriatebasedonotherstatesandthemoreruralnatureMontana.

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Findings

1. Caseloadsizesamongprobationandparoleofficersvarysignificantlyacrossthestate.Regionswithlocalspecialtycourts,inparticular,haveinconsistentdistributionofcaseloadsamongprobationandparoleofficers.

a. Caseloadsizes.Caseloadsizesrangefrom37to182withanaverageof78peopleonsupervisionpercaseload(seeFigure8).37ThisdoesnotincludePOIIswhotypicallycarrysmallercaseloads.

b. Specialtycourts(e.g.,drugcourt,mentalhealthcourt,veteranscourt).MDOC

reportsthatspecialtycourtshavebeenincreasingacrossthestate.Theintensivenatureofspecialtycourtsrequiresprobationandparoleofficerstohavelowercaseloadsizesforeffectivenessandtomeetspecialtycourtrequirements.SpecificdataabouttheimpactofspecialtycourtsonthecaseloadswithinMDOCisunavailable.

2. Ahighattritionrateamongprobationandparoleofficersleadstoaninexperiencedworkforce.MDOCreportsa25-percentattritionrateforPOs,whichleadstoadditionalworkloaddemandsonexistingstaffwhilenewPOsarehired.38Additionally,thehighattritionrateplacestrainingdemandsonsupervisorsandleadstoamoreinexperiencedworkforce.Overthepastseveralyears,MDOChasbeenchangingtheroleofPOsfromasurveillance-typeofficertoabehaviorchangeagentwithafocusonrehabilitation.ThisshiftrequiresadifferentskillsetthantheoneMDOCpreviouslysoughtandcanproduceturnoverfromstaffwhoareuncomfortableorunwillingtoadoptnewskills.LevelofeducationisafactorinprovidingMDOCwithskilledstaff.WhileMontanastatuteallowsMDOCtorequireabachelor’sdegreeasa

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minimumqualificationforsupervisionpositions,thishasnotbeenhistoricallyenforced.39Typicalentrylevelrequirementsforprobationandparoleofficersinotherstatesrequireabachelor’sdegree,andtheskillsneededforthecurrentsupervisionworkforcecouldbenefitfromanenforcededucationrequirement.40

3. Pre-sentenceinvestigationreports(PSIs)createasignificantamountofworkforprobationandparoleofficers.InFY2019,MDOCcompleted3,277PSIsforthecourts.41Onaverage,onefull-timestaffmemberdedicatedonlytoPSIscancompleteapproximately16PSIspermonth.MDOCcompletesenoughPSIsperyeartodedicate18staffmemberstothetaskonafull-timebasis.42Currently,MDOChas11staffdedicatedtocompletingPSIsonafull-timebasis.Theremaining1,165PSIsarepushedtootherprobationandparoleofficerswhocarryanactivecaseload.43DuringtheJusticeReinvestmentprocess,CSGJusticeCenterstaffestimatedthatMDOCwouldneed20staffinthededicatedPSIunit.44MDOCwasallocatedsixPSIpositionsduringthe2017legislativesessionandwasconverting14existingstaffintoPSIwritersbasedonCommissiononSentencingrecommendations.45However,duetotherisingsupervisionpopulation,MDOCwasonlyabletomovefivestaffintoPSIpositionsforatotalof11.46

4. IPPOsattreatmentcentersconductworkthatcasemanagersatfacilitiesarefundedtocomplete.Thereare13IPPOslocatedatMDOCinstitutionsandcontractfacilitiesacrossthestate.47IPPOsatMDOCinstitutionsconductessentialtasks,suchasreentryplanning,toensureasmoothtransitionintothecommunityuponrelease.Contractfacilitiesemploycasemanagerswhoconductassessments,completecaseplans,maintaincontactwithpeople’ssupportsystems,andensurepeople’sneedswithinthefacilityaremet.48MDOCemploysfull-timeorpart-timeIPPOsatthesefacilitieswhoadditionallyconductassessments,completereentryplans,andensurethatpeople’sneedswithinthefacilityaremet.49

Recommendations

MontanaDepartmentofCorrections § Collectandtrackspecificinformationontheimpactofspecialtycourtsonthe

caseloaddistributionofthesupervisionofficersinregionswithspecialtycourts.Thiswouldbedonetounderstandifworkloadsineachareaofthestateareequitable,regardlessofthepresenceofaspecialtycourt.

§ Examinereasonsforattritionanddevelopretentionstrategies.Attritionisanormalpartofanyagencybutcanlimiteffectivenesswhenalargeportionofstaffhavebeenemployedforundertwoyears.MDOCshouldevaluatereasonsforattritiontoguideastrategicplantargetingretentionstrategies.

§ EvaluatewhetherIPPOsareneededateachcontractfacility.MDOCshouldconsidertransitioningIPPOslocatedatcontractfacilitiesintofacilityliaisonswho

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carryareducedcaseloadinthecommunity.Assessments,caseplans,andreentryplanningshouldbetransitionedtofacilitycasemanagers.

PotentialLegislativeOptions

§ FundadditionalPSIwriters.FundinganadditionalsevenPSIwriterswillreduceworkloadsforPOswhocarryacaseload.Forfinancialimpact,theaveragecostofaPSIwriterwithpersonnelbenefitsincludedis$56,815peryear.50FundingsevenPSIwriterswouldcost$397,705peryear.

§ Establishstatewidestandardsforsupervisionofficersinspecialtycourts.Statewidespecialtycourtstandardsandcertificationwillensurethatspecialtycourtsareutilizingbestpracticestoreducerecidivism,createconsistencyinpractices,ensureworkdemandsonprobationandparoleofficersareconsistentacrossthestate,andcreatecaseloadlimitsforspecialtycourts.ThiswillallowMDOCtorequestresourcesappropriately.

o Asanexample,Michiganhasanestablishedspecialtycourtstandardandcertificationprocess.https://courts.michigan.gov/Administration/admin/op/problem-solving-courts/Pages/Training-and-Resources.aspx

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EndNotes

1DanielleKaeble,ProbationandParoleintheUnitedStates,(WashingtonDC:USDepartmentofJustice,BureauofJusticeStatistics,2016);BureauofJusticeStatistics,ProbationandParoleintheUnitedStates,(WashingtonDC:USDepartmentofJustice,BureauofJusticeStatistics,1981).2MatthewDurose,AlexiaCooper,andHowardSnyder,RecidivismofPrisonersReleasedin30Statesin2005:Patternsfrom2005to2010;ThePewCharitableTrusts,“MaxOut:TheRiseinPrisonInmatesReleasedWithoutSupervision”(Washington,DC:ThePewCharitableTrusts,2014).3NationalConferenceofStateLegislatures,ProbationTermMaximums,(Denver,CO:NationalConferenceofStateLegislatures,2017).4OfficeoftheClerkoftheSupremeCourtofMontana,SupremeCourtCaseloadStatistics1972-2018,https://courts.mt.gov/Portals/189/clerk/stats/18/historic18.pdf.5OfficeoftheClerkoftheSupremeCourtofMontana,StatewideCaseProcessingMeasures,https://courts.mt.gov/courts/statistics/dcstat.6MDOCDatasharedwiththeCSGJusticeCenterduringPhase2ofJusticeReinvestment,updatedDecember20,2019.7Note:CSGJusticeCenterstaffwereunabletodeterminethetypesofrevocationsandcourtcommitmentsdrivingtheseprisonadmissionincreasesduetothetimelineofthiscaseloadreport.8Ibid.9MDOCsupervisiondatasharedwiththeCSGJusticeCenterfortheworkloadstudy,December201910GovernorSteveBullockandDirectorReginaldD.Michael,MontanaDepartmentofCorrections2019BiennialReport.(Helena,MT:MontanaDepartmentofCorrections,2019),A-8,A-9.11MatthewDurose,AlexiaCooper,andHowardSnyder,RecidivismofPrisonersReleasedin30Statesin2005:Patternsfrom2005to2010;ThePewCharitableTrusts,MaxOut:TheRiseinPrisonInmatesReleasedWithoutSupervision(Washington,DC:ThePewCharitableTrusts,2014).12MDOCDatasharedwiththeCSGJusticeCenterduringPhase2ofJusticeReinvestment,updatedDecember20,2019.13EmailcorrespondencebetweenCSGJusticeCenterandMDOC,December5,2019.Thecalculationsweredeterminedwiththefollowingformula:supervisioncostperyearof$2,295perpersonmultipliedby193people.14MDOCDatasharedwithCSGJusticeCenterduringPhase2ofJusticeReinvestment,updatedDecember20,2019.14JamesBontaandDonaldA.Andrews,ThePsychologyofCriminalConduct,5thed.(London,NY:Routledge,Taylor&FrancisGroup,2017).15CrimeandJusticeInstitute,ImplementingEvidence-BasedPolicyandPracticeinCommunityCorrections,secondedition(Washington,DC:NationalInstituteofCorrections,2009),http://www.cjinstitute.org/files/Community_Corrections_BoxSet_Oct09.pdf.16MDOCsupervisiondatasharedwithCSGJusticeCenterfortheworkloadstudy,December2019.17Ibid.18IdahoDepartmentofCorrection,StandardOperatingProcedure:ProbationandParoleSupervisionStrategies,Version8.0,(AdoptedOctober21,2004).19MontanaDepartmentofCorrections,ProbationandParoleDivisionOperationalProcedure,ProcedureNo.PPD6.1.203,(Revised:July2,2018).20MDOCsupervisiondatasharedwithCSGJusticeCenterfortheworkloadstudy,December2019.21Ibid.22Ibid.23Ibid.

20

24JayP.Singhetal.“ReportingGuidanceforViolenceRiskAssessmentPredictiveValidityStudies:TheRAGEEStatement,”LawandHumanBehavior.39,no.1(2015)15-22;KevinDouglas,JenniferSkeem,andElizabethNicholson.“ResearchMethodsinViolenceRiskAssessment,”inResearchMethodsinForensicPsychologyed.BarryRosenfeldandStevenD.Penrod(Hoboken:JohnWiley&SonsInc.,2011)325–346.2550-StateReportonPublicSafety(CSGJusticeCenter,NY)2017.26Ibid.27DonaldA.AndrewsandJamesBonta.ThePsychologyofCriminalConduct.(Cincinnati,OH:AndersonPublishingCompany,2017).28IdahoDepartmentofCorrection,JusticeReinvestmentinIdaho:ReporttotheLegislature,(February1,2019),https://www.idoc.idaho.gov/content/document/2019_jri_impact_report_final.29Ibid.30CSGJusticeCenter,“JRstatemonitoringdeck”updatedAugust15,2019.31SarahKuckJalbertandWilliamRhodes.“ReducedCaseloadsImproveProbationOutcomes,”JournalofCrimeandJustice(2012):221-238.32GovernorSteveBullockandDirectorReginaldD.Michael,MontanaDepartmentofCorrections2019BiennialReport,A-11.33VermontDepartmentofCorrections,AnnualReportFY2015,(2016),17.34NorthDakotaCorrectionsandRehabilitation,2017-2019BiennialReport,https://www.docr.nd.gov/sites/www/files/documents/Biennial%20Report%20Archive/2017-2019%20Biennium%20Report_links.pdf.35MeetingbetweenTheCouncilofStateGovernmentsJusticeCenterandWyomingDepartmentofCorrections,December19,2019.36EmailcorrespondencebetweenCSGJusticeCenterandMDOC,December11,2019.37GovernorSteveBullockandDirectorReginaldD.Michael,MontanaDepartmentofCorrections2019BiennialReport.38MeetingbetweenTheCouncilofStateGovernmentsJusticeCenterandMDOC,December1,2019.39MeetingbetweenTheCouncilofStateGovernmentsJusticeCenter,December17,2019.40USBureauofLaborStatistics,”ProbationOfficersandCorrectionalTreatmentSpecialists”,OccupationalOutlookHandbook,AccessedDecember20,2019,https://www.bls.gov/ooh/community-and-social-service/probation-officers-and-correctional-treatment-specialists.htm.41Note:Thisnumberwasdeterminedbyusingthefollowingcalculation:16PSIspermonthx18staffx12months.42MDOCsupervisiondatasharedwiththeCSGJusticeCenterfortheworkloadstudy,December2019.43Ibid.44MontanaCommissiononSentencing,“DetailedExplanationofReinvestments”,October,2016,https://leg.mt.gov/content/Committees/Interim/2015-2016/Sentencing/Meetings/Oct-2016/Exhibits/cos-csg-jri-impacts-reinvestments-october-2016.pdf.45Ibid.46EmailcorrespondencebetweenCSGJusticeCenterstaffandMDOC,December11,2019.47Ibid.48MeetingbetweenTheCouncilofStateGovernmentsJusticeCenter,November2019andDecember2019.49EmailcorrespondencebetweenCSGJusticeCenterstaffandMDOC,October31,2019.50EmailcorrespondencebetweenCSGJusticeCenterstaffandMDOC,December20,2019.