Montana Commission on Sentencing: Applying Jus6ce Reinvestment · Montana Commission on Sentencing:...

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,PolicyAnalystkchung@csg.org

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