Justice Reinvestment Initiative Data and Systems Presentation · Justice Reinvestment Initiative (JRI) • JRI is a project funded by the Department of Justice that works with state

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Justice Reinvestment Initiative Data and Systems Presentation

October10,2019

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Overview

• Introduction• TN:TheCasefortheJusticeReinvestmentInitiative• Admissions• TimeServed• CustodyPopulation• FemalePopulation• CommunitySupervision• KeyTakeaways

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CriminalJusticeInvestmentTaskForce(CJITF)SteeringCommitteeObjective

Lettersignedby:•  GovernorBillLee•  LieutenantGovernorRandyMcNally•  ChiefJusticeJeffreyBivins•  Speaker-DesigneeCameronSexton

“useourstate’sdatatomove

towardsacriminaljusticesystemthatfocusesresourcesonevidence-basedrecidivism

reductionandcrimepreventionstrategiesthatincreasepublicsafetyandimprove

outcomesforallTennesseans.”

StateleadershiphasinstructedtheCJITFto:

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JusticeReinvestmentInitiative(JRI)

• JRIisaprojectfundedbytheDepartmentofJusticethatworkswithstateleaderscommittedtousingtheircriminaljusticedatatodevelopproven,innovative,andcomprehensiveapproachestoreducerecidivismrates,promotepublicsafetyandshiftresourcestowardmorecost-effectivestrategies

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DataSources

• Primarydatasources• TNDepartmentofCorrection• TNBoardofParole• TNAdministrativeOfficeoftheCourts• Unlessstatedotherwise,alldatapresentedwasanalyzedbyCJIinconsultationwithaboveagencies

• Additionaldatafrom• U.S.DepartmentofJustice,BureauofJusticeStatistics• U.S.CensusBureau

Note:Datapresentedheremaynotmatchstatereportsduetodifferentmethodologiesforanalysis

6

IronLawofPrisonPopulationGrowth

Admissions+TimeServed=TDOCPopulation

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FactorsInfluencingAdmissions&TimeServed

Law Enforcement Options & Crime Rates

Sentencing Practices

Release Mechanisms

Recidivism

8

QualitativeSourcesInterviews/Meetings DocumentsReviewed•  Judges•  DistrictAttorneys•  PublicDefenders•  TennesseeDepartmentofCorrection•  TennesseeDepartmentofSafety•  TennesseeDepartmentofMental

HealthandSubstanceAbuseServices•  TennesseeBoardofParole•  LawEnforcement•  Sheriffs•  MentalHealthPractitioners•  VictimAdvocates•  ReentryGroups•  WorkforceDevelopmentCenters•  DrugCourtAlumni

•  TennesseeStateStatutes•  TennesseeDepartmentofCorrections

PoliciesandProcedures•  TennesseeBoardofParolePoliciesand

Procedures•  TennesseeCourtRules,Rulesof

CriminalProcedure

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MultipleObjectivesofIncarceration

•  Incapacitation:Reducingcurrentcriminalinvolvementbyholdingoffendersinprisonwheretheycannotcommitcrimesagainstthepublic• Deterrence:Reducingthelikelihoodoffuturecriminalinvolvementbyincreasingthepunishmentforthecurrentoffense• Rehabilitation:Reducingthelikelihoodoffuturecriminalinvolvementbyofferingeffectiveprogrammingandtreatmentduringtheperiodofincarceration• Retribution:Paymentorpunishment,intheformofimprisonment,forviolatingcommunitynormsandorder

TN:TheCasefortheJusticeReinvestmentInitiative

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11

PrisonPopulationGrewNearly400%

5,835

28,980

0

5,000

10,000

15,000

20,000

25,000

30,000

35,000

1978

1979

1980

1981

1982

1983

1984

1985

1986

1987

1988

1989

1990

1991

1992

1993

1994

1995

1996

1997

1998

1999

2000

2001

2002

2003

2004

2005

2006

2007

2008

2009

2010

2011

2012

2013

2014

2015

2016

2017

Popu

latio

nTennesseePrisonPopulation,1978-2017

Source:U.S.DepartmentofJustice,BureauofJusticeStatistics,NationalPrisonerStatisticsProgram

12

CommunitySupervisionPopulationAddedNearly30,000Since1994

45,987

74,701

-

10,000

20,000

30,000

40,000

50,000

60,000

70,000

80,000

90,000

1994

1995

1996

1997

1998

1999

2000

2001

2002

2003

2004

2005

2006

2007

2008

2009

2010

2011

2012

2013

2014

2015

2016

Popu

latio

n

TennesseeCommunitySupervisionPopulation,1994-2016

Source:U.S.DepartmentofJustice,BureauofJusticeStatistics,AnnualProbationSurvey,AnnualParoleSurvey

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13

Tennessee’sIncarcerationRateis10%HigherthanNationalAverage

Source:U.S.DepartmentofJustice,BureauofJusticeStatistics,NationalPrisonerStatisticsProgram

390

429

0

50

100

150

200

250

300

350

400

450

5001978

1979

1980

1981

1982

1983

1984

1985

1986

1987

1988

1989

1990

1991

1992

1993

1994

1995

1996

1997

1998

1999

2000

2001

2002

2003

2004

2005

2006

2007

2008

2009

2010

2011

2012

2013

2014

2015

2016

2017

Impriso

nmen

tRate

U.S.andTennesseeStateImprisonmentRateper100,000Residents,1978-2017

UnitedStates Tennessee

14

CorrectionsSpendingGrew185%From1991,Surpassed$1BillioninFY2018

$0million

$200million

$400million

$600million

$800million

$1.00billion

$1.20billion

1991 1993 1995 1997 1999 2001 2003 2005 2007 2009 2011 2013 2015 2017

Expe

nditu

res

TennesseeCorrectionsExpenditures,FY1991-FY2018

Source:NationalAssociationofStateBudgetOfficers,StateExpenditureReports

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15

NearlyHalfofIndividualsReleasedfromCustodyAreArrestedWithinThreeYears

Source:TNDepartmentofCorrection,RecidivismRatesDashboard

51.3%

47.2%

0%

10%

20%

30%

40%

50%

60%

2006 2007 2008 2009 2010 2011 2012 2013 2014

Recidivism

Rate

ReleaseYear

36-MonthRecidivismRateforTNFelonyOffendersReleasedbyReleaseYear,FY2006-FY2014

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DespiteGrowingCostsandIncreasingIncarceration,CrimeRateRemainsStatic

568.9 570.7

0

100

200

300

400

500

600

700

2009 2010 2011 2012 2013 2014 2015 2016 2017 2018

Violen

tCrim

eRa

te

ViolentCrimeRateper100,000ResidentsinTennessee,2009-2018

Source:TennesseeBureauofInvestigation

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Admissions

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AdmissionsOverview

• SystemMaps• Admissionsovertime• Admissionsbydemographics• Admissionsbyadmissiontype• Admissionsbyoffensetype• Admissionsbygeography

20

MostLawEnforcementOptionsResultinArrest

CriminalIncident

CiteandRelease(MisdemeanorsOnly)

Hospital

ArrestandBooking

CrisisCenter

Pre-arrestDiversionCenter(Misdemeanors,LimitedFelonies)

MobileOutreachTeam

ReleaseorTreatment

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LimitedDiversionOpportunitiesOnceArrested

Arrestand

BookingGrandJury

IndictmentorPresentment

Trial

RecoveryCourts

GuiltyPleaInitialAppearance

andPreliminaryHearing

Sentencing

Legend:Decision-MakingOptionNextStepintheProcess

CommunitySupervision

PrisonandJail

PretrialDiversion

(Misdemeanors)

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TypesofAdmissiontoPrisonandJail

• NewCommitments:IndividualsenteringprisonorjailasaresultofanewfelonyconvictionwheretheyweresentencedtoserveatleastoneyearinTDOCcustody

• CommunitySupervisionViolators:Individualsenteringprisonorjailasaresultofviolatingaconditionofparoleorprobation,includingtechnicalviolationsaswellasreoffendingwithanewmisdemeanororfelony

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FelonyAdmissionsDeclined14%inLast10Years

14,892 15,657

12,789

0

2,000

4,000

6,000

8,000

10,000

12,000

14,000

16,000

18,000

2009 2010 2011 2012 2013 2014 2015 2016 2017 2018

Admissions

FelonyAdmissions,FY2009-FY2018

Source:TNDepartmentofCorrection

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AdmissionsDeclinedfromBothCommunitySupervisionViolatorsandNewCommitments

0

1,000

2,000

3,000

4,000

5,000

6,000

7,000

8,000

9,000

10,000

CommunitySupervision NewCommitments

Admissions

FelonyAdmissionsbyAdmissionType,FY2009vs.FY2018

2009 2018


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FemaleAdmissionsClimbed12%in10Years

1,995

2,441

2,240

0

500

1,000

1,500

2,000

2,500

3,000

2009 2010 2011 2012 2013 2014 2015 2016 2017 2018

Admissions

FemaleFelonyAdmissions,FY2009-FY2018


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CommunitySupervisionViolatorsAccountfor39%ofPrisonAdmissions

Other[PERCENTAGE]

Parole12%

Probation20%

CommunityCorrections

[PERCENTAGE]

NewCommitments60%

FelonyAdmissionsbyAdmissionType,FY2018


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Nearly5,000AdmittedfromCommunitySupervision

1,598

2,498

849

0

500

1,000

1,500

2,000

2,500

3,000

Parole Probation CommunityCorrections

Admissions

FelonyAdmissionsfromCommunitySupervisionbySupervisionType,FY2018


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74%ofFelonyAdmissionsforNon-PersonOffenses

[CATEGORYNAME],[VALUE]

[CATEGORYNAME],[VALUE]

FelonyAdmissionsbyOffenseType,FY2018


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PropertyOffensesareMostCommonReasonforAdmission

Person26%

Property33%

Drugs27%

Other14%

FelonyAdmissionsbyOffenseType,FY2018


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EasternRegionCountersStatewideTrendbySendingMoretoPrison

0

1,000

2,000

3,000

4,000

5,000

6,000

West Middle East

Admissions

FelonyAdmissionsbyRegion,FY2009vs.FY2018

2009 2018


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FelonyAdmissionRatesHighestOutsideMajorMetropolitanAreas

FelonyAdmissionsbyCountyofConvictionPer10,000Residents,FY2018


32

ResearchonIncarcerationandRecidivism

Researchershavestudiedwhetherincarcerationreducesfuturecriminalbehaviormorethanotherformsofsanctions

Findings:• Bales&Piquero(2012):Foundthat“overall,imprisonmentleadstohigherrecidivismwhencomparedtoanon-incarcerativealternative,i.e.,acriminogeniceffectofimprisonment”• SpohnandHolleran(2002):Found“noevidencethatimprisonmentreducedordelayedrecidivism,eitherforfelonyoffendersgenerallyorfordrugoffendersspecifically”• DrakeandAos(2012):Foundthattechnicalviolatorsofprobationservingaperiodofconfinement(jailorprison)hadsignificantlyhigherrecidivismthanoffenderssanctionedinthecommunity

Source:Bales&Piquero(2012);Spohn&Holleran(2002);Drake&Aos(2012).

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KeyTakeaways

• Despiteoveralladmissionsdeclines,themajorityofadmissionsarefornon-personoffensesandmanyaretheresultofcommunitysupervisionfailures• 74%ofadmissionsarefornon-personoffenses,andpropertyoffensesarethemostcommon• Nearly5,000admittedlastyearfromcommunitysupervision

• Admissionshaveincreasedincertainareasandforcertaintypesofoffenders• Admissionsoffemaleoffendersgrew12%• AdmissionsfromEasternTennesseegrew11%

TimeServed

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TimeServedOverview

• Timeservedovertime• Timeservedbyoffensetype• Timeservedbypopulationtype• Timeservedbyreleasetype• Sentencingpractices• Creditaccrual• Releasemechanisms

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AverageTimeServedGrew11Months

0

10

20

30

40

50

60

70

80

90

Sentences TimeServed

Mon

ths

AverageSentenceandTimeServed,FY2009vs.FY2018

2009 2018

11Months

Averagesentencelengthexcludessentencestolifeimprisonmentordeath.Source:TNDepartmentofCorrection

38

TimeServedIncreasedforAllOffenseTypes


0

10

20

30

40

50

60

70

80

90

Non-Person Person

Mon

ths

AverageTimeServedbyOffenseType,FY2009vs.FY2018

2009 2018

15Months

9Months

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39

TimeServedonDrugOffensesUp32%


0

10

20

30

40

50

60

70

80

90

100

Person Property Drugs Other

Mon

ths

AverageTimeServedbyOffenseType,FY2009vs.FY2018

2009 2018

14Months

40

TimeServedforCocaineOffensesGrewby63%


0

10

20

30

40

50

60

70

80

90

100

CocaineDrugOffense Non-CocaineDrugOffense

Mon

ths

AverageTimeServedonDrugOffenses,FY2009vs.FY2018

2009 2018

63%Increase

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41

0

10

20

30

40

50

60

70

80

90

100

TDOC Backup LocallySentenced

Mon

ths

AverageTimeServedbyPopulationType,FY2009vs.FY2018

2009 2018

TimeServedinStatePrisonsUp14Months,LocallySentencedPopulationUp10Months

14MonthsLonger18%Increase




42

TimeServedPriortoReleaseonParoleUpby20Months

0

10

20

30

40

50

60

70

80

90

100

ExpirationofSentence ReleasetoParole

Mon

ths

AverageTimeServedbyReleaseType,FY2009vs.FY2018

2009 2018

7Months 20Months


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ResearchonLengthofStayandRecidivism

Researchershavealsoexaminedwhetherlongerperiodsofincarcerationreducerecidivismmorethanshorterperiods

Findings:• Themostrigorousresearchstudiesfindnosignificanteffect,positiveornegative,oflongerprisontermsonrecidivism• TheUnitedStatesSentencingCommission(2014):FoundnodifferenceinrecidivismforfederaldrugoffendersbeforeandaftersentencereductionduetotheFairSentencingAct• Rhodesetal.(2018):Concludedthat“prisonlengthofstaycanbereducedwithminimaleffectsonrecidivism”forfederaloffenders

Note:Allfederaloffendersareplacedonsupervisionuponrelease.Sources:UnitedStatesSentencingCommission(2014);Rhodes,W.,Gaes,G.G.,Kling,R.,&Cutler,C.(2018).

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KeyTakeaways

• Despiteresearchfindingsthatlongerprisonstaysdonotreducerecidivismmorethanshorterstays,individualsareservinglongertermsofincarceration• Timeservedhasgrown11monthsor23%overall• Thisisupmostnotablyfordrugoffenseswithtimeservedforcocaine-relatedoffensesup63%

• Paroleesnowserve20monthslongerbeforerelease•  Individualsservinguntilexpirationofsentencearenowserving7monthslongerincustody

• Timeservedgrowthalsoevidentforfelonyoffenderssentencedtoservetimeinlocaljails

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UnderstandingTimeServed

Sentence

CreditAccrual

ParoleRelease

46

Sentencing:FelonySentencingClass

FelonyClass SentenceRange

Capital Lifesentence,Death

ClassA 15to60yearsinprison

ClassB 8to30yearsinprison

ClassC 3to15yearsinprisonorjail

ClassD 2to12yearsinprisonorjail

ClassE 1to6yearsinprisonorjail

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Sentencing:FelonySentencingGrid

CriminalHistoryFelonyClass

FelonyA FelonyB FelonyC FelonyD FelonyE

MitigatedOffenders:Nopriors,no

enhancements,andcourtfindsmitigatingfactors

Thecourtshallreducethedefendant'sstatutoryRangeIminimumsentenceby(10%)orreducethereleaseeligibilitydateto(20%)ofthesentence,orbothreductions.

StandardRangeI(0-1prior) 15–25years 8–12years 3–6years 2–4years 1–2years

MultipleRangeII(2-4priors)

(1priorClassAifcurrentoffenseisClassAorB)

25–40years 12–20years 6–10years 4–8years 2–4years

PersistentRangeIII(5+priors)(2or3priorAorB’sif

currentoffenseisaClassAorB)

40–60years 20–30years 10–15years 8–12years 4–6years

CareerOffender(6+priors)

(3or4priorClassAorB’sifthecurrentoffenseisa

ClassAorB)

60years 30years 15years 12years 6years

48

Sentencing:FelonySentencingOptions

Trial

Probation

RecoveryCourts

Incarceration


JudicialDiversion

SplitSentence

SentencingHearing


Jails

Prison

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Sentencing:AlternativestoIncarcerationAlternatives Eligibility

Probation Eligibleifthesentenceimposedistenyearsorless.Prohibitedoffensesincludesexoffenses,violentoffenses,andClassBdrugoffenses.

JudicialDiversion Eligibleonlyforfirst-timeoffenderswhohavenotpreviouslyparticipatedinanydiversionprograms.Prohibitedoffensesincludesexoffenses,offensesinvolvingexploitationofvulnerablepersons,DUIs,vehicularassaults,oraClassAorBfelony.


Eligibleforthoseconvictedofanonviolentfelonywhoarefacinganincarcerationsentence.Prohibitedoffensesincludeoffensesagainstaperson,offenseswhereafirearmwasinvolved,andoffenseswherethereisapatternofviolence.

RecoveryCourts Eligibleforthosewithabehavioralhealthneedandconvictedofanonviolentornon-sexoffenseifthedistrictattorney,defensecounsel,mentalhealthprovider,andjudgeagree.

50

CourtsShiftingAwayfromIncarcerationtoProbation,SplitSentences

0%

10%

20%

30%

40%

50%

60%

70%

Incarceration% Probation% SplitSentence%

Percen

tofSen

tencesIssued

TypeofSentenceIssuedforAllSentencedFelonyOffenders,FY2009vs.FY2018

2009 2018

Source:TNAdministrativeOfficeoftheCourts

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51

ClassEOffensesSentencedtoIncarcerationAtSimilarRatesAsHigherFelonyClasses

0%

10%

20%

30%

40%

50%

60%

70%

80%

90%

100%

ClassA ClassB ClassC ClassD ClassE

ShareofSen

tencesIssued

SentenceTypebyFelonyClassforAllSentencedFelonyOffenders,FY2018

Incarceration% Probation% SplitSentence%

N=577 N=3705 N=9702 N=7558 N=10,770


52

ClassEOffensesRepresentLargestGroupSentencedtoPrisoninFY18

N=577 N=3705 N=9702 N=7558 N=10,770

4222

0

500

1,000

1,500

2,000

2,500

3,000

3,500

4,000

4,500

5,000

ClassA ClassB ClassC ClassD ClassE

Num

bero

fSen

tencesIssued

SentenceTypebyFelonyClassforAllSentencedFelonyOffenders,FY2018

Incarceration Probation SplitSentence


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53

AverageSentencetoIncarcerationIncreasedBy6Months

0

10

20

30

40

50

60

70

80

90

Sentences TimeServed

Mon

ths

AverageSentenceandTimeServed,FY2009vs.FY2018

2009 2018

6Months

*Averagesentencelengthexcludessentencestolifeimprisonmentordeath.

54

SentenceLengthsforDrugOffensesGrewMoreThan30%

32% 31%

20% 20%17%

4%

0%

5%

10%

15%

20%

25%

30%

35%

Non-CocaineDrugOffense

CocaineDrugOffense

Burglary Larceny/Theft Forgery/Fraud Arson

Percen

tChangeinSen

tenceLength

PercentChangeinAverageSentenceLengthbyDrugandPropertyOffenseTypeBetweenFY2009andFY2018


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OpportunitiesforCreditAccrual

Goodinstitutionalbehavior*

Satisfactoryprogramperformance*

Educationalprogramperformance

Intensiveresidentialtreatment

Timeservedinpretrialconfinement*DAYS

4-8

1-8

60

60

8

DAYS

DAYS

DAYS

DAYS

*Earnedonamonthlybasis

56

ResearchonIncentivesandRewards

Researchersexaminedstepsthatcanbetakentoimprovemanagementofprisonsandeffectivelychangeindividuals’behavior

Findings:• Gendreauetal.(2014):Foundthatcontingencymanagementprograms“producedmarkedimprovementsonindicesofinstitutionaladjustmentandeducationalandwork-relatedbehaviors”• Drakeetal.(2009):ExaminedtheimpactofincreasingearnedcreditsfornonviolentoffendersinWashingtonandfoundthatrecidivismratesofthosereleasedearlydecreasedby3.5%comparedtothosewhostayedinprisonfor63dayslonger

Source:Gendreau,P.,Listwan,S.J.,Kuhns,J.B.,&Exum,M.L.(2014).WashingtonStateInstituteforPublicPolicy,E.K.Drake,R.Barnoski,andS.Aos(2009)

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ParoleSystemMap

PrisonJail

InitialHearingandRecommendationbyHearingOfficialor

ParoleBoardMember

ReleaseandSupervision

BoardVotesIndividuallyonDecision

ParoleEligibilityDate

EligibilityFactors:•  SpecificOffenseRequirements(100%,85%,75%,60%)•  OffenderRange(Mitigated–Career)•  Classification(Min-Close)

Grant

Deny

Continue

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ReleasestoParoleDroppedbyMorethan1,200

0

1,000

2,000

3,000

4,000

5,000

6,000

Parole Probation/CommunityCorrections

SentenceExpiration

ReleasesbyType,FY2009vs.FY2018

2009 2018

28%Decrease


37%ofReleasesDueto

SentenceExpiration

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24%ofParoleHearingsGrantedParole

33%

29%

23% 24% 24%

0%

5%

10%

15%

20%

25%

30%

35%

0

500

1,000

1,500

2,000

2,500

3,000

3,500

4,000

4,500

5,000

2015 2016 2017 2018 2019

CasesGrantedParoleandGrantRate,FY2015-FY2019

CasesGrantedParole GrantRate

Source:TNBoardofParole

60

ParoleGrantsatInitialHearingDeclinedBy59%inFiveYears

25%

16%

10%9% 10%

0%

5%

10%

15%

20%

25%

30%

2015 2016 2017 2018 2019

GrantRatesatInitialParoleHearings,FY2015-FY2019

Source:TNBoardofParole

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KeyTakeaways

• Longersentencesanddecliningparolegrantsaredrivingtheincreasesintimeserved• Averagesentencesincreasedby6monthsin10yearsandsentencesfordrugoffensesgrewbyover30%• Releasestoparoledeclinedbymorethan1,200in10years,andgrantratesatinitialparolehearingsdroppedto10%inFY2019

• Thelowestlevelfelonyclassisthelargestgroupsentencedtoincarcerationcomparedtomoreseriousclassesofoffenders

CustodyPopulation

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63



64

IncarceratedPopulationGrew12%in10Years,Adding3,385People

27,414

30,799

0

5,000

10,000

15,000

20,000

25,000

30,000

35,000

2009 2010 2011 2012 2013 2014 2015 2016 2017 2018

Popu

latio

n

TennesseeCustodyPopulation,FY2009-FY2018


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65

IncarceratedPopulationGrowingOlder

0

2,000

4,000

6,000

8,000

10,000

12,000

14,000

18-24 25-34 35-49 50andOver

Popu

latio

nCustodyPopulationbyAge,FY2009vs.FY2018

2009 2018

43%Increase

51%Increase


66

BlackIncarcerationRateMorethanThreeTimesWhiteRate


345.5

1112.9

77.8

447.3

250.5

0

200

400

600

800

1000

1200

White Black Asian Hispanic NativeAmerican

IncarcerationRa

te

IncarcerationRatebyRacePer100,000Residents,FY2018

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67

MentalHealthCaseloadinTDOCFacilitiesIncreased26%fromFY2016toFY2019

Individualsdiagnosedwithsubstance-userelatedandaddictiondisordersarenotrepresentedinmentalhealthcaseload.Source:TNDepartmentofCorrection

6,271

7,018 7,2887,890

-

1,000

2,000

3,000

4,000

5,000

6,000

7,000

8,000

9,000

2016 2017 2018 2019

Men

talH

ealth

Caseload

MentalHealthCaseload,FY2016-FY2019

68

SeriousPersistentMentalIllnessDiagnosesinTDOCFacilitiesIncreasedin10Years

1,487

4,334

0

500

1,000

1,500

2,000

2,500

3,000

3,500

4,000

4,500

5,000

2009 2010 2011 2012 2013 2014 2015 2016 2017 2018

Diagno

sedPo

pulatio

n

TDOCInmatePopulationDiagnosedwithaSeriousPersistentMentalIllness,FY2009-FY2018

IndividualsareidentifiedbythemostseriousdiagnosisreceivedpertheDiagnosticandStatisticalManual(DSM)ofMentalDisorders.Thetrendsmaybeimpactedduetoincreasedunderstandingandawarenessofmentalhealthdiagnosis,anincreaseinthenumberofcliniciansandchangestotheassessmentprocess.Source:TDOC

SeriousPersistentMentalIllnessdiagnosesforFY2018includeMajorDepressiveDisorders(1,639),Trauma-andStressor-RelatedDisorders(1,049),BipolarandRelatedDisorders(900),Schizophrenia(725),andNeurocognitiveDisorders(21).

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69

JustOverHalfofIncarceratedPopulationServingNon-PersonOffenses


Person49%

Property20%

Drug22%

Other9%

CustodyPopulationbyOffenseType,FY2018

70

PopulationGrowthLedbyDrugOffenses


0

2,000

4,000

6,000

8,000

10,000

12,000

14,000

16,000

18,000

Person Property Drug Other

Popu

latio

n

CustodyPopulationbyOffenseType,FY2009vs.FY2018

2009 2018

24%Increase7%Increase

5%Increase

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71

Over75%ofClassDandEOffensesInforNon-PersonCrimes

0

1,000

2,000

3,000

4,000

5,000

6,000

Capital A B C D E

Popu

latio

nCustodyPopulationbyFelonyClassandOffenseType,2019

Person Non-Person


72

DrugOffensesDominateFelonyAandBNon-PersonPopulation

0

500

1,000

1,500

2,000

2,500

3,000

3,500

4,000

A B C D E

Popu

latio

n

Non-PersonCustodyPopulationbyFelonyClassandOffenseType,2019

Property Drug Other


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73

MajorityofCustodyPopulationfromEastareNon-PersonOffenses

0

1,000

2,000

3,000

4,000

5,000

6,000

7,000

West Middle East

Popu

latio

nCustodyPopulationbyRegionandOffenseType,2019

Person Non-Person


74

EastLeadsStateinIncarceratingPropertyOffenders,WestinPersonOffenders

0

1,000

2,000

3,000

4,000

5,000

6,000

Person Property Drug Other

Popu

latio

n

CustodyPopulationbyRegionandOffenseType,2019

West Middle East

WEST

MIDDL

E

EAST


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38

75

CountyIncarcerationRatesVaryWidely

FelonyIncarcerationRateper10,000ResidentsbyCountyofConviction,FY2018


76

FacilityTypeMap

SentencingHearing

LocallySentencedinJailSentenceUnder6YearsorUnder3YearsDependingon

Jurisdiction

JailAwaitingTransfer/Backup

Population

Prison

Release

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39

77

1in4FelonyOffendersareHeldinJails


TDOC72%

Backup19%

LocallySentenced

[PERCENTAGE]

CustodyPopulationbyFacility,FY2018

78

FelonyInmatePopulationHasGrowninBothStatePrisonsandLocalJails

0

5,000

10,000

15,000

20,000

25,000

30,000

35,000

2009 2018

Popu

latio

n

CustodyPopulationbyFacilityHeld,FY2009-FY2018

Jail

Prison

6%Increase

15%Increase


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40

79

Back-upJailPopulationRisesWhileLocallySentencedPopulationDeclines

Source:NDepartmentofCorrection

5958

2603

0

1,000

2,000

3,000

4,000

5,000

6,000

7,000

2009 2010 2011 2012 2013 2014 2015 2016 2017 2018

Popu

latio

nCustodyPopulationinLocalFacilities,FY2009-FY2018

Backup LocallySentenced

80

JailCapacityIssuesMorePrevalentinMiddleandEastTennessee

Note:Availablebedsandpopulationcountsforcountieswithmultiplefacilitieshavebeencombinedforanalysis.

JailPopulationasPercentofCountyJailCapacity,FY2018


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81

ResearchonFacilityTypeandRecidivism

Researchershaveevaluatedhowtheplaceofincarcerationrelatestorecidivisminthecontextofprogrammingopportunities

Findings:• Christensen(2008)noted,“Giventherealityofshorter,uncertainincarcerationperiods,theopportunityforimmersionwithincomprehensiveprogrammaticinitiativeswithinjailsisrelativelyshort”• Duwe(2017)concludedthat“whatistrulyimportantforrecidivismoutcomesisprovidingprisonerswithaccesstoeffectiveprogramming”

Source:Christensen(2008);Duwe(2017)

82

RecidivismRatesHigherforThoseReleasedfromJail

50.9%

40.6%

0%

10%

20%

30%

40%

50%

60%

Jail Prison

Recidivism

Rate

36-MonthRecidivismRateforFelonyOffendersReleasedinFY2014


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42

83

KeyTakeaways

• Increasinglengthsofstayhavedriventhecustodypopulationtogrow12%• Growingnumberofnon-personoffenders,ledbydrugoffenders,responsibleforcustodypopulationgrowth• Morethan75%oflow-levelfelonyoffensesarenon-person

• Nearlyhalfofthepopulationheldinstateprisonshasamentalhealthdiagnosis• Substance-relatedandaddictiondisordersmorethandoubled,andseriouspersistentmentalillnesscasestripled

• Asignificantnumberofstateinmatesareinlocaljails,manyofwhichareovercapacity

FemalePopulation

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85

FemaleIncarceratedPopulationGrew47%

2,364

3,481

0

500

1,000

1,500

2,000

2,500

3,000

3,500

4,000

2009 2010 2011 2012 2013 2014 2015 2016 2017 2018

TennesseeFemaleCustodyPopulation,FY2009-FY2018


86

TwoThirdsofWomenInforNon-PersonOffenses

Person33%

Non-Person67%

FemaleCustodyPopulationbyOffenseType,2019


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44

87

Over75%ofFemaleC,D,andEPopulationInforNon-PersonOffenses

0

100

200

300

400

500

600

700

800

900

1000

Capital A B C D E

Popu

latio

nFemaleCustodyPopulationbyFelonyClassandOffenseType,2019

Person Non-Person


88

DrugOffensesDominateFemaleNon-PersonOffensePopulation

0

100

200

300

400

500

600

A B C D E

Popu

latio

n

FemaleFelonyPopulationbyFelonyClassandOffenseType,2019

Property Drug Other


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45

89

TwiceasManyWomenfromEastthanWest

0

200

400

600

800

1,000

1,200

1,400

1,600

West Middle East

Popu

latio

nFemaleCustodyPopulationbyRegion,2019


90

Non-PersonOffensesDominateFemaleIncarceratedPopulation

0

200

400

600

800

1,000

1,200

West Middle East

Popu

latio

n

FemaleCustodyPopulationbyRegionandOffenseType,2019

Person Non-Person


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91

41%ofFemalePopulationAreinLocalJails

74%

59%

26%

41%

0%

10%

20%

30%

40%

50%

60%

70%

80%

Male Female

Percen

tofP

opulation

ShareofCustodyPopulationbyGenderandFacilityType,FY2018

Prison Jail


92

KeyTakeaways

• Tennesseeissendingmorewomentoprisonthanitwasadecadeago• Tennessee’sfemaleincarceratedpopulationgrew47%• Majorityofincarceratedwomenweresentencedfordrugandpropertyoffenses• 41%ofTennessee'sincarceratedwomenarehousedinlocaljails

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94

SupervisionRevocationMap

Felony,ClassAMisdemeanororZeroToleranceViolation

SanctionsEligibleViolation

GraduatedSanctionsMatrix

RevocationHearing

RevocationandIncarceration

RevocationandReinstatement

RevocationandSentencingAlternative

NoRevocationReinstatement

TDOCTechnicalViolatorProgram

ContinueSupervision


PrisonorJail

Continuance

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95

CommunitySupervisionPopulationGrew13%

67,918

79,98276,704

0

10,000

20,000

30,000

40,000

50,000

60,000

70,000

80,000

90,000

2009 2010 2011 2012 2013 2014 2015 2016 2017 2018

Popu

latio

nTennesseeCommunitySupervisionPopulation,FY2009-FY2018


96

Nearly5,000AdmittedforaCommunitySupervisionViolationinFY2018

1,598

2,498

849

0

500

1,000

1,500

2,000

2,500

3,000

Parole Probation Comm.Corr.

Admissions

AdmissionsfromCommunitySupervisionbySupervisionType,FY2018


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49

97

Morethan50%ofRevocationsforTechnicalViolations

0

500

1,000

1,500

2,000

2,500

3,000

Parole Probation CommunityCorrections

Revocatio

ns

RevocationsbyCauseandSupervisionType,FY2018

TechnicalRevocations NewCharges


98

TechnicalViolationsMakeUpGrowingShareofRevocations

40%

51%

24%

33%

66%71%

0%

10%

20%

30%

40%

50%

60%

70%

80%

2014 2015 2016 2017 2018

Percen

tofR

evocations

TechnicalRevocationsasPercentofAllRevocations,FY2014-FY2018


Probation

Parole


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50

99

RecidivismReductionPrinciplesforCommunitySupervision

Source:Sperber,Kimberly&Latessa,Edward&Makarios,Matthew.(2013);Kennedy(2006);Nagin&Pogarsky(2001).

Researchershaveexaminedwhatpracticesaremostsuccessfulatchangingindividuals’behaviorandreducingrecidivismoncommunitysupervision

Findings:• Risk,Need,Responsivity:Focusonhighriskoffenders,targetcriminogenicneeds,addressprogrammingbarriers• Usesanctionsandincentivestorespondtobehavior• Frontloadresourcesforoffenderscomingoutofcustody• Balancesupervisionwithtreatment• Monitorquality,fidelity,andoutcomes

100

Tennessee’sCurrentSupervisionPractices

ResponsivityFactors:Therearenoformalsystemsinplacetoaddressresponsivitybarrierstoprogrammingandtreatmentsuccesses.

Sanctions:Theuseofswift,certain,andproportionatesanctionsisinconsistentthroughoutthestateandopportunitiesremaintoensurethisbestpracticeisappliedmorebroadlyanduniformlyacrossTennessee.Rewards:Thereisalsonoformalstructureinplaceforrewardingpositivebehavioronprobationorparole,includingnowaytoearntimeoffofthesentenceforgoodbehaviororprogramparticipation.

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101

Tennessee’sCurrentSupervisionPractices

Treatment:Whileprobationandparoleutilizeassessmentstodeterminewhattypesofprogrammingandtreatmentneedsarerequiredforoffenders,accesstotreatmentremainsachallenge,particularlyintheruralareas.

FrontloadResources:Withagrowingpopulationoncommunitysupervision,resourceswithinthefirstdaysandweeksafterreleasearelimited,especiallyforthosereleasedfromjails.

QualityControl:Whilecriminaljusticeagenciescollectawidevarietyofdata,inconsistentdefinitionsacrossagenciesandtimelimitthestate'sabilitytoconductcomprehensiveanalysis.

102

KeyTakeaways

• Communitysupervisionpopulationhasgrown13%inthelastdecadetoover76,700individuals• Communitysupervisionviolatorsmakeup39%offelonyadmissions• Justoverhalfofrevocationslastyearwerefortechnicalviolations• WhileTennesseehasmadegreatstridesinadoptingevidence-basedpracticestoreducerecidivism,accessislimitedacrossthestate

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52

Review

104

SummaryofTrends

AdmissionsDown14%

TimeServedUp23%

CustodyPopulationUp12%

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105

SummaryTakeaways

• Overalladmissionsaredown14%,butadmissionsofwomenandadmissionsfromtheEastaregrowing• 74%ofadmissionsarefornon-personoffenses• Nearly5,000admittedlastyearfromcommunitysupervision

• Timeservedhasgrown11monthsor23%overall• Sentencesincreasedby6monthsin10years•  Individualsareserving20monthslongerbeforeparolerelease,and7monthslongerbeforeexpirationofsentence

• Releasestoparoledeclinedbymorethan1,200• Grantrateatinitialparolehearingdeclinedby59%• Just24%ofallparolehearingsresultindecisiontogrant

106

SummaryTakeaways

• Custodypopulationgrew12%in10years,andfemalepopulationincreased47% •  Increasingnumbersofnon-personoffenders,especiallydrugoffenders,areresponsibleforgrowth• Twothirdsofwomenareincustodyfornon-personoffenses• Mentalhealthcasesinstateprisonsdoubled

• Regionalvariationintypeofcasesleadingtocustody• TwiceasmanywomenincustodyfromEastthanWest

• Technicalrevocationsplayasignificantrole• Over4,000revocationslastyearfortechnicalviolations

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107

Questions/Contact

• Contactinformation:MauraMcNamaraPhone:617-529-3654Email:[email protected]:617-733-1437Email:[email protected]

108

Disclaimer

ThisprojectwassupportedbyGrantNo.2015-ZB-BX-K002awardedbytheBureauofJusticeAssistance.TheBureauofJusticeAssistanceisacomponentoftheDepartmentofJustice’sOfficeofJusticePrograms,

whichalsoincludestheBureauofJusticeStatistics,theNationalInstituteofJustice,theOfficeofJuvenileJusticeandDelinquencyPrevention,theOfficeforVictimsofCrime,andtheSMARTOffice.

Pointsofvieworopinionsinthispresentationarethoseoftheauthoranddonotnecessarilyrepresenttheofficialpositionorpoliciesofthe

U.S.DepartmentofJustice.