Jus$ce Reinvestment in Pennsylvania · Jus+ce reinvestment oﬀers states a comprehensive...

Jus$ceReinvestmentin

PennsylvaniaFirstPresenta+ontothePennsylvaniaJus+ce

ReinvestmentWorkingGroup

March9,2016

CarlReynolds,SeniorLegalandPolicyAdvisor

MarcPelka,DeputyDirector

EdWeckerly,ResearchManager

PatrickArmstrong,PolicyAnalyst

WorkingGroupComposi+on

CouncilofStateGovernmentsJus+ceCenter 2

JoshShapiro

Chairman,

PennsylvaniaCommissiononCrimeandDelinquency

RandyAlbright

Secretary,

OfficeoftheBudget

SallyBarry

ChiefProba+onOfficer,

LebanonCounty

MarkBergstrom

Execu+veDirector,

PennsylvaniaCommissiononSentencing

TyreeBlocker

Commissioner,

PennsylvaniaStatePolice

MarkBrunelle

Execu+veDeputy

ChiefofStafftotheGovernor

TheodoreDallas

Secretary,Pennsylvania

DepartmentofHumanServices

WilliamDanowski

Secretary,

Governor'sOfficeofLegisla+veAffairs

TomDarr

CourtAdministrator

ofPennsylvania

SarahE.GalballySecretary,

Governor’sOfficeofPolicyandPlanning

MichaelGreen

Chairman,Pennsylvania

BoardofProba+onandParole

Senator

StewartGreenleaf

12thSenatorialDistrict

EllenGreenlee

DefenderAssocia+onof

Philadelphia(Ret.)

Hon.Jolene

GrubbKopriva

PresidentJudge,

BlairCounty

MichaelHanna,Jr.

DeputySecretary,

Governor'sOfficeofLegisla+veAffairs

ElliotHowsie

DirectorandChief

PublicDefenderofAlleghenyCounty

MaryIsenhour

ChiefofStaff,

Governor'sOffice

RobertJolley

President,Pennsylvania

ChiefsofPoliceAssocia+on

KathleenKane

Pennsylvania

ATorneyGeneral

LindaKelly

CourtAdministrator,

AlleghenyCounty

Senator

DaylinLeach

17thSenatorialDistrict

Representa$ve

RonMarsico

105thLegisla+veDistrict

EdwardMarsico,Jr.

DistrictATorney,

DauphinCounty

LesNeri

President,FraternalOrder

ofPolice-PennsylvaniaStateLodge

MavisNimoh

Secretary,

PennsylvaniaBoardofPardons

BrindaCarrollPenyak

CountyCommissioners

Associa+onofPennsylvania

Representa$ve

JosephPetrarca

55thLegisla+veDistrict

LindaRosenberg

Execu+veDirector,

PennsylvaniaCommissiononCrimeandDelinquency

DeniseSmyler

GeneralCounsel,

Governor’sOfficeofGeneralCounsel

KeithSnyder

Execu+veDirector,

JuvenileCourtJudges'Commission

JenniferStorm

Vic+mAdvocate,Office

ofVic+mAdvocate

EdwardSweeney

DirectorofCorrec+ons,

LehighCounty

GaryTennis


DepartmentofDrugandAlcoholPrograms

JohnWetzel


DepartmentofCorrec+ons

SethWilliams

DistrictATorney,

PhiladelphiaCounty

Hon.Sheila

Woods-Skipper

PresidentJudge,

PhiladelphiaCounty

SenatePresidentProTempore

JoeScarna$

“Weneedtoreducerecidivismtobenefitourcommuni;esandhelpensurethattaxpayerdollarsthatarebeingsenttoHarrisburgarebeingusedproduc;vely.”

Pennsylvanialeadershaveindicatedstronginterestinand

commitmenttojus+cereinvestment(JR).


HouseSpeakerMikeTurzai“Whenlegislatorsfrombothsidesoftheaisleworktogethertotacklethesetoughissues,wecreategenuineresults.Weprovedthatwithajus;cereinvestmentapproachwetookin2012.”

ChiefJus$ceThomasSaylor

“Jus;cereinvestmentprovidesaclearopportunitytodoathoughIulanalysisofourcriminaljus;cechallenges.”

GovernorTomWolf

“Abrokencriminaljus;cesystemisafailuretodeliveronthepromiseofafairandjustsociety,andwemustallworktogethertoensurePennsylvanialeadsthena;oninrehabilita;onandnotincarcera;on.”

PennsylvaniaJus+ceReinvestmentLaunchEvent,February18,2016

CouncilofStateGovernments(CSG)Jus+ceCenter


•  Na+onalnonprofit,nonpar+sanmembershipassocia+onof

stategovernmentofficials

•  Engagesmembersofallthreebranchesofstategovernment

•  Jus+ceCenterprovidesprac+cal,nonpar+sanadviceinformed

bythebestavailableevidence

NextSteps

Jus$ceReinvestment

Presenta+onOverview

5CouncilofStateGovernmentsJus+ceCenter

KeyChallenges

6

Adata-drivenapproachtoreducecorrec1onsspendingandreinvestsavingsinstrategiesthatcandecreaserecidivismandincreasepublicsafetyTheJus+ceReinvestmentIni+a+veissupported

byfundingfromtheU.S.DepartmentofJus+ce’s

BureauofJus$ceAssistance(BJA)andThePewCharitable

Trusts

CouncilofStateGovernmentsJus+ceCenter

Jus+cereinvestmentoffersstatesacomprehensive

step-by-stepprocess.

DataAnalysisDatacompiledfromacrossthecriminaljus;cesystemforcomprehensiveanalysis

StakeholderEngagementComplementdataanalysiswithinputfromstakeholdergroupsandinterestedpar;es

DevelopPolicyOp$ons

&Es$mateImpacts

ImplementNewPolicies

TargetReinvestments&

MonitorKeyMeasures

Bipar$san,Interbranch

WorkingGroup

Presentapolicyframeworktoreducecorrec;onscosts,increasepublicsafety,andprojecttheimpacts

Iden;fyassistanceneededforimplementa;onanddelivertechnicalassistanceforreinvestmentstrategies

Assembleprac;;onersandleaders;receiveandconsiderinforma;on,reports,andpolicies

Trackandmonitortheimpactofenactedpoliciesandprograms,andadjustimplementa;onplanasneeded

1

2

3

4

5

6


CSGhasworkedonjus+cereinvestmentin21states,withfive

underwayin2016includingareturntoPennsylvania.


2016States

HI

NV

AZ

TX

KS

OK

WI

NC

IN

VT

NH

OHCT

MI

WV

RI

ID

AL

NE

WA

MA

MT ND

AR

PA

Pennsylvania’spreviousJRprojectledtoadata-drivenpolicy

framework,whichwasthenconvertedtolegisla+on.


2012PolicyFramework

•  Reduceinefficienciesinthecorrec+onsand

paroleprocess

•  Priori+zeCCC/CCFsforhigher-riskparoleeswho

benefitmostfromtheintensiveprograms

•  Applyshortenedperiodsofincarcera+onto

technicalparoleviolatorsfollowedbysupervision

•  Provideperformance-drivenfundingtohelp

divertmisdemeanantsandtheshort-minimum-

sentenceprisonpopula+on

•  Expandlocalresourcestoreducerecidivism

Althoughimplementa+onofpoliciesenactedin2012hasvariedin

+mingandimpact,ithass+llgeneratedsignificantsavings.


Reducinginefficiencies

inparole

decisionmaking

Addressinefficienciesthatdelaydecision-makinginparolebyincreasingthepropor+onofparolecasesinterviewedpermonth

Efficiencieshave

increasedparoles

Priori$zinguse

ofCCC/CCF

programs

RedesignCCCsandCCFsasparoletransi+onandviola+oncenters,prohibi+ng“pre-release”offendersandpriori+zingtheplacement

ofhigher-riskparolees Some

improvements

butroom

formoreApplyingshorterperiodsof

incarcera$onforparole

violators

Respondtomajortechnicalparoleviola+onswithshortenedperiodsofincarcera+oninSCIfollowedbysupervision.

Addressing

low-level

offendersinprison

Requirelow-levelmisdemeanants(UMandM3)tobesentencedtoasanc+onotherthanprison

Impactless

thanexpected

Diver$ng

theshort-min

popula$on

Providefundingtohelpcoun+esdivertmisdemeanantsandshort-minimumsentencepopula+on(<1yearinprison)

Delayin

fundinghasimpaired

impact

Throughavoidedconstruc+on,facilityclosures,andannualizedopera+ngcostsavings,theDOC

es+matesthatthetotalavertedcostsinthethreeyearssinceJRI2012are$285million.

Withsavingsincreasingeachyear,nearly$4millionhasbeen

reinvestedsince2012.


Act122

Crea$onofguidelines

forproba$onandparole

violatorsincluding

intermediatesanc$ons

Increasedeligibilityfor

bootcamp,RRRI,and

SIP

Sentencinglow-level

offenders(UMandM3)

toasanc$onotherthan

prison

Crea$onofhigh-

intensitysupervision

programsforcounty

proba$on

Capsonlengthofstay

fortechnicalparole

violators

FY2012–2013$57,000

FY2013–2014$990,719

FY2014–2015$11,812,718

Calcula$onofgeneratedsavings

Totalreinvested

Reinvestments(FY2015–2016Total)

Vic$mservices

$1,000,000

Riskassessment

$400,000

Policing

$668,000

Proba$on

$404,000

Countyshort-mindiversion

$326,000

Localreentry

$62,000

Parolerelease

$93,000

FY2013–201475%

FY2014–2015100%($21mcap)

FY2015–201625%

FY2013–2014$43,000

FY2014–2015$990,719

FY2015–2016$2,953,000

Implementa$on

Duringimplementa+on,stateagenciesrecognizedsomebarrierstoachievingthefullimpactofActs122and196of2012.Important

administra+vepolicyadjustmentsweremadeinthelaTerstagesofthe

implementa+onperiodtoincreaseimpactandgenerategreatersavings.

Savingsrequiredforreinvestment

36,810

51,51249,914

0

10,000

20,000

30,000

40,000

50,000

2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015

Despiterecentreduc+ons,theprisonpopula+onis36percent

higherthanin2000.

PennsylvaniaPrisonPopula+on,2000–2015

Jus+cereinvestmentlegisla+onpassed2013-2015

-3%


2000-2015

+36%

Source:DOCAnnualSta+s+calReports.

The2016jus+cereinvestmentprojectdiffersfromthe2012

effortin+meline,scope,anddataanalysis.


PennsylvaniaJus$ceReinvestment

2012 2016

Timeline5months

LaunchedinJanuary2012withpolicy

op+onsdevelopedbyMay2012

10monthsProjectlaunchinMarch2016;policy

op+onstargetedforJanuary2017

ScopePrimarilyfocusedon

PrisonandParole

ComprehensiveExamina$onIncludingarrest,diversion,pretrial,sentencing,

proba+on,jail,prisonandparole

AnalysisStateResearchStaff

Provideddiscretedatasetsandanaly+cal

support;cross-systemanalyseslimited

CSGResearchStaffPartneringwithstateresearchstaff

toconductcase-levelanalysis;

linkingofdataacrosssystems

Presenta+onOverview


NextSteps

Jus$ceReinvestment

KeyChallenges

Keychallengesastheyappearatthebeginningoftheproject


CountyImpactsandOutcomes

•  Mostsentencesareservedlocally,onproba+onorinjail

•  Resourcesandprac+cesvaryandoutcomesareunknown

SentencingComplexityandVaria$on

•  Complexitythatgrowswithlegisla+veenactmentsover+me

•  Advisoryguidelinesenablevaria+on

PrisonandParoleVolumes

•  Largeprisonpopula+on

•  Highestparolesupervisionrateinthecountry

SentencingGuidelines

GuiltWithoutFurtherPenalty(GWFP)

AcceleratedRehabilita+ve

Disposi+on(ARD)

Thearrest,pretrial,andsentencingstagesprovidenumerous

pathwaystodiversion,supervision,andincarcera+onop+ons.


Sentencing

Incarcera+on

Arrest

PretrialBailDecision,PSI,

RiskAssessment,

BehavioralHealthAssessments

DiversionRestora+ve

Sanc+on(RS)

Fine/CommunityService

Res+tu+on

Proba+on

CountyIntermediatePunishment(CIP)[Restric+veIntermediate

Punishment(RIP)+RS]

StateIntermediatePunishment(SIP)

[Flatsentenceof24monthswith

individualizedSAtreatmentplan]

Par+alorTotalConfinement

[CountyorStateFacility]

Proba+onWithoutVerdict

(PWV)

Disposi+oninLieuofTrial

Over80percentofsentencesareservedatthecountylevel,

eitheronproba+on,injail,orCIP.


Proba$on

41,744

42%

CountyJail

31,679

31%

CIP

10,480

10%

Prison

13,323

13%

Fine/CS

3%

SIP

1%

FelonyandMisdemeanorSentences,2014

Source:PennsylvaniaCommissiononSentencingAnnualReport,2014.

Mostseriousoffensepercriminalincident,N=100,432

Felony

Sentences

31,844

Misdemeanor

Sentences

68,588

Proba$on

24%

CountyJail

33%

Prison

34%

Proba$on

50%

CountyJail

31%

63%offelonysentencesand93%ofmisdemeanorsentencesarehandledbycountyagencies

CIP

7%

CIP

12%

30%

25%

15%

7%

21%

CountySupervision

36,34740,636

50,756

CountyJail* StateSupervision(PBPP) StatePrison

Almostaquartermillionpeoplearesupervisedby65county

adultproba+ondepartmentsonanygivenday.


243,767

CriminalJus+cePopula+onsasofDecember,2014

Source:PennsylvaniaBoardofProba+onandParole,CountyAdultProba+onandParoleAnnualSta+s+calReport,2014.

*2014jailaveragein-housedailypopula+on

74,017

Countyproba$on

61,931

Countypost-releasesupervision

followingajailincarcera+on

36,629

Supervisionthrougha

diversion(Accelerated

Rehabilita+veDisposi+onor

Proba+onWithoutaVerdict)or

onbailsupervision

16,498

SupervisionthroughaCounty

IntermediatePunishment(CIP)

program

50,715

Inac+veorAbsconders

Countysupervisionandjailcombinedcomprise75%ofthestatecriminaljus+ce

popula+on

30%

25%

15%

7%

21%

CountySupervision

Countysupervisiongrowthisdrivenbyinac+ve/absconder

andcountyparoleincreases.


2014243,767

County

Proba$on

CountyParole

Diversion(ARD

orPWV)orBail

Supervision

CIP

Inac$veor

Absconders

79,36674,017

2010 2011 2012 2013 2014

49,18861,931

35,671 36,629

32,678

50,715

16,580 16,498

2010–2014

Trend

-7%

+26%

+3%

0%

+55%

Source:PennsylvaniaBoardofProba+onandParole,CountyAdultProba+onandParoleAnnualSta+s+calReports,2010-2014.,

215,493

243,767

2010 2011 2012 2013 2014

Countysupervisionofalltypesisup13%in

thelast5years

Supervisionprac+cesthataredemonstratedtoreduce

recidivismdependonmanageablecaseloads.


2014

State

Proba$on/

Parole

County

Proba$on/

Parole

NumberofAgents 498 1,724

Ac+veCases(Allsupervisiontypesandlevels)

33,082 187,707

AverageAc+veCaseloadperAgent 66 109

Thereisnoaccepted,universalcaseloadsizestandard,howeversupervisioncanreduce

recidivismrateswhenthedosageof+meandaTen+onismatchedwiththeriskandneedlevel

oftheclient.Anexampleofpoten+alcaseloadlevelsstra+fiedbyrisk:

Low:120–200casesModerate:50–60casesHigh:20–30cases

Source:APPAhTps://www.appa-net.org/eweb/docs/APPA/stances/ip_CS.pdf,hTps://www.appa-net.org/eweb/docs/APPA/stances/ip_CSPP.pdf.PBPPCountyAdultProba+onandParoleAnnualSta+s+calReport,2014.PBPPMonthlyProgramReport,December2014.

Legisla+veBudgetandFinanceCommiTee,FundingofCountyAdultProba+onServices,February2015

Countycaseloadsaregenerallycomprisedof

lessseriousoffenders

andcouldbehigherthan

statecaseloads.S+ll,

thesecountycaseloadsappeartobehigh.

StateGrant-in-Aidfundinghasdeclined,andcoun+esbear

mostofthecostoflocalsupervision.


Source:Legisla+veBudgetandFinanceCommiTee,FundingofCountyAdultProba+onServices,February2015.

“StateGrant-in-Aidfundinghasdeclinedmarkedlyinthelast10years,bothinrealdollars

andasapercentageofeligiblesalaries.” “AsstateGIAfundshavefallen,theamountcoun;escontributetotheirproba;onandparoleofficeshasincreased.Onaverage,countyfundscomprised58percentoftotalfundingforcountyproba;onandparoleofficesinFY2013–14.In

FY1998–99,countyfundscomprised,onaverage,only45percentoftotalfunds.”

Addi1onalNotesGrant-in-Aidfundshaveremainedat$16,150,000fromFY2011–12throughFY2014–15.Thisisareduc;onwhenviewedasapercentageofoverallfunding.InFY2013–14,theGIAprovidedonly8percentoftotalproba;onandparolefunding.Thisisincontrasttoour2000report,inwhichwereportedthatGIAwas20.4percentofoverallfunding.

TheGIAprogramisintendedtofinanciallyassistcoun;estoprovideimprovedproba;onandparolesupervisionandprogramsforadultoffenders.TheBoardisresponsibleforestablishingstandardsforcountyadultproba;onandparoleservicesunderthisprogram.InFY2014–15,theGIAprogramwasfundedat$16.15million.

Addi;onally,theCrimeVic;msActof1998requiresthatadultoffenderswhoareunderthesupervisionofcountyadultproba;onofficespayamonthlysupervisionfee.Thesefeesarecollectedbythecountyproba;onandparoleoffices.HalfthemoneyisretainedinaCountyOffenderSupervisionFundandtheotherhalfissenttotheCommonwealth,whichthenreturnsittothecoun;esonadollar-for-dollarbasis.Supervisionfeestotaled$38.2millioninFY2013–14.

Countyjailshandleabout200,000admissionsandreleases

peryear.


•  Thestatewideon-handjailpopula+onisabout36,000,butthereistremendouschurnwith

around200,000admissionsandreleasesoverthecourseoftheyear.

•  Pennsylvania’sjailpopula+onincreasedby

9,700peoplefrom1999to2013,thesecond

highestnumberincreaseinthecountryandthe20thlargestpercentagechange(+36%).

•  Pennsylvaniahadthe11thhighestjailincarcera+onrateamongstatesin2013

(360per100,000,excludessixstateswithunifiedsystems).

•  Highcostperday(rangefrom$37to$112/day);averageis$67.

200,000

Admissions200,000

Releases36,000

Source:BJSCensusofJails:Popula+onChanges,1999–2013,2014PACountyPrisonSta+s+cshTp://www.cor.pa.gov/Facili+es/CountyPrisons/Pages/Inspec+on-Schedule,-Sta+s+cs-And-General-Info.aspx

JailPopula+on

26,996

36,720

1999 2013

+36%

PA

AverageCost

$67perday

Sentencingguidelineshaveexpandedtoincludepenalty

enhancementsandsentencingop+ons,includingtreatment.


1995:Threestrikeslawenacted

2010:SentencingCommissionchargedwithdevelopingrisk

assessmentatsentencing

2015:CommonwealthofPennsylvaniav.Hopkins(Mandatory

minimumsfound

uncons$tu$onal)

2008:Introduc+onoftheRecidivismRiskReduc$on

Ini$a$ve(RRRI)andchanges

toplace-of-confinementrules

2004:StateIntermediate

Punishmentcreated.Mandatoryminimumaddedfor

drugoffenseswithfirearm

1982:SentencingGuidelinesgointoeffect

1988:Guidelinesre-promulgated.

Mandatoryminimumsentences

enactedformanydrugoffenses

1987:SupremeCourtinvalidatesall

guidelinesdueto

proceduralerror

1980 1985 1990 1995 2000 2005 2010 2015

1991:CountyIntermediate

Punishment(CIP)and

BootCampestablishedassentencingop+ons

1997:EnactedguidelinesthatincludedfundingforRIPdrug

andalcoholtreatment

withCIP

Sentencingpoliciesandprac+ceshaveamajorimpactonthe

systeminvariousways.


Policy Prac$ce

PlaceofConfinement:Lengthofmaximumsentencedetermines

whetherthepersoncompletesthe

sentenceinjailorprison.

Min/MaxRule:Lengthofminimumsentencemay

benolongerthanhalfthelength

ofthemaximumsentence.

ParoleEligibility:Peoplebecomeeligibleforparoleat

theirminimumsentencedate,andif

releasedonparolemustserveun+l

theirmaximumsentencedate.

Sentencingprac+cesaffectthevolume

goingtosupervisionorincarcera+onoran

incarcera+onalterna+ve,suchas

intermediatepunishment.

Proba$on,

Fines,

orCommunity

Service

CountyJailor

County

Intermediate

Punishment

State

Intermediate

Punishment

orPrison

Sentencingguidelinesmatrixprovides

recommendedsanc$onsbasedonseverityof

offenseandanoffender’scriminalhistory,

ooengivingdiscre$ononsanc$oningop$ons.

Sentencingpolicies,suchasplaceof

confinementandthemin/maxrule,can

haveanimpactoncorrec+onsandparole

prac+ces.

Sentencingop+onsaredirectedthroughasentencing

guidelinesgridwithfivedisposi+onallevels.


LEVEL5:StateIncarcera+on


CountyIncarcera+on


CountyIncarcera+onCountyIntermediatePunishment

Restora+veSanc+ons

LEVEL2:CountyIncarcera+on

CountyIntermediatePunishmentRestora+veSanc+ons

LEVEL1:Restora+veSanc+ons

IncreasingCriminalHistory

IncreasingOffenseSeverity

Recommended

Sentence

5,605sentences6%

8,211sentences8%

21,143sentences21%

45,239sentences45%

20,119sentences20%

2014Total=

100,317incidents


ThemajorityofsentencesareforoffenderswithliTleorno

criminalhistoryandforlower-leveloffenses.


IncreasingCriminalHistory

IncreasingOffenseSeverity

0 1 2 3 4 5 RFEL REVOC

14

13

12

11

10

9

8

7

6

5

4

3

2

1 15% 3% 2% 1 1 2%

2% 1 1 1 1

12% 3% 3% 2% 2% 4% 1

2%

8% 2% 2% 1% 1% 2%

2% 1 1 1

2% 1

1

1

1

5%

Source:Jus+ceCenteranalysisofCommissiononSentencingdata.

CriminalIncident

Sentencing,

2014

Totalsentencingvolumeisup10percentinthepastdecade.


91,492

100,432

0

20,000

40,000

60,000

80,000

100,000

120,000

2005 20062007 2008 2009 2010 2011 2012 20132014

TotalNumberofCriminalIncidents,2005–2014


Felony

32%

Misdemeanor

68%

TotalIncidentsbyOffenseLevelandDisposi+onType,2014

CountyJail31%

Proba$on42%

CIP10%

Prison13%

SIP1%

OtherRestora$ve3%

Two-thirdsofsentencedoffenses

aremisdemeanors

andthemost

commondisposi+ons

areproba+onandcountyjail+me.

+10%

Proba+onsentencesarelargelyfoundwhereexpectedonthe

sentencinggrid;CIPshowssentencesoutsidestandard.


Proba+on,N=41,744


CIP,N=10,480

Bubblesizesonlypropor;onatewithineachsentencingcategory. 95%ofCIPupwarddepartureswereDUIs

CriminalIncident

Sentencing,

2014

Sentencestojailandprisonalsoshowupwardanddownward

disposi+onal“departures.”



StatePrison,N=13,208

Bubblesizesonlypropor;onatewithineachsentencingcategory.SIP(N=554)andOtherRestora;veSanc;ons(N=2,652)notdisplayed.

CountyJail,N=31,679

78%ofJailupward

departures

wereDUIs

Prisonupwarddepartureswereablendofoffenses:they,simpleassault,burglary,DUI,retailthey,drugoffenses

CriminalIncident

Sentencing,

2014

Despitethestructureprovidedthroughtheguidelines,varia+onin

sentencingoutcomescans+llexistacrosssimilarcases.


44%

40%

8%

6%

2%


2014SentencingExample:

MisdemeanorSimple

PossessionDrugOffenses

OffenseGravityScore=3

PriorRecordScore=5

N=1,039

Proba$on

CountyJail

StatePrison

IntermediatePunishmentOtherRestora+veSanc+on

Pennsylvania’sincarcera+onrateexceedsotherstatesinthe

region,andcrimeratesdonotprovideanexplana+on.


394

0

100

200

300

400

500

CT ME MA NH NJ NY PA RI VT

2,246

0

500

1,000

1,500

2,000

2,500

3,000


2014Incarcera$onRate(Sentencedprisoners(>1year)per100,000residentsinNortheastregionstates)

2014IndexCrimeRate(Reportedindexcrimesper100,000residentsinNortheastregionstates)

Source:BJS,Prisonersin2014;UCROnlineDataTool.

170

0

50

100

150

200


2014ViolentOffenseArrestRate(Violentoffensearrestsper100,000residentsinNortheastregionstates)

3,340

0

1,000

2,000

3,000

4,000

5,000


2014TotalArrestRate(Totalarrestsper100,000residentsinNortheastregionstates)

Pennsylvania’s2004–2014increaseinincarcera+onratewas

thefourthhighestinthena+on.


16%

19%

4%3%

2% 1%

-14%

-20%

-22%

-30%

-20%

-10%

0%

10%

20%

30%

40%

WV

NE

AR

PA

NH

IN

KY

OH

MN

AL

ND

AZ

OK

IL

ID

SD

MT

FL

MA

WY

OR

VT

ME

NM

RI

TN

NC

LA

UT

KS

MO

IA

WA

VA

AK

WI

GA

MI

NV

DE

MS

CO

CT

MD

TX

NY

SC

NJ

HI

CA

Incarcera+onRatePercentageChange,2004-2014

Source:BJSCorrec+onsSta+s+calAnalysisTool,hTp://www.bjs.gov/index.cfm?ty=nps

PA

Imprisonmentrateofsentencedprisonersper100,000residents(sentencesgreaterthanoneyear).

NY

NJ

CT

Pennsylvania’sincarceratedpopula+ongrewbyabout9,500peoplefrom2004to2014,whichwasthe2ndlargestvolumeincrease

andthe7thlargestpercentagechangeinthecountry.

ME

NH

MA

VT

RI

Correc+onsspendingincreased55percentoverthelast

decadeandiscurrentlyover$2.3billion.

Source:NASBOStateExpenditureReports,2005-2015

$1,537 $1,575$1,638

$1,834 $1,843 $1,832$1,907

$2,098 $2,110

$2,241$2,384

$0

$500

$1,000

$1,500

$2,000

$2,500

$3,000

FY05 FY06 FY07 FY08 FY09 FY10 FY11 FY12 FY13 FY14 FY15

GeneralFundCorrec+onsExpenditures(inmillions),FY2005–FY2015


26%

55%

Theincreaseingeneralfundcorrec+onalspendingfrom

FY2005toFY2015wastwice

aslargeasthegrowthin

totalgeneralfund

expenditures.

Total

GeneralFund

Spending

Correc$onal

GeneralFund

Spending

832

8%3% 3%

Alargepor+onofnewprisoncommitmentscon+nuetohave

shortminimumsentences.


2,69626%

1yearorless

3,29932%

Over1to2years

2,91628%

Over2to5years Over

5-10

yrs

Over

10-20

yrs

Over

20yrs

toLife

NewCommitmentstoPrisonbyMinimumSentenceLengthinYears,2014(N=10,321)

Source:DOCAnnualSta+s+calReports,Jus+ceCenteranalysisofDOCdata.

2,4012,696

0

1,000

2,000

3,000

2006 2007 2008 2009 2010 2011 2012 2013 2014 2015

Shortminnewcourtcommitmentvolumehasincreased12%

Prisonerswithaminimumsentenceofoneyearorlesswhowere

releasedfromprisonin2014hadan

averagelengthofstayof15months.

NotethatDOCdefinesShortMinsasthosewithlessthanayearremainingontheirminimumsentenceatintake,aiertaking;meservedintoaccount.Thisexpandsthenumberslightly.

Nearlyhalfofnewcourtcommitmentstoprisonarefor

propertyordrugoffenses.


Otherfeloniesprimarilyincludefirearmsoffenses.OthermisdemeanorsprimarilyincludeDUI.Violentmisdemeanorsprimarilyincludesimpleassaultandinvoluntarymanslaughter.

OtherMisd11%

Felony

78%

Misdemeanor

22%

TotalViolent32%

2014NewCommitmentstoPrison,N=10,321

Source:Jus+ceCenteranalysisofDOCdata.

DrugMisd1%

ViolentMisd4%

PropertyMisd6%

OtherFelony10%

DrugFelony24%

PropertyFelony17%

ViolentFelony27%

TotalProperty23%

TotalDrug25%

TotalOther21%

Pennsylvania’srecentdeclineintheprisonpopula+onhas

beenlimitedtodrugoffenders.


27,015 27,123 27,358 27,748 27,752

2010 2011 2012 2013 2014

Violent

6,721 7,044 7,080 7,264 7,119

2010 2011 2012 2013 2014

Property

10,759 10,6329,941 9,658

8,810

2010 2011 2012 2013 2014

Drug

6,826 6,839 6,805 6,842 7,075

2010 2011 2012 2013 2014

Other

Increasedby3% Increasedby6%

Decreasedby18% Increasedby4%

PennsylvaniaDOCPrisonPopula+onbyOffenseType,2010–2014

Source:Jus+ceCenteranalysisofDOCdata.“Other”includesfirearms,DUI,andothernonviolentsexoffenses.Paroleviolatorsareincludedwiththeoriginaloffense.

Pennsylvaniahasthehighestparolesupervisionrateinthe

country.


Source:OfficeofJus+cePrograms,BureauofJus+ceSta+s+cs,Proba;onandParoleintheUnitedStates,2014.

ParolePopula+onper100,000Residents,2014

U.S.Total

ParoleRate

303

22,593

41,226

44,410

0

10000

20000

30000

40000

50000

FY00FY01FY02FY03FY04FY05FY06FY07FY08FY09FY10FY11FY12FY13FY14FY15FY16FY17FY18FY19FY20

Statesupervisionpopula+onhasincreasedandisprojected

tocon+nuegrowing.

StateSupervisionPopula+on,FY2000–FY2015,ParolePopula+onProjec+on,FY2016–FY2020

Source:PABoardofProba+onandParole,MonthlySta+s+csReports.CriminalJus+cePopula+onProjec+onsCommiTee,PennsylvaniaCriminalJus+cePopula+onProjec+ons,FY2015/16toFY2019/20.


ProjectedGrowth+8%HistoricalGrowth+82%

Notethatonlyroughly80%ofstatesupervised

casesarestatesentence

paroles;theremainder

arecountyspecial

proba+on/paroleorinterstatecompact

proba+on/parolecases.


12,56613,546

14,81116,025 16,932

4,1344,011

3,8353,499

3,1631,717

1,8071,793

2,291 1,968

0

5,000

10,000

15,000

20,000

25,000

2010 2011 2012 2013 2014

PrisonReleasesbyType,2010–2014

18,41719,364

20,439

22,063

*Otherincludesreleasesbycourtorder,deaths,transferstootherjurisdic;ons,andreleaseddeten;oners.

68%

77%

Source:DOCAnnualSta+s+calReports.

Thenumberandpropor+onofstateparolereleaseshave

increased,reducingmax-outsbutincreasingsupervision.

Other*

MaxOut

Parole

21,815

Propor$on

paroledisupnine

percentagepoints

26.1

23.9

30.0

32.5

0.0

10.0

20.0

30.0

40.0

FY2011 FY2012 FY2013 FY2014 FY2015

Recommitments

-9%(median-7%)

MaximumSentenceExpired

+9%(median+11%)

AverageLengthofStayonParoleinMonthsby

ClosureType,FY2011–FY2015(Stateparoleonly)

Since2011,paroleadmissionshaveoutpacedparoleclosures,

andlengthsofstayforsomeclosureshaveincreased.


16,163 15,97616,600

17,508 17,113

13,83214,990 14,554

15,713 15,722

0

2,000

4,000

6,000

8,000

10,000

12,000

14,000

16,000

18,000

20,000

FY2011 FY2012 FY2013 FY2014 FY2015

Admissions

Closures

StateParoleAdmissionsandClosures,FY2011–FY2015

Source:Jus+ceCenteranalysisofPennsylvaniaBoardofProba+onandParoledata.

Thelargestpropor+onofstatesentenceparolecaseclosures

arerecommitmentstoDOC.


4,1845,138 4,992

5,738 5,718

4,453

4,5384,232

4,630 4,850

447

514582

737853

0

2,000

4,000

6,000

8,000

10,000

12,000

FY2011 FY2012 FY2013 FY2014 FY2015

StateSentenceParoleClosuresbyType,FY2011–FY2015

9,084

10,1909,806

11,421

*Otherincludesadministra;veclosures,deaths,andearlydischarges.

46%

50%

Other*

Maximum

SentenceExpired

Recommitment

11,105

Propor$onrecommisedup

4percentagepoints

(increaseof1,500people)

49%

42%

Source:Jus+ceCenteranalysisofPennsylvaniaBoardofProba+onandParoledata.

Totalparoleviolatoradmissionshaveincreasedbutthe

diversionofsometoPVCshaslimitedbedconsump+on.


5,623

6,9007,278

5,517 5,854

2,980

3,466

0

1000

2000

3000

4000

5000

6000

7000

8000

9000

10000

FY2010 FY2011 FY2012 FY2013 FY2014

ParoleViolators-CCJ/PVC

ParoleViolators-SCI

ParoleViolatorAdmissionsbyFacilityType,FY2010–FY2014

8,497

9,320

SCI=StateCorrec+onalIns+tu+on

CCJ=ContractedCountyJail

PVC=ParoleViolatorCenter

Source:PBPP’s“201406JPMDashboard.xlsx”

Paroleviolatorscomprisethesamepropor+onoftheDOCtotal

popula+on(~15%)despitemore

admissions.Thisisduetoshorter

lengthsofstayfortechnical

paroleviolators.

ParoleViolatorAverageLengthofStay

atDOCbyFacilityTypeinMonths,2014

9.0

5.5

2.5

SCI

CCJ

PVC

SummaryofIni+alFindings


CountyImpactsandOutcomes•  Thevastmajorityofthecriminaljus+cepopula+oniscontrolledatthelocallevelthroughacombina+onofjail,

CIP,proba+on,countyparole,andothersupervision.

•  Countyproba+on/parolecaseloadsarehigh,andthesupervisionpopula+onisontherise.

•  58%ofproba+onfundingisfromcoun+esandtrendingupward.•  Thejailincarcera+onrateisrela+velyhigh,andahugenumberofpeoplecyclethroughjailseveryyear.

SentencingComplexityandVaria$on•  Anarrayofop+onsandmandatesoverlaystheguidelinesandbasicrules.

•  100,000incidentsaresentencedinayear,and65%areinthelowesttwolevelsofthegrid.

•  Sentencingvolumeisup10%,butthepropor+ontoprisonremainsstableat+/-13%.

•  Significantvaria+onexistsinspiteoftheguidelines.

PrisonandParoleVolumes•  Intheregion,Pennsylvaniahasahighincarcera+onratethatisconsumingmoreandmoreofthestate’sbudget.

•  HalfofnewprisoncommitmentsareforpropertyordrugoffensesandaquarterofnewcommitmentsareShort

Mins.

•  Pennsylvaniahasthehighestparolesupervisionrateinthecountry,andstateparolenumberscon+nuetorise.•  Paroleviolatorreturnstoprisonareup,buttheirlengthofstayhasbeenreduced.

Presenta+onOverview


NextSteps

Jus$ceReinvestment

KeyChallenges

Ques+onsforFurtherResearch



•  Whatisthevolumeofmissedopportuni+esfordiversiontotreatmentinlieuofarrest,atthepretrialstage,and

atsentencing?•  Whatarepretriallengthsofstayindifferentcoun+es,andwhatreleasedecisions/processesareinplace?

•  Whatarerecidivismoutcomesfor:diversionop+ons,proba+on,intermediatepunishments,andjail?

•  Whataretheopportuni+esandobstaclesforincreasingevidence-basedprac+cesatthelocallevel?

•  Whatisbehindthelargeandgrowingnumberofinac+ve/abscondersoncountysupervision?


•  Howdoesthesystemsortoutsentencedpopula+onstosupervisionandincarcera+on,locallyandatthestate

level?•  Howarehigh-volumesentences(suchasDUI)affec+ngresourcecapacityandu+liza+on?

•  Whatarerecidivismratesforpeopleconvictedoflower-levelfeloniesandmisdemeanorsamongtheavailable

sentencingop+ons:proba+on,intermediatepunishments,jail,andprison?

•  Arethereintolerablywidevaria+onsinsentencingacrossgeographicordemographiccategories?


•  WhatfactorscontributetoPennsylvania’sincarcera+onrateandhowdotheycomparetoneighboringstates?

•  WhatiscausingPennsylvania’shighrateofadultsoncountyandstateparole,andwhatistheeffecton:supervisionresources,useofcommunitycorrec+onsandviolatorcenters,andrecidivism?

•  Whatisdrivingthelargevolumeofstateparoleviolatorsreturningtoprison?

Acquisi+onofdataisalmostcomplete.

48

DataType Source Status

Arrests PennsylvaniaStatePolice Scopingunderway

Jail Coun+es/JNET Scopingunderway

CourtFilings Administra+veOfficeofPennsylvaniaCourts Pending

Sentencing PennsylvaniaCommissiononSentencing Received

Prison PennsylvaniaDepartmentofCorrec+ons Received

ParoleSupervision PennsylvaniaBoardofProba+onandParole Received

ParoleDecisionMaking PennsylvaniaBoardofProba+onandParole Received

Proba+onSupervision Coun+es/CCAP/JNET Scopingunderway

BehavioralHealth

PennsylvaniaDepartmentofCorrec+ons

DepartmentofDrugandAlcohol

Programs/DepartmentofHumanServices

Received

Pending


Judges

District

Asorneys

DefenseBar

ParoleBoard

Correc$ons&

Parole

Administrators

Behavioral

Health

Providers

Vic$m

Advocates

County

Officials

ParoleAgents

Law

Enforcement

Proba$on

Administrators

andOfficers

Business

Leaders

Stakeholderengagementwillraiseaddi+onalissues.


PAJR

TheJus+ceCenterandtheWorkingGroupwillcombine

effortstoachieveasuccessfulprojectoutcome.


PAJR

WorkingGroup

CSGJus$ce

CenterStaff

Endorseproject

scopeofwork

Provideexper$se

onsystemdynamics

andstructures

Approvepolicypackage

Iden$fylegisla$veversus

judicialpolicies

Createmomentumfor

adop$onofjus$ce

reinvestmentpolicies

Serveasdedicated

stafftothestate

Analyzedata

Engage

stakeholders

Deliverpresenta$ons

andfacilitatediscussion

Interpretdata

andassess

trends

Iden$fyaddi$onal

stakeholders

Developdata-driven

policyframework

Iden$fypriori$es

forreinvestment

Proposed+melineleadingtothe2017legisla+vesession


Dec Jan Feb Mar Apr May Jun Jul

ImpactAnalysis

DataAnalysis

Ini+alAnalysis

DetailedDataAnalysis

Working

Group

Mee$ng

1

FinalReportandBillIntroduc+on

PolicymakerandStakeholderEngagement

StakeholderEngagementandPolicymakerBriefingsPolicyOp+onDevelopment

Ongoingengagement

Aug

WorkingGroupMee+ng

4

2017

Session

WorkingGroup

Mee$ng2

May18

1:30-4:00pm

WorkingGroupMee+ng

3

Sep Oct Nov Dec

WorkingGroupMee+ng

5


ThankYou

PatrickArmstrong,PolicyAnalyst

[email protected]

ThismaterialwaspreparedfortheStateofPennsylvania.Thepresenta+onwasdevelopedbymembersoftheCouncilofStateGovernmentsJus+ceCenterstaff.Becausepresenta+onsarenotsubjecttothesamerigorousreviewprocessas

otherprintedmaterials,thestatementsmadereflecttheviewsoftheauthors,andshouldnotbeconsideredtheofficialposi+onoftheJus+ceCenter,themembers

oftheCouncilofStateGovernments,orthefundingagencysuppor+ngthework.

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