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Justice Reinvestment in Arkansas��2nd Presentation to the Legislative Criminal Justice Oversight Task Force��February 17, 2016 ��Andy Barbee, Research Manager�Jessica Gonzales, Senior Research Associate�Ben Shelor, Policy Analyst�Dan Altman, Program Associate�
TheCouncilofStateGovernmentsJus6ceCenter
CouncilofStateGovernmentsJus6ceCenter 2
• Na6onalnonprofit,nonpar6sanmembershipassocia6onofstategovernmentofficials
• Engagesmembersofallthreebranchesofstategovernment• Jus6ceCenterprovidesprac6cal,nonpar6sanadviceinformed
bythebestavailableevidence
3
Adata-drivenapproachtoreducecorrec1onsspendingandreinvestsavingsinstrategiesthatcandecreaserecidivismandincreasepublicsafetyTheJus6ceReinvestmentIni6a6veissupportedbyfundingfromtheU.S.DepartmentofJus6ce’sBureauofJus+ceAssistance(BJA)andThePewCharitableTrusts
CouncilofStateGovernmentsJus6ceCenter
TheJRapproachinvolvestwophasesofassistance
TargetReinvestmentStrategies&MonitorKeyMeasures5
PhaseII
Developpolicyop+ons&es+mateimpacts
3Engagesystemstakeholders
2
ImplementNewPolicies4
Analyzedata1
CouncilofStateGovernmentsJus6ceCenter 4
PhaseI
Arkansas’scriminaljus6ceagencieshavebeenexcellentinprovidingdata
5
q Shortageof“datastaff”
q Delaysindeliverydueto“datacleaning”
q Unavailabledatainsteadcollectedthroughsamplesandsurveys
q Agenciesunaccustomedtosharingdatawithoutsidegroups
DataType Source Status– CrimeandArrests ArkansasCrime
Informa6onCenterReceived,analyzing
– Sentencing ArkansasSentencingCommission
Received,analyzing
– Prison(Admissions,Releases,andPopula6onsnapshots)
ArkansasDepartmentofCorrec6on
Inprocess
– Proba6onSupervision– ParoleSupervision– RiskAssessment
ArkansasCommunityCorrec6ons
Received,analyzing
– ParoleDecision-Making ArkansasParoleBoard
Received,analyzing
– Jail Coun6es S6llscoping
Roadblocksthatsome+mesarise
CouncilofStateGovernmentsJus6ceCenter 5
üü
Presenta6onoverview
SummaryofAnalysistoDate
6CouncilofStateGovernmentsJus6ceCenter
SentencingPolicyinArkansas
AnalysisofSentencingPrac6ces
CouncilofStateGovernmentsJus6ceCenter 7
SummaryofAnalysistoDate
q Arkansashasthefastestgrowingprisonpopula6oninthecountry
q Crimeisfallingfasterinsurroundingstates
q Correc6onscoststhestatehalfabilliondollarsannually,andtheprojectedgrowthwillrequireanaddi6onal$1.3billion
q Experiencesinotherstatesdemonstratetheabilitytoreducecrime,manageprisonpopula6onsandcosts,andreducerecidivism
-20%
-15%
-10%
-5%
0%
5%
10%
15%
20%
25%
AR
NE OK
WY
MN
ND
ME
WA
AZ
WI
NH
NM
MT
NC
MO
OR
IN
CA
VA
IA
OH TN
FL
UT CO
ID
TX
DE
KS
VT
MI
PA
SD
CT
WV
AL
IL
KY
MD
NV
GA
NY
HI
SC
MA
LA
RI
NJ
AK
MS
Arkansashasthefastestgrowingprisonpopula6on
Source:BJSPrisonersintheUnitedStates
PercentChangeinSentencedPrisonPopula6ons,2012–2014
Arkansas:22%increasebetween2012and2014
USAverage:0.2%increasebetween2012and2014
8CouncilofStateGovernmentsJus6ceCenter
Crimeisfallingfasterinsurroundingstates
CouncilofStateGovernmentsJus6ceCenter 9Source:FBIUniformCrimeReport
ChangeinViolentandPropertyCrimeRates,2004–2014
SurroundingStates-14%
SurroundingStates-27%
Arkansas-4%
Arkansas-17%
-30%
-25%
-20%
-15%
-10%
-5%
0%Violent Property
Correc6onscostsmorethanhalfabilliondollars,a68percentincreasesince2004
10
Correc6onsSpending,FY2004andFY2015
Source:ArkansasStateBudget2004,2015
$0
$100,000,000
$200,000,000
$300,000,000
$400,000,000
$500,000,000
$600,000,000
FY2004 FY2015
$250.2M
$54.1M$1.1M
$417.1M
$93.0M
$2.2M$305.4M $512.2M
ADC
ADC
ACC
ACCAPB
APB
CouncilofStateGovernmentsJus6ceCenter
15,564
14,825
18,81318,711
22,75925,448
0
5,000
10,000
15,000
20,000
25,000
30,000
Withoutac6on,Arkansas’sprisonpopula6oncouldclimb35percent,andcostscouldrise$1.3billionover10years
HistoricalandProjectedPrisonPopula6on,FY2010–2025
Source:ADCemail,JFAAssociates,2015ArkansasPrisonProjec6onsandHistoricalCorrec6onsTrends,June2015
11CouncilofStateGovernmentsJus6ceCenter
*Baselinescenarioassumesa1.2%increaseperyearinadmissions.
ADCCapacity=15,416
ProjectedHistorical
$1.3billioninaddi6onalspendinges6matedifprisonpopula6on
growsasprojected
Crimeandincarcera6onratesarebothdeclininginmostsurroundingstates
CouncilofStateGovernmentsJus6ceCenter 12Source:FBIUniformCrimeReport,BJS,Prisonersreportshqp://www.bjs.gov/index.cfm?ty=pbse&sid=40
ChangeinCrimeRatesandIncarcera6onRates,2004–2014
-15%
-29%
-21%
-15%
-24%-28% -27%
-32%
21%
-2%
0%
-11%
-2%
8%
0%
-16%
CrimeRate Incarcera6onRate
KS MS TXAR LA TNOKMO TX
Arkansas
13CouncilofStateGovernmentsJus6ceCenter
Statesareusingjus6cereinvestmenttomanageprisongrowthandcosts,andreducerecidivism
KeyCriminalJus+ceIndicators
Texas(JRin2007)
NorthCarolina(JRin2011)
CrimeRate
RecidivismRate
PrisonPopula6on
KeyIndicatorTX NC AR
2007 2014 2011 2014 2011 2014CrimeRate 4,632 3,425 3,877 3,203 4,235 3,818
Incarcera6onRate 669 584 362 358 544 599
Researchcomparescost-effec6venessofthethreebigstrategiesstatesusetoimpactcriminalbehavior
CouncilofStateGovernmentsJus6ceCenter 14
DetercrimeIncreaselawenforcement’sabilitytousehot-spotstrategiesanddeployaddi6onalofficerstoincreasetheperceivedcertaintyofapprehension.
$$$$$$$
$$$$$ $$
ReducerecidivismHigh-qualitysupervision(risk,need,responsivity),consistentsanc6oning,andhigh-qualitytreatmentprogramstailoredtoneeds.
Prolongincapacita+onIncreaselengthofstaytoholdmoderate-tohigh-riskoffendersinprisonforanaddi6onal3months.
BenefittoCostRa+oBenefitsperdollarofcost.
Source:Aos,S.andDrake,E.“Prison,Police,andPrograms:Evidence-BasedOp6onsthatReduceCrimeandSaveMoney.”Olympia:WashingtonStateIns6tuteforPublicPolicy,2013.
$
CouncilofStateGovernmentsJus6ceCenter 15
SentencingPolicyinArkansas
q ArkansaspolicymakersadoptedtheSentencingStandardsGridin1993toensuresanc6onsarepropor6onaltotheseverityoftheoffenseandtheindividual’scriminalhistory
q Sentencestoprison“shouldbereserved”forthemostseriousoffensesandoffenders
q 40%ofArkansas’sgridallowsanytypeofsentence;morethanotherstateswithguidelines
Arkansasisoneof20stateswithsentencingguidelines
CouncilofStateGovernmentsJus6ceCenter 16
LA
UT
AR
MN
KS
TN
WI
NCDC
MD
OH
DE
MI
VA
MA
AK
AL
MO
PA
WA
OR
Source:StateSentencingGuidelines,ProfilesandConGnuum,Na6onalCenterforStateCourts,2008
HistoryofArkansasSentencingStandardsPolicy
CouncilofStateGovernmentsJus6ceCenter 17
Act532of1993establishedbothArkansas’sSentencingStandards(some6mesreferredtoasthesentencingguidelines)andtheArkansasSentencingCommission.
Theoffender’scriminalhistoryscoreiscalculatedbasedon:1. Priorfelonies(.5pointforseriousnesslevels1–5,1pointforseriousnesslevels6–10)2. Priormisdemeanors(ClassAonly,worth.25points)3. Juvenilecriminalrecord(Nopointsforstatusoffenses,.25foreachadjudicaGon.
Certainseriousoffensesareworth1point)4. Custodystatusatthe6meoftheoffense(1pointiftheoffenseoccurswhile
undersupervisionorpretrialrelease)
TheSentencingStandardsGridcontainspresump6vesentencesbasedon(a)theseriousnessoftheoffenseand(b)thecriminalhistoryoftheoffender.Offenseseriousnessislistedonthever6calaxis,whilecriminalhistoryislistedonthehorizontalaxis.
Source:Act532of1993.hqps://sentencing.umn.edu/sites/sentencing.umn.edu/files/session_law_establishing_arkansas_sentencing_commission_1993.pdf
Keyprovisionsofthe1993law
CouncilofStateGovernmentsJus6ceCenter 18
B)PurposeofSentencingStandards-Thoughvoluntary,thepurposeofestablishingraGonalandconsistentsentencingstandardsistoseektoensurethatsancGonsimposedfollowingconvicGonarepropor1onaltotheseriousnessoftheoffenseofconvic1onandtheextentoftheoffender'scriminalhistory.ThestandardsseektoensureequitablesancGonswhichprovidethatoffenderssimilarwithrespecttorelevantsentencingcriteriawillreceivesimilarsancGonsandoffenderssubstanGallydifferentwithrespecttorelevantsentencingcriteriawillreceivedifferentsancGons.Sentencingcriteriashouldbeneutralwithrespecttorace,gender,social,andeconomicstatus.
(C)AppropriateUseofSentencingSancGons-RaGonalandconsistentsentencingpolicyrequiresaconGnuumofsancGonswhichincreasesindirectproporGontotheseriousnessoftheoffenseandtheextentoftheoffender'scriminalhistory.CommitmenttotheArkansasDepartmentofCorrec1onisthemostseveresanc1onandduetothefinitecapacityofthedepartment’sfacili1es,itshouldbereservedforthoseconvictedofthemostseriousoffenses,thosewhohavelongercriminalhistories,andthosewhohaverepeatedlyfailedtocomplywithcondi1onsimposedunderlessrestric1vesanc1ons.ArkansaslawprovidesforsignificantintermediatepenalsancGonsinthecommunitywhichshouldbeuGlizedwhenappropriate.Restric1onsonanoffender'slibertyshouldonlybeasrestric1veasnecessarytofulfillthepurposesofsentencingcontainedinthispolicy.
Source:Act532of1993.hqps://sentencing.umn.edu/sites/sentencing.umn.edu/files/session_law_establishing_arkansas_sentencing_commission_1993.pdf
Propor+onality
Prisonreservedformostserious
Arkansashasavarietyofsentencingop6onsforthoseconvictedoffelonyoffenses
CouncilofStateGovernmentsJus6ceCenter 19
Convic+onforFelonyOffense
Fines,CommunityService,
DrugCourt
Proba6onCommunityCorrec6onsCenter(CCC)
Prison(ADC)SuspendedImposi6onofSentence(SIS)
o SuspendedImposi+onofSentenceresultsinindirectsupervisionbyArkansasCommunityCorrec6ons.Mayincludeperiodofconfinementascondi6onofsentence.
o Proba+onresultsindirectsupervisionbyArkansasCommunityCorrec6ons.Mayincludeperiodofconfinementascondi6onofsentence.
§ Upto12months
§ Offertreatmentandprogramming
§ Releasetoproba6onorSIS
§ EligibleforgoodGme*
§ ReleaseiscontrolledbyParoleBoard
§ Releasetoparoleortonosupervision
*Exclusionsarethoseconvictedfora2ndorsubsequentviolentorsexualfelonyoffense.
Incarcera+onAlterna+veSanc+ons(AS)
Arkansas’ssentencinggridplacesdefendantsinto1of60cellsbasedonoffenseseriousnessandpriorcriminalhistory
CouncilofStateGovernmentsJus6ceCenter 20
0 1 2 3 4 5+
10
9
8
7
6
5
4
3
2
1
OffenseSeriousness
Moreseriousoffenses
Lessseriousoffenses
CriminalHistoryScore
Lesshistory
Morehistory
Source:ArkansasSentencingCommission
MostFrequentOffenseType
Murder–1stDegree
Rape
Baqery–1stDegree
Robbery
Burglary–Residen6al
FailuretoAppear
ThexofProp.$5,000-$24,999
Poss.ofCSSched.I,II–Meth/CocaineLessthan2grams
ThexofProp.$1,000-$4,999
ComputerFraud
TherearethreebasicareasinArkansas’ssentencinggridinthecontextof“prison”sentences
CouncilofStateGovernmentsJus6ceCenter 21
0 1 2 3 4 5+
10
9
8
7
6
5
4
3
2
1
OffenseSeriousness
Moreseriousoffenses
Lessseriousoffenses
CriminalHistoryScore
Lesshistory
Morehistory
Prison
Non-Prison
Source:ArkansasSentencingCommissionData,2014
SentencingKey:• ADC=Prison• CCC=Community
Correc6onsCenter• AS=Alterna6ve
Sanc6ons(proba6on,SIS,fines,communityservice)
ADC
ADC,CCC,orAS
CCCorAS
AS
SentencingOp6ons:
0 1 2 3 4 5+
10 360 384 432 528 660 780
9 240 312 396 480 600 720
8 120 168 264 360 432 600
7 42 54 84 120 160 300
6 24 42 66 108 156 240
5 36 54 72 120 180
4 18 30 54 72 96
3 18 30 42 60
2 18 24 42
1 9 24 30
Sentencinggridprescribesasinglelengthforprisontermsinsteadofarangelikeotherstategrids
CouncilofStateGovernmentsJus6ceCenter 22
OffenseSeriousness
Moreseriousoffenses
Lessseriousoffenses
CriminalHistoryScore
Lesshistory
Morehistory
Sentencinggridstypicallyofferasentencelengthrangethat
reflectsmi6ga6ngoraggrava6ngcircumstancesin
individualcases.
Source:ArkansasSentencingCommission
Alsonoteworthyisthefactthatthesentencingstandardsdonotspeaktolengthof
proba6onforthe“non-prison”cells.
Sentencinggridislessprescrip6veaboutthetypeofsentence
CouncilofStateGovernmentsJus6ceCenter 23
0 1 2 3 4 5+
10
9
8
7
6
5
4
3
2
1
OffenseSeriousness
Moreseriousoffenses
Lessseriousoffenses
CriminalHistoryScore
Lesshistory
Morehistory
Mostotherstategridsaremoreprescrip6veaboutthetypeofsentenceimposed.
State Total#ofCells
#Cellsw/“All
Op+ons”
%ofAllCells
AR 60 24 40%
KS 126 10 8%
NC 60 17 28%
Source:ArkansasSentencingCommission;KansasSentencingCommission;andNorthCarolinaSentencingandPolicyAdvisoryCommission
CouncilofStateGovernmentsJus6ceCenter 24
AnalysisofSentencingPrac6ces
q 78percentofprisonsentences(and87percentofproba6onsentences)areforproperty,drug,orotheroffenses
q Morethantwo-thirdsoffelonysentencesinvolveindividualswithlimitedcriminalhistory(scoreof0or1)
q Moresentencesgotoprisonfrom“non-prison”area(atacostof$7.2million)thanfrom“prison-only”areaofsentencingstandardsgrid
Arkansas’ssentencingstandardsgridappliestoabout78percentoffelonycases
CouncilofStateGovernmentsJus6ceCenter 25
Standardsdonotapplyto:
– Proba6onrevoca6ons– Jurysentences– Capitalmurder
4,132
14,760
0
4,000
8,000
12,000
16,000
20,000
2014
NotApplicable Applicable
FelonySentencesReportedtoASC,2014
78%ofallcases
TotalSentences:18,892
Source:ArkansasSentencingCommissionData,2014
Prisonandproba6onaremostfrequentsentencesimposed,andbotharedrivenbydrugandpropertyoffenses
CouncilofStateGovernmentsJus6ceCenter 26
5,496
682
7,319
1,263
0
2,000
4,000
6,000
8,000
10,000
12,000
14,000
16,000
2014
Source:ArkansasSentencingCommissionData,2014
TotalSentences:14,760
FelonySentencesbyDisposi6onType,2014
Proba6on
Prison
UnderlyingMostSeriousOffenseType
Person Sex Property Drug Other
87%Drug/Property/Other
78%Drug/Property/Other
(37.2%ofallsentences)
(49.5%ofallsentences)
SIS/Other
CCC
Otherconsistsofoffensessuchaspossessionoffirearmbycertainpersons,failuretoappear(FTAonafelony),furnishingprohibitedar6cles,fleeing,andnon-support.
Morethantwo-thirdsofthosesentencedhadlimitedcriminalhistory(scoreof0or1)
FelonySentencesbyCriminalHistoryScore,2014
50%
21%14%
8% 4% 4%0%
20%
40%
60%
80%
100%
0 1 2 3 4 5+
Source:ArkansasSentencingCommissionData,2014CouncilofStateGovernmentsJus6ceCenter 27
q Shareofsentenceswithcriminalhistoryscoreof0or1was71%in2014.
Moresentencesgotoprisonfrom“non-prison”gridcellsthanfrom“prison-only”gridcells
CouncilofStateGovernmentsJus6ceCenter 28
0 1 2 3 4 5+
10
9
8
7
6
5
4
3
2
1
OffenseSeriousness
Moreseriousoffenses
Lessseriousoffenses
CriminalHistoryScore
Lesshistory
Morehistory
Source:ArkansasSentencingCommissionData,2014
1,036Sentences
7,363Sentences
6,358Sentences
7%ofallgridcases
Ø 892senttoprison(86%)
43%ofallgridcases
Ø 3,589senttoprison(56%)
50%ofallgridcases
Ø 1,015senttoprison(14%)
2014FelonySentences
Useofprisonforthoseintheleastseriousareaofgridiscos6ngArkansasmorethan$7millionannually
CouncilofStateGovernmentsJus6ceCenter 29
1,015
47.25months
7.9months
659
$7.2Million
SentencestoPrisonforthoseinNon-PrisonAreaofGrid
#sentencedin2014
Averagesentencelengthimposed
Prisonbedimpact
AnnualcostofincarceraGon(basedon$30/daycontractrateinsteadofcurrentADCoperaGonalcost/dayofalmost$63/day)
EsGmatedlengthofstayinprison(basedonassumpGonofearningmaximumgoodGmecredits)
Almosttwo-thirdsofgridcasesfallinareaofgridwiththeleastguidance
CouncilofStateGovernmentsJus6ceCenter 30
0 1 2 3 4 5+
10 23 7 7 1 3 1
9 60 18 16 6 0 4
8 180 67 65 29 10 28
7 360 150 118 60 42 19
6 1,100 540 406 247 106 118
5 602 349 230 129 57 58
4 1,107 390 263 139 64 51
3 3,221 1,198 827 445 196 196
2 720 299 197 106 47 55
1 16 2 1 0 1 0
OffenseSeriousness
Moreseriousoffenses
Lessseriousoffenses
CriminalHistoryScore
Lesshistory
Morehistory
Totals
42
104
379
749
2,517
1,425
2,014
6,083
1,424
20
64%ofcasesin2014
2014FelonySentences
Source:ArkansasSentencingCommissionData,2014
Ques6onsfortaskforce
CouncilofStateGovernmentsJus6ceCenter 31
v Thesentencingstandardsintendedtoreserveprisonspaceforthemostseriousoffensesandoffenders.Inpolicy,thegriddoeslessthanotherstatestoguidethetypeofsentenceused.Inprac6ce,prisonisusedoxenforlessseriousoffensesoroffenders.
o Shouldprisonsentencesbemorefocusedonviolentoffensesandpeoplewithmorecriminalhistory?
o Shouldsentencingstandardsspeaktolengthofsupervisionandrevoca6onforthoseinnon-prisonareaofgrid?
Ques6onsfortaskforce
CouncilofStateGovernmentsJus6ceCenter 32
v Over1,000sentencesin“non-prison”gridcellsendedupbeingsenttoprison.Why?
v Thestandardsdonotguidethetypeofsentenceusedin40%ofgridcells(accoun6ngfor43%ofgridsentences).Proba6onandprisonsentencesareusedinroughlyequalmeasure.
o Whatdetermineswhetherproba6on,prison,orCCCisusedandisappropriate?
o Shouldthetaskforcetrytoexaminetherearrestratesforsimilaroffendersreceivingdifferentsentences?
Movingforward
CouncilofStateGovernmentsJus6ceCenter 33
Ø Analysisofprison,proba+on,andparoledata– Impactofsupervisionfailuresonprisonpressures
– Abilityofsupervisionsystemtomaximizepublicsafetyoutcomesthroughpoliciesandprac6cesthateffec6velypromoterecidivismreduc6on
Ø Analysisoflocaljailpressures– Howdoesjailbacklogimpactabilitytoeffec6velysanc6on
supervisionviolatorsinaswixandsuremanner
Proposedproject6meline
34
TaskForceMee6ng1
DataAnalysis
TaskForceMee6ng3
TaskForceMee6ng2
TaskForceMee6ng6
PolicymakerandStakeholderEngagement
Ini6alAnalysis
ImpactAnalysis
DetailedDataAnalysis
StakeholderEngagementandPolicymakerBriefings PolicyOp6onDevelopment
CouncilofStateGovernmentsJus6ceCenter
TaskForceMee6ng5
Nov Dec Jan Feb Mar Apr May Jun Jul Aug Sep Oct
TaskForceMee6ng4
CouncilofStateGovernmentsJus6ceCenter 35
ThankYouBenShelor,[email protected]
ThismaterialwaspreparedfortheStateofArkansas.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
