1 COLLATERAL CONSEQUENCES

Chris Uggen University of Minnesota

With Sarah Shannon and Suzy McElrath

2consequences of consequences

• social facts and social choices– numbers and pictures– justice and public safety– opportunity

• “America’s Criminal Class”– defined by punishment and relation between

individual and state, not offending– “ex-prison” v. “ex-felon” v. “low-level” distinction

• consequences have consequences– political and civic life– work and markets– personal and community health

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VISUALIZING PUNISHMENT (W/ SARAH SHANNON)

Part I

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1. PrisonersIncarceration in global perspective

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2. “felons”• current: 4.2 million

– current prison, parole, felony probation, convicted felony jail population

– 1.8% of adult voting age population– 5.0% of African American adults (decline)

• ex: 16.2 million– 6.9% of adults– 18.2% of African American adults

• total: 20.4 million in 2010– 8.7% of adult population– 23% of African American adults– 33%+ of African American adult males10/19/12 Uggen 5

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growth of felons and ex-felons, 1948-2010

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5,000,000

10,000,000

15,000,000

20,000,000

25,000,000

Ex-Felons Current Felons10/19/12 Uggen 6

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1980 ex-felons

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2010 ex-felons

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1980 African American ex-felons

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2010 African American ex-felons

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2010 African American “current” felons

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Part II

COLLATERAL SANCTIONS AS DIRTY BOMBS

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collateral consequences(Ewald & Uggen 2012)

• Socioeconomic– Occupational licensure (character+)– Public employment– Pell grants (drug) – Public assistance (drug)– Driver’s licenses (drug)

• Family– Public housing (drug; sex)– Parental rights– Divorce

• Civic– Voting – Juror– Military– Internet record– Deportation

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“dirty bomb” analogy• Weapons of mass disruption

– Conventional punishment, plus a small amount of radioactive material

– Induces fear and panic, contaminates broadly, and necessitates massive cleanup

• Pare back egregious (e.g., lifetime bans)– Like addressing radiation sickness, but not water

contamination or building safety– Padilla v. Kentucky (2010); integral, not “collateral”

• Utopian– impose at sentencing on individual, crime-specific basis– retain “checklist”

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how many are disenfranchised?

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who is disenfranchised?

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where are the disenfranchised?

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the picture in 1980

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2010 cartogram

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African American Disenfranchisement, 1980

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African American Disenfranchisement, 2010

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reforms 1997-2010

• 9 states repealed or scaled back lifetime bans

• 2 states (Connecticut and Rhode Island) extended voting rights to persons under probation or parole supervision

• 8 states eased restoration process after completion of sentence

----------------------------------------------• 800,000 citizens regained voting rights

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in Oregon, voting probationers and parolees have significantly lower recidivism rates

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COMMUNITYSPILLOVER

Part III

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effects on elections

• Potential impact of 5.85 million disenfranchised: – 7 U.S. Senate seats [VA, TX, KY, FL, GA,

KY, FL +/- WY]– 2 Presidential elections– Shifts debate on other issues

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public assistance bans (with Thompson and Western)

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deportation (with King and Massoglia)

0

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1908 1918 1928 1938 1948 1958 1968 1978 1988 1998

Year

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f Crim

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Number of criminal deportations Criminal as a percentage of all deportations10/19/12 Uggen 29

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criminal deportation & unemployment

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health effects

• Prison effects on community health depend on prison care– public health benefit where prisons are testing

and treating (TB, syphilis)– continuity of care after release

• Spillover effects on community– diminished access to care– less access to specialists– reduced physician trust– less satisfaction with care

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CLEAN UP LOW-LEVEL GARBAGE CASES

Part IV

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low-level arrestannual arrest v. imprisonment rate per

1000, Minnesota 2007

Asian White Indian/AlaskanAfrican American0

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100

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29 32

158

227

1 1 12 14

annual arrest rate per 1000 populationimprisonment rate per 1,000

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our moment• proliferation of low-level “records”

– big change in dissemination and use– at least half of employers routinely checking

• do employers really care about 3-year old disorderly conduct arrests?– Yes – run screaming from any negative signal– No – too commonplace and/or honesty effect

• should we “ban the box”?– threshold (arrest v. conviction)– severity (misdemeanor v. felony)– duration (7 years v. life)

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callbacks by race and record

38.8

27.5

34.7

23.5

05

1015202530354045

white black

callb

ack

%

no misdemeanor arrest misdemeanor arrest10/19/12 Uggen 36

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modest but measurable• low-level arrest w/o charge or conviction

– employers attend to the lowest-level records: 4% difference; not disqualifying

– personal contact swamps other predictors• expungement as partial relief

– burdensome and costly process• real utopia?

– introducing record at “finalist” stage (MN)– avoiding records in first place; new social

welfare and community service institutions

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arrest and feeling on time (MN 30-year-olds)

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Part V

“CONSEQUENCING”

SMARTER

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easier said than done• Focused and effective response to

crime1. Reserve prison beds for those who need to be

in prison, when they need to be in prison2. Reduce the scope and number of

unnecessary collateral sanctions3. Redirect low-level offenses away from

criminal justice system• Reintegration

– from prison, to community corrections, to taxpaying citizen in good standing

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199019911992199319941995199619971998199920002001200220032004200520062007200820092010

1,000

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property (left axis)

violent (right axis)

Crimes Known to the Police, US 1990-2010ra

te p

er 1

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199319941995199619971998199920002001200220032004200520062007200820092010

0

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property (left axis)

violent (right axis)

US Criminal Victimization, 1990-2010Pr

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supplemental

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pragmatic note

• JQ Wilson critique– When social scientists were asked for advice by

national policy-making bodies they could not respond with suggestions derived from and supported by their scholarly work.

• getting our hands dirty– need knowledge and sophistication about how the

criminal justice system actually works: health impact– capacity to imagine and enact alternatives

• identifying real models– Documentation is fine, but… we need clear-headed,

rigorous, viable answers

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growth of people “on paper”19

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Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)Probation (57%)

Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)

Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)Jail (11%)

Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)

Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)

Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)Prison (21%)

Parole (12%)Parole (12%)Parole (12%)Parole (12%)Parole (12%)

Parole (12%)Parole (12%)Parole (12%)Parole (12%)Parole (12%)

Parole (12%)Parole (12%)Parole (12%)Parole (12%)Parole (12%)Parole (12%)Parole (12%)Parole (12%)

Parole (12%)Parole (12%)Parole (12%)Parole (12%)Parole (12%)Parole (12%)Parole (12%)Parole (12%)Parole (12%)Parole (12%)Parole (12%)Parole (12%)Parole (12%)

Parole (12%) Prison (21%) Jail (11%) Probation (57%)

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