Precedents for S.2123, The Sentencing Reform and

Corrections Act

A Report by the Center for Prison Reform

March2016

TheCenterforPrisonReform401NinthStreet,NW,#640Washington,DC20004(202)430-5545office(202)888-0196fax

EdwinaRogersChiefExecutiveOfficeredwina@centerforprisonreform.org(202)674-7800cell

AbipartisanSenategroupannouncestheSentencingReformandCorrectionsAct,October2015

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Contents Overview.......................................................................................................................................................................3

UnintendedConsequencesofMandatoryMinimumSentences...........................................................5

ReducedMandatorySentences...........................................................................................................................8

EnhancedJudgeDiscretiononMandatorySentences ........................................................................... 12

RiskAssessmentPrograms ............................................................................................................................... 14

EnhancedRehabilitationPrograms............................................................................................................... 17

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Overview InOctober2015,theU.S.SenateJudiciaryCommitteeapproved,byabipartisanvoteof15to5,BillS.2123,TheSentencingReformandCorrectionsAct.Confidenceishighthatthebillwillbeeffectivebecauseitsmajorprovisionshavebeenshowntoworkatthestatelevel.TheseprecedentcriminaljusticereformsprovethatS.2123will:

• Reduceprisoncosts,• Increasepublicsafety,• Reducerecidivism,makingproductivecitizensofex-offenders,• Giveex-offendersabetterchanceatredemption,and• Moresuccessfullyaddressillegaldrugusageasforemostahealthproblem.

Whatfollowsisastudyofcriminaljusticereforms,focusedonconservativeUSstates,whichhavesimilaritytoonethebill’sfourmajorprovisions:

1. ReducesMandatorySentences:S.2123reducesenhancedpenaltiesandeliminatesthethree-strikemandatorylifeprovisionfordrugoffenders,butretainsenhancedpenaltiesforseriousviolentandfelonyoffenders.

2. EnhancesJudgeDiscretion:Foradefendantlackingseriousviolentanddrugfelonyoffenses,itgivesacourta“safetyvalve”tosentencebelowmandatoryminimumsbasedonhisorhercriminalhistoryanddangerofrecidivism.

3. RequiresRiskAssessmentPrograms:ThebillrequirestheDepartmentofJusticetoconductriskassessmentstoclassifyallfederalinmatesandtousetheresultstoassigninmatestoappropriaterecidivismreductionprograms,includingworkandeducationprograms,drugrehabilitation,jobtraining,andfaith-basedprograms.

4. EnhancesRehabilitationPrograms:Eligibleprisonerswhosuccessfullycompleterehabilitationprogramscanearnearlyreleaseandmayspendthefinalportion(upto25percent)oftheirremainingsentenceinhomeconfinementorahalfwayhouse.

CriminaljusticereformhasbeenevenmorepopularinconservativeUSstatesthaninliberalandmoderateones1:

1SentencingandCorrectionsReformsinJusticeReinvestmentStates,PewCenter,June2015.

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WenowtakethemajorsectionsofS.2123andshowwhichprovisionshavebeenpreviouslyimplementedbystates.

CriminaljusticereformsinconservativeUSstatesinclude:

WenowtakethemajorsectionsofS.2123andshowwhichprovisionshavebeenpreviouslyimplementedbyconservativestates.

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Unintended Consequences of Mandatory Minimum Sentences Minimumsentencinglawssetalowerlimittothepenaltiesthatcourtsgiveforspecificcrimes.Guidingcourtroomstowardsconsistentsentencingisagoodgoal,buttheideahasgonetoofarbecausedistrictattorneysgainfavorwiththeircommunitiesbybeingtoughoncrime.

Thiscreatesunintendedconsequences:

• Protectingacommunitybylockingupitscriminalsmustbebalancedagainstasystemthatshouldbettercorrectandreintegrateoffendersintothecommunity.Reformationshouldbethegoalofcriminalpenalties.

• Longersentencesfornonviolentcrimesneedlesslydestroyfamiliesandminoritycommunities,withpropagationaffectsaschildrengrowupwithoutfathersandminoritiesarefurtherstereotypedbycriminalmisdeedstheywanttoputinthepastbutcan’t.AgreaterpercentageofAmericanblackmenareimprisonedthaninSouthAfricaattheheightofApartheid2.

• LawsthatrequiremandatoryminimumsentencescreateaSoviet-stylebureaucracywherepoweristakenawayfromjudgestomakesmartdecisionsonacase-by-casebasis.Theytransfersentencingauthorityfromtrialjudgestofederalprosecutors,whomayeffectivelyassignpunishmentsthroughcreativechargesthattriggerminimums,a“cliffeffect”thatgivessimilarcrimesverydifferentsentences3.

• Mandatoryminimumsentencesaretheleastcost-effectivewaytoreducedrugcrime,comparedtoconventionalpoliceenforcementortreatmentcenters4.

• Everynewpolitician,wishingtoprovehisorhervalue,wantstocontributetosentencinglaws,leadingtoaratchetingupeffectastheygettougherandtougher,toabsurdlevels.

• Therearediminishingreturnstothevalueofsentencingacriminaltojailforlongertimes,forjustice,forcorrection,andforrehabilitation.Astudyfoundthata10%

2MajorProgressforFixingCruelDrugWarPrisonSentences,Alternet,January20143MandatoryMinimumSentencingProvisionsUnderFederalLaw,CATOInstitute,May20104AreMandatoryMinimumDrugSentencesCost-Effective?RandCorporation,1997

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increaseinincarcerationonlyresultedinreducedrecidivismratesof0.1%to4%5.Anotherstudyshowedthatreducingsentencesdidnotleadtomorecrime6.

• Thelongjailtimesthatresultasaconsequenceofminimumsentencingcancreatesuchapowerfulthreatthatprosecutorscanusethemtobadgeraccuseddefendantsintoacceptingpleabargains.

• Theypunishlow-leveloffendersasmuchorevenmorethanthoseatthetopofthedrugtrade7.

Asaresult,somenewsworthycasesofinjusticehaveembarrassedUSstatesandthefederalgovernment,drawingattentiontolessnotablebutsimilarlyunfairsentencingthatisubiquitousacrossAmerica.

Morethanhalfofthe219,000federalprisonersareservingtimefordrugoffenses8.Someformerfederaljudgesregrettheirrulings.In2002,amaninUtahgot55yearsinfederalprisonforthreemarijuanasales9,whichthejudgeopenlyregrets.U.S.DistrictJudgeJohnGleeson,whocametoearlysuccessasaprosecutor,says“Mandatoryminimums,tosomedegree,sometimesentirely,takejudgingoutofthemix.That'sabadthingforoursystem.”

AwomaninIowawhowassimplythegirlfriendofagun-owningdrugdealerwassentencedto15yearsinfederalprison,3yearslongerthantheboyfriendgot10,11.

ApregnantwomaninAlabamawithnopriorconvictionswassenttoprisonfor30yearsin1990fordealingdrugsforamonthasthehelpertoherboyfriend12.

AcollegestudentinAlabamawassentencedtolifeinprisonforbeingpresentatadrugtransaction13.

Clearlyjudgesneedtobegivenmorediscretioninhowsentencesaregiven.Studieshaveshownthatmandatorypenaltieshaveeithernodeterrenttocrimeorshort-termeffectsonly14,anddonothingtoreducedrugdealingactivity15.Mandatoryminimumsworsendisparitiesbetweenwhiteandminorityoffenderpunishments,comparedtowhenjudges

5MandatoryMinimumSentences:HandcuffingthePrisonerortheJudge?AmericanJudgesAssociationAnnualEducationalConference,October20146FewerPrisoners,LessCrime:ATaleofThreeStates,TheSentencingProject,July2014.7MandatorySentencingWasOnceAmerica'sLaw-And-OrderPanacea.Here'sWhyIt'sNotWorking,FamiliesAgainstMandatoryMinimums

8MajorProgressforFixingCruelDrugWarPrisonSentences,Alternet,January20149FormerFederalJudgeRegrets55-YearMarijuanaSentence,ABCNewsNightline,February201510MandyMartinson,FamiliesAgainstMandatoryMinimums(FAMM)11Widower'sLament:ChangeSentencingLaws,TheDesMoinesRegister,May201512TheLong,SlowPushtoPrisonSentencingReform,MSNBC,April201413ClarenceAaron,FamiliesAgainstMandatoryMinimums14TheConsequencesofMandatoryMinimumPrisonTerms:ASummaryofRecentFindings,FederalJudicialCenter,FederalJudicialCenter,1994.

15PopulationGrowthinU.S.Prisons,1980-1996,AlfredBlumstein&AllenJ.Beck,Crime&Just.17,57(1999),

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havediscretion16.AreportbyaUSSentencingcommissionin1991indicatedthatalldefenselawyers,andnearlyhalfofprosecutorshadobjectionstomandatoryminimums17.

ThisbegantobealleviatedaftertheSupremeCourt’s2005decisioninBookerv.UnitedStates,whichpermittedfederaljudgesthefreedomtosetsentencesregardlessofmandatoryminimums18.Presently25%percentofoffendersreceivingsentencesbelowtheminimum,butwithminoritiesreceivingmuchhighersentences19.FamiliesAgainstMandatoryMinimumshascompiledacompletelistofallfederalmandatoryminimumsentencinglaws20.

AccordingtotheCongressionalResearchService,mandatoryminimumshavesignificantlycontributedtoovercrowdingandracialdisparitiesintheBureauofPrisons(BOP),whichoperatesat36%overcapacity21.Morethanhalfoffederalprisonersareservingtimeforadruglawviolation22.

Thenin2014theSenateJudiciaryCommitteepassedtheSmarterSentencingAct,whichwasintroducedtoCongressinFebruary201523.Thenewlawwouldgivefederaljudgesmorediscretioninignoringmandatoryminimumsfornon-violentdrugoffenders24.ThisisneededbecauseofcurrentlawssuchastheArmedCareerCriminalAct(ACCA,18U.S.C.§924(e)),whichassignsa15-yearmandatoryminimumsentenceforgunownerwiththreepriorconvictionsfordrugtraffickingorviolentfelonies,eveniftheseconvictionsareveryold,nonviolent,minor,resultedfromadrugaddiction,orresultedinnoprisontime25.

16RacialDisparitiesundertheFederalSentencingGuidelines:TheRoleofJudicialDiscretionandMandatoryMinimums,NorthwesternUniversity,2012

17DrugLawsandSnitching:APrimer,Frontline.18JudgesUse'Booker'RulingforSentencingFlexibility,NationalPublicRadio,May200519MandatoryMinimumPenalties:ConclusionsandRecommendations,201120FederalMandatoryMinimums,FamiliesAgainstMandatoryMinimums,August201321TheFederalPrisonPopulationBuildup:Overview,PolicyChanges,Issues,andOptions,CongressionalResearchService,2014

22MajorProgressforFixingCruelDrugWarPrisonSentences,Alternet,January201423U.S.HouseandSenateReintroducean*EvenSmarter*SmarterSentencingAct,FamiliesAgainstMandatoryMinimums,February2015.

24Lee,DurbinIntroduceSmarterSentencingActof2015,PressRelease25GunMandatoryMinimumSentences,FamiliesAgainstMandatoryMinimums

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Reduced Mandatory Sentences In2010,morethan25%of73,239federalconvictionsrequiredamandatoryminimumsentence26.Mandatoryminimumsentencingdistortsthelegalsystembecauseprosecutorsuseunrealisticallylongsentencestopressuredrugcriminalstopleadguilty27.

Prisonalsomakesoffenderslessabletopaydebt,creatinga“revolvingdoor”ofrepeatedjailtime.Theaverageincarceratedparentwithachildsupportcaseisbehind$10,000onpaymentsandleavesprisonbehindby$20,00028.

Recently,thetrendofgreaterpunishmentshasgoneintoreverse,with67%ofAmericanssayingthattreatment,notprosecution,shouldbehowtheUnitedStateshandlesillegaldrugusers,accordingtoaPewStudy29.TheSupremeCourtruledthatmandatorydeathpenaltiesareunconstitutionalbecausetheyfailtotakeintoaccountthecharacterofthedefendantandhisorherrecord30.

Afterdecadesoftoughsentencinglawsinthe“WaronDrugs”,in2013AttorneyGeneralEricHolderannouncedthatthefederalgovernmentwouldnolongerrequiremandatoryminimumsinallcases,andwouldreleasesomenonviolentelderlyprisoners31,32.

Stateshavegoneevenfurther.Between2009and2013,40statestooksomeactiontoeasetheirdruglaws33.Asaresult31stateshaveseenprisonratesdeclinefrom447to413per100,000people34.

AlabamaIn2006,theAlabamaSentencingCommissioncalledforreformonmandatoryminimums35.Alabama’snewsentencingguidelinesfornon-violentoffendersrelaxconsecutivesentencing36appliedunderthehabitualoffenderact37.

AlabamaS67(2015)lowerspenaltiesforsomedrugoffenses.

26CruelandUnusual:U.S.SentencingPracticesinaGlobalContext,UniversityofSanFranciscoSchoolofLaw,May201227TheOutOfControlWarOnDrugs:HowSentencingRulesForceDefendantsToPleadGuilty,Forbes,December201328ChildSupportProfile:MassachusettsIncarceratedandParoledParents,CenterforPolicyResearch,May200229FedsMayBeRethinkingtheDrugWar,ButStatesHaveBeenLeadingtheWay,PewCenter,April201430CruelandUnusual:U.S.SentencingPracticesinaGlobalContext,UniversityofSanFranciscoSchoolofLaw,May201231HolderAnnouncesFederalDrug-SentencingChangesAlreadyinManyStates,ThePewCharitableTrusts,August201332AttorneyGeneralEricHolderDeliversRemarksattheAnnualMeetingoftheAmericanBarAssociation'sHouseofDelegates,TheUnitedStatesDepartmentofJustice,August2013

33TrendsinSentencingandCorrections:StateLegislation,NationalConferenceofStateLegislatures,August2013.34FedsMayBeRethinkingtheDrugWar,ButStatesHaveBeenLeadingtheWay,PewCenter,April201435AddressingtheCrisis:ChartingtheCourseforReform,AlabamaSentencingCommission36NewSentencingGuidelinestoImpactNon-violentOffenders,DothanEagle,September201337AlabamaCode-Section13A-5-9:HABITUALFELONYOFFENDERS-ADDITIONALPENALTIES

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ArkansasIn2011,ArkansasSB750reducedmandatoryminimumpenaltiesfordrugpossessionanddrugdistribution38,39.

GeorgiaGeorgia’s2012prisonreformlaw,HB1176,reducedthemandatorysentenceforpossessionofverysmallamountsofdrugs40.

IndianaIndianaHB1892(2001)eliminatedmandatoryminimumsforcertainnonviolentdrugoffenses,gavejudgesdiscretiontosentenceoffenderstohomedetentionorworkrelease,andmadesomeoffenderseligibleforearlyrelease41.

IndianaSB358(2001)exempteddrugoffenderswithnoothertypesofconvictionsfromthe“threestrikes”law,aslongastheydonothavemorethanonetraffickingconviction.

IndianaHB1006(2013)reducedthesizeoftheschoolzonefordrugoffensesthattriggermandatoryminimums42,43andgenerallyloweredpenaltiesforsmalleramountsofdrugs.

IowaIn2014,theIowaSupremeCourtstruckdownjuvenilemandatorysentencinglawsasunconstitutional44.Thoseservingmandatorysentenceshadhigherrecidivismratesthanoffenderswhowerewaived,accordingtoanIowastudy45.

Kentucky

Kentucky’s2011law,HB463,reducedtheschoolzonesthattriggermandatorydrugsentences46.

KansasKansasisoneofonlythreestates(alongwithAlaskaandNewMexico)thatalwaysincludethechanceforparolenomatteracrime'sseverity47.

38ArkansasSentencingCommission39SentencingStandardsGrid-OffenseSeriousnessRankingsandRelatedMaterial,ArkansasSentencingCommission,December2011

40GovernortoSignSweepingJusticeReformBill,AJC.com,May201241StateoftheStates:DrugPolicyReforms1996-2002,DrugPolicyAlliance,September2003.42GovernortoSignSweepingJusticeReformBill,AJC.com,May201243HB1006-AmendstheCriminalCode-KeyVote,VoteSmart.44IowaSupremeCourtStrikesDownMandatoryMinimumSentencesforChildren,EqualJusticeInitiative,August201445FinalReport:OutcomesofMandatoryMinimumSentencesforDrugTraffickers,IowaDepartmentofHumanRightsandDivisionofCriminalandJuvenileJusticePlanning,October2011

46ibid47Isn'tOneLifeSentenceEnough?Slate,August2005.

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LouisianaIn2001,LouisianaSB239/Act403(2001)reducedorremovedmandatoryminimumsentencesforsomenonviolentdrugoffenses,includingremovingtherequirementofalifesentenceforsellingheroin,evenasafirst-timeoffense.Itloweredmandatorysentencesforrepeatoffendersandeliminatedapplicationofthethreestrikeslawstoallfelonies.

LouisianaHB191(2010)disallowedjuveniledrughistoriestoenhancesentencesforanadultfelonyconviction.

In2012,LouisianaHB1068allowedprosecutorstowaivemandatoryminimumprisontermsfornon-violent,non-sexoffenses48,49.

LouisianaH149(2015)reducessentencesforsomedrugoffenses.

MississippiMississippiSB5exemptednon-violentdrugoffenders(exceptsales)andothernon-violentoffendersfromthestate’srequirementthatinmatesserveatleast85percentoftheirimposedprisonsentence.

MissouriMissouriSB628(2012)reducedthequantityofdrugsthattriggeramandatoryminimumsentence50.

MontanaMontanaHB174eliminatedmandatoryminimumsforfirst-timeoffendersconvictedofdrugpossession,andMontanaHB191eliminatesprovisionsprovidingformandatoryrevocationofdriver’slicensesforpeopleunder21whobuy,possess,orusealegalorillegalintoxicatingsubstance.

NorthCarolina

NorthCarolinaH368(2014)reducedfromaclass1misdemeanortoaclass3misdemeanorthepenaltyforpossessionofmarijuanadrugparaphernalia.

NorthDakotaNorthDakotaHB1364(2001)repealedmandatoryminimumsforfirst-timedrugoffenders51,andNorthDakotaS2029(2015)removestherequirementofaminimum18-monthprobationsentenceforfirsttimedrugoffenders.

48LouisianaLegislatureTakesStepsTowardReducingIncarcerationforNonviolentCrimes,TheTimes-Picayune,June2012

49PlaybookforChange?StatesReconsiderMandatorySentences,VeraInstituteofJustice,April201450RecentState-LevelReformstoMandatoryMinimumLaws,FamiliesAgainstMandatoryMinimums,June2013

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NorthDakotaH1394(2015)removedtheenhancedpenaltyforpossessionofmarijuanaonschoolpropertyiftheoffenseinvolveslessthanoneounce.

NorthDakotaH1367(2015)capedtosupervisedprobationaninitialsentenceatfiveyearsandtotalprobationat10yearsforafelonycommittedwhilearmed,andclarifiedthatfelonyandmisdemeanorprobationsentencescannotexceedthemaximumlengthofimprisonmentauthorizedbylaw.

OklahomaOklahoma’sJusticeSafetyValveActin2015allowedjudgestoignoremandatoryminimumsentencingthatwouldpostaninjusticetothedefendant52.

SouthCarolinaS1154,a2010SouthCarolinalawremoveda10-yearmandatoryminimumsentenceforschoolzoneviolationsindrugoffenses,restoredthepossibilityofprobationfordrugpossessionconvictions,andeliminatedmandatoryminimumsentencesforfirstconvictionsofsimpledrugpossession53,54.Subsequently,thestate’sviolentcrimeratefrom2009to2011droppedfrom68to60per10,000residents55.

SouthDakotaSouthDakotaS70(2013)decreasedpenaltiesfordrugoffenses.

UtahUtahH348(2015)reducedpenaltiesfordrugpossessionandsomeotherdrugoffensesandcreatedgraduatedpenaltiesforsubsequentconvictions.

WyomingWyomingS38(2015)expandedeligibilityfordeferredprosecutionforfirsttimedrugoffenderstoincludeoffensesrelatedtouseorbeingundertheinfluenceofacontrolledsubstance.

51PlaybookforChange?StatesReconsiderMandatorySentences,VeraInstituteofJustice,April201452OklahomaGovernorSignsBilltoGiveJudgesMoreDiscretioninSentencing,TheOklahoman,May2015.53WhatFloridaCan(AndShould!)LearnFromSouthCarolina,FamiliesAgainstMandatoryMinimums,March201554PlaybookforChange?StatesReconsiderMandatorySentences,VeraInstituteofJustice,April201455CriminalJusticeLawReforminSouthCarolina:FrontEndReforms,SubstantialSavings,ACLU.

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Enhanced Judge Discretion on Mandatory Sentences Georgia

In2013,GeorgialawHB349gavejudgestheleewaytoreducesentencesforsomedrugoffenses,butthereasonsforthedeparturemustbestated.Judgesmayalsowaiveamandatoryminimumwhentheprosecutoranddefendanthaveagreedonareducedsentence56,57.

Idaho

IdahoS1151(2013)permitsacourttoreduceafelonyconvictiontoamisdemeanoruponcompletionofprobationundersomecircumstances.

IndianaIndianaHB1892(2001)allowedjudgestosentencetodrugtreatmentinsteadofprisonthosewhoselldrugssolelytosupporttheirhabit.

Iowa

IowaSF543(2001)givesjudgesdiscretionwhensentencing“ClassD”felonyoffenderstoadeterminatesentenceandIowaH2450(2014)increasesfundingfordrugcourts.

KansasKansasH2154(2015)allowsacourttousemilitaryinjuriesasabasistodepartfromsentencingguidelines.

Kentucky

KentuckyH265(2012)saysthatmorethan$6.8millionweresavedfrompreviousstatereformstodrugsentencing.

LouisianaLouisianaHB1068(2012)whichlaterbecameAct160,allowsjudgestowaivemandatoryminimumswithprosecutorialapprovalandadefendantguiltyplea58.Inthiscaseajudgemayreduceasentences,lowerthefine,oreffectivelyreduceasentencebyincludingitin

56HB349SignedintoLawin2013,BlackLawOffices,May201357PlaybookforChange?StatesReconsiderMandatorySentences,VeraInstituteofJustice,April201458LouisianaLegislatureTakesStepsTowardReducingIncarcerationforNonviolentCrimes,June2012.

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parole,probation,orasentencesuspension.Violentandsex-relatedoffendersareineligible.

LouisianaHB442(2013)addsa“safetyvalve”sothatacourtmayordereligibledefendantstoparticipateinasubstanceabuseprobationprograminsteadofincarceration,iftheoffenderisnotdeemedathreattosociety.

MississippiMississippiH585(2014)permitsthecourttodeviatefromaminimumsentenceforcertaindrugoffenses.

Montana

MontanaH33(2015)expandsmentalhealthcrisisinterventionandjaildiversionservices,andrevisestherequirementsoftheseprograms.

NorthCarolinaNorthCarolinaH641(2013)givesthecourtdiscretiononwhetherornottoorderaconditionaldischargeforafirstconvictionofcertaindrugoffenses.

NorthDakotaNorthDakotaH1030(2015)authorizesacourttodepartfrommandatoryminimumsentencesfordrugcrimesfordefendantsnotathreattothecommunitywhowereunarmed.

NorthDakotaS2029(2015)givesajudgediscretiontosetthesentencelengthforfirst-timedrugoffenders.

OklahomaOklahomaH1518(2015)authorizescourtstodepartfrommandatoryminimumsentencesforanonviolenceoffensewherethedefendantposesnodangertothepublic.Drugtraffickingandfirearmsoffensesareexcluded.

TexasTexasHB1610(2007)allowsjudgestoreduceafelonytoaClassAmisdemeanor,orplaceadefendantintocommunitysupervisiontoensurethattheoffenderreceivestreatment.59

59Highlightsofthe80thTexasLegislature,SenateResearchCenter,September2007.

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Risk Assessment Programs Transitionaljobprogramsthatbeginjustafterprisonreleasehavebeenfoundtoreducerecidivismandincreaseearningsforseveralyears.60Statescanalsolimitdisqualificationsforlicensedemploymentandoffertaxincentivestoemployerswhohirefelons.61

TheRiskResponsivityNeedModelhasbeenshowntoreducerecidivismby16%:

• The“riskprinciple”intervenesinawayrelatingtotheoffender’sriskforre-offense.• The“needprinciple”targetstheoffender’scriminogenicneedssuchasantisocial

attitudesorsubstanceabuse.• The“responsivityprinciple”usescognitivebehavioraltherapyandsociallearningto

redirecttheoffender’sabilitiesandmotivation

AlabamaAlabama11(2015)formedthe“CriminalJusticeOversightandImplementationCouncil”,whichisrequiredtodevelopevidence-basedpoliciesandanalyzedataforperformance-basedfunding.

AlabamaS67(2015)requiresthatpresentenceinvestigationreportsincluderiskandneedsassessmentresults.Supervisionandtreatmentofprobationersandparoleesmustincludeariskassessmentwithevidence-basedpracticesandresourcesfocusedonthehighestriskoffenders.Theparoleboardmuststudyandsetrisk-basedstandards.

Arkansas

ArkansasSB750(2011)requiresarisk-needsassessmentofallparoleapplicants,usingevidence-basedpracticesthattargetcriminalriskfactors.Itfundsevidence-basedprogramstocreatebestpractices,providesincentivesforsupervisorstoimplementriskreduction,andrequiresannualreports.

SupplementalfundswereaddedinArkansasHB1156andHB1011(2014)andS1042(2015)addedannualtrainingforparoleboardmembersindata-driven,riskassessmentdecision-making62.

GeorgiaGeorgiaH328(2015)increasesparoleeligibilityfordrugoffendersbasedonriskassessment.

60PaternalIncarcerationandSupportforChildreninFragileFamilies,Demography48(1),February2011.61PaternalIncarcerationandSupportforChildreninFragileFamilies,Demography48(1),February2011.62JusticeReinvestment–Arkansas,2015

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IdahoIdahoS1357(2014)requirespresentenceinvestigationreports,supervision,drugtreatment,andparoleboardstouseevidence-basedpracticesthattargetanoffender'scriminalriskandneedsfactors.

IdahoH648(2012)requirespre-sentencescreeningandassessmentofdefendantsconvictedofafelonytoidentifysubstanceabuseormentalhealthtreatmentneeds.

KansasKansasH2318(2012)specifiesthatoffenderswillbegivensupervisionandcourtservicessuchasdrugtreatmentbasedonresultofacriminalriskassessment.

KansasH2051(2015)makeseligibilityforcommunitycorrectionsprogramsbasedonriskassessments,andKansasH2448(2014)makesithardertorefuseearlyreleaseforlowriskoffenders.

Kentucky

KentuckyHB46363(2011)andKentuckyH54(2012)requireconsiderationofariskandneedsassessmentforsupervisionandtreatmentprograms.

LouisianaLouisianaHB239(2001)createdtheLouisianaRiskReviewPaneltoreviewrecordsofinmatesconvictedofnonviolentoffensesinordertomakerecommendationstotheparoleandpardonboards.

LouisianaHB543(2012)allowsnonviolent,low-riskoffenderssentencedtolifewithoutparoletobecomeeligibleforparoleifmeetingcertainriskassessmentcriteria64.

LouisianaS94(2013)requiresriskandneedsassessmentforarraignment,sentencing,andtodetermineeligibilityforspecialtycourts.

LouisianaH196(2014)allowsworkreleasebasedonariskassessment,andLouisianaS252(2014)givesariskandneedsassessmenttooltobeusedwhendeterminingsentences,withLouisianaS398(2014)thesamebutrelatingtodrugcourts,andLouisianaH670(2014)thesamebutrelatingtoparole.

Mississippi

MississippiH585(2014)requiresriskandneedsassessmentsforparole,supervision,offenderservices,drugcourtoperation,andtrainingofcommunitycorrectionsemployees.63KentuckyLegislatureHB463,2011.64ParoleReforminLouisiana–HouseBill543isNowLaw,ParoleNow,June2012.

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NebraskaNebraskaL598(2015),withfundsappropriatedinNebraskaLA598(2015)requiresthecorrectionsdirectoradoptrules,consistentwithprofessionalstandards,andprovidestafftrainingoninmateriskassessmentandmanagement.Italsorequiresadoptionofevidence-basedcriteriatoidentifyinmatesnearingreleasewhoshouldbeevaluatedformentalillness.

NebraskaL605(2015),withfundsappropriateinNebraskaLA605(2015)requirescommunitysupervisionandtreatmentbeevidence-based,withresourcesfocusedonmoderate-andhigh-riskoffenders.

OklahomaOklahomaHB3052(2012)establishesanewstate-fundedgrantprogramtoimplementdata-drivenstrategiestoreduceviolentcrimeandapresentenceriskandneedsscreeningprocesstohelpguidesentencingdecisionsrelatedtotreatmentandsupervision.

OklahomaH1109(2013)allowsadefendanttosubmittoarisk,mentalhealthandsubstanceabuseassessmentafteraninitialappearance,ratherthanpriortosentencing.

OklahomaS1720(2014)requiresprobationsupervisorstoconductsubstanceabuseandcriminalriskandneedsassessmentsindevelopingatreatmentplan.

OklahomaH1518(2015)makessentenceslowerthanthemandatoryminimumpossiblebasedonariskassessment.

SouthDakotaSouthDakotaS70(2013)requiresriskandneedsassessmentforparole,supervisionandinterventionpriorities,withevidence-basedtrainingforparoleboardmembers,magistrates,judgesandprobationandparoleofficers.

TennesseeTennesseeH1374(2015)requiresdrugforinmatesbasedonariskassessment.

TexasTexasS213(2013)requiresthecorrectionsdepartmenttoadoptastandardizedriskandneedsassessmentinstrument.

UtahUtahH348(2015)requiresriskandneedsassessmentresultsbeincludedinpresentenceinvestigationreports,plansforoffendersinprisonoroncommunitysupervision,andintreatmentpriorities,includingacceptanceintodrugcourt.

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Enhanced Rehabilitation Programs Alternativestoprisontimeincludedrugcourts,mentalhealthcourts,probation,communitycorrections,halfwayhouses,electronichomemonitoring,communityservices,andmore,whichstrengthenfamiliesbyenablingoffenderstobepresentforemotionalsupport,childcare,andtoearnforchildsupport65.

AlabamaAlabamaS63(2012)addsjobtrainingprogramstoprisons.

AlabamaS108(2014)authorizesexpungementofafelonyrecordforsuccessfulcompletionofadrugcourtprogram,mentalhealthcourtprogram,diversionprogram,veteran'scourt,oranycourt-approveddeferredprosecutionprogramafteroneyearfromsuccessfulcompletion.

AlabamaS67(2015)addsbehavioralandsubstanceabusetreatmentasauthorizedconditionsofprobationandparolesupervision.Italsocreatesapilotprogramforsmallbusinessdevelopmentbyex-offenders.

Alaska

AlaskaS64(2014)promotestransitionalre-entryprograms,includingcasemanagement,soberliving,substanceabuseandmentalhealthtreatment,andrequiringemployment,educationalprogramming,vocationaltrainingorcommunityvolunteerwork.

Arkansas

ArkansasSB750(2011)allowsoffenderstoearnearlyreleaseandallowsnonviolentparoleestocompletesentencesearly,forcomplyingwithcertainconditions.

ArkansashasWorkCourt,aworkprogramthatisofferedinlieuofaconvictionfornonviolentfirsttimeoffenderstosaveapotentiallydevastatingmarkontheirrecord.Theypayrestitutionduringthisprogram,learnjobskillsandreceivea"readytowork"certificateuponcompletion66.

ArkansasS200(2015)allowsinmatestobereleasedupto18monthsearlyintoacommunitycorrectionsdepartmentforareentryprogramofatleast6months67.

65AlternativestoIncarcerationinaNutshell,FamiliesAgainstMandatoryMinimums,August2013.66WorkCourt,TraceyRisley,Deputy,ArkansasCourtServices67StateSentencingandCorrectionsLegislation,NationalConferenceofStateLegislatures,November2015.

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GeorgiaGeorgiaS365(2014)requirestheboardofcorrectionstodevelopandimplementprogramstoassistoffenderswithreentry,andauthorizestheprogramstoprovideeducation,vocationaltraining,socialandbehavioralprograms,substanceabusecounseling,mentoring,financialplanning,physicalandmentalhealthprograms,andhousingandfederalassistance.

Indiana

IndianaS171(2014)permitsthecommissionerofthedepartmentofcorrectiontoawardadditionalfinancialaidtocountieswithanapprovedcommunitysupervisioncollaborationplan,andIndianaS235(2014)andIndianaH1268aimtoreducerecidivismbyprovidingmentalhealthandforensictreatmentservices.

IndianaS173(2015)establishesavocationalprogramtotrainminimumsecurityinmatesinplumbing,airconditioning,truckdriving,andmore.

IndianaS461(2015)authorizesthehealthdepartmenttoenterintopartnershipstoencouragebestpracticesindrugtreatmentforinmates,andIndianaS464(2015)andIndianaH1304(2015)bothallowaddictioncounseling,inpatientdetoxification,casemanagement,dailylivingskills,andlongactingnon-addictivemedicationtoberequiredasconditionsofparole,probation,communitycorrections,pretrialdiversion,oraproblemsolvingcourt.

IndianaH1269(2015)requiresthecriminaljusticedepartmenttoassistaninmatestofindmentalhealthorsubstanceabusetreatmentuponreleasefromincarceration.

IowaIowaH2460(2014)requiresthatoffendersbegivenjobskilltrainingandIowaH2463doesthesameformentalhealthservices.

Kansas

KansasH2051(2015)increasestheearlyreleasecreditofupto90daysfordrugoffendersforprogramparticipation.

KentuckyKentuckyHB46368,passedin2011,requiresmandatoryreentrysupervisionandpostincarcerationsupervision.KentuckyH265(2012)createsnewsubstanceabusetreatmentprogramsandKentuckyS78(2013)clarifiesgoodtimecreditsgivenforeducationalanddrugtreatmentprogramcompletion.68KentuckyLegislatureHB463,1011

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LouisianaLouisianaH228(2012),LouisianaHB59(2013),LouisianaHB442(2013)allowoffenderstoearncredittowardsearlyreleasebyvoluntarilyparticipatinginarehabilitationprogramsincludingeducation,jobtraining,valuesandfaith-basedprograms,therapeuticprograms,anddrugtreatment.Eachprogramcompletedreducesasentenceby90daystoamaximumof360days.Violentandsexcrimeoffendersareineligible69,70.LouisianaS71(2013)evenallowstheoriginalchargestobedismisseduponprogramcompletioninsomecircumstances.LouisianaH994(2012)increases“goodtime”creditsthatcanbeearned.

LouisianaH442(2013)establishesasubstanceabuseprobationprogram,andLouisianaH274(2014)allowsparticipationinasubstanceabusetreatmentprogramtobeusedwhendecidingwhetheranoffendercantakepartinaworkreleaseprogram.LouisianaH781(2014)providesreentryprogramstooffendershousedinlocaljails.

LouisianaSCR138(2015)andLouisianaHR203(2015)requeststrategiestogiveincarceratedoffendersbettereducation,jobskills,training,andmentalhealthcare.

LouisianaH271(2015)allowsprobationforuptoeightyearsforoffendersparticipatingindrugdiversionorsobrietycourt,whichinvolverehabilitation,andLouisianaH381(2015)enhancesbehavioralhealthservices.

Louisiana

MissouriMissouriH1318(2012)establishesamentalhealthprogram,andMissouriH10(2013),MissouriH2010(2014),andMissouriH10(2015)appropriatefundstothementalhealthdepartmenttocontactwithaserviceproviderforanevidence-basedprogramdesignedtoreducerecidivismamongoffenderswithserioussubstanceabusedisordersreturningtothecommunityafterprison,includingmedication-assistedtreatment.MissouriH9(2013)doesthesamefortheDepartmentofCorrectionsforoffenderrehabilitativeservices.

MontanaMontanaH68(2013)establishedstatewidereentryprogramsforoffenderswithin12monthsofreleasefromprisonwhoareatahighriskofrecidivism.

MontanaH233(2013)allowscourtstostaytheimpositionofasentencewhilethedefendantgoesthroughasobrietyprogram.

69SmartonSentencing,SmartonCrime:AnArgumentforReformingLouisiana’sDeterminateSentencingLaws,ReasonFoundation,2013.

70LouisianaGov.BobbyJindalSignsLawtoShiftDrugOffendersfromJailtoRehab,TheTimes-Picayune,June2013.

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NebraskaNebraskaL504(2015)addsasubstanceabuseevaluationtopresentencereports,andNebraskaL598(2015)requiresmentallyilloffendersbetreatedwithacommunitystandardofmentalhealthcare.

NebraskaL483(2013)offersparenteducation,earlyliteracy,relationshipskillsdevelopmentandreentryplanningtooffenders.

NewHampshireNewHampshireH649(2014)createsearned-timecreditsforinmatesasone-timecreditforcompletionofeducational,vocationalmentalhealthorfamilyconnectionscenterprograms.Permitsinmatestobeawardedearned-timecredits,inadditiontoothercreditsauthorizedbylaw,andNewHampshireH1442(2014)createsmentalhealthcourts.

NorthCarolina

NorthCarolinaH97(2015)establishedmentalhealthbehaviortreatmentunitsateightclosecustodyprisons.

OklahomaOklahomaHB3052(2012)mandatessupervisionforalladultsreleasedfromprison71.

SouthCarolinaSouthCarolinaS426(2015)authorizeslocaldistrictattorneystoestablishpreand/orpost-adjudicatorymentalhealthcourtprograms.

TennesseeTennesseeH1374(2015)requiresopioidaddictiontreatment,includingnon-narcoticmedication-assistedtreatmentforinmates.

TexasTexasS200(2015)makescertaindrugoffenderseligibleforthefederalSupplementalNutritionAssistanceProgram.TexasS1070(2015)authorizesthecourttowaivearequirementthatprobationersconvictedofcertaindrugoffensescompletearehabilitativeeducationalprogramiftheoffenderhascompletededucationaltraininginacorrectionalresidentialfacility.

TexasH2649(2011)awardsearned-timecredittoinmatesinstatejailsbycompletingeducational,vocational,ortreatmentprograms72,andTexasH1546(2015)streamlinestheprocess.71Oklahoma,JusticeCenterofTheCouncilofStateGovernments.

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TexasS345(2013)requiresprisonstoencouragefaithbasedandvolunteerorganizationstoprovideprisonprograms.TexasS1173(2013)doesthesameforpost-releasecommunityprograms.

TexasH1908(2015)requiresthatoffenderswithseverementalillnessbeidentifiedandmadeeligibleforthecontinuityofcaresystem,andTexasH2189(2015)doesthesameforthedevelopmentallydisabled.

AspartoftheTexasFragileFamiliesinitiative,inmatesinjuveniledetentionwithchildrenreceiveeducationaboutparenting.

UtahUtahH348(2015)createscreditsforprobationersandparoleeswhocomplywithsupervisionrulesthatreducelengthofsupervisionby30dayspermonth.Itrequireslocaljailshousingstateinmatestomeetminimumstandardsfortreatmentprograms,andestablishesearnedtimeforcertaininmateswhocompleterecidivismreductionprogramsbyfourmonthspercompletion,whileauthorizingtheparoleboardtograntadditionalearnedtime.

72StateJailDiligentParticipationCredit,TexasDepartmentofCriminalJustice.