Precedents for S.2123, The
Sentencing Reform and
Corrections Act
AbipartisanSenategroupannouncestheSentencingReformandCorrectionsAct,October2015
A Report by the Center for Prison Reform
March2016
TheCenterforPrisonReform
401NinthStreet,NW,#640
Washington,DC20004
(202)430-5545office
(202)888-0196fax
EdwinaRogers
ChiefExecutiveOfficer
[email protected]
(202)674-7800cell
Contents
Overview.......................................................................................................................................................................3
UnintendedConsequencesofMandatoryMinimumSentences...........................................................5
ReducedMandatorySentences...........................................................................................................................8
EnhancedJudgeDiscretiononMandatorySentences ........................................................................... 12
RiskAssessmentPrograms ............................................................................................................................... 14
EnhancedRehabilitationPrograms............................................................................................................... 17
2
Overview
InOctober2015,theU.S.SenateJudiciaryCommitteeapproved,byabipartisanvoteof15
to5,BillS.2123,TheSentencingReformandCorrectionsAct.Confidenceishighthatthe
billwillbeeffectivebecauseitsmajorprovisionshavebeenshowntoworkatthestate
level.TheseprecedentcriminaljusticereformsprovethatS.2123will:
• Reduceprisoncosts,
• Increasepublicsafety,
• Reducerecidivism,makingproductivecitizensofex-offenders,
• Giveex-offendersabetterchanceatredemption,and
• Moresuccessfullyaddressillegaldrugusageasforemostahealthproblem.
Whatfollowsisastudyofcriminaljusticereforms,focusedonconservativeUSstates,
whichhavesimilaritytoonethebill’sfourmajorprovisions:
1. ReducesMandatorySentences:S.2123reducesenhancedpenaltiesandeliminates
thethree-strikemandatorylifeprovisionfordrugoffenders,butretainsenhanced
penaltiesforseriousviolentandfelonyoffenders.
2. EnhancesJudgeDiscretion:Foradefendantlackingseriousviolentanddrugfelony
offenses,itgivesacourta“safetyvalve”tosentencebelowmandatoryminimumsbased
onhisorhercriminalhistoryanddangerofrecidivism.
3. RequiresRiskAssessmentPrograms:ThebillrequirestheDepartmentofJusticeto
conductriskassessmentstoclassifyallfederalinmatesandtousetheresultstoassign
inmatestoappropriaterecidivismreductionprograms,includingworkandeducation
programs,drugrehabilitation,jobtraining,andfaith-basedprograms.
4. EnhancesRehabilitationPrograms:Eligibleprisonerswhosuccessfullycomplete
rehabilitationprogramscanearnearlyreleaseandmayspendthefinalportion(upto
25percent)oftheirremainingsentenceinhomeconfinementorahalfwayhouse.
CriminaljusticereformhasbeenevenmorepopularinconservativeUSstatesthanin
liberalandmoderateones1:
1SentencingandCorrectionsReformsinJusticeReinvestmentStates,PewCenter,June2015.
3
WenowtakethemajorsectionsofS.2123andshowwhichprovisionshavebeen
previouslyimplementedbystates.
CriminaljusticereformsinconservativeUSstatesinclude:
WenowtakethemajorsectionsofS.2123andshowwhichprovisionshavebeen
previouslyimplementedbyconservativestates.
4
Unintended Consequences of Mandatory
Minimum Sentences
Minimumsentencinglawssetalowerlimittothepenaltiesthatcourtsgiveforspecific
crimes.Guidingcourtroomstowardsconsistentsentencingisagoodgoal,buttheideahas
gonetoofarbecausedistrictattorneysgainfavorwiththeircommunitiesbybeingtoughon
crime.
Thiscreatesunintendedconsequences:
Protectingacommunitybylockingupitscriminalsmustbebalancedagainstasystem
thatshouldbettercorrectandreintegrateoffendersintothecommunity.Reformation
shouldbethegoalofcriminalpenalties.
• Longersentencesfornonviolentcrimesneedlesslydestroyfamiliesandminority
communities,withpropagationaffectsaschildrengrowupwithoutfathersand
minoritiesarefurtherstereotypedbycriminalmisdeedstheywanttoputinthepast
butcan’t.AgreaterpercentageofAmericanblackmenareimprisonedthaninSouth
AfricaattheheightofApartheid2.
• LawsthatrequiremandatoryminimumsentencescreateaSoviet-stylebureaucracy
wherepoweristakenawayfromjudgestomakesmartdecisionsonacase-by-case
basis.Theytransfersentencingauthority
fromtrialjudgestofederalprosecutors,
whomayeffectivelyassignpunishments
throughcreativechargesthattrigger
minimums,a“cliffeffect”thatgives
similarcrimesverydifferentsentences3.
• Mandatoryminimumsentencesarethe
leastcost-effectivewaytoreducedrug
crime,comparedtoconventionalpolice
enforcementortreatmentcenters4.
• Everynewpolitician,wishingtoprovehisorhervalue,wantstocontributeto
sentencinglaws,leadingtoaratchetingupeffectastheygettougherandtougher,to
absurdlevels.
• Therearediminishingreturnstothevalueofsentencingacriminaltojailforlonger
times,forjustice,forcorrection,andforrehabilitation.Astudyfoundthata10%
•
2MajorProgressforFixingCruelDrugWarPrisonSentences,Alternet,January2014
3MandatoryMinimumSentencingProvisionsUnderFederalLaw,CATOInstitute,May2010
4AreMandatoryMinimumDrugSentencesCost-Effective?RandCorporation,1997
5
•
•
increaseinincarcerationonlyresultedinreducedrecidivismratesof0.1%to4%5.
Anotherstudyshowedthatreducingsentencesdidnotleadtomorecrime6.
Thelongjailtimesthatresultasaconsequenceofminimumsentencingcancreatesuch
apowerfulthreatthatprosecutorscanusethemtobadgeraccuseddefendantsinto
acceptingpleabargains.
Theypunishlow-leveloffendersasmuchorevenmorethanthoseatthetopofthedrug
trade7.
Asaresult,somenewsworthycasesofinjusticehaveembarrassedUSstatesandthefederal
government,drawingattentiontolessnotablebutsimilarlyunfairsentencingthatis
ubiquitousacrossAmerica.
Morethanhalfofthe219,000federalprisonersareservingtimefordrugoffenses8.Some
formerfederaljudgesregrettheirrulings.In2002,amaninUtahgot55yearsinfederal
prisonforthreemarijuanasales9,whichthejudgeopenlyregrets.U.S.DistrictJudgeJohn
Gleeson,whocametoearlysuccessasaprosecutor,says“Mandatoryminimums,tosome
degree,sometimesentirely,takejudgingoutofthemix.That'sabadthingforoursystem.”
AwomaninIowawhowassimplythegirlfriendofagun-owningdrugdealerwas
sentencedto15yearsinfederalprison,3yearslongerthantheboyfriendgot10,11.
ApregnantwomaninAlabamawithnopriorconvictionswassenttoprisonfor30yearsin
1990fordealingdrugsforamonthasthehelpertoherboyfriend12.
AcollegestudentinAlabamawassentencedtolifeinprisonforbeingpresentatadrug
transaction13.
Clearlyjudgesneedtobegivenmorediscretioninhowsentencesaregiven.Studieshave
shownthatmandatorypenaltieshaveeithernodeterrenttocrimeorshort-termeffects
only14,anddonothingtoreducedrugdealingactivity15.Mandatoryminimumsworsen
disparitiesbetweenwhiteandminorityoffenderpunishments,comparedtowhenjudges
5MandatoryMinimumSentences:HandcuffingthePrisonerortheJudge?AmericanJudgesAssociation
AnnualEducationalConference,October2014
6FewerPrisoners,LessCrime:ATaleofThreeStates,TheSentencingProject,July2014.
7MandatorySentencingWasOnceAmerica'sLaw-And-OrderPanacea.Here'sWhyIt'sNotWorking,FamiliesAgainst
MandatoryMinimums
8MajorProgressforFixingCruelDrugWarPrisonSentences,Alternet,January2014
9FormerFederalJudgeRegrets55-YearMarijuanaSentence,ABCNewsNightline,February2015
10MandyMartinson,FamiliesAgainstMandatoryMinimums(FAMM)
11Widower'sLament:ChangeSentencingLaws,TheDesMoinesRegister,May2015
12TheLong,SlowPushtoPrisonSentencingReform,MSNBC,April2014
13ClarenceAaron,FamiliesAgainstMandatoryMinimums
14TheConsequencesofMandatoryMinimumPrisonTerms:ASummaryofRecentFindings,FederalJudicialCenter,
FederalJudicialCenter,1994.
15PopulationGrowthinU.S.Prisons,1980-1996,AlfredBlumstein&AllenJ.Beck,Crime&Just.17,57(1999),
6
havediscretion16.AreportbyaUSSentencingcommissionin1991indicatedthatall
defenselawyers,andnearlyhalfofprosecutorshadobjectionstomandatoryminimums17.
ThisbegantobealleviatedaftertheSupremeCourt’s2005decisioninBookerv.United
States,whichpermittedfederaljudgesthefreedomtosetsentencesregardlessof
mandatoryminimums18.Presently25%percentofoffendersreceivingsentencesbelowthe
minimum,butwithminoritiesreceivingmuchhighersentences19.FamiliesAgainst
MandatoryMinimumshascompiledacompletelistofallfederalmandatoryminimum
sentencinglaws20.
AccordingtotheCongressionalResearchService,mandatoryminimumshavesignificantly
contributedtoovercrowdingandracialdisparitiesintheBureauofPrisons(BOP),which
operatesat36%overcapacity21.Morethanhalfoffederalprisonersareservingtimefora
druglawviolation22.
Thenin2014theSenateJudiciaryCommitteepassedtheSmarterSentencingAct,which
wasintroducedtoCongressinFebruary201523.Thenewlawwouldgivefederaljudges
morediscretioninignoringmandatoryminimumsfornon-violentdrugoffenders24.Thisis
neededbecauseofcurrentlawssuchastheArmedCareerCriminalAct(ACCA,18U.S.C.§
924(e)),whichassignsa15-yearmandatoryminimumsentenceforgunownerwiththree
priorconvictionsfordrugtraffickingorviolentfelonies,eveniftheseconvictionsarevery
old,nonviolent,minor,resultedfromadrugaddiction,orresultedinnoprisontime25.
16RacialDisparitiesundertheFederalSentencingGuidelines:TheRoleofJudicialDiscretionandMandatoryMinimums,
NorthwesternUniversity,2012
17DrugLawsandSnitching:APrimer,Frontline.
18JudgesUse'Booker'RulingforSentencingFlexibility,NationalPublicRadio,May2005
19MandatoryMinimumPenalties:ConclusionsandRecommendations,2011
20FederalMandatoryMinimums,FamiliesAgainstMandatoryMinimums,August2013
21TheFederalPrisonPopulationBuildup:Overview,PolicyChanges,Issues,andOptions,CongressionalResearchService,
2014
22MajorProgressforFixingCruelDrugWarPrisonSentences,Alternet,January2014
23U.S.HouseandSenateReintroducean*EvenSmarter*SmarterSentencingAct,FamiliesAgainstMandatoryMinimums,
February2015.
24Lee,DurbinIntroduceSmarterSentencingActof2015,PressRelease
25GunMandatoryMinimumSentences,FamiliesAgainstMandatoryMinimums
7
Reduced Mandatory Sentences
In2010,morethan25%of73,239federalconvictionsrequiredamandatoryminimum
sentence26.Mandatoryminimumsentencingdistortsthelegalsystembecauseprosecutors
useunrealisticallylongsentencestopressuredrugcriminalstopleadguilty27.
Prisonalsomakesoffenderslessabletopaydebt,creatinga“revolvingdoor”ofrepeated
jailtime.Theaverageincarceratedparentwithachildsupportcaseisbehind$10,000on
paymentsandleavesprisonbehindby$20,00028.
Recently,thetrendofgreaterpunishmentshasgoneintoreverse,with67%ofAmericans
sayingthattreatment,notprosecution,shouldbehowtheUnitedStateshandlesillegal
drugusers,accordingtoaPewStudy29.TheSupremeCourtruledthatmandatorydeath
penaltiesareunconstitutionalbecausetheyfailtotakeintoaccountthecharacterofthe
defendantandhisorherrecord30.
Afterdecadesoftoughsentencinglawsinthe“WaronDrugs”,in2013AttorneyGeneral
EricHolderannouncedthatthefederalgovernmentwouldnolongerrequiremandatory
minimumsinallcases,andwouldreleasesomenonviolentelderlyprisoners31,32.
Stateshavegoneevenfurther.Between2009and2013,40statestooksomeactiontoease
theirdruglaws33.Asaresult31stateshaveseenprisonratesdeclinefrom447to413per
100,000people34.
Alabama
In2006,theAlabamaSentencingCommissioncalledforreformonmandatoryminimums35.
Alabama’snewsentencingguidelinesfornon-violentoffendersrelaxconsecutive
sentencing36appliedunderthehabitualoffenderact37.
AlabamaS67(2015)lowerspenaltiesforsomedrugoffenses.
26CruelandUnusual:U.S.SentencingPracticesinaGlobalContext,UniversityofSanFranciscoSchoolofLaw,May2012
27TheOutOfControlWarOnDrugs:HowSentencingRulesForceDefendantsToPleadGuilty,Forbes,December2013
28ChildSupportProfile:MassachusettsIncarceratedandParoledParents,CenterforPolicyResearch,May2002
29FedsMayBeRethinkingtheDrugWar,ButStatesHaveBeenLeadingtheWay,PewCenter,April2014
30CruelandUnusual:U.S.SentencingPracticesinaGlobalContext,UniversityofSanFranciscoSchoolofLaw,May2012
31HolderAnnouncesFederalDrug-SentencingChangesAlreadyinManyStates,ThePewCharitableTrusts,August2013
32AttorneyGeneralEricHolderDeliversRemarksattheAnnualMeetingoftheAmericanBarAssociation'sHouseof
Delegates,TheUnitedStatesDepartmentofJustice,August2013
33TrendsinSentencingandCorrections:StateLegislation,NationalConferenceofStateLegislatures,August2013.
34FedsMayBeRethinkingtheDrugWar,ButStatesHaveBeenLeadingtheWay,PewCenter,April2014
35AddressingtheCrisis:ChartingtheCourseforReform,AlabamaSentencingCommission
36NewSentencingGuidelinestoImpactNon-violentOffenders,DothanEagle,September2013
37AlabamaCode-Section13A-5-9:HABITUALFELONYOFFENDERS-ADDITIONALPENALTIES
8
Arkansas
In2011,ArkansasSB750reducedmandatoryminimumpenaltiesfordrugpossessionand
drugdistribution38,39.
Georgia
Georgia’s2012prisonreformlaw,HB1176,reducedthemandatorysentencefor
possessionofverysmallamountsofdrugs40.
Indiana
IndianaHB1892(2001)eliminatedmandatoryminimumsforcertainnonviolentdrug
offenses,gavejudgesdiscretiontosentenceoffenderstohomedetentionorworkrelease,
andmadesomeoffenderseligibleforearlyrelease41.
IndianaSB358(2001)exempteddrugoffenderswithnoothertypesofconvictionsfrom
the“threestrikes”law,aslongastheydonothavemorethanonetraffickingconviction.
IndianaHB1006(2013)reducedthesizeoftheschoolzonefordrugoffensesthattrigger
mandatoryminimums42,43andgenerallyloweredpenaltiesforsmalleramountsofdrugs.
Iowa
In2014,theIowaSupremeCourtstruckdownjuvenilemandatorysentencinglawsas
unconstitutional44.Thoseservingmandatorysentenceshadhigherrecidivismratesthan
offenderswhowerewaived,accordingtoanIowastudy45.
Kentucky
Kentucky’s2011law,HB463,reducedtheschoolzonesthattriggermandatorydrug
sentences46.
Kansas
Kansasisoneofonlythreestates(alongwithAlaskaandNewMexico)thatalwaysinclude
thechanceforparolenomatteracrime'sseverity47.
38ArkansasSentencingCommission
39SentencingStandardsGrid-OffenseSeriousnessRankingsandRelatedMaterial,ArkansasSentencingCommission,
December2011
40GovernortoSignSweepingJusticeReformBill,AJC.com,May2012
41StateoftheStates:DrugPolicyReforms1996-2002,DrugPolicyAlliance,September2003.
42GovernortoSignSweepingJusticeReformBill,AJC.com,May2012
43HB1006-AmendstheCriminalCode-KeyVote,VoteSmart.
44IowaSupremeCourtStrikesDownMandatoryMinimumSentencesforChildren,EqualJusticeInitiative,August2014
45FinalReport:OutcomesofMandatoryMinimumSentencesforDrugTraffickers,IowaDepartmentofHumanRightsand
DivisionofCriminalandJuvenileJusticePlanning,October2011
46ibid
47Isn'tOneLifeSentenceEnough?Slate,August2005.
9
Louisiana
In2001,LouisianaSB239/Act403(2001)reducedorremovedmandatoryminimum
sentencesforsomenonviolentdrugoffenses,includingremovingtherequirementofalife
sentenceforsellingheroin,evenasafirst-timeoffense.Itloweredmandatorysentencesfor
repeatoffendersandeliminatedapplicationofthethreestrikeslawstoallfelonies.
LouisianaHB191(2010)disallowedjuveniledrughistoriestoenhancesentencesforan
adultfelonyconviction.
In2012,LouisianaHB1068allowedprosecutorstowaivemandatoryminimumprison
termsfornon-violent,non-sexoffenses48,49.
LouisianaH149(2015)reducessentencesforsomedrugoffenses.
Mississippi
MississippiSB5exemptednon-violentdrugoffenders(exceptsales)andothernon-violent
offendersfromthestate’srequirementthatinmatesserveatleast85percentoftheir
imposedprisonsentence.
Missouri
MissouriSB628(2012)reducedthequantityofdrugsthattriggeramandatoryminimum
sentence50.
Montana
MontanaHB174eliminatedmandatoryminimumsforfirst-timeoffendersconvictedof
drugpossession,andMontanaHB191eliminatesprovisionsprovidingformandatory
revocationofdriver’slicensesforpeopleunder21whobuy,possess,orusealegalor
illegalintoxicatingsubstance.
NorthCarolina
NorthCarolinaH368(2014)reducedfromaclass1misdemeanortoaclass3
misdemeanorthepenaltyforpossessionofmarijuanadrugparaphernalia.
NorthDakota
NorthDakotaHB1364(2001)repealedmandatoryminimumsforfirst-timedrug
offenders51,andNorthDakotaS2029(2015)removestherequirementofaminimum18monthprobationsentenceforfirsttimedrugoffenders.
48LouisianaLegislatureTakesStepsTowardReducingIncarcerationforNonviolentCrimes,TheTimes-Picayune,June
2012
49PlaybookforChange?StatesReconsiderMandatorySentences,VeraInstituteofJustice,April2014
50RecentState-LevelReformstoMandatoryMinimumLaws,FamiliesAgainstMandatoryMinimums,June2013
10
NorthDakotaH1394(2015)removedtheenhancedpenaltyforpossessionofmarijuana
onschoolpropertyiftheoffenseinvolveslessthanoneounce.
NorthDakotaH1367(2015)capedtosupervisedprobationaninitialsentenceatfiveyears
andtotalprobationat10yearsforafelonycommittedwhilearmed,andclarifiedthat
felonyandmisdemeanorprobationsentencescannotexceedthemaximumlengthof
imprisonmentauthorizedbylaw.
Oklahoma
Oklahoma’sJusticeSafetyValveActin2015allowedjudgestoignoremandatoryminimum
sentencingthatwouldpostaninjusticetothedefendant52.
SouthCarolina
S1154,a2010SouthCarolinalawremoveda10-yearmandatoryminimumsentencefor
schoolzoneviolationsindrugoffenses,restoredthepossibilityofprobationfordrug
possessionconvictions,andeliminatedmandatoryminimumsentencesforfirstconvictions
ofsimpledrugpossession53,54.Subsequently,thestate’sviolentcrimeratefrom2009to
2011droppedfrom68to60per10,000residents55.
SouthDakota
SouthDakotaS70(2013)decreasedpenaltiesfordrugoffenses.
Utah
UtahH348(2015)reducedpenaltiesfordrugpossessionandsomeotherdrugoffenses
andcreatedgraduatedpenaltiesforsubsequentconvictions.
Wyoming
WyomingS38(2015)expandedeligibilityfordeferredprosecutionforfirsttimedrug
offenderstoincludeoffensesrelatedtouseorbeingundertheinfluenceofacontrolled
substance.
51PlaybookforChange?StatesReconsiderMandatorySentences,VeraInstituteofJustice,April2014
52OklahomaGovernorSignsBilltoGiveJudgesMoreDiscretioninSentencing,TheOklahoman,May2015.
53WhatFloridaCan(AndShould!)LearnFromSouthCarolina,FamiliesAgainstMandatoryMinimums,March2015
54PlaybookforChange?StatesReconsiderMandatorySentences,VeraInstituteofJustice,April2014
55CriminalJusticeLawReforminSouthCarolina:FrontEndReforms,SubstantialSavings,ACLU.
11
Enhanced Judge Discretion on Mandatory
Sentences
Georgia
In2013,GeorgialawHB349gavejudgestheleewaytoreducesentencesforsomedrug
offenses,butthereasonsforthedeparturemustbestated.Judgesmayalsowaivea
mandatoryminimumwhentheprosecutoranddefendanthaveagreedonareduced
sentence56,57.
Idaho
IdahoS1151(2013)permitsacourttoreduceafelonyconvictiontoamisdemeanorupon
completionofprobationundersomecircumstances.
Indiana
IndianaHB1892(2001)allowedjudgestosentencetodrugtreatmentinsteadofprison
thosewhoselldrugssolelytosupporttheirhabit.
Iowa
IowaSF543(2001)givesjudgesdiscretionwhensentencing“ClassD”felonyoffenderstoa
determinatesentenceandIowaH2450(2014)increasesfundingfordrugcourts.
Kansas
KansasH2154(2015)allowsacourttousemilitaryinjuriesasabasistodepartfrom
sentencingguidelines.
Kentucky
KentuckyH265(2012)saysthatmorethan$6.8millionweresavedfrompreviousstate
reformstodrugsentencing.
Louisiana
LouisianaHB1068(2012)whichlaterbecameAct160,allowsjudgestowaivemandatory
minimumswithprosecutorialapprovalandadefendantguiltyplea58.Inthiscaseajudge
mayreduceasentences,lowerthefine,oreffectivelyreduceasentencebyincludingitin
56HB349SignedintoLawin2013,BlackLawOffices,May2013
57PlaybookforChange?StatesReconsiderMandatorySentences,VeraInstituteofJustice,April2014
58LouisianaLegislatureTakesStepsTowardReducingIncarcerationforNonviolentCrimes,June2012.
12
parole,probation,orasentencesuspension.Violentandsex-relatedoffendersare
ineligible.
LouisianaHB442(2013)addsa“safetyvalve”sothatacourtmayordereligibledefendants
toparticipateinasubstanceabuseprobationprograminsteadofincarceration,ifthe
offenderisnotdeemedathreattosociety.
Mississippi
MississippiH585(2014)permitsthecourttodeviatefromaminimumsentenceforcertain
drugoffenses.
Montana
MontanaH33(2015)expandsmentalhealthcrisisinterventionandjaildiversionservices,
andrevisestherequirementsoftheseprograms.
NorthCarolina
NorthCarolinaH641(2013)givesthecourtdiscretiononwhetherornottoordera
conditionaldischargeforafirstconvictionofcertaindrugoffenses.
NorthDakota
NorthDakotaH1030(2015)authorizesacourttodepartfrommandatoryminimum
sentencesfordrugcrimesfordefendantsnotathreattothecommunitywhowere
unarmed.
NorthDakotaS2029(2015)givesajudgediscretiontosetthesentencelengthforfirsttimedrugoffenders.
Oklahoma
OklahomaH1518(2015)authorizescourtstodepartfrommandatoryminimumsentences
foranonviolenceoffensewherethedefendantposesnodangertothepublic.Drug
traffickingandfirearmsoffensesareexcluded.
Texas
TexasHB1610(2007)allowsjudgestoreduceafelonytoaClassAmisdemeanor,orplace
adefendantintocommunitysupervisiontoensurethattheoffenderreceivestreatment.59
59Highlightsofthe80thTexasLegislature,SenateResearchCenter,September2007.
13
Risk Assessment Programs
Transitionaljobprogramsthatbeginjustafterprisonreleasehavebeenfoundtoreduce
recidivismandincreaseearningsforseveralyears.60Statescanalsolimitdisqualifications
forlicensedemploymentandoffertaxincentivestoemployerswhohirefelons.61
TheRiskResponsivityNeedModelhasbeenshowntoreducerecidivismby16%:
•
•
•
The“riskprinciple”intervenesinawayrelatingtotheoffender’sriskforre-offense.
The“needprinciple”targetstheoffender’scriminogenicneedssuchasantisocial
attitudesorsubstanceabuse.
The“responsivityprinciple”usescognitivebehavioraltherapyandsociallearningto
redirecttheoffender’sabilitiesandmotivation
Alabama
Alabama11(2015)formedthe“CriminalJusticeOversightandImplementationCouncil”,
whichisrequiredtodevelopevidence-basedpoliciesandanalyzedataforperformancebasedfunding.
AlabamaS67(2015)requiresthatpresentenceinvestigationreportsincluderiskand
needsassessmentresults.Supervisionandtreatmentofprobationersandparoleesmust
includeariskassessmentwithevidence-basedpracticesandresourcesfocusedonthe
highestriskoffenders.Theparoleboardmuststudyandsetrisk-basedstandards.
Arkansas
ArkansasSB750(2011)requiresarisk-needsassessmentofallparoleapplicants,using
evidence-basedpracticesthattargetcriminalriskfactors.Itfundsevidence-based
programstocreatebestpractices,providesincentivesforsupervisorstoimplementrisk
reduction,andrequiresannualreports.
SupplementalfundswereaddedinArkansasHB1156andHB1011(2014)andS1042
(2015)addedannualtrainingforparoleboardmembersindata-driven,riskassessment
decision-making62.
Georgia
GeorgiaH328(2015)increasesparoleeligibilityfordrugoffendersbasedonrisk
assessment.
60PaternalIncarcerationandSupportforChildreninFragileFamilies,Demography48(1),February2011.
61PaternalIncarcerationandSupportforChildreninFragileFamilies,Demography48(1),February2011.
62JusticeReinvestment–Arkansas,2015
14
Idaho
IdahoS1357(2014)requirespresentenceinvestigationreports,supervision,drug
treatment,andparoleboardstouseevidence-basedpracticesthattargetanoffender's
criminalriskandneedsfactors.
IdahoH648(2012)requirespre-sentencescreeningandassessmentofdefendants
convictedofafelonytoidentifysubstanceabuseormentalhealthtreatmentneeds.
Kansas
KansasH2318(2012)specifiesthatoffenderswillbegivensupervisionandcourtservices
suchasdrugtreatmentbasedonresultofacriminalriskassessment.
KansasH2051(2015)makeseligibilityforcommunitycorrectionsprogramsbasedonrisk
assessments,andKansasH2448(2014)makesithardertorefuseearlyreleaseforlowrisk
offenders.
Kentucky
KentuckyHB46363(2011)andKentuckyH54(2012)requireconsiderationofariskand
needsassessmentforsupervisionandtreatmentprograms.
Louisiana
LouisianaHB239(2001)createdtheLouisianaRiskReviewPaneltoreviewrecordsof
inmatesconvictedofnonviolentoffensesinordertomakerecommendationstotheparole
andpardonboards.
LouisianaHB543(2012)allowsnonviolent,low-riskoffenderssentencedtolifewithout
paroletobecomeeligibleforparoleifmeetingcertainriskassessmentcriteria64.
LouisianaS94(2013)requiresriskandneedsassessmentforarraignment,sentencing,and
todetermineeligibilityforspecialtycourts.
LouisianaH196(2014)allowsworkreleasebasedonariskassessment,andLouisianaS
252(2014)givesariskandneedsassessmenttooltobeusedwhendeterminingsentences,
withLouisianaS398(2014)thesamebutrelatingtodrugcourts,andLouisianaH670
(2014)thesamebutrelatingtoparole.
Mississippi
MississippiH585(2014)requiresriskandneedsassessmentsforparole,supervision,
offenderservices,drugcourtoperation,andtrainingofcommunitycorrectionsemployees.
63KentuckyLegislatureHB463,2011.
64ParoleReforminLouisiana–HouseBill543isNowLaw,ParoleNow,June2012.
15
Nebraska
NebraskaL598(2015),withfundsappropriatedinNebraskaLA598(2015)requiresthe
correctionsdirectoradoptrules,consistentwithprofessionalstandards,andprovidestaff
trainingoninmateriskassessmentandmanagement.Italsorequiresadoptionofevidencebasedcriteriatoidentifyinmatesnearingreleasewhoshouldbeevaluatedformental
illness.
NebraskaL605(2015),withfundsappropriateinNebraskaLA605(2015)requires
communitysupervisionandtreatmentbeevidence-based,withresourcesfocusedon
moderate-andhigh-riskoffenders.
Oklahoma
OklahomaHB3052(2012)establishesanewstate-fundedgrantprogramtoimplement
data-drivenstrategiestoreduceviolentcrimeandapresentenceriskandneedsscreening
processtohelpguidesentencingdecisionsrelatedtotreatmentandsupervision.
OklahomaH1109(2013)allowsadefendanttosubmittoarisk,mentalhealthand
substanceabuseassessmentafteraninitialappearance,ratherthanpriortosentencing.
OklahomaS1720(2014)requiresprobationsupervisorstoconductsubstanceabuseand
criminalriskandneedsassessmentsindevelopingatreatmentplan.
OklahomaH1518(2015)makessentenceslowerthanthemandatoryminimumpossible
basedonariskassessment.
SouthDakota
SouthDakotaS70(2013)requiresriskandneedsassessmentforparole,supervisionand
interventionpriorities,withevidence-basedtrainingforparoleboardmembers,
magistrates,judgesandprobationandparoleofficers.
Tennessee
TennesseeH1374(2015)requiresdrugforinmatesbasedonariskassessment.
Texas
TexasS213(2013)requiresthecorrectionsdepartmenttoadoptastandardizedriskand
needsassessmentinstrument.
Utah
UtahH348(2015)requiresriskandneedsassessmentresultsbeincludedinpresentence
investigationreports,plansforoffendersinprisonoroncommunitysupervision,andin
treatmentpriorities,includingacceptanceintodrugcourt.
16
Enhanced Rehabilitation Programs
Alternativestoprisontimeincludedrugcourts,mentalhealthcourts,probation,
communitycorrections,halfwayhouses,electronichomemonitoring,communityservices,
andmore,whichstrengthenfamiliesbyenablingoffenderstobepresentforemotional
support,childcare,andtoearnforchildsupport65.
Alabama
AlabamaS63(2012)addsjobtrainingprogramstoprisons.
AlabamaS108(2014)authorizesexpungementofafelonyrecordforsuccessful
completionofadrugcourtprogram,mentalhealthcourtprogram,diversionprogram,
veteran'scourt,oranycourt-approveddeferredprosecutionprogramafteroneyearfrom
successfulcompletion.
AlabamaS67(2015)addsbehavioralandsubstanceabusetreatmentasauthorized
conditionsofprobationandparolesupervision.Italsocreatesapilotprogramforsmall
businessdevelopmentbyex-offenders.
Alaska
AlaskaS64(2014)promotestransitionalre-entryprograms,includingcasemanagement,
soberliving,substanceabuseandmentalhealthtreatment,andrequiringemployment,
educationalprogramming,vocationaltrainingorcommunityvolunteerwork.
Arkansas
ArkansasSB750(2011)allowsoffenderstoearnearlyreleaseandallowsnonviolent
paroleestocompletesentencesearly,forcomplyingwithcertainconditions.
ArkansashasWorkCourt,aworkprogramthatisofferedinlieuofaconvictionfor
nonviolentfirsttimeoffenderstosaveapotentiallydevastatingmarkontheirrecord.They
payrestitutionduringthisprogram,learnjobskillsandreceivea"readytowork"
certificateuponcompletion66.
ArkansasS200(2015)allowsinmatestobereleasedupto18monthsearlyintoa
communitycorrectionsdepartmentforareentryprogramofatleast6months67.
65AlternativestoIncarcerationinaNutshell,FamiliesAgainstMandatoryMinimums,August2013.
66WorkCourt,TraceyRisley,Deputy,ArkansasCourtServices
67StateSentencingandCorrectionsLegislation,NationalConferenceofStateLegislatures,November2015.
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Georgia
GeorgiaS365(2014)requirestheboardofcorrectionstodevelopandimplement
programstoassistoffenderswithreentry,andauthorizestheprogramstoprovide
education,vocationaltraining,socialandbehavioralprograms,substanceabuse
counseling,mentoring,financialplanning,physicalandmentalhealthprograms,and
housingandfederalassistance.
Indiana
IndianaS171(2014)permitsthecommissionerofthedepartmentofcorrectiontoaward
additionalfinancialaidtocountieswithanapprovedcommunitysupervisioncollaboration
plan,andIndianaS235(2014)andIndianaH1268aimtoreducerecidivismbyproviding
mentalhealthandforensictreatmentservices.
IndianaS173(2015)establishesavocationalprogramtotrainminimumsecurityinmates
inplumbing,airconditioning,truckdriving,andmore.
IndianaS461(2015)authorizesthehealthdepartmenttoenterintopartnershipsto
encouragebestpracticesindrugtreatmentforinmates,andIndianaS464(2015)and
IndianaH1304(2015)bothallowaddictioncounseling,inpatientdetoxification,case
management,dailylivingskills,andlongactingnon-addictivemedicationtoberequiredas
conditionsofparole,probation,communitycorrections,pretrialdiversion,oraproblem
solvingcourt.
IndianaH1269(2015)requiresthecriminaljusticedepartmenttoassistaninmatestofind
mentalhealthorsubstanceabusetreatmentuponreleasefromincarceration.
Iowa
IowaH2460(2014)requiresthatoffendersbegivenjobskilltrainingandIowaH2463
doesthesameformentalhealthservices.
Kansas
KansasH2051(2015)increasestheearlyreleasecreditofupto90daysfordrugoffenders
forprogramparticipation.
Kentucky
KentuckyHB46368,passedin2011,requiresmandatoryreentrysupervisionand
postincarcerationsupervision.KentuckyH265(2012)createsnewsubstanceabuse
treatmentprogramsandKentuckyS78(2013)clarifiesgoodtimecreditsgivenfor
educationalanddrugtreatmentprogramcompletion.
68KentuckyLegislatureHB463,1011
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Louisiana
LouisianaH228(2012),LouisianaHB59(2013),LouisianaHB442(2013)allowoffenders
toearncredittowardsearlyreleasebyvoluntarilyparticipatinginarehabilitation
programsincludingeducation,jobtraining,valuesandfaith-basedprograms,therapeutic
programs,anddrugtreatment.Eachprogramcompletedreducesasentenceby90daystoa
maximumof360days.Violentandsexcrimeoffendersareineligible69,70.LouisianaS71
(2013)evenallowstheoriginalchargestobedismisseduponprogramcompletioninsome
circumstances.LouisianaH994(2012)increases“goodtime”creditsthatcanbeearned.
LouisianaH442(2013)establishesasubstanceabuseprobationprogram,andLouisianaH
274(2014)allowsparticipationinasubstanceabusetreatmentprogramtobeusedwhen
decidingwhetheranoffendercantakepartinaworkreleaseprogram.LouisianaH781
(2014)providesreentryprogramstooffendershousedinlocaljails.
LouisianaSCR138(2015)andLouisianaHR203(2015)requeststrategiestogive
incarceratedoffendersbettereducation,jobskills,training,andmentalhealthcare.
LouisianaH271(2015)allowsprobationforuptoeightyearsforoffendersparticipatingin
drugdiversionorsobrietycourt,whichinvolverehabilitation,andLouisianaH381(2015)
enhancesbehavioralhealthservices.
Louisiana
Missouri
MissouriH1318(2012)establishesamentalhealthprogram,andMissouriH10(2013),
MissouriH2010(2014),andMissouriH10(2015)appropriatefundstothementalhealth
departmenttocontactwithaserviceproviderforanevidence-basedprogramdesignedto
reducerecidivismamongoffenderswithserioussubstanceabusedisordersreturningto
thecommunityafterprison,includingmedication-assistedtreatment.MissouriH9(2013)
doesthesamefortheDepartmentofCorrectionsforoffenderrehabilitativeservices.
Montana
MontanaH68(2013)establishedstatewidereentryprogramsforoffenderswithin12
monthsofreleasefromprisonwhoareatahighriskofrecidivism.
MontanaH233(2013)allowscourtstostaytheimpositionofasentencewhilethe
defendantgoesthroughasobrietyprogram.
69SmartonSentencing,SmartonCrime:AnArgumentforReformingLouisiana’sDeterminateSentencingLaws,Reason
Foundation,2013.
70LouisianaGov.BobbyJindalSignsLawtoShiftDrugOffendersfromJailtoRehab,TheTimes-Picayune,June2013.
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Nebraska
NebraskaL504(2015)addsasubstanceabuseevaluationtopresentencereports,and
NebraskaL598(2015)requiresmentallyilloffendersbetreatedwithacommunity
standardofmentalhealthcare.
NebraskaL483(2013)offersparenteducation,earlyliteracy,relationshipskills
developmentandreentryplanningtooffenders.
NewHampshire
NewHampshireH649(2014)createsearned-timecreditsforinmatesasone-timecredit
forcompletionofeducational,vocationalmentalhealthorfamilyconnectionscenter
programs.Permitsinmatestobeawardedearned-timecredits,inadditiontoothercredits
authorizedbylaw,andNewHampshireH1442(2014)createsmentalhealthcourts.
NorthCarolina
NorthCarolinaH97(2015)establishedmentalhealthbehaviortreatmentunitsateight
closecustodyprisons.
Oklahoma
OklahomaHB3052(2012)mandatessupervisionforalladultsreleasedfromprison71.
SouthCarolina
SouthCarolinaS426(2015)authorizeslocaldistrictattorneystoestablishpreand/or
post-adjudicatorymentalhealthcourtprograms.
Tennessee
TennesseeH1374(2015)requiresopioidaddictiontreatment,includingnon-narcotic
medication-assistedtreatmentforinmates.
Texas
TexasS200(2015)makescertaindrugoffenderseligibleforthefederalSupplemental
NutritionAssistanceProgram.TexasS1070(2015)authorizesthecourttowaivea
requirementthatprobationersconvictedofcertaindrugoffensescompletearehabilitative
educationalprogramiftheoffenderhascompletededucationaltraininginacorrectional
residentialfacility.
TexasH2649(2011)awardsearned-timecredittoinmatesinstatejailsbycompleting
educational,vocational,ortreatmentprograms72,andTexasH1546(2015)streamlinesthe
process.
71Oklahoma,JusticeCenterofTheCouncilofStateGovernments.
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TexasS345(2013)requiresprisonstoencouragefaithbasedandvolunteerorganizations
toprovideprisonprograms.TexasS1173(2013)doesthesameforpost-release
communityprograms.
TexasH1908(2015)requiresthatoffenderswithseverementalillnessbeidentifiedand
madeeligibleforthecontinuityofcaresystem,andTexasH2189(2015)doesthesamefor
thedevelopmentallydisabled.
AspartoftheTexasFragileFamiliesinitiative,inmatesinjuveniledetentionwithchildren
receiveeducationaboutparenting.
Utah
UtahH348(2015)createscreditsforprobationersandparoleeswhocomplywith
supervisionrulesthatreducelengthofsupervisionby30dayspermonth.Itrequireslocal
jailshousingstateinmatestomeetminimumstandardsfortreatmentprograms,and
establishesearnedtimeforcertaininmateswhocompleterecidivismreductionprograms
byfourmonthspercompletion,whileauthorizingtheparoleboardtograntadditional
earnedtime.
72StateJailDiligentParticipationCredit,TexasDepartmentofCriminalJustice.
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