Justice Reinvestment in Montana Report to the Montana Commission on Sentencing
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Justice Reinvestment in Montana Report to the Montana Commission on Sentencing JANUARY 2017 Overview ontana’s prisons are over capacity. The prison space and supervision resources on people who are most Mpopulation increased 11 percent between FY2008 likely to reoffend, and reduce recidivism by improving and FY2015 and is projected to continue to grow 13 access to treatment. By adopting these proposed policies, percent by FY2023, requiring at least $51 million in new the state will avert at least $69 million in spending on spending.1 Additionally, the statewide jail population rose contract beds and supervision staff and hundreds of 69 percent between 2011 and 2013 and many jails are millions more that would have been necessary to build over capacity.2 To address these concerns, state leaders new correctional facilities between FY2018 and FY2023 and key stakeholders have worked together to develop and will be able to reinvest those savings in strategies policies that will ease capacity issues by focusing prison designed to reduce recidivism and increase public safety. REPORT TO THE MONTANA COMMISSION ON SENTENCING COMMISSION MONTANA REPORT THE TO Commission on Sentencing Commission Members In June 2015, Governor Steve Bullock, Chief Justice Chair Mike McGrath, Attorney General Tim Fox, Senate Cynthia Wolken, State Senator President Debby Barrett, Speaker of the House Austin Vice Chair Knudsen, House Minority Leader and Legislative Kristin Hansen, State Senator Council President Chuck Hunter, Senate Minority Leader Jon Sesso, and Montana Department of Members Corrections (DOC) Director Mike Batista requested Mike Batista, Director, Department of Corrections intensive technical assistance from The Council of State Derek Gibbs, Licensed Addiction Counselor Governments (CSG) Justice Center with support from Ingrid Gustafson, District Court Judge The Pew Charitable Trusts and the U.S. Department Dan Guzynski, Assistant Attorney General of Justice’s Bureau of Justice Assistance to use a justice Jennie Hansen, Eastern Bureau Chief, Probation and Parole reinvestment approach in the state. Division, Department of Corrections Roxanne Klingensmith, Archdeacon/Deacon with Episcopal The Montana legislature enacted Bill 224 in April Diocese of Montana 2015 to establish the state’s bipartisan, interbranch Margaret Macdonald, State Representative Commission on Sentencing to study the state’s criminal justice system. The 15-member commission, which Matthew Monforton, State Representative includes state lawmakers, judiciary members, corrections LeAnn Montes, Tribal Attorney for Chippewa Cree Tribe officials, county and defense attorneys, and local Peter Ohman, Office of the State Public Defender law enforcement executives, met six times between Mary Ann Ries, Pondera County Attorney September 2015 and October 2016 to review analyses Majel Russell, Criminal Defense Attorney and discuss policy options. Donna Whitt, Toole County Sheriff Data Collection An extensive amount of data was provided to the CSG Nearly 200 in-person meetings and conference calls Justice Center by the Montana Department of Justice, the with county attorneys, judges, public defenders, law Montana Supreme Court, and the Montana Department enforcement officials, probation and parole officers, of Corrections. In total, more than 600,000 individual behavioral health service providers, victims and their data records spanning 10 years were analyzed across these advocates, families and advocates of people in the databases, including supervision, prison, and alternative criminal justice system, local officials, and others helped facilities population trends and length of time served in provide context for the data. prison and on supervision. Summary of Challenges and Findings Through its comprehensive review of state data, the Commission on Sentencing identified three key challenges and related findings. KEY CHALLENGES 1. Prison and jail population growth. Prisons in prison admissions is the large number of people who Montana are currently at capacity, and the statewide have been revoked from supervision for technical jail population has risen to the point that many jails violations or new crimes. are now over capacity. Unless the state acts, the prison population is projected to increase 13 percent by 3. Growing impact of substance use. Drug use FY2023, requiring at least $51 million in new spending. presents a growing challenge for the state’s criminal justice system, as evidenced by a significant increase 2. High recidivism. The primary driver of increases in arrests for drug offenses, especially among people in arrests, admissions to alternative facilities, and on probation and parole supervision. KEY FINDINGS n Total arrests have increased in recent years. n The number of arrests involving revocations, Between FY2009 and FY2015, total arrests in violations, and FTAs have increased significantly. Montana increased 12 percent, mainly due to an Arrests for revocations, violations, and FTAs increase in drug-related arrests and arrests involving increased 65 percent, from 2,720 to 4,484, between revocations, violations, and failure to appear (FTAs).3 FY2009 and FY2015 and accounted for 45 percent of the increase in total arrests.5 n Drug-related arrests have increased dramatically. Between FY2009 and FY2015, total drug arrests n District court case filings have risen sharply in went up 62 percent in Montana and accounted for 53 recent years. In FY2011, Montana had 7,249 cases percent of the increase in total arrests. Felony drug involving felony offenses in the district court; by arrests increased 100 percent and misdemeanor drug FY2014, this number had increased 29 percent, to arrests increased 47 percent over the same time period.4 9,339 cases.6 Almost half of this increase is the result of a rise in felony drug possession cases.7 2 Justice Reinvestment in Montana n The time it takes for a case in district court to n Admissions to prison from alternative facilities reach disposition has increased significantly. have increased sharply in recent years. The The time between a guilty plea and a disposition in number of people admitted to prison from Montana increased 60 percent between FY2012 and alternative facilities increased 73 percent between FY2015, from 77 days to 123 days, which may have FY2009 and FY2015.16 contributed to longer lengths of stay in jails.8 n Montana’s supervision population is projected n The state’s jail population has increased to grow. The state’s community supervision significantly. Montana’s statewide jail population population, which includes people on probation, rose 67 percent between 2011 and 2013.9 In parole, and conditional release, is projected to grow addition, the average length of stay in Montana jails 18 percent between FY2016 and FY2023, from was 21 days as compared to the regional average of 9,021 to 10,635 people.17 18 days.10 n People are on probation for lengthy periods of n Montana’s prison population has increased, as time in Montana. Among people who successfully has corrections spending. The state’s total prison completed probation supervision in 2015, population increased 11 percent between FY2008 approximately 60 percent had served more than and FY2016, from 2,373 to 2,605 people.11 Tota l three years on probation, and 31 percent had served general fund expenditures on corrections increased more than five years on probation.18 16 percent between FY2008 and FY2015, from $157 million to $182 million.12 n Native Americans are disproportionately represented in Montana’s criminal justice n Montana’s prison population slightly exceeds the system. In FY2014, Native Americans accounted capacity of the state’s facilities, and is projected for 7 percent of the state’s general population to continue to grow. As of the end of FY2016, but constituted 17 percent of the total adult Montana’s prison population exceeds the state’s correctional facility population.19 Native Americans facilities’ capacity of 2,573 people by 1 percent and also accounted for 19 percent of total arrests in is projected to increase to 2,981 people by FY2023, FY2015, and these arrests were driven by FTAs and reaching 116 percent of capacity.13 supervision violations.20 n The number of people in alternative facilities n The time between parole eligibility and parole has increased significantly in recent years. release has increased sharply in recent years. The The number of people in alternative facilities— time that it takes between initial parole eligibility residential facilities that include prerelease centers, and parole release has more than tripled since 2000, substance use treatment facilities, boot camps, and from approximately 8 months to 26 months. In revocation centers—increased by 10 percent between FY2014, 36 percent of parole releases were delayed FY2008 and FY2016.14 due to incomplete programming.21 n Revocations account for the majority of prison admissions in Montana. In FY2015, the number of people revoked to prison from supervision or alternative facilities for a violation accounted for 74 percent of prison admissions.15 Report to the Montana Commission on Sentencing 3 Summary of Policy Options and Impacts The policy options listed below are designed to achieve the following goals: n Avert growth in prison and jail populations. n Increase public safety and reduce recidivism by expanding the reach and improving the efficacy iof programs focused on reducing recidivism. n Provide counties with tools to reduce population pressures on jails throughout