CSG Jus(ce Center—Massachuse2s Criminal Jus(ce Review · CSG Jus(ce Center—Massachuse2s...

CSGJus(ceCenter—Massachuse2sCriminalJus(ceReview

WorkingGroupMee.ng2Keystatutoryframeworks,sentencingpolicies,andprac7cesthatimpact

incarcera7onandcommunitysupervisioninMassachuse;s

April12,2016

TheCouncilofStateGovernmentsJus(ceCenterSteveAllen,SeniorPolicyAdvisor,BehavioralHealthKa<eMosehauer,ProjectManager

MonicaPeters,ResearchManager

CassondraWarney,PolicyAnalyst

TheCouncilofStateGovernmentsJus<ceCenter

CouncilofStateGovernmentsJus<ceCenter 2

Jus<ceCenterprovidesprac(cal,nonpar(sanadviceinformedbythe

bestavailableevidence.

National nonprofit, nonpartisan membership association of state government officials that engage members of all three branches of state government.

Adata-drivenapproachtoreducecorrec.onsspendingandreinvestsavingsinstrategiesthatcandecreaserecidivismandincreasepublicsafetyTheJus<ceReinvestmentIni<a<veissupportedbyfundingfrom

theU.S.DepartmentofJus<ce’sBureauofJus(ceAssistance(BJA)andThePewCharitableTrusts

SenatePresidentRosenberg“Throughcollabora7onbetweentheworking

groupandCSG,wewilliden7fypoliciesfor

Massachuse;stomakesmartreformsto

reducerecidivismrates,lowercosts,andinvest

inreentryprograms.”

Stateleadersaredemonstra<ngbipar<sansupportfor

MassachusePs’sjus<cereinvestmentapproach

HouseSpeakerDeLeo“Byusingadata-drivenanalysis,withthe

inputoftheappointees,wewillensurethat

ourpolicieshelpreducerecidivismand

incarcera7onrates,arecost-effec7ve,andare

structuredinawaythatbestservesthe

ci7zensofthecommonwealth.”

ChiefJus(ceGants"Iwelcometheopportunityto...pursueour

commongoalofenhancingpublicsafetyby

reducingtherateofrecidivismandtherateof

incarcera7on.”

GovernorBaker“Thisgroupofdis7nguishedindividualswithbackgrounds

incriminaljus7ceandlawenforcementwillservethe

commonwealthwellinourendeavorwiththeCouncilof

StateGovernmentstofurtherreformandimprovethe

judicialprocessandreducerecidivismandincarcera7on

rates.”

Massachuse2sCriminalJus(ceReview—WorkingGroupFirstMee<ng,January12,2016

Source:“StateLeadersRequestIndependentReviewofCriminalJus<ceSystem,”www.stanrosenberg.com/Independent-Review-Criminal-Jus<ce-System,and“StateLeadersAnnounceWorkingGroupforReviewofCriminalJus<ceSystem”www.mass.gov/governor/press-office/press-releases/fy2016/leaders-announce-criminal-jus<ce-system-working-group.html

Thefirstworkinggroupmee<ngiden<fiedathree-partscope

ofworkfortheproject

Incarcera(on

MassachusePs’s

incarceratedpopula<onsare

dividedinhalfbetween

countyandstatefacili<es

HOCpopula<onshavedriven

overalldeclinein

incarcera<on

Trendsinjailpopula<ons

differacrosscoun<es

Recidivism

Fewrecidivismmeasuresare

rou<nelycalculatedand

reportedinMA

Recidivismforprison

releaseshasremainedat

around40%

Useofriskandneeds

assessmentsare

fundamentaltoeffec<ve

recidivism-reduc<on

strategies

Supervision

Communitysupervision

servesapproximately3/4of

thecriminaljus<ce

popula<oninMA

Proba<onhasconsistently

beenrelieduponforpost-

releasesupervisionfrom

incarcera<on

Twooutoffiveprison

releasesarereleasedtono

supervision

Glossaryoftermsusedinthispresenta<on

Disposi(on—Post-arraignmentcourtappearancewiththeoutcomeofaguiltyornotguiltyfinding,or

Con<nuanceWithoutaFinding(CWOF)Convic(on—Atypeofdisposi<onresul<nginaguiltyfindingeitherthroughapleadeal,trial,orthe

revoca<onofaCWOFdisposi<onSentence—Theoutcomeofaconvic<on;op<onsincludeafine,proba<on,orsentencetoHouseof

Correc<on(HOC)orDepartmentofCorrec<on(stateprison)Proba(onSentence—Includesstraightandsuspendedproba<onsentences;doesnotincludeCWOFsSentencingEvent—Unitofsentencingdataanalysis,represen<ngtheeventatwhichacharge,orgroupof

charges,reachesconvic<on;theoutcomeofasentencingeventisdefinedusingthefollowinghierarchy:

lifesentence,stateprisonsentence,HOCsentence,HOC/splitsentence,proba<onsentence,andfineGoverningOffense—Thesinglechargeassociatedwithasentencingevent;iftherearemul<plecharges,

thegoverningoffenseiscategorizedbythemostseriouschargebasedonapriori<zedscaleDistrictCourt—Jurisdic<onovermisdemeanorandfelonycaseswithsentencingop<onstoHOCupto30

months,proba<on,fine,orotherpre-convic<ondisposi<ons;includesBostonMunicipalCourt

SuperiorCourt—Jurisdic<onovermisdemeanorandfelonycaseswithallsentencingop<onsavailable

Defini<onsofoffensecategoriesusedinthisanalysisaredrawnfromthe

SentencingCommission’sannualSurveyofSentencingPrac<ces

MotorVehicle•  Opera<ngwith

suspendedlicense

•  Opera<ngunderthe

influence(OUI)

•  OSLajerOUI

•  Leavingthescene

•  Insuranceviola<on

•  Reckless/negligent

driving

•  MVhomicide

Person•  Assault&BaPery

•  Robbery/armed

•  Homicide

•  Manslaughter

•  A&Bdeadlyweapon

•  In<mida<on

•  Kidnapping

•  Stalking

•  Threats

Property•  Larceny

•  Larcenyfromaperson

•  Shoplijing

•  ReceivingStolenGoods

•  Burglary/armed

•  Breaking&entering

•  Vandalism/destruc<on

ofproperty

•  Forgery/fraud

Drug•  Possession

•  Distribu<on(includes

possessionwith

intenttodistribute)

•  Drugparaphernalia

•  Forgedprescrip<on

•  Trafficking

•  Controlledsubstance

atschool

Weapons•  Firearmpossession

withoutapermit

•  Carryingdangerous

weapon

•  Bartley-Fox

mandatorysentence

Violentsexoffense•  Indecentassault&

baPery

•  Rape

•  Statutoryrape

•  Possessionchild

pornography

Other•  Disorderlyconduct

•  Trespassing

•  Resis<ngarrest

•  Escape

•  Pros<tu<on

•  Indecentexposure

•  Sexoffender

registra<onviola<on

•  APempttocommit

crime,accessory,or

conspiracy

•  Disturbingthepeace

•  Minorinpossession

ofalcohol

•  Procuringalcoholfor

aminor

•  Opencontainer

•  Truenameviola<on

•  Falsealarm

•  Crueltytoanimals

Source:MassachusePsOfficeoftheTrialCourts,Massachuse;sAnnualSurveyofSentencingPrac7ces

Presenta<onOverview

SystemOverview

Execu(veSummary

KeyStatutes,Policies,andPrac(ces

SummaryofFindingsandNextSteps

3,18510,713

34,444

26,399

10,000

20,000

30,000

40,000

50,000

60,000

1980 1982 1984 1986 1988 1990 1992 1994 1996 1998 2000 2002 2004 2006 2008 2010 2012 2014

Between1980and2014,althoughviolentcrimefell26

percent,theDOCpopula<onspiked236percent

Sources:BureauofJus7ceSta7s7cs.CountofTotalJurisdic7onPopula7on.GeneratedusingtheCorrec7onsSta7s7calAnalysisToolatwww.bjs.gov.StateprisonJurisdic<onalpopula<onincludescriminaljurisdic<onalcases,includingpeopleawai<ngtrial.ThisdoesnotincludetheHOCpopula7on.

Theresidentpopula<onin

MassachusePsincreased14%

between1980and2010.

StatePrisonJurisdic<onalPopula<onandFBIUCRReportedViolentCrimes,1980–2014

DOCpop.

ViolentCrimes

AlthoughMassachusePs’sincarcera<onrateisbelowthe

na<onalrate,ithasincreasedatafasterrate

1980 1982 1984 1986 1988 1990 1992 1994 1996 1998 2000 2002 2004 2006 2008 2010 2012 2014

Sources:BureauofJus7ceSta7s7cs.ImprisonmentRateofSentencedPrisonersUndertheJurisdic7onofStateofFederalCorrec7onalAuthori7esper100,000residents,December31,1978-2014).GeneratedusingtheCorrec7onsSta7s7calAnalysisToolatwww.bjs.gov.

Incarcera<onRates,*1980–2014

*Incarcera<onratereportedbyBJSincludesfelonypopula<onssentencedtostateprisonorHOCswithasentencegreaterthan1year.

Percentchange

1980–2014

Eachyearthestatespendsoveronebilliondollarson

incarcera<oninstate-orcounty-operatedfacili<es

$583million

$1.1BILLION

DEPARTMENTOFCORRECTION

$553million

HOUSESOFCORRECTION/JAIL

Approximatelyhalfofthe

incarceratedpopula<onisserving

<meinstateprison,theotherhalf

inHOCandjails. TOTALSPENDINGONINCARCERATION

Source:MassachusePsExecu<veOfficeforAdministra<onandFinance,StateBudgetSummary,2015

Manyopportuni<esexisttoresolveacasebeforesentencing

CaseDismissedorNolle

ProsequiFiled

PRETRIALDIVERSIONS

Pretrial

Proba<on

Caseput

onfile

Dismissalon

Condi<ons

Successful

Comple<on

Source:MassachusePsExecu<veOfficeoftheTrialCourt,FY2014AnnualReport.

Termina<on

General

Con<nuance

DISPOSITION

NotGuilty

Guilty

SENTENCE

Houseof

Correc<on

StatePrison

Fines/Fees

Proba<on

Successful

Comple<on

Termina<on

Successful

Comple<on

Termina<on

Con<nueWithoutAFinding

(CWOF)

DistrictCourt,BostonMunicipalCourt,andSuperiorCourtCaseFilings

In2013,39,049criminaldocketsconcludedinconvic<onand

sentencing

23,559Fines/FeesandProba<on

13,636HouseofCorrec<on

1,854StatePrison

Source:MassachusePsExecu<veOfficeoftheTrialCourt,FY2014AnnualReport.

In2013,therewere221,715totalcasefilingsintheDistrictCourt,Boston

MunicipalCourt,andSuperiorCourt.A

singlecase,orgroupofcases,maybe

associatedwithasingleconvic<on.

39,049Convic<ons

TherearenearlyasmanyCWOFdisposi<onsascriminal

convic<onsinMassachusePs

31,855

35,684

10,000

15,000

20,000

25,000

30,000

35,000

40,000

2013Convic<onsand2014CWOFsbyCourt*

*2014istheonlyyearforwhichCWOFinforma<onisavailable.2013isthelatestyearofconvic<ondataavailabletotheCSGJus<ceCenter.

Source:CSGJus<ceCenteranalysisof2013and2014CARIsentencingdata.

DistrictCourt/BMC SuperiorCourt

RATIOOFCWOFsTOCONVICTIONS:

1TO38SUPERIORCOURT

1TO1.12

DISTRICTCOURT/BOSTONMUNICIPALCOURT

Convic<ons

AmajorityofCWOFsare

fromDistrictCourtorthe

BostonMunicipalCourt

1,0691,267

855 407 302 227 226 253

10,070

10,000

12,000

SuperiorCourtsentencesareprimarilyforpersonsanddrugoffenseswhileDistrict

Court/BMCsentencesareprimarilyformotorvehicleandpropertyoffenses

MOTORVEHICLE

27%OFCONVICTIONS

2013Convic<onsforGoverningOffensebyOffenseTypeandLevel*

N=39,049

*91percentofconvic<onswerefromDistrictCourt/BMC,and9percentwerefromSuperiorCourt.Chargesatsentencingareincluded.

Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.

PERSON

21%OFCONVICTIONS

PROPERTY

26%OFCONVICTIONS

12%OFCONVICTIONS

11%OFCONVICTIONS

WEAPON

2%OFCONVICTIONS

VIOLENTSEXOFFENSE

1%OFCONVICTIONS

Misdemeanor(DistrictCourt/BMC)

Felony(DistrictCourt/BMC)

Felony(SuperiorCourt)

Misdemeanor(SuperiorCourt)

36%ofDistrictCourt/BMCsentencesand82%ofSuperiorCourt

sentencesaretoincarcera<on

Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.Thisslideincludessentencesforconvic<onsinDistrictCourt,BostonMunicipalCourt,andSuperiorCourt.ThesefiguresdonotincludeCWOFs.

CouncilofStateGovernmentsJus<ceCenter

2013SentencestoStatePrison,HOC,Proba<on,andFinesbyOffenseType

N=39,049

Misdemeanor(DistrictCourt/BMC) Felony(DistrictCourt/BMC) Felony(SuperiorCourt)Misdemeanor(SuperiorCourt)

11,3587,086

10,000

12,000

14,000

16,000

18,000

Fine Proba<on HOC StatePrison

10%13% 13%

22% 22%

18-24 25-34 35-44 45andolder

ResidentPopula<on

Convic<ons

Female

Demographiccomposi<onoftheconvictedpopula<on

comparedtoresidentpopula<oninthestate

6%10% 9%

16% 15%

White Black Hispanic Other

ResidentPopula<on

Convic<ons

83%17%

Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata;U.S.Census2010-2014AmericanCommunitySurvey5-YearEs<mates.

Female52%

PercentofResidentPopula<on/PercentofConvic<onsbyRace,2013

PercentofResidentPopula<on/PercentofConvic<onsbyAge,2013

PercentofResidentPopula<onbyGender,2013

PercentofConvic<onsbyGender,2013

Convic<ons,CWOFs,andsentencesbyrace

10,000

15,000

20,000

25,000

30,000

Disposi<onsandSentencesforWhiteIndividuals Disposi<onsandSentencesforBlackIndividuals

Disposi<onsandSentencesforHispanicIndividuals Disposi<onsandSentencesforOtherIndividuals

Convic<ons CWOFs Fines Proba<on HOC DOC

25,874

23,133

Percentof25,874Convic<ons

38% 39%

3,639Percentof5,717Convic<ons

33%38%

Anumberofstatutes,policies,andprac<cesshapethedistribu<onof

incarcera<onandcommunitysupervisionsentencesinMassachusePs

DATAANALYZEDTOEXPLORETHESETOPICS:

2013Sentencingdata(CARI)

2014CWOFdisposi<ondata(CARI)

2016JudicialsurveyconductedbyCSG

Criminalhistorydata(ICORI)

FACTORSSHAPINGINCARCERATIONANDSUPERVISION:

SentencingStatutes

SentencingGuidelines

DOC&HOCStructure

Post-ReleaseSupervisionStructure

Someanalysisisnotincludedinthispresenta<on*

ANALYSISNOTCOVEREDINTHISPRESENTATION

WHENANALYSISWILLBECOVERED

Pretrialprocesses(pretrialrelease,lengthofstay,bail,etc.)

May–June

DOC/HOCpopula<ons May–June

Paroledecisionmaking May–June

Recidivism/outcomes May–June

Post-releasesupervision June–July

Proba<on June–July

*DelaysinreceivingdatalimitedsomeoftheanalysisCSGJus<ceCentercouldcompleteforthisinterimreport

Presenta<onOverview

SystemOverview

Execu(veSummary

KEYFINDING:Peoplewithpreviousjus<cesysteminvolvementare

responsibleforthree-quartersofnewconvic<ons

StatePrison

AllSentences

0priors 1to2priors 3to10priors 11ormorepriors

NumberofPriorOffensesbySentenceType,2013

74%hadprior

convic<ons

Recidivismdrivesmostnewconvic<onac<vity

PercentofIndividualsConvictedin2013EverReceivingaCWOF*

N=32,839

34%(11,188people)

NOPRIORCWOF

25%(8,372people)

ONEPRIOR

18%(5,832people)

TWOPRIOR

23%(7,447people)

THREEOR

PRIORCWOFs

66percentofindividualsconvictedin2013hadahistoryofatleastoneCWOF.11percentof

convic<onsweretheresultofarevoca<onofaCWOF.

*Individuals’latestdisposi<ondatein2013wasselected.Datanotavailablefor0.7%ofconvic<ons.Juvenilecriminalhistorywasexcludedfromtheanalysis.

Source:CSGJus<ceCenteranalysisof2013CARIandiCORIdata.Criminalhistoriesarecalculatedusingthenumberofincidentsandincludesadultcriminalhistoryonly.

Peopleconvictedforpropertyoffenseshadthehighest

numberofpreviousconvic(ons

Motorvehicle

Property

Weapons

Persons

Violentsexoffense

AverageNumberofPreviousConvic<onsbyOffenseType

ArevolvingdoorexistswithHOCsentencesandstateprison

24CouncilofStateGovernmentsJus<ceCenter

ofindividualssentencedtoDOCin2013hadaprior

HOCsentenceswithinthelastthreeyearsof

sentencingdata(sinceFY2010)

Sentencedto

ofindividualssentencedtoHOCin2013hada

priorHOCsentencewithinthelastthreeyears

ofsentencingdata(sinceFY2010)43%

ofindividualssentencedtoDOCin2013hada

priorHOCsentencewithinthelastthreeyears

ofsentencingdata(sinceFY2010)31%

RELEASESFROMHOC

465266

Violentsex

offense

Persons Weapons Drug Property Motorvehicle Other

KEYFINDING:Motorvehicleandpropertyoffensesgeneratealarge

volumeofshortsentencestoHOC

2013SentencestoHOCbyOffenseTypeandLevel

N=13,636

Misdemeanor

Felony

47%ofallHOCsentences

6,394peoplereceived

asentencetoHOCfora

motorvehicleor

propertyoffensein

Averagesentence

length:

Property7.3monthsMV4.4months

Alloffenseslistedinthischartare

the“governingoffense.”Individuals

mayhavehadaddi7onalchargeson

theircourtdocket,buttheoffense

shownherewasdeemedtobethe

mostseriousinthesentencingevent.

Morethan1,200peopleweresentencedtoHOC

forlarcenyoffenses,atacostofupto$13million

LESSTHAN$250MISDEMEANORLARCENY

Punishablebyafine/proba<onoruptoa

yearinanHOC

MORETHAN$250FELONYLARCENY

Punishablebyafine/proba<on,uptotwo

yearsinanHOC,orfiveyearsinstateprison

1,000984

2013LarcenySentencestoHOC

Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.MassachusePsSheriffsAssocia<onFY2013andFY2014costper

inmate.Thecalcula<onrepresentsanaveragecostacrosscountyfacili<es.Someofthecostperinmateinforma<onincludesbothcountyjailandHOCcosts.

NumberofsentencestoHOCfor

felonylarceny:

Es<matedLOsbasedonmaximum

sentencelength:

105days

Costtoincarcerateaone-yearcohort

offelonylarcenyoffendersinHOC:

$11.5M

misdemeanorlarceny:

sentencelength:

55days

ofmisdemeanorlarcenyoffendersin

HOC:$1.7M

TotalPoten(alCost:$13.2M

Theabovefiguresarecostes7mates.Amore

thoroughfiscalimpactanalysiswillbeconductedlaterintheprojecttoes7matecostsandpoten7al

savingsofspecificprac7cesandpolicies,andmay

differfromwhatisshownhere.

Thestatutorydefini(onoflarcenyonlystaircasestwolevelsofthel:

LESSTHAN$250andMORETHAN$250

NearlyhalfofHOCsentencesformisdemeanormotorvehicle

offenseswereforOpera<ngwithaSuspendedLicense

MisdemeanorMotorVehicleSentencestoHOCs2013

N=1,763

215180

Opera<ng

Suspended

License(OSL)

OUI Reckless

Negligence

Leavingthe

OSLajerOUI Insurance

Viola<on

Other*

47%ofmisdemeanormotor

vehiclesentencesto

incarcera<onarefor

drivingwithasuspended

license

MassachusePscould

bespendingasmuchas

$8millionayearincarcera<ng

misdemeanormotorvehicle

offenders

Theabovefigureisacostes7mate.A

morethoroughfiscalimpactanalysiswillbeconductedlaterintheprojectto

es7matecostsandpoten7alsavingsof

specificprac7cesandpolicies,andmay

Source:CSGCenteranalysisof2013CARIsentencingdataaswellasMassachusePsSheriffsAssocia<onFY2013andFY2014costperInmateinforma<on.Thecalcula<onrepresentsanaveragecostacrosscountyfacili<es.Someofthecostperinmateinforma<onincludesbothcountyjailandHOCcosts.*OtherincludesHabitualTrafficOffenderandMVHomicide.

AverageSentenceLength

1.5MONTHS

2.6MONTHS

4.3MONTHS

5.1MONTHS

3.6MONTHS

0.8MONTHS

3.5MONTHS

IndividualsinMassachuse2smayhavetheirdriver’slicense

suspendedorrevokedforanumberofreasons:

Opera<ngundertheinfluence

Recklessdriving

Convic<onofcertaindrugoffenses

Delinquencyinpayingchildsupport

Existenceofanoutstandingwarrant

Viola<onofseriousvehiclelaw

Habitualoffenderconvic<on

9.3PRIORS

3.5PRIORS

6.1PRIORS

7.3PRIORS

7.5PRIORS

5.6PRIORS

7.8PRIORS

AverageNumberofPriorConv

MisdemeanorsentencestoHOCcostthestateanes<mated

$48millionayear

*Theabovefigureisacostes7mate.Amorethoroughfiscalimpactanalysiswillbeconductedlaterintheprojecttoes7matecostsandpoten7alsavingsofspecificprac7cesandpolicies,andmaydifferfromwhatisshownhere.

Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata;MassachusePsSheriffsAssocia<onFY2013andFY2014costperinmate.Thecalcula<onrepresentsanaveragecostacross

countyfacili<es.Someofthecostperinmateinforma<onincludesbothcountyjailandHOCcosts.

ESTIMATEDCOSTOFINCARCERATING

MISDEMEANOROFFENSES

$48million*

MISDEMEANORSENTENCESTOHOC

7,266 AVERAGESENTENCELENGTH

AVERAGECOSTPERDAYINHOC

AVERAGELENGTHOFSTAYESTIMATE

4.3months

2months

7,266x60

daysx$112

KEYFINDING:Sentencingprac<cesimpactwhetherpeople

sentencedtoincarcera<onreceivepost-releasesupervision

Sentencingpolicyandprac(cethatsetslimita(onsonPAROLE

Sentencingpolicyandprac(cethatallowopportuni(esforPROBATION

MIN/MAXRATIO

Ø  Reducingtherangebetweentheminandmax

resultsinashorterwindowofparoleeligibility.

Ø  “Andaday”sentencesareacommonprac<ceof

sexngthemaxwithinonedayofthemin.

MANDATORYMINIMUMS

Ø  Restric<onsonpar<cipa<oninpre-release

programspriortominimumterm.

HOCPAROLE

Ø  HOCsentencesshorterthan60daysarenot

paroleeligible.

FROM&AFTERPROBATIONØ  Asentencetoproba<onfollowingasentenceto

incarcera<on.

Ø  Musthavemul<plechargesatsentencing.

Ø  AllowableforbothHOCandDOCsentences.

SPLITSENTENCES

Ø  Asuspendedsentenceofproba<onfollowinga

sentencetoHOC.

Ø  Applicableonasinglecharge.

Ø  AllowableforHOC,butnotforDOCsentences.

Opportuni<esforproba<onreferstopost-releasesupervisiononly.Source:CSGJus<ceCenterreviewofMassachusePsGeneralLaws.

Nearly20%ofstateprisonsentencesrestrictparoleandhave

noguaranteedpost-releaseproba<on

NoAndaDayorFrom&Ajer

From&Ajer+AndaDay

From&Ajer

AndaDay

Mandatory

Sentences

Non-Mandatory

Sentences

N=1,251

TotalStatePrison

Sentences

N=1,854

39% 18% 15% 28%

31% 20% 36% 14%

33% 19% 29% 19%

698total“andaday”sentences

2013StatePrisonSentences

AndaDayAsentencewiththeminimumand

maximumsentenceonedayapart

From&Aler

Asentenceofpost-releaseproba<on

From&Aler+AndaDay

aswellasminandmaxonedayapart

NoAndaDayorFrom&AlerNosentenceofpost-release

proba<onandtheperiodbetween

minandmaxlongerthanoneday42%haveasentencerangeofoneyearorless

20to50percentofstateprisonsentenceswillbereviewedbytheparoleboardtodetermine

eligibilityandreleasetopost-releasesupervision.

Thelikelihoodofreceivingapost-releaseproba<onsentence

decreasedascriminalhistoryscoreincreased

51%48% 49%

42%40%

No/MinorRecord ModerateRecord SeriousRecord ViolentorRepe<<veRecord

StatePrison HOC

CriminalHistory

PercentofSentencestoIncarcera<onwithPost-ReleaseProba<onbyCriminalHistoryScore,2013

Howaredecisionsaboutpost-releasesupervisionmade?

Aretheindividuals

mostlikelytobenefitfrompost-

releasesupervisiontheonesreceivingit?

31% 39% 32% 37%Stateprisonsentenceswithan

“andaday”sentenceoutofthose

withnopost-releaseproba<on.

Peoplewithmorethanthreeprioroffensesweremorelikelyto

receivestraightHOCsentenceswithnopost-releaseproba<on*

StraightHOC

HOCSplit

HOCFrom&Ajer

NumberofPriorOffensesfor2013SentencesbySentenceType

*StraightHOCsentencesover60daysareparoleeligibleiftheindividualdoesnotwaivetheirparolehearingSource:CSGJus<ceCenteranalysisof2013CARIsentencingdata.

N=1,033

N=3,507

N=9,096

Post-releaseProba(on

70%ofstraight

HOCsentences

have3ormore

prioroffenses

60%ofstraightHOCsentenceswillbeeligibleforparoleduetosentencelengthandthereforemay

bereviewedbytheparoleboardtodeterminereleasetopost-releasesupervision.

SUMMARY:Peoplewithpreviousjus<cesysteminvolvement

areresponsibleforthree-quartersofnewconvic<ons

Recidivismdrivesmostnewconvic<onac<vity:74percentofpeoplesentencedhadapriorconvic<onand66percenthadahistoryofatleastoneCon<nuanceWithoutaFinding(CWOF).

Morethan40percentofpeoplesentencedtoanHOChadapriorHOCsentencewithinthepreviousthreeyears.

Peopleconvictedofpropertyoffenseshadthehighestnumberofprior

offenses.

SUMMARY:Motorvehicleandpropertyoffensesaccountfor

alargevolumeofshortsentencestoHOC

NearlyhalfofallsentencestoHOC(6,394convic<ons)wereformotor

vehicleandpropertyoffenses.

54percentofmotorvehicleandpropertyHOCconvic<ons(3,464

convic<ons)werefor6monthsorless.Peoplereceivedanaveragesentenceof7.3monthsforpropertyand4.4monthsformotorvehicle

offenses.

39percentofallmisdemeanorsentencestoHOCwereformotorvehicle

andpropertyoffenses,including271convic<onsforLarcenyunder$250.819motorvehiclesentencestoHOCwereforOpera(ngwithaSuspendedLicense.

Thestatespentupto$15million*onincarcera<onformisdemeanor

motorvehicleandpropertyoffenses.

SUMMARY:Sentencingprac<cesimpactwhetherpeople

Nearlyhalfofsentencestostateprisonincludedasentenceofpost-releaseproba<on.

19percentofstateprisonsentencespreventanypost-releasesupervision,solelybasedonthesentence;drugsentencesweremost

likelytorestrictpost-releasesupervision.

Thelikelihoodofreceivingapost-releaseproba<onsentencedecreased

ascriminalhistoryscoreincreased.

Two-thirdsofHOCsentenceswerestraightsentencesthatdidnotincludepost-releaseproba<on,and40percentofpeoplewhoreceivedstraightsentenceswillnotbeeligibleforparoleduetosentencelength.

Keypolicyconsidera<ons

Recidivismaccountsforthreeoutofeveryfournewsentences.Whatstepscanbetakentoreduceratesofrecidivismacrosstheboard,

par<cularlyforpeoplereleasedfromHOC?

Massachuse2sspendstensofmillionsofdollarsincarcera(ngpeopleconvictedofmisdemeanoroffensessuchasmotorvehicleandpropertycrimes.Aretherelesscostlyapproachestoholdingthesepeopleaccountablefor

theiroffensesthatcouldalsoproducebePerpublicsafetyoutcomes?

Sentencingpoliciesandprac(cesresultininconsistentuseofpost-releasesupervisionandaccesstocommunitysupports.AretherewaystobePertargetresourcestopeoplewhoaremostlikelyto

reoffendandreduceinvestmentsinpeoplewhopresentalowrisk?

Presenta<onOverview

SystemOverview

Execu(veSummary

KEYSENTENCINGSTATUTES

SENTENCINGGUIDELINES

DOC&HOCSTRUCTURE

POST-RELEASESUPERVISION

DetailedDiscussionofKeyStatutes,Policies,andPrac(ces

Thislistispresentedinorderofanindividual’s

progressionthroughthecriminaljus7cesystem

anddoesnotreflectorderofpriorityorimpact.

Con<nuanceWithoutaFinding(CWOF)isabroadlydefined

andapplieddisposi<oninMassachusePscourts

Ø  ACWOFisadisposi<oninwhich

allpar<esagreethatthereis

sufficientevidencetosupporta

guiltyfinding.

Ø  Ratherthandisposingofthecaseasaconvic<on,thecourt

“con<nueswithoutafinding”fora

designatedperiodof<me.

Ø  Duringthis<me,thedefendantis

placedonproba<on.Ifthe

individualsa<sfiesthetermsofhis

orherCWOF,thecasewillbe

dismissedbythecourtwithouta

convic<on.

Ø  Shouldtheindividualfailtomeet

thetermsoftheCWOF,thecourt

willdisposethecaseasaconvic<on

andproceedtosentencing.

GUILTY NOTGUILTY

SENTENCING

PROBATION FINE INCARCERATION

SUCCESSFULCOMPLETION

PROBATIONSURRENDERED

WRAP-UP PROBATION

SUCCESSFULCOMPLETION REVOCATION

PRETRIALHEARING

COMPLIANCEANDELECTIONOFTRIALDATE

DISPOSITION

ARRAIGNMENT

PAROLE

Source:MassachusePsGeneralLawsChapter278,Sec<on18

Therearefewrestric<onsonoffensesthatcanqualifyforaCWOF

Chapter278,Sec(on18impartsbroadauthoritytothecourttouseCWOFs:

UseofCWOFsisnotlimitedtofirst-<meoffenders

CWOFscanbeusedforbothmisdemeanorandfelonyoffenses

solongasstatutedoesnotprohibituseofCWOForproba<on

CWOFscanbeusedconcurrentlywithaconvic<onforother

charges

IndividualsmayreceivemorethanoneCWOF

CWOFsmaybeusedinbothDistrictCourtandtheBoston

MunicipalCourt.Commonwealthv.Powell(2009)allowsfor

theuseofCWOFsinSuperiorCourt,thoughCWOFdisposi<ons

remainrare.

ü ü ü ü ü 

Source:MassachusePsGeneralLawsChapter278,Sec<on18:

TherearenearlyasmanyCWOFdisposi<onsascriminal

convic<onsinMassachusePs

31,855

35,684

10,000

15,000

20,000

25,000

30,000

35,000

40,000

2013Convic<onsand2014CWOFsbyCourt*

*2014istheonlyyearforwhichasnapshotofCWOFinforma<onisavailable.2013isthelatestyearofconvic<ondataavailabletotheCSGJus<ceCenter.

DistrictCourt/BMC SuperiorCourt

RATIOOFCWOFsTOCONVICTIONS:

1TO38SUPERIORCOURT

1TO1.12

DISTRICTCOURT/BOSTONMUNICIPALCOURT

Convic<ons

AmajorityofCWOFsare

fromDistrictCourtorthe

BostonMunicipalCourt

10,000

12,000

14,000

CWOFsareusedinalloffensecategories,thoughthe

propor<onofCWOFstoconvic<onsvaries

MotorVehicle Property Persons Drug Other Weapons Violentsexoffense

10,623

13,528

10,151

4,5834,166 4,122

869451 479

2013Convic<onsand2014CWOFsbyOffense*

13% 61%39%

MisdemeanorConvic<on

FelonyConvic<on

MisdemeanorCWOF

FelonyCWOF

12%45%55% 100%

n=39,049

n=31,943

ThenumberofCWOFs

andconvic<ons

representindividual

disposi<ons,butnot

individualpeople.One

personmayhaveboth

anac<veCWOFanda

convic<on.

*2014istheonlyyearforwhichCWOFinforma<onisavailable.2013isthelatestyearofconvic<ondataavailabletotheCSGJus<ceCenter.Source:CSGJus<ceCenteranalysisof2013and2014CARIsentencingdata.

99%ofCWOFsarein

DistrictCourt/BMC

Lessthan1%ofCWOFsareinSuperiorCourt

2,8533,054

Convic<ons CWOFs

Thenumbersofconvic<onsandCWOFsvaryacrosscoun<es

2013Convic<onsand2014CWOFsbyCounty*

*2014istheonlyyearforwhichasnapshotofCWOFinforma<onisavailable.TheCSGJus<ceCenterhasnotyetreceived2014sentencingdata.

Thereareavarietyofreasonsfordifferencesinthenumbersandpropor7onsofCWOFsandconvic7ons,

includingvariancesinlocalcrimeratesandseriousnessofoffenses.

Female

Demographiccomposi<onofCWOFscomparedto

residentpopula<oninthestate

71%29%

10%13% 13%

22% 22%

18-24 25-34 35-44 45andolder

ResidentPopula<on

Source:CSGJus<ceCenteranalysisof2014CARIcourtdata;U.S.Census2010–2014AmericanCommunitySurvey5-YearEs<mates.

Female

PercentofResidentPopula<on/PercentofCWOFsbyRace,2013

PercentofResidentPopula<on/PercentofCWOFsbyAge,2013

PercentofResidentPopula<onbyGender,2013

PercentofCWOFsbyGender,201375%

6%10% 9%

12% 11%

ResidentPopula<on

Two-thirdsofpeopleconvictedin2013hadahistoryofat

leastonepriorCWOFasanadult

PercentofPeopleConvictedin2013EverReceivingaCWOF*

N=32,839

34%(11,188people)

NOPRIORCWOF

25%(8,372people)

ONEPRIOR

18%(5,832people)

TWOPRIOR

23%(7,447people)

THREEORMORE

PRIORCWOFs

66percentofpeopleconvictedin2013hadahistory

ofatleastoneCWOF.

In201311percentofconvic<onsweretheresultofa

revoca<onofaCWOF.

*Individuals’latestdisposi<ondatein2013wasselected.Datanotavailablefor0.7%ofconvic<ons.Juvenilecriminalhistorywasexcludedfromtheanalysis.

Source:CSGJus<ceCenteranalysisof2013CARIandCORIdata.

NearlyhalfofCWOFshaveaperiodofsupervisedproba<on

of10to12months

0% 10% 20% 30% 40% 50% 60%

13monthsormore

10to12months

4to9months

3monthsorless

PeoplewithCWOFshave

ashortertermof

supervisedproba<on

thanconvicted

individualssentencedto

straightproba<on.

Theaverage

proba<onsentenceis

17–20months.

2014CWOFDisposi<onsbyLengthofProba<on*

N=31,943

*3%ofcasesdidnothavelengthofsupervisionavailable

Source:CSGJus<ceCenteranalysisof2014CARIsentencingdataandproba<oncaseloaddata;MAOfficeoftheCommissionerofProba<on.

Judgesiden<fiedseverityofoffenseandcriminalhistoryas

keyconsidera<onsindecisionstouseaCWOFoverconvic<on

Judgesiden(fiedaddi(onalfactorsasbeinginfluen(alin

theirdecisionmaking:

Inputandconsensus

amongvic<msinthecase

Likelihoodofadefendant

toreoffend

Thecourtinwhichthey

arepresiding:CWOFsare

rareinSuperiorCourt

PercentofJudgesRepor<ngFactorsasVeryImportanttoMakingDecisionsonCWOFs

*CSGJus<ceCenterelectronicsurveyofMassachusePsjudges,March2016.14BostonMunicipalCourtjudges,31DistrictCourtjudgesand30SuperiorCourtjudgespar<cipatedinthesurvey.

79% 79%

87%90%

77% 77%

83%87%

Severityofcrime Criminalhistory Typeofoffense

(person,drug,

property,etc.)

First<me

offenderstatus

Ageofoffender Abilitytoprevent

collateral

consequences

Pleaagreement

offeredbyDA

anddefense

BostonMunicipalCourt DistrictCourt SuperiorCourt

CWOFsarebroadlyused,butliPleisknownabouttheirimpacton

thecriminaljus<cesystemorpeoplewhoreceivethem

Thereissignificantflexibilityintheuseof

CWOFs.DistrictCourtandBMCmostheavily

relyonthisdisposi<onop<on.

CWOFsareusedasastrongincen<veto

successfullycompleteproba<on.

CWOFspreventcollateralconsequencesfor

manyrecipientsbypreven<ngapermanent

criminalrecord(thoughthefederal

governmentviewsCWOFsasaconvic<onin

professionallicensingandimmigra<on

circumstances).

ItislikelythatpeoplewhoreceiveCWOFswill

havemul<pleinterac<onswiththecriminal

jus<cesystem.

Whatarethekeydifferencesbetweenpeople

whoreceiveaCWOFandthosethatare

convictedandreceiveasentencetostraight

proba<on?

Dorecidivismoutcomesdifferforpeoplewith

CWOFsversuspeoplewithstraightproba<on

sentences?

Howdotheratesofsuccessfulcomple<onof

proba<ondifferforpeoplewithCWOFsversus

peoplewithstraightproba<onsentences?

WhatdoCWOFscostthecriminaljus<ce

system?Howdoesthatcomparetoother

disposi<ons/sentences?

KEYSYSTEMFACTSABOUTCWOFs UNKNOWNSFORCWOFDISPOSITIONS

Addi<onalanalysisonCWOFs

HowmanyCWOFsarethereeachyear?

Whatkindofoffenses/offendersreceiveCWOFs?

HowojendopeoplewhoreceiveCWOFsrecidivate?Istheir

recidivismratebePerorworsethanpeoplewhoproceedto

convic<onsandreceiveeitherproba<onorincarcera<on

sentences?

WhatdoCWOFscostorsavethesystem?

HowdoCWOFsimpactpublicsafety?

IfCWOFsascurrentlyusedlackeffec<veness,howcouldthey

bepoten<allyrestructuredtobePerfitintoaneffec<ve

con<nuumofresponses?

ü ü 

Presenta<onOverview

SystemOverview

Execu(veSummary

DOC&HOCSTRUCTURE

10,000

12,000

Motorvehicle Property Persons Drug Other Weapons Violentsex

offense

517 529 479

Overhalfofconvic<onswereforpropertyormotorvehicleoffenses

2013Convic<onsbyOffenseTypeandLevel

N=39,049

10,097

2,4613,605

Misdemeanor Felony

53%ofallconvic(ons 6,643

individualsreceived

asentenceto

incarcera<onfora

motorvehicleor

propertyoffensein

Alloffenseslistedinthischartare

the“governingoffense.”Peoplemay

havehadaddi7onalchargesontheir

courtdocket,buttheoffenseshown

herewasdeemedtobethemost

seriousinthesentencingevent.

Thestatespentupto$15milliononincarcera<onfor

misdemeanormotorvehicleandpropertyoffenses

Therearedozensofcriminalmotorvehicle

offensesinMassachusePs,amajorityof

whichcanbesentencedtoincarcera<on.

PropertyCrimeStatutes

CriminalMotorVehicleStatutes

Larcenystatuteshavemanycategories,but

liPledefini<onaroundseverity.Mostlarceny

convic<onscanbesentencedtoincarcera<on.

Source:GeneralLawsChapter266,Sec<ons30-60.DistrictCourtDepartmentoftheTrialCourt&RegistryofMotorVehicles.TableofCitableMotorVehicleOffenseseffec7veOctober23,2013basedonGeneralLawsChapter90,Sec<ons1-4.CSGJus<ceCenteranalysisof2013CARIsentencingdata;MassachusePsSheriffsAssocia<onFY2013andFY2014costperInmate.

1,432 1,487

HOC Proba<on Other

MisdemeanorPropertyCrimebySentence MisdemeanorMotorVehicleCrimebySentence

N=10,097N=3,974

NearlyhalfofHOCsentencesformisdemeanormotorvehicle

offenseswereforOpera<ngwithaSuspendedLicense

MisdemeanorMotorVehicleSentencestoHOCs2013

N=1,763

215180

Opera<ng

Suspended

License(OSL)

OUI Reckless

Negligence

Leavingthe

OSLajerOUI Insurance

Viola<on

Other*

47%ofmisdemeanormotor

vehiclesentencesto

incarcera<onarefor

drivingwithasuspended

license

MassachusePscould

bespendingasmuchas

$8millionayearincarcera<ng

misdemeanormotorvehicle

offenders

Theabovefigureisacostes7mate.A

morethoroughfiscalimpactanalysiswillbeconductedlaterintheprojectto

es7matecostsandpoten7alsavingsof

specificprac7cesandpolicies,andmay

Source:CSGCenteranalysisof2013CARIsentencingdataaswellasMassachusePsSheriffsAssocia<onFY2013andFY2014costperInmateinforma<on.Thecalcula<onrepresentsanaveragecostacrosscountyfacili<es.Someofthecostperinmateinforma<onincludesbothcountyjailandHOCcosts.*OtherincludesHabitualTrafficOffenderandMVHomicide.

AverageSentenceLength

1.5MONTHS

2.6MONTHS

4.3MONTHS

5.1MONTHS

3.6MONTHS

0.8MONTHS

3.5MONTHS

PeopleinMassachuse2smayhavetheirdriver’slicensesuspendedor

revokedforanumberofreasons:

Opera<ngundertheinfluence

Recklessdriving

Convic<onofcertaindrugoffenses

Delinquencyinpayingchildsupport

Existenceofanoutstandingwarrant

Viola<onofseriousvehiclelaw

Habitualoffenderconvic<on

9.3PRIORS

3.5PRIORS

6.1PRIORS

7.3PRIORS

7.5PRIORS

5.6PRIORS

7.8PRIORS

AverageNumberofPriorConv

Morethan1,200peopleweresentencedtoHOC

forlarcenyoffenses,atacostofupto$13million

LESSTHAN$250MISDEMEANORLARCENY

Punishablebyafine/proba<onoruptoa

yearinanHOC

MORETHAN$250FELONYLARCENY

Punishablebyafine/proba<on,uptotwo

yearsinanHOC,orfiveyearsinstateprison

1,000984

2013LarcenySentencestoHOC

Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.MassachusePsSheriffsAssocia<onFY2013andFY2014costper

inmate.Thecalcula<onrepresentsanaveragecostacrosscountyfacili<es.Someofthecostperinmateinforma<onincludesbothcountyjailandHOCcosts.

felonylarceny:

sentencelength:

105days

offelonylarcenyoffendersinHOC:

$11.5M

misdemeanorlarceny:

sentencelength:

55days

ofmisdemeanorlarcenyoffendersin

HOC:$1.7M

TotalPoten(alCost:$13.2M

Theabovefiguresarecostes7mates.Amore

thoroughfiscalimpactanalysiswillbeconductedlaterintheprojecttoes7matecostsandpoten7al

savingsofspecificprac7cesandpolicies,andmay

Thestatutorydefini(onoflarcenyonlystaircasestwolevelsofthel:

LESSTHAN$250andMORETHAN$250

Thefelonylarcenythresholdhasnotbeenadjustedtokeep

upwithinfla<on

Changesinfelonylarceny*thresholdshavenotresultedinhigherpropertycrimeorthejrates.Otherstatesrefertolarcenyasthej.Source:MassachusePsGeneralLawsChapter266,Sec<on30.CSGJus<ceCenterlegalanalysisofstates’felonylarcenythresholds.

FelonyThej/Larceny$500orLess FelonyThej/Larceny$650orMore

FelonyThej/Larceny*ThresholdsbyState2015

Massachuse2sisoneof14stateswithafelonylarcenythreshold

of$500orless

ValueofMassachusePs’sHistoricalFelonyLarcenyThresholdin

2014Dollars,1977–2014

$1,000

$1,200

$977IN2014DOLLARSISEQUIVALENTTO$250IN1977DOLLARS

16% 15%

16%11%

11%14%

Convic<ons Property MotorVehicle

22% 22%23%

18-24 25-34 35-44 45andolder

Convic<ons Property MotorVehicle

2013Property,MotorVehicle,andTotalConvic<onsbyAge

Demographiccomposi<onofmotorvehicleandproperty

convic<onscomparedtototalconvic<ons

Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata;U.S.Census2010-2014AmericanCommunitySurvey5-YearEs<mates.

2013Property,MotorVehicle,andTotalConvic<onsbyRace

Female

83% 17%

2013Convic<onsbyGender

Female

75%25%

2013PropertyConvic<onsbyGender

Female

84% 16%

2013MotorVehicleConvic<onsbyGender

Addi<onalanalysisonkeysentencingstatutes

Whatarethemostcommonlyusedcriminalstatutes?

HowdoMassachusePs’spropertyoffensethresholds

comparena<onally?

Whatarethecostsforincarcera<ngpeopleconvictedof

low-levelpropertyoffenses?

Whatarethestatutoryrequirementsforimposing

res<tu<onaspartofsentencingandhowdothese

comparetootherstates?

Whatopportuni<esexistpretrial?

Whatistheimpactofmandatorysentences?

Whatistherela<onshipbetweenpropertyoffensesand

substanceusedisorders?

ü ü ü 

Presenta<onOverview

SystemOverview

Execu(veSummary

DOC&HOCSTRUCTURE

MassachusePsisoneof21stateswithsomeformof

sentencingguidelines

Source:IncludesWashingtonDC,whichisnotmarkedonthemap.hPp://www.ncsc.org/~/media/Microsites/Files/CSI/State_Sentencing_Guidelines.ashx

In1991theMassachusePsTaskForceonJus<cefoundthat“sentencinginMassachuse;sis

haphazard,confusing,andarchaic,withahodgepodgeofop7ons.Asaresult,thereisa

substan7aldispropor7onalityinsentencesgivenforvariousoffensesandalackofuniformity

amongsentencesimposedforthesameoffense.”

DevelopmentofthesentencingguidelinesinMAreflectedseveralkeyconsidera(ons

Ø  Ensuringadequatediscre(onwhileprovidingadequateguidance

Ø  Promo(ngfairnessandreducingdisparity

StateswithSentencingGuidelines

Theguidelinesincludeagridthatsortscasesintozonesbased

onoffenseseverityandcriminalhistory

Incarcera(onZonePresump7vesentence

ofincarcera7on

(stateprisonorHOC)

Discre(onaryZonePresump7vesentence

ofincarcera7on(state

prisonorHOC)or

intermediatesanc7ons

(proba7on/fine)

INTERMEDIATESANCTIONSZONEPresump7vesentenceof

intermediatesanc7ons

(proba7on/fine)

CriminalHistory

SENTENCINGGUIDELINESGRID

12%ofsentencesin2013werenotassigned

tothesentencinggrid(OUI,Mandatoryfirearms,

Non-jailableoffenses)

A-No/MinorRecordB-ModerateRecordC-SeriousRecordD-ViolentorRepe((veRecordE-SeriousViolentRecord

SeverityLevels1and2arealmost

primarilymisdemeanors—drug,

publicorder,motorvehicle,

property

SeverityLevels3and4aremixture

offelony/misdemeanorandmostly

drug/propertybutalsosomelow-

levelassault

SeverityLevels5andhigheraremostlyviolentfeloniesorhigh-level

drugtrafficking

Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata;MassachusePsSentencingCommission,1998SentencingGuide:Massachuse;sSentencingGuidelines.

ThegridisaconsistenttoolusedbySuperiorCourtjudges,

buttheguidelinesarenotapplicabletoDistrictCourtcases

Strongestfactorsindecidingonincarcera(onandincarcera(on

lengthinclude:

“Rarely”or“Never”

98%DistrictCourt/BMCJudges

71% ofjudgesreportedtheyreceivesufficient

informa<ontofeelconfidentinmaking

sentencingdecisions

91% rarelyorneverorderapre-sentence

inves<ga<on

Offensetypeandseverity

Criminalhistory

Statutoryrequirement

Professionaljudgment

CONSULTINGTHESENTENCINGGUIDELINESINSENTENCINGDECISIONS

*DistrictCourtresponsesincludeBostonMunicipaljudges.CSGJus<ceCenterelectronicsurveyofMassachusePsjudges,March2016.45BostonMunicipalandDistrictCourtjudgesand30superiorcourtjudgespar<cipatedinthesurvey.

“Always”or“Ojen”

93%SuperiorCourtJudges

10,255

0 2,000 4,000 6,000 8,000 10,00012,000

Nogrid

Level1

Level2

Level3

Level4

Level5

Level6

Level7

Level8

Level9

0 2,000 4,000 6,000 8,000 10,00012,000

Nogrid

Level1

Level2

Level3

Level4

Level5

Level6

Level7

Level8

Level9

Amajorityofoffenses,especiallythoseprocessedinDistrictCourt,

fallintooffenselevels1through4andareinthediscre<onaryzone

“Nogrid”includesOUI,mandatorygun,andnon-jailableoffenses.Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata;MassachusePsSentencingCommission,1998SentencingGuide:Massachuse;sSentencingGuidelines.

MISDEMEANORSN=25,750

FELONIESN=13,299

No/MinorRecord(A)

ModerateRecord(B)

SeriousRecord(C)

ViolentorRepe((ve(D)

SeriousViolent(E)

9 Mandatory

Mandatory

8 StatePrison StatePrison StatePrison StatePrison StatePrison

5 Prison/HOC

Proba<on

Prison/HOC

Proba<onStatePrison StatePrison StatePrison

4 Prison/HOC

Proba<on

Prison/HOC

Proba<on

Prison/HOC

Proba<on

StatePrison

Proba<on

Prison/HOC

Proba<on

Prison/HOC

Proba<on

Prison/HOC

Proba<on

Prison/HOC

Proba<on

2 Proba<on

Proba<on

1 Proba<on

Proba<on

Notassigned OUI,mandatorygun,andnon-jailableoffenses

Offense

Severity

Criminal

History

Ofsentencesthatareassignedtothegrid,86%aresentencedwithintheproposedguidelinesranges,

58%wereinthe“discre<onaryzone”

Sentencingoutcomescanvaryforindividualswiththesame

offenseandsimilarcriminalhistory

EXAMPLEOFFENSE1:

LarcenyLessThan$250CriminalHistory:Minor—Moderate

OffenseSeverityLevel:2

EXAMPLEOFFENSE3:

DrugPossessionClassBCriminalHistory:Minor—Moderate

Proba<on

Theoffensesincludedinthisanalysisrepresent

thechargeatsentencingandmay,insome

cases,bedifferentfromtheoriginalcharge.

CSGJus<ceCenteranalysisof2013CARIsentencingdata.

EXAMPLEOFFENSE2:

Opera(ngLicenseSuspended(Subsequent)CriminalHistory:Minor—Moderate

Proba<on

2013Sentences

15.614.0

22.6 22.9

SuperiorCourtsentencesareconsistentlylongerthanDistrict

Courtsentencesforsimilaroffenses

N=1,077

N=3,290

OFFENSESEVERITY

months

*MandatorysentencesareexcludedCSGJus<ceCenteranalysisof2013CARIsentencingdata.

Arraignmentin

DistrictCourt/BMC

Sentencedin

DistrictCourt/BMC

Indicted&Sentencedin

SuperiorCourt

Level3

District/BMC

Level4

District/BMC

Level5

District/BMCLevel3

Superior

Level4

Superior

Level5

Superior

Thedecisiontoindictandbringa

casetoSuperiorCourtisinformed

byvariousfactorsthatmaynotbe

fullycapturedbyoffenseseverity

level.Furthermore,offense

severitylevelissomewhatbroad

inthevaryingdegreesofoffense

severitywithinagivenlevel.

CasesthatmovethroughSuperiorCourtreceive

longersentences

longer

Addi<onalanalysisonsentencingguidelines

Howdojudgesusethesentencingguidelinesandother

informa<oninmakingsentencingdecisions?

Howmanycasesapplytothesentencinggridandwhere

dotheytypicallyfall?

Whatarethesentencingoutcomesforthesameoffense

withsimilarcriminalhistory?

Shouldprocessesbeimprovedtocreatemoreconsistency

andstandardiza<oninsentencing?

Whatarerela<vecostsandrecidivismoutcomesforsimilar

individualsreceivingdifferenttypesofsentences?

ü ü ü 

Presenta<onOverview

SystemOverview

Execu(veSummary

DOC&HOCSTRUCTURE

DOCandcountyfacili<es*managesimilarlysizedpopula<ons

andreceivesimilarlevelsofstatefunding

*Countyfacili<esincludebothjailsandHOCs.

Thereare17prisonfacili(esand14jail/HOCfacili(esinMassachuse2s

Ø  Correc<onssystemfundingwas

consolidatedin2010via

appropria<onsbillsSenate,No.

2121andHouse,No.4181

Ø  Asaresultoftheconsolida<on,all14independentlyelected

sheriffsinthestatereceiveall

fundingthroughthestate

generalappropria<onsact

Ø  Thefinancialshijwasmeantto

createmorefinancialstabilityfor

sheriffsandreducetotalcosts

StatePrison CountyJail/HOC

Year-EndPopula(on(2013)

10,099(11%ofsystem)

11,125(12%ofsystem)

FY14Budget

$583m(45%ofsystem)

$553m(42%ofsystem)

Source:MassachusePsExecu<veOfficeforAdministra<onandFinance,StateBudgetSummary,2015

AnumberofoffensescanbesentencedtoeitherHOCor

stateprison

HouseofCorrec(on1day–2.5years Therearemorethan

480offensesdefinedinstatutethatcanresultinasentencetoeitherHOCorstateprison

Source:MassachusePsGeneralLawsChapter126,Sec<ons4,8and23andChapter279Sec<on24.

HouseofCorrec(on1day–2.5years

Stateprison1+year

1year–2.5years

DISTRICTCOURT/BMCDistrictCourtjudgeshavethe

op<ontosentencetoHOCup

to30months

SUPERIORCOURTSuperiorCourtjudgeshavethe

op<ontosentencetoHOCfor

upto30monthsortostate

prisonforuptoanylength

allowedbystatute

Three-quartersofsentencestoHOCareforlessthanoneyear

Misdemeanor

sentences

Felony

sentences

Lessthan1Year

1–2½Years

Weapons

DrugPoss

Property

MotorVehicle

Persons

Thestatespendsupto$48million*eachyearincarcera<ngmisdemeanoroffendersforshortsentences

WhataretherecidivismratesforthoseleavingHOCalerservingashortsentence?

NearlyhalfofMV

offenseswere

Drivingwith

SuspendedLicense

SentencestoHOCbyOffense,2013

N=13,636

MisdemeanorSentencesLessthan1Year,2013

N=6,401

*Theabovefigureisacostes<mate.Amorethoroughfiscalimpactanalysiswillbeconductedlaterintheprojecttoes<matecostsandpoten<alsavingsofspecificprac<cesandpolicies,andmaydifferfromwhatisshownhere.

Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata;MassachusePsSheriffsAssocia<onFY2013andFY2014costperInmate.Thecalcula<onrepresentsanaveragecostacross

countyfacili<es.Someofthecostperinmateinforma<onincludesbothcountyjailandHOCcosts.

StateprisonandHOCsentencesaresimilarlydistributedacrossoffenses,

butstateprisonsentencesareformoreseverecrimesthanHOCsentences

0 100 200 300 400 500

155220

1,0551,000

Felony

HOCFelony

HOCMisdemeanor

Violent/Sex

Persons

Weapons

Property

SentencestoHOCandStatePrisonbyOffense,2013SentencestoStatePrisonbyOffenseSeverityLevel,2013

0 2,000 4,000 6,000

SentencestoHOCbyOffenseSeverityLevel,2013

Severity

21%18%

18-24 25-34 35-44 45orolder

Demographiccomposi<onofsentencestoHOCand

stateprison

18%16%

26%27%

DOC 88%

2013SentencestoHOCandStatePrisonbyRace

2013SentencestoHOCandStatePrisonbyAge

2013SentencestoHOCandStatePrisonbyGender

Female96%

Female

DOCHOC

2013SentencestoStatePrison

One-thirdofsentencestostateprisonrequiremandatory

incarcera<onforamotorvehicle,drug,weapons,orpersonoffense

Other MV Drug Property Weapons Persons Violent

offense

Mandatory

Nomandatory

N=1,854

67%mandatory

100%mandatory

96%mandatory

10%mandatory

*Mandatorypersonsoffensessentencedtoprisonwerelifesentences

Possession

Distribu<on

Trafficking N=174

Possession

Distribu<on

Trafficking

2013SentencestoStatePrisonforDrugOffenses

2013SentencestoHOCforDrugOffenses

156 16226

HOCNon-Mandatory

HOCMandatory

MandatorysentencestoHOCandDOCbyrace

2013Non-MandatoryandMandatorySentencestoHOCbyRace

Non-MandatoryN=12,581,MandatoryN=1,055

279 287

209 205

DOCNon-Mandatory

DOCMandatory

2013Non-MandatoryandMandatorySentencestoDOCbyRace

Non-MandatoryN=1,251,MandatoryN=603

8%ofsentencestoHOCare

mandatories

33%ofsentencestoDOCare

mandatories

Nearlythree-quartersofallsentenceswereimposedon

peoplewithatleastsomecriminalhistory

StatePrison

AllSentences

NumberofPriorConvic<onsbySentenceType,2013

Whatisthecostofthesereturnstoincarcera(on?

Whatimpactcouldrecidivismreduc(onstrategieshaveonHOCandstateprisonpopula(ons?

Source:CSGJus<ceCenteranalysisof2013CARIandiCORIdata.Criminalhistoriesarecalculatedusingthenumberofincidentsandincludesadultcriminalhistoryonly.

ArevolvingdoorexistswithHOCsentencesandDOC

ofindividualssentencedtoDOCin2013hadaprior

HOCsentenceswithinthelastthreeyearsof

sentencingdata(sinceFY2010)

Sentencedto

ofpeoplesentencedtoHOCin2013hadaprior

HOCsentencewithinthelastthreeyearsof

sentencingdata(sinceFY2010)43%

ofpeoplesentencedtoDOCin2013hadaprior

HOCsentencewithinthelastthreeyearsof

sentencingdata(sinceFY2010)31%

RELEASESFROMHOC

Addi<onalanalysisonHOCsandstateprison

WhattypesofoffensesaredrivingHOCandstateprison

sentences?

Whatistheoffenseseverityandcriminalhistoryforpeople

sentencedtoHOCandstateprison?

WhatisthelengthofsentencestoHOC?

WhoisinHOCandstateprisonforasupervisionviola<on

versusanewcrime?

Whatistheriskandneedsassessmentinforma<onforthis

popula<onandhowisitusedindeterminingtreatment

andprogramming?

Whatarethepropor<onofpeoplewithinHOCandstate

prisonthatareparoleeligibleandhowdoesgood<me

impacttheirsentence?

ü ü ü 

Presenta<onOverview

SystemOverview

Execu(veSummary

DOC&HOCSTRUCTURE

Sentencingop<onsresultinrestric<ngandrequiringpost-

releasesupervision

Sentencingpolicyandprac(cethatsetslimita(onsonPAROLE

Sentencingpolicyandprac(cethatallowopportuni(esforPROBATION

MIN/MAXRATIO

Ø  Reducingtherangebetweentheminandmax

resultsinashorterwindowofparoleeligibility.

Ø  “Andaday”sentencesareacommonprac<ce

ofsexngthemaxwithinonedayofthemin.

MANDATORYMINIMUMS

Ø  Restric<onsonpar<cipa<oninpre-release

programspriortominimumterm.

HOCPAROLE

Ø  HOCsentencesshorterthan60daysarenot

paroleeligible.

FROM&AFTERPROBATION

Ø  Asentencetoproba<onfollowingasentence

toincarcera<on.

Ø  Musthavemul<plechargesatsentencing.

Ø  AllowableforbothHOCandstateprison

sentences.

SPLITSENTENCES

Ø  Asuspendedsentenceofproba<onfollowinga

sentencetoHOC.

Ø  Applicableonasinglecharge.

Ø  AllowableforHOC,butnotforstateprison

sentences.

Opportuni<esforproba<onreferstopost-releasesupervisiononly.Source:CSGJus<ceCenterreviewofMassachusePsGeneralLaws.

Theflexibilityofsentencingop<onshasanimpactonthe

consistencyofpost-releasesupervisionop<ons

HOCSENTENCINGOPTIONS

OPTIONS POST-RELEASEIMPACT

Splitsentence

60+daysentence/

splitorF&A

<60daysentence Noparole

Proba<on

Proba<on&

paroleeligible

DOCSENTENCINGOPTIONS

(availableonlytosuperiorcourtjudges)

From&ajer

sentence

“Andaday”sentence

Proba<on&

paroleeligible

Noparole

OPTIONS POST-RELEASEIMPACT

Fromandajer

Andaday

Mandatory

1,854totalstate

prison

sentences

Splitsentence

Mandatory

Fromandajer

13,636totalHOC

sentences

Source:CSGJus<ceCenteranalysisofCARIsentencingdata.

Whilemandatorysentences

donotprecludeparole,some

policiesresultinrestric<onof

par<cipa<oninpre-release

programsun<lthemandatory

minimumtermhasbeen

completed,whichmayhave

animpactonparole.

Ascriminalhistoryscoreincreases,thelikelihoodofreceiving

apost-releaseproba<onsentencedecreases

51%48% 49%

42%40%

No/MinorRecord ModerateRecord SeriousRecord ViolentorRepe<<veRecord

StatePrison HOC

CriminalHistorySource:CSGJus<ceCenteranalysisof2013CARIsentencingdata.

PercentofSentencestoIncarcera<onwithPost-ReleaseProba<onbyCriminalHistoryScore,2013

Howaredecisionsaboutpost-releasesupervisionmade?

Aretheindividuals

mostlikelytobenefitfrompost-

releasesupervisiontheonesreceivingit?

31% 39% 32% 37%

Stateprisonsentenceswithan

“andaday”sentenceoutofthose

withnopost-releaseproba<on.

Peoplewithmorethanthreeprioroffensesweremorelikelyto

receivestraightHOCsentenceswithnopost-releaseproba<on*

StraightHOC

HOCSplit

HOCFrom&Ajer

NumberofPriorOffensesfor2013SentencesbySentenceType

*StraightHOCsentencesover60daysareparoleeligibleiftheindividualdoesnotwaivetheirparolehearingSource:CSGJus<ceCenteranalysisof2013CARIsentencingdata.

N=1,033

N=3,507

N=9,096

Post-ReleaseProba(on

70%ofstraight

HOCsentences

have3ormore

prioroffenses

60%ofstraightHOCsentenceswillbeeligibleforparoleduetosentencelengthandthereforemay

bereviewedbytheparoleboardtodeterminereleasetopost-releasesupervision.

Drugandpropertyoffensesweretheleastlikelytoreceivea

sentenceofpost-releaseproba<on

51%48%

36%38%

HOC-Felony HOC-Misdemeanor

PercentofSentenceswithPost-releaseProba<onbyOffenseType,2013

Violentsex

offense

Persons

N=3,579

Weapon

Property

N=4,166

N=1,891

MotorVehicle

N=2,228

N=1,155

19% 35% 22% 13% 21% 48% 12% 47% 3% 76% 28% 73%

Percentofcases

noteligiblefor

paroledueto

sentencelength

outofthosenot

receiving

proba<on

Nearly20%ofstateprisonsentencesrestrictparoleandhave

noguaranteedpost-releaseproba<on

NoAndaDayorFrom&Ajer

From&Ajer+AndaDay

From&Ajer

AndaDay

Mandatory

Sentences

Non-Mandatory

Sentences

N=1,251

TotalStatePrison

Sentences

N=1,854

39% 18% 15% 28%

31% 20% 36% 14%

33% 19% 29% 19%

698total“andaday”sentences

2013StatePrisonSentences

AndaDayAsentencewiththeminimumand

maximumsentenceonedayapart

From&Aler

From&Aler+AndaDay

aswellasminandmaxonedayapart

NoAndaDayorFrom&AlerNosentenceofpost-release

proba<onandtheperiodbetween

minandmaxlongerthanoneday42%haveasentencerangeofoneyearorless

20to50percentofstateprisonsentenceswillbereviewedbytheparoleboardtodetermine

eligibilityandreleasetopost-releasesupervision.

Drugoffenseswerethemostlikelytohavean“AndaDay”

sentencewithoutpost-releaseproba<on

17% 16%

Total Violentsex

offense

Persons Weapons Property DrugN=1,776 N=155N=782 N=220 N=482

LifeSentencesareExcluded

Ofthe195drug

sentenceswithan“and

aday”sentencewithout

post-releaseproba<on,

morethantwo-thirds

weremandatory

sentences.

StatePrison“AndaDay”SentencesasaPercentofTotal,2013

Confidenceinproba<onisevenlydistributedbetween

DistrictandSuperiorCourt,butvariedforparole

*DistrictCourtresponsesincludeBostonMunicipaljudges.CSGJus<ceCenterelectronicsurveyofMassachusePsjudges,March2016.45BostonMunicipalandDistrictCourtjudgesand30superiorcourtjudgespar<cipatedinthesurvey.

DistrictCourt*

SuperiorCourt

JudicialConfidenceinProba<on

Howconfidentareyouthatproba(on

iseffec(veinprotec(ng

communitysafety?

DistrictCourt*

SuperiorCourt

JudicialConfidenceinParole

Howconfidentareyouthatparoleis

effec(veinprotec(ng

communitysafety?

VeryConfident SomewhatConfident NotVeryConfident

Idonothaveadequateinforma<ontoanswerthisques<on

VeryConfident SomewhatConfident NotVeryConfident

Addi<onalanalysisonpost-releasesupervision

Whoislikelytoreceivepost-releasesupervision?

Whatkindofoffenses/offendersojendonotreceivepost-

releasesupervision?

Whoisbeingreleasedwithoutpost-releasesupervisionat

bothHOCandstateprisonfacili<es?

Whatotherobstaclestoreleaseonparoleexistbeyond

sentencing?

HowdoessentencingimpactHOCandstateprison

classifica<onandaccesstoprogramming,treatment,and

reentryplanning?

Whataretherecidivismratesforpeoplewhodoreceive

post-releasesupervision?Forthosewhodonot?

ü ü 

Presenta<onOverview

SystemOverview

Execu(veSummary

KEYFINDING:Peoplewithpreviousjus<cesysteminvolvementare

responsibleforthree-quartersofnewconvic<ons

Recidivismdrivesmostnewconvic<onac<vity:74percentofpeoplesentencedhadapriorconvic<onand66percenthadahistoryofatleastoneCon<nuanceWithoutaFinding(CWOF).

Morethan40percentofpeoplesentencedtoanHOChadapriorHOCsentencewithinthepreviousthreeyears.

Peopleconvictedofpropertyoffenseshadthehighestnumberofprior

offenses.

KEYFINDING:Motorvehicleandpropertyoffensesaccount

foralargevolumeofshortsentencestoHOC

NearlyhalfofallsentencestoHOC(6,394convic<ons)wereformotor

vehicleandpropertyoffenses.

54percentofmotorvehicleandpropertyHOCconvic<ons(3,464

convic<ons)werefor6monthsorless.Peoplereceivedanaveragesentenceof7.3monthsforpropertyand4.4monthsformotorvehicle

offenses.

39percentofallmisdemeanorsentencestoHOCwereformotorvehicle

andpropertyoffenses,including271convic<onsforLarcenyunder$250.819motorvehiclesentencestoHOCwereforOpera(ngwithaSuspendedLicense.

Thestatespentupto$15million*onincarcera<onformisdemeanor

motorvehicleandpropertyoffenses.

KEYFINDING:Sentencingprac<cesimpactwhetherpeople

Nearlyhalfofsentencestostateprisonincludedasentenceofpost-releaseproba<on.

19percentofstateprisonsentencespreventanypost-releasesupervision,solelybasedonthesentence;drugsentencesweremost

likelytorestrictpost-releasesupervision.

Thelikelihoodofreceivingapost-releaseproba<onsentencedecreased

ascriminalhistoryscoreincreased.

Two-thirdsofHOCsentenceswerestraightsentencesthatdidnotincludepost-releaseproba<on,and40percentofpeoplewhoreceivedstraightsentenceswillnotbeeligibleforparoleduetosentencelength.

Jus<cereinvestment<meline

WorkingGroup(WG)

Mee(ng1

ImpactAnalysis

DataAnalysis

Ini<al

AnalysisDetailedDataAnalysis

Mee<ng

2BillIntroduc(on

FinalReportReleased

PolicymakerandStakeholderEngagement

StakeholderEngagementandPolicymakerBriefings PolicyOp<onDevelopmentOngoing

engagement

Mee<ng5:

Ini<alPolicy

Discussion

Jan Feb Mar Apr May Jun Jul Aug Oct–Dec 2017Session

Mee<ng

Steeringcommi;eetomeet1–2weeksinadvanceofeachworkinggroupmee7ng

Mee<ng

WGMee<ng

FinalPolicy

Op<ons

Discussion

ThankYouCassondraWarney,PolicyAnalystcwarney@csg.org

ThismaterialwaspreparedfortheStateofMassachusePs.Thepresenta<onwas

developedbymembersoftheCouncilofStateGovernmentsJus<ceCenterstaff.

Becausepresenta<onsarenotsubjecttothesamerigorousreviewprocessas

otherprintedmaterials,thestatementsmadereflecttheviewsoftheauthors,and

shouldnotbeconsideredtheofficialposi<onoftheJus<ceCenter,themembers

oftheCouncilofStateGovernments,orthefundingagencysuppor<ngthework.

C SG J U S T I C E C EN T E R . O RG / SUB S C R I B E

CSG Jus(ce Center—Massachuse2s Criminal Jus(ce Review · CSG Jus(ce Center—Massachuse2s...

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