Justice Reinvestment Coordinating...

JusticeReinvestmentCoordinatingCouncil

FinalReport

December2015

JusticeReinvestmentCoordinatingCouncilFinalReport,December2015

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Acknowledgements

Maryland’sJusticeReinvestmentCoordinatingCouncilwouldliketothankthefollowingagencies,associations,andindividualsfortheirassistancethroughouttheCouncil’swork:AdministrativeOfficeoftheCourtsPamHarris,StateCourtAdministratorGrayBarton,Director,OfficeofProblemSolvingCourtsDepartmentofHealthandMentalHygieneMarianV.Bland,AssistantDirector,OfficeofAdults&SpecializedBehavioralHealthServicesDarrenJ.McGregor,Chief,SpecialPopulationsDr.ErikRoskes,ActingDirectorandClinicalDirector,OfficeofForensicServicesDepartmentofPublicSafetyandCorrectionalServicesWayneWebb,ActingDeputySecretaryofOperationsPatriciaGoins-Johnson,ActingCommissioner,DivisionofCorrectionJudithHemler,ExecutiveDeputyDirector,CommitmentCynthiaHolley,AssistantDirectorofCaseManagementThomasP.Martin,Director,ReentryandTransitionServicesBrendaShell,Commissioner,DivisionofPretrialDetentionandServicesJosephF.Clocker,ActingDirector,DivisionofParoleandProbationMarthaL.Danner,DeputyDirector,DivisionofParoleandProbationJudithSachwald,BestPracticesAdvisortotheSecretaryDavidDawkins,SouthernRegionAdministrator,DivisionofParoleandProbationDaleMaselli,NorthernRegionAdministrator,DivisionofParoleandProbationWalterNolley,CentralRegionAdministrator,DivisionofParoleandProbationMarcyPlimack,SpecialAssistanttotheDirector,DivisionofParoleandProbationDavidBlumberg,Chairman,ParoleCommissionRuthOgle,Administrator,ParoleCommissionTanyaSmith,ProgramManager,ParoleCommissionChristinaLentz,ExecutiveDirector,OfficeofGrants,Policy,andStatisticsJayMiller,ActingDirector,ResearchandStatisticsGovernor’sOfficeAdamDubitsky,DirectorofPolicyStevenJ.DeBoy,Sr.,DeputyLegislativeOfficeGovernor’sOfficeofCrimeControlandPreventionChristopherShank,ExecutiveDirectorDonaldHogan,DirectorofLegislationCaraSullivan,PolicyandPlanningChiefRachelKesselman,DirectorofSpecialProjectsJeffreyZuback,ResearchChiefMadisonGetty,PolicyAnalyst

JudiciaryJohnP.Morrissey,ChiefJudge,DistrictCourtofMarylandDanielM.Long,AdministrativeJudge,SomersetCountyCircuitCourt,1stJudicialCircuitGeorgeM.Lipman,AssociateJudge,DistrictCourtofMaryland,District1W.MichelPierson,AdministrativeJudge,BaltimoreCityCircuitCourt,8thJudicialCircuitGeraldV.Purnell,AdministrativeJudge,DistrictCourtofMaryland,District2KelleyE.O'Connor,Asst.Administrator,GovernmentRelationsSuzannePelz,DeputyDirector,GovernmentRelationsDrewSnyder,GovernmentRelationsRepresentativeLt.Governor’sOfficeBoydK.Rutherford,Lt.GovernorRichardA.Tabuteau,SeniorAdvisortoLt.Gov.MarylandAssociationofCountiesNatashaMehu,PolicyAnalystJimMoran,QueenAnne'sCountyCommissionerMarylandCrimeVictims’ResourceCenterRussellButler,ExecutiveDirectorMarylandCorrectionalAdministratorsAssociationDanLasher,PresidentTerryKokolis,Superintendent,AnneArundelCountyMarylandOfficeofthePublicDefenderBeckyFeldman,ChiefAttorney,CollateralReviewDivisionMarylandSheriff'sAssociationTheExecutiveBoardoftheSheriff’sAssociationMarylandStateCommissiononCriminalSentencingPolicyDr.DavidA.Soule,ExecutiveDirectorDr.StacySkrobanNajaka,ResearchDirectorPewCharitableTrustsandCrimeandJusticeInstituteLauraBennettLenEngelCaseyPheifferFelicityRoseNicoleRoussellLeahSamuelZoëTownsConnieUtadaColbyWard

ExecutiveSummaryOverthelastdecade,Marylandhasachievedlargedeclinesinbothitsviolentandpropertycrimerates,butonlymodestreductionsinthestateprisonpopulation.Marylandstillincarceratesmorethan20,000offenders,costingMarylandtaxpayers$1.3billionincorrectionsspendinginFY2014.Meanwhile,criticalrecidivismreductioninvestmentslikespecialtycourts,drugtreatment,andreentryprogramshavegoneunderfunded.

SeekingtomaximizethepublicsafetyreturnsonMaryland’scorrectionsspending,the2015GeneralAssemblypassed,andGovernorHogansignedintolaw,SenateBill602establishingthebipartisan,inter-branchJusticeReinvestmentCoordinatingCouncil(Council)taskedwith“develop[ing]astatewideframeworkofsentencingandcorrectionspoliciestofurtherreducethestate’sincarceratedpopulation,reducespendingoncorrections,andreinvestinstrategiestoincreasepublicsafetyandreducerecidivism….”

BeginninginJune2015andextendingthroughtheendofthecalendaryear,thefullCouncilmetsixtimesandthethreesubcommitteesoftheCouncilmetanadditionalfourtimeseachtoanalyzethestate’scriminaljusticedata,reviewresearchonsentencingandcorrectionspractices,anddeveloppolicyrecommendationsforsubmissiontostateleaders.

TheCouncilfoundthatwhilethenumberofoffendersadmittedtoprisonisdown19percentoverthelastdecadeinMaryland,morethanhalf(58percent)ofprisonadmissionshadunderlyingnonviolentoffenses,includingoffenderssentenceddirectlyfromcourtandthosesenttoprisonfromcommunitysupervision.Almost60percentofallprisonadmissionsrepresentfailuresofprobation,parole,ormandatoryreleasesupervision.Manyofthesefailuresareduetotechnicalviolationsoftheconditionsofsupervision,likemissinganappointmentorfailingadrugtest,ratherthanforanewcriminalconviction.Researchdemonstratesthatformanyoffenders,includingdrugoffenders,supervisionviolators,andfirst-timeoffenders,incarcerationcanincreaserecidivismwhencomparedwithnoncustodialsanctions.1

Thereisalsoagrowingconsensusincriminologicalresearchthataddingmonthsandyearsontoprisonstayshaslittleornoimpactonrecidivism.2TheCouncilnotedthatdespitethisresearch,offendersinMarylandarespending23percentlongerbehindbars—sevenadditionalmonthsonaverage—thantheywereadecadeago.Thisincreaseintimeservedislargelyduetolongersentenceshandeddownfromthecourts(up25percent).Additionally,parolereleaseratesremainlow:just37percentofoffendersinMarylandareparoledandthoseoffenderswhoaregrantedparolearereleased,onaverage,ninemonthsaftertheireligibilitydate.

Finally,theCouncilfoundthatsupervisionresourcesarenotsufficientlyfocusedontheoffenderswhoaremostlikelytoreturntocrime.Seventypercentoftheoffendersonprobationand65percentoftheoffendersonparoleandmandatorysupervisionareclassifiedasmoderateorlowrisktoreoffend.Low-riskoffenders,thosemostlikelytostabilizeandremainlaw-abiding,serveconsiderablylongeronparoleandmandatorysupervisionthanhigh-riskoffenderspriortoasuccessfuldischarge.

Basedonthisanalysisofstatedata,theCouncildevelopedacomprehensivesetofrecommendationstoholdoffendersaccountable,reducethestate’sprisonpopulationandcorrectionsspending,andimproverecidivismoutcomes.Ifadopted,theCouncil’sconsensusrecommendationsareprojectedtoreduceMaryland’sprisonpopulationby3,930inmatesoverthenext10years,averting$247millionincorrectionsspending.TheCouncilstronglyrecommendsthatallthesedollarsbereinvestedintoprogramsandpracticesproventoprotectpublicsafetyandreducerecidivism.


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BackgroundTheJusticeReinvestmentCoordinatingCouncil,asestablishedbySenateBill602(Chapter42),isadiverse,inter-branch,bipartisangroupofcriminaljusticestakeholdersfromacrossthestate.Inadditiontolegislators,theCouncilconsistsofrepresentativesfromthejudiciary,prosecutorialanddefensebars,localandstatecorrections,lawenforcement,andreentryservices.TheCouncilischairedbyChristopherShank,ExecutiveDirectoroftheGovernor’sOfficeofCrimeControlandPrevention.MembersoftheJusticeReinvestmentCoordinatingCouncilSamJ.Abed SecretaryoftheDepartmentofJuvenileServicesCarynYork-Aslan JobOpportunitiesTaskForceDelegateErekL.Barron(D) HouseofDelegates,District24SheriffTroyD.Berry* CharlesCountyLaMonteE.Cooke QueenAnne’sCountyDetentionCenterPaulDeWolfe OfficeofthePublicDefenderDelegateKathleenDumais(D) HouseofDelegates,District15,JudiciaryVice-ChairDavidEppler AttorneyGeneral’sOfficeRobertL.Green MontgomeryCountyDepartmentofCorrectionand

RehabilitationJudgePaulA.Hackner AnneArundelCountyCircuitCourt(Ret)SenatorMichaelHough(R) StateSenate,District4JudgeDianeO.Leasure* HowardCountyCircuitCourt(Ret)DelegateMichaelMalone(R) HouseofDelegates,District33TimMaloney AttorneyStephenT.Moyer SecretaryoftheDepartmentofPublicSafetyand

CorrectionalServicesSenatorNathanielMcFadden(D) StateSenate,District45,PresidentProTemSheriffDougMullendore WashingtonCountyJudgeJosephMurphy MarylandCourtofAppeals(Ret)SenatorDouglasPeters(D) StateSenate,District23ChristopherB.Shank ExecutiveDirector,Governor’sOfficeofCrime

ControlandPrevention,ChairmanScottShellenberger State’sAttorney,BaltimoreCountyDelegateGeraldineValentino-Smith(D) HouseofDelegates,District23ASenatorBobbyZirkin(D) StateSenate,District11,JudicialProceedingsChair*SheriffTroyBerryandJudgeDianeLeasurewereinitialmembersoftheJusticeReinvestmentCoordinatingCouncil.JudithSachwald,formerDirectoroftheDivisionofParoleandProbation,andJoeClocker,ActingDirector,DivisionofParoleandProbationservedasrepresentativesforSec.Moyer.


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SinceJune,thefullCouncilmetsixtimes,withfouradditionalmeetingsforeachofthethreesubcommittees,toanalyzethetrendsinMaryland’sprisonpopulation,studyresearchaboutwhatworkstoreducerecidivism,reviewbestpracticesandmodelsinsentencingandcorrectionsfromotherstates,andengageinin-depthdiscussionstodevelopacomprehensivepackageofreforms.Toprovidetheopportunityfordetailedanalysisanddiscussionofspecificissues,Councilmemberssplitintothreesubgroups:

• Sentencing,chairedbySenatorBobbyZirkin,ChairmanofJudicialProceedingsCommittee;• ReleaseandReentry,chairedbyDelegateKathleenDumais,Vice-ChairoftheJudiciary

Committee;and• Supervision,chairedbySenatorMichaelHough.

AschargedbySenateBill602,theCouncilsoughtinputfromawiderangeofstakeholders,holdingfourstakeholdermeetingsinCambridge,Catonsville,Annapolis,andSuitland.Atthesegatherings,theCouncilreceivedtestimonyfromindividualsrepresentingfaith-basedgroups,reentryandcommunitymediationorganizations,civilrightsadvocates,locallaborunions,andcommunitiesdisproportionatelyrepresentedinthecriminaljusticesystem,amongothers.Additionally,theCouncilhostedtworoundtablediscussions,inUpperMarlboroandMillersville,tosolicittheviewsandkeyprioritiesofcrimevictims,survivors,andvictimadvocates.TheCouncilsubgroupsalsoreceivedinputfrommembersofthejudiciary,theParoleCommission,behavioralhealthexperts,andothercriminaljusticestakeholdersthroughouttheirpolicydevelopmentwork.TheCouncilreceivedtechnicalassistancefromthePublicSafetyPerformanceProjectofThePewCharitableTrustsanditspartner,theCrimeandJusticeInstituteatCommunityResourcesforJustice.ThisassistancewasprovidedaspartoftheJusticeReinvestmentInitiative(JRI),acollaborationbetweenPewandtheU.S.DepartmentofJustice,BureauofJusticeAssistance.JRIhasprovidedsimilarassistancetoovertwodozenstatesbyhelpingtoanalyzesentencingandcorrectionsdatainordertodevelopresearch-based,fiscallysoundpolicyoptionsthatprotectpublicsafety,holdoffendersaccountable,andcontaincorrectionscosts.JusticeReinvestmentintheNationalContextInrecentdecades,stateprisonpopulationsexpandedrapidlyacrossthecountry,andstateofficialshavespentanincreasingshareoftaxpayerdollarstokeeppacewithsoaringprisoncosts.Fromthemid-1980stothemid-2000s,spendingoncorrectionswasthesecondfastestgrowingstatebudgetcategory,behindonlyMedicaid.3In2014,onein15stategeneralfunddollarswenttocorrections.4Thenationalcrimeratehasbeenfallingsincetheearly1990s,andisnowatitslowestlevelsince1968.5However,thestrongestresearchcreditsprisongrowthwithatmostone-quartertoone-thirdofthecrimedropsincethecrimeratepeakedintheearly1990s.Othermajorfactorsincludebetterpolicing,changingdemographics,increasedprivatesecurity,andimprovedtheftpreventiontechnologies.6Inshort,theincreaseduseofincarcerationhadanimportantbutminorityroleinimprovedpublicsafety.ConsiderFloridaandNewYork:overthepast20years,bothstatesexperiencedmassiveandidenticalcrimeratereductionsof54percent.NewYorkachievedthatreductionwhilereducingitsimprisonmentrateby24percent,whileFloridaexpandeditsuseofprisonby31percent—costing


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taxpayershundredsofmillionsofdollarsayear.7NewYorkisnotalone.Inthelastfiveyears,32states,includingMaryland,reducedboththeirimprisonmentandcrimerates.8

Stateexperienceslikethese,alongsidedramaticreformsinlaw-and-orderstateslikeTexasandsupportivepublicopinion,9havecombinedwithstatebudgetpressurestocreateagrowingnationalconversationthatputsprisonspendingundergreaterscrutinythaneverbefore.Forthebetterpartofthepastfourdecades,themostcommonquestionthatpolicymakershaveaskedabouttheirstatecorrectionsbudgetswas,“Howmanymoreprisonsdoweneed?”Today,stateleadersfrombothpartiesareaskingamuchtougherquestion:“Howdowegettaxpayersabetterpublicsafetyreturnontheircorrectionsdollars?”Manystateshaveadoptedpoliciestoreininthesizeandcostoftheircorrectionssystemsthrougha“justicereinvestment”strategy.Georgia,Kentucky,Mississippi,NorthCarolina,Oregon,Pennsylvania,Texas,Utah,andmanyothershaveimplementedreformstoprotectpublicsafetyandcontrolcorrectionscosts.Thesestatesrevisedtheirsentencingandcorrectionspoliciestofocusstateprisonbedsonviolentandcareeroffendersandthenreinvestedaportionofthesavingsfromavertedprisongrowthintomorecost-effectivestrategiestoreducerecidivism.In2011,policymakersinGeorgiafacedaprojectedeight-percentincreaseintheprisonpopulationoverthenextfiveyearsatacostof$264million.Ratherthanspendmoretaxpayerdollarsonprisons,Georgialeaderslookedformorecost-effectivesolutions.Thestatelegislatureunanimouslypassedasetofreformsthatcontrolledprisongrowththroughchangestodrugandpropertyoffensestatutes,andimprovedpublicsafetybyinvestinginlocalcommunitysupervision,sanctions,andservices.10Between2012and2014(themostrecentyearwithrecordablecrimedata),thestatecrimeratehasfallenthreepercentandthesentencedprisonpopulationhasdeclinedthreepercent,givingtaxpayersbetterpublicsafetyatalowercost.11Intheseandotherstates,workinggroupsstudiedtheevidenceandresearchaboutwhatworkstoimprovepublicsafetyandintegratedtheperspectivesofthethreebranchesofgovernmentandkeysystemstakeholders.Thisdata-driven,inclusiveprocessresultedinwide-ranging,evidence-basedinnovationstothelawsandpoliciesthatgovernwhogoestoprison,howlongtheystay,andwhethertheyreturn.Basedonthesolidbodyofresearchoncrimeandincarceration,discussedingreaterdetailbelow,manystateshaveimplementedavarietyofreformstoreduceprisonadmissionsandlengthofstay,withthegoalofcontrollingcorrectionsspendingandreducingrecidivism.Thesereformsinclude:


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• Reductionofsentencelengths(includingAlabama,Arkansas,Georgia,Kentucky,Mississippi,NorthCarolina,Ohio,Oregon,SouthCarolina,SouthDakota,andUtah);

• Reclassificationofoffensetypes(includingAlabama,California,Colorado,Delaware,Kentucky,Montana,SouthCarolina,andWashington);

• Expansionofprisonalternativesforlower-leveloffenders(includingGeorgia,Mississippi,Oregon,andUtah);

• Revisionofmandatoryminimumlaws(includingMichigan,NewYork,andOregon);• Expansionofearnedtimeopportunitiesforinmates(includingColorado,Kansas,

Pennsylvania,SouthCarolina,andWashington);and• Alterationofparolepolicyandpracticetocreatemorecertaintyandtoreducelengthofstay

(includingMississippi,Pennsylvania,andTexas).KeyFindingsinMaryland’sCorrectionsSystemResearchonImprisonmentAgrowingbodyofcriminologicalresearchdemonstratesthatprisontermsarenotmorelikelytoreducerecidivismthannoncustodialsanctions.12Forsomeoffenders,includingdrugoffenders,technicalviolators,andfirst-timeoffenders,studieshaveshownthatprisoncanactuallyincreasethelikelihoodofrecidivism.13Thereisalsogrowingevidencethat,formanyoffenders,addingdays,months,oryearstoprisonsentenceshasnoimpactonrecidivism.14Thesefindingshaveencouragedpolicymakersacrossthecountrytoquestionwhetherlongprisontermsarethemosteffectivewaytoimprovepublicsafety.Inparticular,analysesoverthepastfewdecadesshowthatlongprisonsentencesassociatedwithdruguseanddealingareanineffectiveandexpensiveresponsetodrugaddictionanddrug-relatedcrime.Acrossthecountry,manystateshavebeencopingwithasurgeinheroinabuseandrelateddeaths,andresearchindicatesthatimposinglengthyprisontermshaslittleimpactonrecidivism,15achievesapoorreturnongovernmentspending,16andfailstodisruptdrugmarkets.17Rather,themosteffectiveresponsetodrugaddictionanddrug-relatedcrimesincludesacombinationof:(1)targetedlawenforcementtocurtailtraffickingandlimittheemergenceofnewdrugmarkets;(2)alternativesentencingtodivertnonviolentdrugoffendersfromcostlyincarcerationtoevidence-basedsupervision;(3)treatmenttoreducedependencyandrecidivism;and(4)preventioneffortsthatcanhelpidentifyindividualsathighriskforaddiction.18Maryland’sPrisonDataOverthepastsixmonths,theCouncilconductedanextensivereviewofMaryland’ssentencingandcorrectionsdatatobetterunderstandandevaluatethestate’spublicsafetysystemandcorrectionsspendinginlightofthisbodyofresearch.Duringthatprocess,theCouncilfoundmanybrightspots,includinglargedeclinesinviolentandpropertycrimeandafive-percentdeclineintheprisonpopulationoverthelastdecade.BaltimoreCityhasexperiencedarecentincreaseinhomicides.Manylargecitieshaveseencontinueddeclinesintheirhomicideratesthisyear,butBaltimoreCityisamongthelistofthoseexperiencingatragicandtroublingspikein2015.Policeleadersareofferingawiderangeof


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possibleexplanationsthoughmanyexpertsagreethatitisstilltoosoontodiagnosethecauseswithanycertainty.19Whilethelonger-termcrimedeclineandsimultaneousdeclineintheprisonpopulationinMarylandshouldbelauded,theCouncilidentifiedseveralareasinwhichMarylandcouldmoreeffectivelyfocusitscorrectionsresourcesinordertoimprovepublicsafety.Toexaminethesetrends,theCouncilrevieweddataonthetwovariablesthatcauseprisonpopulationstoriseandfall:1)howmanyoffendersareadmittedtoprison,and2)howlongthoseoffendersremainbehindbars.Unlessotherwisestated,thedataanalysespresentedbelowwereconductedbyPewusingdatafromtheDepartmentofPublicSafetyandCorrectionalServices.iAdmissionsAlthoughadmissionstoprisondeclinedby19percentoverthelastdecade,underlyingtrendsrevealthatthisadmissionsdeclineisneitherstatewidenornecessarilyfocusedonthelowest-leveloffenders.DeclineinadmissionslargelyisdrivenbyBaltimoreCity.Overall,theadmissionsdeclinewasdrivenbya43percentdropinoffendersadmittedtoprisonfromBaltimoreCity.Admissionsfromallotherjurisdictionsacrossthestateincreasedfourpercentoverthelastdecade.InBaltimoreCity,thedeclinewasmostlydrivenbyalargedropinthenumberofdrugoffenderssentencedtoprison(down59percent)andrevokedtoprisonfromprobation(down73percent).This,inturn,wastheresultoffewerdrugarrests(down41percentfrom2003to2012)andcriminalcasesterminated(down35percentinBaltimoreCityCircuitCourt).20Asinmanystatesandcitiesacrossthecountry,thisdeclineindrugarrestsanduseofincarcerationiscorrelatedwithadeclineinbothreportedviolent(down25percent)andpropertycrime(down15percent).21Imprisonmenthasincreasedrelativetononcustodialsentencingoptions.Whilethenumberofpeopleenteringprisondeclined,thechancethatthecourtswillsentenceconvictedoffenderstoprisonincreased,accordingtodatafromtheMarylandStateCommissiononCriminalSentencingPolicy(theSentencingCommission).Overthelastdecade,datarevealedthatanincreasingpercentageofoffendersforwhomasentencingguidelinesworksheetwassubmittedreceivedanincarcerationsentence,eithertojailorprison.Thisupwardtrendinthelikelihoodofincarcerationholdstrueacrossallcriminalhistorycategories.Althoughdrugoffendersareleastlikelytoreceiveasentenceofincarceration,overtwo-thirdsofthemdo,andthree-quartersofothernonviolentoffendersreceiveasentenceofincarceration.Thistrendmayhavecontributedtothegrowthinprisonadmissionsfromotherjurisdictionsacrossthestate.Itmayalsoexplainwhy,comparedtothenationalaverage,Marylandhasalargershareofitsoffenderpopulationincarceratedthanotherstates(41percentincarceratedand59percentinthecommunity,versus30percentand70percentnationally).22

iTheseanalysesarefocusedonsentencedoffenderswithatotalincarcerationsentenceof12monthsormoretobeservedatthestateprison,andexcludesentencedoffenderswithlessthan12monthstoserve,andoffenderssentencedtoservebetween12and18monthsinlocaldetentionfacilities.


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Nonviolentoffendersmakeupalargeshareofprisonadmissionseachyear.Themajority(58percent)ofoffendersadmittedtoprisonin2014weresentencedfornonviolentcrimes.iiFiveofthetop10offensesatadmissionwerenonviolent,includingthenumberoneoffense(possessionwithintenttodistributenarcotics).Althoughtherewasanoveralldeclineinthetotalnumberofprisonadmissionsfordrugoffensesinthelastdecade,drugoffendersstillconstituteasubstantialportionoftheprisonpopulation.Admissionsforothertypesofnonviolentoffenseshavedeclinedmoreslowlyor,insomecases,evenincreasedinrecentyears.Forexample,prisonadmissionsforfelonytheft,oneofthetop10crimesatadmission,increasedeightpercentoverthelastdecade.

Top10OffensesatAdmissioninFY2014NewlySentencedPrisonersAdmittedtoPrison

Offense 2005 2014 %ChangePossessionw/IntenttoDistributeNarcotics 964 462 -52%Assault-2ndDegree 342 340 -1%RobberywithaDeadlyWeapon 248 281 13%NarcoticsDistribution 285 240 -16%Robbery 172 229 33%TheftFelony 204 221 8%Assault-1stDegree 245 214 -13%Burglary-1stDegree* NA 210 PossessionofaControlledDangerousSubstance(ExcludingMarijuana)

178 144 -19%

Murder-1stDegree 66 132 100%*Burglary-1stDegreewasnotcodedinthesamewayin2005andthereforecannotbecomparedtocurrentnumbers**Shadedoffensesarenonviolent

iiForthepurposesofthisdataanalysis,“nonviolent”offensesaredefinedasallothercrimesexcludingcrimesagainstaperson.

24% 35%

54% 63%

27% 37%

58% 69%

0%

20%

40%

60%

80%

None Minor Moderate Major

Offe

nder

s Se

nten

ced

to 1

2+ m

os

Adult Criminal History Categories

Offenders Sentenced Under Guidelines More Likely to Receive 12 Month or More Sentence, Controlling for Criminal History

2005 2014


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BecausedrugoffenderssentencedtoprisoninMarylandaredisproportionatelyblack,thedeclineindrugoffenderscommittedtoprisonledtoasmalldeclineintheshareofprisonadmissionsmadeupofblackoffenders(74percentto70percent).23ThisreducedfigureisstilldisproportionatetotheoverallpercentageofblackresidentsintheMarylandstatepopulation(30percent).24

Offendersonsupervisionmakeupalargeshareofprisonadmissionsannually.Offendersenteringprisonfromprobationandpost-releasesupervisioniiiareamajordriverofMaryland’sprisonpopulation.Nearly60percentofadmittedprisonerswereonprobationorpost-releasesupervisionpriortoenteringprison.TheCouncilalsoreviewedthetypesofviolationsthatdrivereturnstoprisonfromcommunitysupervision.Manyprobationandpost-releasesupervisionreturnstoprisonaretriggeredbyoneormoretechnicalviolationsofsupervisionconditions,suchasmissingameetingwithaparoleorprobation

agent,failingadrugtest,orbeingarrestedbutnotconvictedforanewcrime.InFY2014,nearlythree-quartersofparoleandmandatorysupervisionreturnstoprisonwerefortechnicalviolations.Thistrendwaslesspronouncedforprobationrevocations,butstillover40percentofprobationrevocationstoprisonwerefortechnicalviolationsduringthesameyear.LengthofStay Whileadmissionspresentamixedpictureofgrowthanddeclinefordifferentoffensetypes,increasedlengthofstayinprisonhasbeenaconsistentdriveroftheprisonpopulation.Overthelastdecade,theamountoftimealloffendersspendinprisonincreasedby23percent,or6.7monthsonaverage.Foroffenderssentenceddirectlyfromcourt,notincludingrevocationstoprison,timeservedinprisonincreased30percentfromadecadeago,whileprobationrevocationsspend25percentlonger.Lengthofstayremainedrelativelyflatforpost-releasesupervisionreturns.Lengthofstayisupacrossalloffensetypes.PropertyoffendersreleasedinFY2014served13percentlongerinprisonthanthosereleasedinFY2005,andpublicorderoffendersserved34percentlonger.Forsomeoffenses,timeinprisonhasincreasedbyjustafewmonths.However,evenjustafewmonthslongerinprisoncanadduptosignificantcostswhenmultipliedbythethousandsofoffendersenteringandexitingprisoneveryyear.

iiiProbationsupervisionincludessupervisionforthefollowingdispositiontypes:ProbationBeforeJudgement:Dispositionunderwhichacourtdefersimpositionofaverdictbutmayrequirecompliancewithconditionsforaspecifiedperiodoftime;andProbationAfterJudgement:Dispositionunderwhichacourtdefersimpositionofasentenceorsuspendsthesentenceandreleasesanindividualundercertainconditionsforaspecifiedperiodoftime.Post-releasesupervisionincludessupervisionforthefollowingtworeleasetypes:Parole:Discretionary,conditionalreleasefromprisongrantedbytheMarylandParoleCommission;andMandatoryRelease:Non-discretionaryreleasefromprisonrequiredbylawafteracriminaloffenderhasservedhisorhersentence,lessdiminutionofconfinementcredits.

Sentenced to prison,

42%

Mandatory supervision return, 20%

Parole return, 17%

Probation revocation,

21%

Prison Admissions by Type, FY2014


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TheCouncilexaminedMaryland’slonglengthofstayinprisonandidentifiedtwomainfactorsdrivingit:sentencelengthsandparolepractices.

Sentencelengthsareontherise.Theaveragesentencelengthfornewlysentencedprisonersincreased25percentinthelastdecade,whilerevokedprobationers’averagesentencesrose29percent.Growthinaveragesentencelengthtookplaceacrossalloffensetypes.Thisupwardtrendvariessomewhatacrossthestate,butthemajorityofMaryland’sjurisdictionsincreasedtheiraveragesentencelengthoverthelastdecade.ProbationersinMarylandreceiveasuspendedsentenceeitherinlieuofortofollowaperiodofincarceration.AccordingtodatafromtheSentencingCommission,theaveragesuspendedsentencetermhasincreasedby30percentinthelastdecade.Inmanycases,thislongsuspendedsentenceisinadditiontoanon-suspendedincarcerationsentence.Offendersreceivingbothaprisonsentenceandanadditionalsuspendedsentencehaveseenincreasesineachcategory(25percentincreasefortheprisonsentenceand58percentincreaseforthesuspendedsentence).Thesesentencingtrendsarenotinalignmentwiththeresearchshowingthatlongersentencesdonotreducerecidivism.Lessthanhalfofoffendersareparoled,andthosewhoareexperiencedelays.Whilesentencelengthshaverisenformostgroupsofoffendersoverthelastdecade,theyarenotMaryland’sonlydriveroftimeservedinprison.Releasepracticesalsoplayanimportantrole.WhiletheParoleCommissionnowreleasesalargershareofoffendersthaninthepast,only37percentofoffendersreleasedarereleasedthroughparole(upfrom30percentinFY2005).Drugoffendersaremostlikelytobeparoled,with56percentofthisgroupreleasedonparole.Lessthanhalfofallothernonviolentoffendersarereleasedonparole.Thoseoffenderswhoarereleasedonparoleserveanaverageofninemonthspasttheirinitialeligibilitydate.Thegapbetweenparoleeligibilityandreleaseisgreaterformanynonviolentparoleesthanitisforviolentparolees;offendersservingtimeformanycommonnonviolentoffensesarereleasedafterservingroughly40percentoftheirsentenceonaverage,despitebeinginitiallyeligibleat25percent,whilemanyviolentparoleesare

61.6

27.9 30.1

18.5

75.3

31.4 33.3

24.7

0

10

20

30

40

50

60

70

80

Person Property Drugs Public order

Mon

ths

Average Time Served for New Court Commitments Released from Prison by Offense Type, FY2005 vs FY2014

2005 2014

22% increase for person offenders

13% increase for property offenders 34% increase for

public order offenders


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releasedsoonafterbecomingeligibleat50percentoftheirsentencelength.Afilereviewofoffendersreleasedonparolerevealedthattheextendedprisontermsaretheresultofmultiplefactors,includingdelaysreceivingprogramminginprisonanddecisionstopostponereleaseuntilaftertheparoleeligibilitydates.BothincreasedsentencesandlowparolereleaserateshaveplayedaroleinblackoffendersservinglongerinMaryland’sprisonsthanwhiteoffenders.Sentenceshavegrown28percentforblackoffenderscomparedto15percentforwhiteoffenders.Basedonsentencingguidelinesworksheetdata,blackoffendersinMarylandwhoweresentencedtoprisonweresentencedto36monthslongerthanwhiteoffenderssentencedtoprisoninFY2014,controllingforbroadoffensetypeandadultcriminalhistorycategory.Whileblackoffendersarealsolesslikelytoreceiveparoleforthesameoffenses,thiscouldbeduetoanumberoffactorsincludingtheextenttowhichcertainsentencesareineligibleforparole(forexample,drugmandatoryminimums)andtheextenttowhichparolereleasedecisionsarebasedonthestaticfactorsintheParoleCommission’sriskassessment(likeageatfirstarrest,ageatcurrentarrest,andcriminalhistory)whichcoulddisproportionatelyaffectblackoffenders,ratherthanthedynamicfactorsintheriskassessment(likeparticipationinprogramminginprison).Thesetrendshaveledtoblackoffendersservinganaverageof31percentlongerinprisonthanwhiteoffendersinFY2014.Combined,theselengthofstaytrendsresultedinaprisonpopulationthatdeclinedoverthelasttenyearsmoreslowlythanthedeclineinadmissions.Inotherwords,althoughadmissionsdecreased,longersentencesandlowparolereleaseratesslowedthestate’soverallprisonpopulationdecline.ResearchonCommunityCorrectionsNearlyalloffendersenteringMarylandprisonseventuallyreturntotheirhomesandcommunities.Overthelast30years,agrowingbodyofresearchhaszeroedinoneffectivestrategiesforboostingsuccessfulreentryandreducingtheratesatwhichoffendersreturntocrime.Researchhasidentifiedseveralkeystrategiesforchangingoffenderbehavior,including:1)focussupervisionandtreatmentresourcesonhigh-riskoffenders;2)frontloadresourcestotheinitialperiodofoffenders’supervisioninthecommunity;3)tailorconditionsofsupervisiontooffenders’individualcriminalriskfactors;4)combineevidence-basedprogrammingdesignedtochangeoffenders’behaviorwithmonitoringandsurveillance;and5)incentivizeoffenders’behaviorbyapplyingswift,certain,andproportionalresponsesforviolationsandrewardsforcompliance.Focussupervisionandtreatmentresourcesonhigh-riskoffenders:Manystateshaveadoptedtheuseofvalidatedriskandneedsassessmenttoolstoidentifyoffenders’likelihoodofrecidivismandallocateresourcesaccordingly.Usingavalidatedriskassessment,supervisionagentscanfocustheiroversightandresourcesonthosewhoposethehighestriskofreoffending,apracticethatprovidesthebiggestreturnoninvestment.Theuseofaneedsassessmentalsohelpsagentstargetoffenders’criminogenicneeds(thosechangeableattributessuchasantisocialattitudesandbehavior,unstableemploymentandhousing,andsubstanceabuse)thatcanbetargeted,andwhenaddressed,canreduceanoffender’sriskofrecidivism.25Frontloadresourcestotheinitialperiodofoffenders’supervisioninthecommunity:Frontloadingresourcesisacost-effectiveapproachbecausethemajorityofpeoplewhoreoffenddosowithinayearofrelease.26Forthisreason,itisimportanttofocuscommunitysupervisionandsupportservicesinthefirstdays,weeks,andmonthsafteraninmate’srelease.


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Tailorconditionsofsupervisiontooffenders’individualcriminalriskfactors:Traditionally,probationandparolesupervisionhasfocusedonsurveillanceandsanctioninginordertocatchorinterruptnegativebehavior.However,researchshowsthatincorporatingassessment-drivensupervisionandcasemanagementpractices,ratherthanusingsurveillancealone,canachievebettersupervisionoutcomes.27Assessment-drivencasemanagementprovidesashiftfromtraditionalsupervisionandcasemanagementpracticestoarenewedfocusonreducingrecidivismandimprovingoffenderoutcomes.Theresultsofavalidatedriskandneedsassessmentshouldbeusedtodeterminetheappropriatesupervisionintensityforanoffenderandtoguidethedevelopmentofindividualized,targetedcaseplansthataddressanoffender’scriminogenicneedsandresponsivityfactors.Combineevidence-basedprogrammingdesignedtochangeoffenders’behaviorwithmonitoringandsurveillance:Toreducerecidivismandmodifyoffenderbehavior,treatmentmustbeintegratedwithstandardsupervisionpracticesofmonitoringandreporting.Researchhasshownthattreatmentthattargetsanoffender’sassessedcriminogenicneedscangreatlyreducerecidivism.Addressingthosespecificfactorsthatareassociatedwithanoffender’srisktoreoffendhasameasurableimpactonthefuturebehaviorandsuccessfulreintegrationoftheoffender.Conversely,surveillance-orientedsupervisionwithouttreatmentunderperformswhencomparedwithsupervisionthatintegratestreatmentintermsofreducingrecidivism.28Incentivizeoffenders’behaviorbyapplyingswift,certain,andproportionalresponsesforviolationsandrewardsforcompliance:Behaviorchangeresearchalsodemonstratesthatoffendersaremoreresponsivetosanctions(orincentives)thatareswiftandcertainratherthanthosethataredelayedandinconsistentlyapplied,nomatterhowsevere.Swiftandcertainresponsesworkbothbecausetheyhelpoffendersseetheresponseasaconsequenceoftheirbehaviorratherthanadecisionlevieduponthem,andbecauseoffendersheavilyweighthepresentoverthefuture(consequencesthatcomemonthsandyearslateraresteeplydiscounted).Certaintyestablishesacredibleandconsistentthreat(orpromise),creatingacleardeterrent(orincentive)duetothedefinitenatureoftheresponse.29Manystatesandlocalitieshaveappliedthisresearchbycreatingapre-definedsetofsanctionsandincentiveswhichcanbeappliedswiftlyandcertainlyinresponsetooffenderbehavior.Forexample,earneddischargepoliciescanencourageoffenderstocomplywiththerulesofsupervision,andatleast14stateshaveadoptedorexpandedsuchpolicies.Inadditiontoimprovedcompliance,earneddischargepoliciesreducecaseloadsandallowsupervisionagentstofocustheirtimeandattentiononhigher-riskoffenders.Maryland’sUseofBestPracticesinCommunitySupervisionIncarcerationtypicallycostsstatesmorethansupervision,andMarylandisnodifferent.ThedailycostofincarceratinganindividualinMaryland($25.63)ismorethanfivetimeshigherthanthedailycostofcommunitysupervision($4.55).Whilethereareovertwiceasmanypeopleonsupervisionasthereareincarcerated,nearly60percentoftheFY2016correctionsbudgetwenttocorrectionalinstitutionsandonlysevenpercenttocommunitysupervision.ivTheCouncilreviewedhowMaryland’scommunitysupervisionsystemstacksupwhencomparedtothebodyofresearchonbestpractices.First,theCouncilnotedmanyareasinwhichMarylandhasimprovedsupervisionpracticestobetteralignwiththeresearch.Forinstance,theDivisionofivThecalculationofcorrectionalinstitutioncostsdoesnotincludecostsassociatedwithlocaldetentionfacilities,includingtheBaltimoreCityDetentionCenter.


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ParoleandProbationnowusesariskandneedsassessmenttooltohelptailorsupervisiontoeachoffender’sspecificneeds.Second,thefailurerateforsupervisioncaseshasdeclinedoverthelastdecadefrom46percentto38percent.Third,over80percentofsupervisioncasesareclosedwithoutanewcriminalconviction.However,theCouncilalsoidentifiedsomeareasforpotentialimprovement.Marylandmaynotbetargetingitssupervisionresourcestotheoffendersatthehighestriskofreoffending.Seventypercentoftheprobationpopulationisclassifiedaslowormoderaterisk,alongwith65percentofthepost-releasesupervisionpopulation,includingparoleesandoffendersreleasedfromprisontomandatoryreleasesupervision.Inaddition,low-riskoffendersserveconsiderablylongeronparoleandmandatorysupervisionthanhigh-riskoffenderspriortoasuccessfuldischarge.

Despiteresearchdemonstratingthatswift,certain,andproportionalsanctioningismoreeffectiveatreducingrecidivismthandelayed,inconsistent,andseveresanctioning,probationrevocationstoprisonservedanaverageof43.9monthsinFY2014,up25percentsinceFY2005.30Probationtechnicalviolatorsservedanaverageof31months,longerthanmanyoffenderssentenceddirectlytoprison.Theabilitytocombinetreatmentwithsupervisionrequiresaccesstoevidence-basedtreatment.TheCouncilsawdatafromtheSubstanceAbuseandMentalHealthAdministrationrevealingthatonly42percentofindividualsinMarylandwithamentalillnessreceivedtreatmentbetween2009and2013.Accesstothetreatmentresourcesthatdoexistvarieswidelyacrossthestate.Problem-solvingcourtsforadultoffenders,suchasdrugcourts,mentalhealthcourts,andveterans’courts,donotexistinsevenofMaryland’s24jurisdictions.

VPI, 5%

High, 19%

Moderate, 30%

Low-Moderate,

26%

Low, 13%

Sex Offender,

6%

Probation Population by Supervision Level, FY2014

VPI, 7%

High, 20%

Moderate, 27%

Low-Moderate,

25%

Low, 13%

Sex Offender,

8%

Post-Release Supervision Population by Supervision Level, FY2014


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PolicyRecommendationsOverthelastsixmonths,theCouncilanalyzedthedriversofMaryland’sprisonpopulation,reviewedresearchonevidence-basedstrategiestoreducerecidivism,andstudiedcriminaljusticeinnovationsinotherstates.Basedonthatdataandresearch,theCouncildevelopedacomprehensive,tailoredpackageofsentencingandcorrectionspolicies.Theserecommendationswill:

• Focusprisonbedsonseriousandviolentoffenders,• Strengthenprobationandparolesupervision,• Improveandenhancereleaseandreentrypractices,• Supportlocalcorrectionssystems,and• Ensureoversightandaccountability.

FocusPrisonBedsonSeriousandViolentOffendersRecommendation1:RevisedrugpossessionpenaltiestomaximizerecidivismreductionDrugoffendersremainasignificantdriverofMaryland’sprisonpopulation.Drugpossessionisoneofthetop10offensesatadmission.InFY2014,261possessionoffendersweresenttoprisonfromthecourts(144sentenceddirectlyand117throughprobationrevocations).Researchsuggeststhatahighpercentageofcriminaljustice-involvedindividualssufferfromsubstanceabuseandmentalhealthdisordersrequiringtreatmentandsupport.31Whileprisonmayprovideaccesstosubstanceabusetreatment,itisnotthemostcost-effectiveenvironmentinwhichtodeliverit.32Further,researchindicatesthatincarceratingdrugoffenderscanactuallyincreasethelikelihoodtheywillrecidivateoncetheyleaveprison.Thisisbecauseprisoncanexacerbatethecriminalriskfactorsthatdriverecidivismbyexpandingthesphereofantisocialinfluences.33

84.5

27 29 24.2 34.6

26.3 31.9 23.6

0

20

40

60

80

100

Person Property Drugs Public order

Mon

ths

Time Served on a Probation Technical Violation vs a New Prison Sentence by Offense Type, FY14

Newly sentenced offenders Probation technical violators


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TheCouncilrecommends

• Restructuringthepenaltiesfordrugpossessiontodirectmoreoffendersintoevidence-basedsupervisionandtreatmentinthecommunitybasedonaneedsassessment.Substanceabusetreatmentandsupervisionshallbeprovidedinlieuofincarcerationunlessthereisevidenceofanimminentthreattopublicsafety,accordingtothefollowingschedule:

Drugpossession,non-marijuana

Currentlaw Councilrecommendationv

0-4years 1stconviction

Presumptivetreatmentandprobation;orupto12mos.incarceration

2ndand3rdconvictions


4thandsubsequentconvictions


• Formarijuanapossessionoffenders,authorizingthecourttoimposenomorethanasix-monthsentenceforthefirstconvictionandincreasingthemaximumtermforthesecondandanysubsequentconvictionsto12months.

• RequiringtheDepartmentofPublicSafetyandCorrectionalServicestoconductsubstanceabusescreeningsorassessmentsonalldrugpossessionoffenders.Ifincarcerationispartofthesentence,requiretheDivisionofCorrection,orjailasapplicable,toassesstheoffenderforsubstanceabusetreatmentneedsandtoprovidetreatmentpertheneedsidentifiedintheassessment,whichcouldbeofferedeitherinprison,jail,orduringthetermofsupervision.Ifthesentenceisprobationwithoutincarceration,requiretheDivisionofParoleandProbationtoassesstheoffenderforsubstanceabusetreatmentneedsandtoprovidetreatmentinthecommunitypertheneedsidentifiedintheassessment.

• TaskingtheGovernor’sOfficeofCrimeControlandPreventionwithcoordinatingasubstanceabuseandmentalhealthtreatmentgapanalysisincoordinationwiththeDepartmentofPublicSafetyandCorrectionalServices,theDepartmentofHealthandMentalHygiene,thecourts,publichealthandtreatmentprofessionals,andlocalcorrectionsauthoritiestodeterminethegapbetweenoffendertreatmentneedsandavailabletreatmentservices.Thisstudyshallincludeafeasibilitystudyoflocaljailandserviceprovidercapacityforsubstanceuseandmentalhealthdisorderandrelatedtreatment.

vSomemembersofthejudiciaryexpressedconcernsthattherangeofpotentialsentenceswouldnotenablethecourtstoenforcetreatmentmandatedasaconditionofprobation.


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Recommendation2:RequirepromptplacementinresidentialdrugtreatmentbedsIfitisfoundthatadefendantisinneedofsubstanceabusetreatment,ajudgecansentencetheoffenderunder8-507vi,whichprovidesbothresidentialandoutpatientdrugtreatment.Residentialdrugtreatmentbedsorderedthrough8-507arelimitedandtheCouncilfoundthatoffendersorderedto8-507bedsarewaitinginprisonorjailpriortoplacementforanaverageof167days.TheCouncilrecommends

• RequiringtheDepartmentofHealthandMentalHygienetopromptlyplaceoffenderssentencedtoresidentialdrugtreatment(8-507)beds.

• Iftheoffenderisnotplacedpromptly,theDepartmentofHealthandMentalHygienemaybecalledtocourttoexplainthereasonforthelackofplacement.

Recommendation3:EliminatedisparitybetweencrackandpowdercocainepenaltiesManyjurisdictionsdistinguishedbetweencrackandpowdercocaineintheirsentencingsystemsbasedonthebeliefthatcrackcocainewasmoredangerous.However,researchhassincedemonstratedthatthedistinctionbetweencrackandpowdercocainewasoverstatedandhasalsocontributedtodisparitiesinsentencingbetweenblackandwhiteoffenders.34Manystatesandthefederalgovernmenthavetakenstepstomitigateoreliminatethedisparityinpenaltiesforthetwoformsofthedrug.TheCouncilrecommends

• Eliminatingthedistinctionbetweentheamountofcrackcocaineandpowdercocainethattriggersamandatoryfive-yearprisontermforvolumedealersandamandatory20-yearprisontermfordrugkingpinsbyaligningthethresholdtriggeringthemandatorysentenceat448gramsforcrackandforpowdercocaine.

Recommendation4:Raisethefelonytheftthresholdandconcentratelongerprisontermsonhigher-leveltheftoffendersFelonytheftremainsoneofthetop10offensesatadmission,with347offendersenteringprisonfromthecourtsinFY2014(221sentenceddirectlyand126asprobationrevocations).Inaddition,misdemeanortheftcontinuestosendmanyoffenderstoprison:119inFY2014(80directlyand39asprobationrevocations).Onerecentanalysisfoundthatincreasingthefelonytheftthreshold,thedividinglineatwhichthevastmajorityofpropertycrimesarecategorizedasfeloniesasopposedtomisdemeanors,doesnotleadtohigherpropertycrimerates.Between2001and2011,23statesraisedtheirfelonytheftthresholds.Theanalysisfoundthatthechangeinthresholdshadnostatisticallysignificantimpact,upordown,onthestates’overallpropertycrimeorlarcenyrates.Additionally,thestudyfoundno

viMd.Health-GeneralCodeAnn.§8-507


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correlationbetweentheamountofastate’sfelonytheftthreshold—whetheritis$500,$1,000,or$2,000—anditspropertycrimerates.35TheCouncilrecommends

• RaisingMaryland’sfelonytheftthresholdfrom$1,000to$2,000andincreasingthepenaltiesalongwiththevalueofthepropertyinvolvedinthetheftaccordingtothefollowingschedule:

Theftandrelatedoffenses

Currentlaw Councilrecommendation

<$100 0–90days <$100

upto90days

<$1,000

0–18mos $100-$1,999 upto12mos.

<$1,0002ndandsubsequent

0–5yrs

$1,000-$10,000 0–10yrs $2,000-$24,999 upto5yrs.

$10,000-$100,000 0–15yrs $25,000-$99,999 upto10yrs.

$100,000+ 0–25yrs $100,000+ upto20yrs.

• Applyingthesepenaltiestoallsubsequentoffenses.

• Applyingthechangetothefelonytheftthresholdtotherelatedpropertycrimesincluding

badchecks,identityfraud,andexploitationofvulnerableadults.

Recommendation5:Expandin-prisongoodbehaviorandprogramincentivecreditsResearchdemonstratesthatprovidingincentiveslikeearnedtimeordiminutioncreditsinprisoncanreducerecidivismandsavetaxpayerdollars.36InMaryland,mostoffenderscanearnupto10dayspermonthofdiminutioncreditsforgoodbehavior.Manydrugoffensesarerestrictedtoearningfivedayspermonthratherthanthe10daysavailabletoothernonviolentinmates.Offendersservingtimeinjailarealsorestrictedtoearningfivedayspermonthratherthanthefull10days.Inaddition,Marylandoffersmodest,one-timecreditsforparticipatinginprogramsintendedtoreducerecidivism.TheCouncilrecommends

• Allowingnonviolentdrugoffenderstoearnupto10daysofdiminutioncreditspermonth,asisavailabletoallothernonviolentoffenders.

• Providingincreasedincentives(anadditional10dayspermonthenrolledintheprogram)fornonviolentoffendersengagedinprogrammingsuchaseducation,workforce


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development,cognitive-behavioraltherapy,orsubstanceabusetherapyaswellaseligibilityforearlyparolereleaseuponcompletion.

• Allowingoffendersinjailtoearnequivalentgoodtimecreditastheywouldinprison,

dependingontheiroffensetyperatherthanwheretheyareheldincustody.

Recommendation6:Retroactiveapplicationofthemandatoryminimumsafetyvalve

Duringthe2015legislativesession,theGeneralAssemblypasseda“safetyvalve”formandatoryminimumsentencesfordrugoffenses.Thesafetyvalveallowscourtstosentencebeneaththemandatoryminimumif“givingdueregardtothenatureofthecrime,thehistoryandcharacterofthedefendant,andthedefendant’schancesofsuccessfulrehabilitation:(1)theimpositionofthemandatoryminimumsentencewouldresultinsubstantialinjusticetothedefendant;and(2)themandatoryminimumsentenceisnotnecessaryfortheprotectionofthepublic.”37Thesafetyvalveappliestoalloffenderssentencedonoraftertheenactmentofthenewlawbutdoesnotapplytothosesentencedtomandatoryminimumspriortothenewlaw.TheCouncilrecommends

• Allowingalloffenderssentencedtomandatoryminimumsfordrugoffenseseligibleforthesafetyvalve,priortothe2015lawchange,toapplyforresentencingunderthesafetyvalve.Propermotionsorapplicationswillneedtobefiledwithinoneyearofthebill’seffectivedateinordertobeconsideredoranoffendermustshowgoodcauseastowhyitcannotbefiledwithintheyear.

• Shiftingthepresumptioninthesafetyvalveretroactivelyandprospectivelysuchthatthe

burdenisonthestatetoargueforthemandatoryminimumratherthanonthedefendanttoargueforthesafetyvalve.

Recommendation7:ExpandalternativestoincarcerationinthesentencingguidelinesandincludesuspendedsentencesincalculatingguidelinecomplianceMaryland’ssentencingguidelinesarevoluntaryandonlyapplytocriminalcasesprosecutedincircuitcourt.InFY2014,74percentofoffenderssentencedunderthesentencingguidelinesreceivedaguidelines-compliantsentence.Anadditional21percentreceivedasentencebelowguidelines.Offenderscanalsoreceiveasuspendedsentence,whichtheSentencingCommissiondoesnotconsiderincalculatingguidelinescompliance.InFY2014,66percentofoffenderssentencedundertheguidelinesreceivedasuspendedsentenceinadditiontoorinlieuofanincarcerationsentence.Oftheseoffenders,56percentreceivedasuspendedsentenceabovetheguidelinesrange(i.e.asentencethatwouldnotbeconsideredcompliantifitwereincludedinthecompliancecalculations).

Overthelastdecade,therehasbeenanincreaseinthenumberofoffendersreceivinganincarcerationsentencewithasuspendedsentenceandprobationtofollowtheirprisonterm(58percentinFY2014,upfrom45percentinFY2005).


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Further,suspendedsentencesforoffenderssentencedtoprobationwithoutincarcerationtimehavedeclined25percent,suggestingthatsuspendedsentencesarenotnecessarilybeingusedasanalternativetoincarceration,butratherasanextensionofsupervisionandpunishmentforoffendersalreadysentencedtoprison.Manysentencingguidelinescarrypresumptiveincarcerationsentencesevenforlower-level,nonviolentoffenses.Inordertoimposeanalternativetoincarceration,judgesmustsentenceoutsideoftheguidelines.TheCouncilrecommends

• Requiringthatthesuspendedportionofasentencebeincludedinthedeterminationofwhetherasentenceiscompliantwithsentencingguidelines.

• Establishingmorealternativestoincarcerationintheguidelines.Recommendation8:IdentifybestpracticesinalternativedisputeresolutionsAlternativeDisputeResolutionisamediationandrestorativejusticemodelforsettlingacivilorcriminalcaseinMaryland.Currently,mostoftheseservicesarefocusedincivilcourts,though12outof24Marylandjurisdictionsoffersomeformofmediationforcertaincriminalmisdemeanorsatthedistrictcourtlevel.Whilethismediationincivilcourtcasesisregulatedbystatewidestandardsincludingqualityassuranceandevaluation,nosimilarstandardofregulationexistsformediationincriminalproceedings.TheCouncilrecommends

• RequiringthattheJudiciary'sMediationandConflictResolutionOfficeidentifybestpracticesforcriminalreferralstomediation,basedonexperienceacrossthestateandresearch.

StrengthenProbationandParoleSupervisionRecommendation9:UseavalidatedriskandneedsassessmenttooltodeterminesupervisionlevelsCurrently,theDivisionofParoleandProbationfocusesmanyofitssupervisionresourcesonlow-andmoderate-riskoffendersratherthanonhigh-riskoffenderswhoarethemostlikelytoreoffend.Seventypercentofprobationersand65percentofthepost-releasesupervisionpopulationareonmoderate-orlow-risksupervision.Researchshowsthatitismoreeffectivetofocussupervisionresourcesonoffenderswhoaremostlikelytorecidivate.38


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• RequiringthattheDivisionofParoleandProbationuseavalidatedriskandneedsassessmenttooltoguidesupervisionintensity,caseplanning,andtreatmentandprogrammingreferrals.

• RequiringtheDivisionofParoleandProbationtohaveanindependentvalidationstudyconductedeverythreeyearsonitsriskandneedsassessmenttooltoensureitcontinuestoaccuratelypredictrecidivism.

Recommendation10:Useswift,certain,andproportionalsanctionsforviolationsofprobationandparoleProbationandparoleagentsdonothaveastandardizedframeworktoencourageprosocialbehaviorthroughtheuseofincentivesorforrespondingtotechnicalviolationsofthetermsandconditionsofcommunitysupervision,suchasmissingatreatmentappointmentorfailingadrugtest.Researchshowsthebenefitsofincentivestoencouragepositivebehavioraswellastheuseofswift,certain,andproportionalsanctionstodiscourageantisocialbehaviorandcriminalactivity.39Almost60percentofallprisonadmissionsrepresentfailuresofprobation,parole,ormandatoryreleasesupervision,oftenfortechnicalviolationsratherthananewcriminalconviction.Somepracticeslike“zerotolerance”supervisionundertheViolencePreventionInitiativeareinconsistentwithswift,certain,andproportionalprinciples.Finally,nonviolentprobationersrevokedfortechnicalviolationsoftenservejustaslong,orlonger,thanoffenderssentenceddirectlytoprison.TheCouncilrecommends

• Defining“technicalviolations”asanyviolationthatdoesnotincludeanarrest,aconviction,aviolationofanocontactorder,orfailuretoparticipateinarequireddomesticabuseinterventionprogram.

• RequiringthattheDivisionofParoleandProbationrespondtotechnicalviolationsusingswift,certain,andproportionalsanctionsincompliancewithastatewidegraduatedsanctionsmatrix.Thematrixwillincludeagraduatedsystemofsanctionsthatincludesverbalwarnings,increasedreporting,referraltodayreportingcenters,andincreaseddrugandalcoholtesting,amongothers.Thematrixwillalsoincludeagraduatedsystemofincentivesforrespondingtoprosocialbehaviorthatincludesverbalrecognition,reducedreporting,andcreditsforearlydischarge.Probationandparoleagentswillberequiredtoexhausttheresponseoptionsinthegraduatedmatrixbeforepursuingtheformalrevocationprocess.Anysanctionthatinvolvesincarcerationwillrequirejudicialapproval.

• Cappingthelengthofstayforoffendersrevokedfortechnicalviolationsupto15,upto30,

andupto45daysforthefirst,second,andthirdrevocation,respectively.ThejudgeorParoleCommissionwillbeabletoimposeuptotheremainderofthefullsentenceforanysubsequentrevocations.


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Recommendation11:Establishevidence-basedstandardsforsupervisionpracticesInthelastseveraldecades,thebodyofresearchonwhatworkstoreducerecidivismhasgrownsignificantly.Statesinvestingtheirresourcesinpoliciesandpracticesthatadheretotheresearchonwhatworkshaverealizedagreaterpublicsafetyreturnontheircorrectionalinvestments.TheCouncilrecommends

• Defining“evidence-basedprogramsandpractices”instatuteasprogramsdemonstratedthroughrigorousevaluationtoreducerecidivism.

• Defining“innovativeprogramsandpractices”asthosethatmightnotmeetthestandardofevidence-basedpracticesbutthatarepromisingbasedonpreliminaryresearchordata.

• RequiringthattheDivisionofParoleandProbationuseevidence-basedpracticesandinnovativeprogramsandpracticesinitssupervisionpractices.

Recommendation12:Strengthentheearnedcompliancecreditsprogram

Earnedcompliancecreditscanprovideapowerfulincentiveforoffenderstoparticipateinprograms,obtainandretainjobs,andremaindrug-andalcohol-free.40Ascompliantandlow-riskoffendersearntheirwayoffsupervision,supervisionagencies/agentscanfocuslimitedresourcesonhigher-riskoffenders.WhileearnedcompliancecreditscanbeawardedundercurrentpolicyinMaryland,agentsarenotrequiredbypolicyorstatutetoinformoffendersoftheireligibility,therebyreducingthevalueoftheincentiveorthelikelihoodthatcreditsarereceived.Manynonviolentoffensesaredisqualifiedfromeligibility,andincentivesarenotusedconsistently. TheCouncilrecommends

• Allowingprobationers,parolees,andmandatoryreleaseeswhohaveearnedenoughcreditstosatisfytheiractivetermofsupervisiontobeautomaticallytransferredtounsupervisedprobationorparole,afterwhichtheywillnotberequiredtoreportorpayfees.

• Expandingeligibilityforearnedcompliancecreditstocommercialdrugoffenders(currentlyineligibleforanyearnedcompliancecredits)sothattheseoffenders’periodsofsupervisionmaybereducedby20daysforeachmonthofcompliancewhileundersupervision.

• Furtherclarifyingtheearnedcompliancecreditsprograminstatutetoprovideconsistencyinapplication.

• RequiringthattheDepartmentofPublicSafetyandCorrectionalServicesdevelopanautomatedapplicationforthetrackingandawardingofearnedcompliancecreditsbytheDivisionofParoleandProbation.


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ImproveandEnhanceReleaseandReentryPracticesRecommendation13:Streamlineparoleandfocusparolehearingsonserious,violentoffendersandonnon-compliantnonviolentoffendersWhilethepercentageofoffendersreleasedtoparolehasincreasedinthelast10years,itremainsunder40percent.Whenoffendersaregrantedparole,theyserveanaverageofninemonthspasttheireligibilitydate.TheCouncildiscussedtheimportanceofprovidingincentivesforparticipationinrecidivismreductionprogramming,allowingtheParoleCommissiontofocusonthemostseriousandcomplexcases,andreducingunnecessarydelaysinordertoaddressthisissue.TheCouncilrecommends

• Creatinganadministrativeparoleprocessfornonviolent,parole-eligibleoffendersbasedontheresultsofavalidatedriskandneedsassessmentadministeredatthetimeofcommitmentforthepurposeofdevelopingindividualizedcaseplansthatareachievablebytheparoleeligibilitydate.

• Notifyingvictims,whereapplicable,oftheparolereleasedateandprovidingthemwithanopportunitytorequestahearing.

• Providingfortheadministrativereleaseofnonviolent,paroleeligibleoffendersontheirparoleeligibilitydateiftheoffendersuccessfullycompletestheirindividualizedcaseplan,subjecttotherestrictionsstatedbelow.

• Restrictingparolehearingstoallviolentoffenders;ortononviolentoffendersviiwhohave

eitherfailedtocomplywiththeircaseplansorcommittedaseriousinfractioninthe30dayspriortotheoffender’sparoleeligibilitydate;or,ifaparolehearingwasrequestedbythevictim.

Recommendation14:ExpandeligibilityforgeriatricparoleThenumberofprisonersovertheageof55hasnearlydoubledinthelast10yearsto1,875.Geriatricprisonersareoftenthemostexpensiveinmates(becauseoftheirhighermedicalcosts)andalsothelowestrisk(becausetheyhave“agedout”oftheircrime-committingyears).Currently,offenderseligibletopetitionforgeriatricparolemustbeatleast65andhaveservedatleast15yearsforacrimeofviolence.TheCouncilrecommends

• Expandinggeriatricparoletoallowalloffendersage60andoverwhohaveserved10ormoreyearsorone-thirdoftheirtotalsentencetopetitionforparole.Thisrecommendationwillnotapplytoanysexoffenderwitharegisterableoffense.

viiTheimpactofthepolicywasbasedonusingtheParoleCommission’sdefinitionofcrimesofviolence,Md.CorrectionalServicesCodeAnn.§7-101(Definitions).


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Recommendation15:ExpandtheuseofmedicalparoleMedicalcarecomesataconsiderableexpensetocorrectionalinstitutionsthatwerenotdesignedforthatpurpose.Asprisonpopulationsageandprisonerhealthdeclines,moreappropriateinstitutionsthatareequippedtoaddresstheirhealthcareneedscanbeutilizedtolessentheexpensetothestate.TheCouncilrecommends

• Requiringthatapetitionformedicalparole,regardlessofthepetitioner,includetwomedicalevaluationsbymedicalauthoritiesthatareindependentfromtheDivisionofCorrectionatnocosttotheoffender.

• Requiringthatmedicalparoleeligibilitybebasedonapermanentmedicalormentalhealthcondition,disease,orsyndrome.

Recommendation16:EstablishacertificateofcompletionforoffenderswhosuccessfullycompletesupervisionManyprofessionallicensesareunattainableforoffenderswithcriminalconvictions.Inordertosupporteffectivereintegrationintothecommunity,reducerecidivism,andincentivizesupervisioncompletion,anumberofstateshaveauthorizedareleasingauthoritytoissueacertificateofrehabilitationforoffenderswhohavesuccessfullycompletedprobationorparoletoassisttheoffenderinrestoringcertainlicensures.41TheCouncilrecommends

• Allowingfirst-timenonviolentandnon-sexoffenderstoapplyforacertificateofcompletiontorestoretheirrightstoobtainprofessionalcertifications.

• RequiringthattheDivisionofParoleandProbationestablishanapplicationandreviewprocessforthecertificateofcompletionthatallowsthesentencingjudge,state’sattorney,orvictim,whereapplicable,toobjecttothereinstatementofthecertification.

SupportLocalCorrectionsSystemsRecommendation17:Makecertainfirst-time,minortrafficoffensesnon-jailableUnderMarylandlaw,manytransportationandlicensingoffensescarrythepossibilityofjailtime,evenforconductthatmaynotrepresentathreattopublicsafety.Operatingamotorvehiclewithasuspendedlicense,forexample,carriesamaximumsentenceoftwomonthsinjail.InFY2014,16.5percentofjailsentencesinBaltimoreCitywereforoperatingamotorvehiclewithasuspendedlicense,representing11.8percentoftheunder-12-monthlocalprisonpopulation.Suspendedlicensescanresultfromawidevarietyofnon-criminalviolations.


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• Eliminatingjailasapenaltyforfirst-timedrivingwhilesuspendedanddrivingwithoutalicenseoffenses.

Recommendation18:Establishaperformance-incentivecountygrantprogramCouncilmembers,criminaljusticestakeholders,andmembersofthepublicwhotestifiedatfourseparatepublichearingsacrossthestatediscussedthedearthoflocalservicesandprogramstoreducerecidivismandcorrectionscosts.Thisshortfallatthelocalleveloftenmakesprisontheonlyviablesentencingoption.Furthermore,counties,judicialdistricts,andlocalprovidersareoftenbestsuitedtoidentifythecorrectionalprogramming,treatment,andservicesthatwouldbestsuperviseandservetheiroffenderpopulations.Withthisinmind,somestateshavecreatedperformance-incentivegrantprogramstosupportcountiesintheireffortstoreducerecidivismandcorrectionscosts.TheCouncilrecommends

• Establishingaperformance-incentivegrantfundavailableforcountieswithproposalstoreducerecidivismandcontrolcorrectionscosts.Theproposalscaninclude,butarenotlimitedto,investinginpretrialriskassessmentsorservicestoreducepretrialdetention,diversionprogramslikerestorativejusticeormediation,sentencingalternativeslikespecialtycourts,orreentryprograms.Thefundwillbeadministeredbyaboardwithrepresentationfromeachjurisdictionandtheboardwillcreateperformancemeasurestoassesstheeffectivenessofthegrants.Nolessthanfivepercentofthefundwillbedesignatedforvictimservices.

EnsureOversightandAccountabilityRecommendation19:EstablishanoversightcouncilandtrackperformanceThereformstoMaryland’scorrectionsandcriminaljusticesystemswillrequirecarefulimplementationandoversight.Moreover,additionallegislativeandadministrativereformsmaybeneededafterimplementationtoenablethestatetorealizethegoalsofjusticereinvestment.Severalstatesthathaveenactedsimilarcomprehensivereformpackages,includingGeorgia,SouthCarolina,andSouthDakota,havemandateddatacollectiononkeyperformancemeasuresandrequiredoversightcouncilstotrackimplementation,reportonoutcomes,andrecommendadditionalreformsifnecessary.TheCouncilrecommends

• EstablishinganOversightCouncil,housedwithintheGovernor’sOfficeofCrimeControlandPrevention,comprisedofkeystakeholdersfromthelegislative,executive,andjudicialbranchesaswellascriminaljusticepractitionersandsupportedbyresearchentitiesliketheUniversityofMaryland’sMarylandDataAnalysisCenterthatcancollectandinterpretdata.RequiretheOversightCouncilmeetatleasttwiceperyearspecificallytomonitorthe


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reforms,reportbacktotheGeneralAssemblyonimplementationefforts,andmakeadditionallegislativeandbudgetaryrecommendationsforfuturedata-driven,fiscallysoundcriminaljusticepolicychanges.

• RequiringtheDepartmentofPublicSafetyandCorrectionalServices,theParole

Commission,andtheAdministrativeOfficeoftheCourtstocollectandreportdatatotheOversightCouncilonkeyperformancemeasuresrelevanttotheimplementationandeffectivenessofthepolicychangesrecommendedinthisreport.Thiswouldinclude,butisnotlimitedto:admissions,lengthofsentence,lengthoftimeserved,currentprisonpopulationanddemographicdata.

• RequiringlocalcorrectionsagenciesandtheAdministrativeOfficeoftheCourtstocollect

dataforthepurposesofbetterunderstandingthepretrialpopulation,includingthenumberofpretrialdefendantsdetainedonthesamedayeachyear,thelengthoftimetheyhavespentpretrial,thereasonstheyareunabletosecurerelease,andcasedispositions.RequirethedatatobereportedannuallytotheOversightCouncil.

ProjectedImpactofPolicyRecommendationsTakentogether,therecommendationsfromtheJusticeReinvestmentCoordinatingCouncilwillreducethestate’sprisonpopulation14percentfromitscurrentlevel,bringingthepopulationdownto17,600by2026.Marylandtaxpayerswillrealize$247millioninsavingsoverthenextdecade.

21,530

17,600

10,000

12,000

14,000

16,000

18,000

20,000

22,000

24,000

FY17 FY18 FY19 FY20 FY21 FY22 FY23 FY24 FY25 FY26

MarylandProjectedAverageDailyPrisonPopula>on,FY17-FY26

BaselinePrisonPopula\on PrisonPopula\onwithJRCCRecommenda\ons


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ReinvestmentPrioritiesTheCouncilstronglyrecommendsthatsavingsfromavertedprisoncostsbereinvestedinthefollowingsixways.Further,theCouncilrecommendsthatanappropriatestatutoryprovisionbeenactedtoprotectthesavingsincorrectionsspending.ReinvestingintreatmentTheCouncilheardextensivetestimonyfromjudgesandotherpractitionersaboutthegapbetweenthetreatmentneedsandthetreatmentresourcesavailablestatewide.Shortfallsinsubstanceabusetreatment,mentalhealthtreatment,andotherproveninterventionswereidentifiedbothforoffendersinprisonandthoseoffendersonsupervisioninthecommunity.TheCouncilrecommends• IncreasingfundingtotheDepartmentofHealthandMentalHygienetoexpandtheuseof8-507

drugtreatmentbeds.

• IncreasingfundingtotheDivisionofCorrectiontoexpandtreatmentandprogrammingwithininstitutions.

• IncreasingfundingtotheDivisionofParoleandProbationtoexpandtreatmentandprogramminginthecommunity,includingdayreportingcentersanddrugcourts.

Reinvestinginacountyperformance-incentivegrantprogramCouncilmembers,criminaljusticestakeholders,andmembersofthepublicwhotestifiedatfourseparatepublichearingsacrossthestatediscussedthedearthoflocalservicesandprogramstoreducerecidivismandcorrectionscosts.Thisshortfallatthelocalleveloftenmakesprisontheonlyviablesentencingoption.Furthermore,counties,judicialdistricts,andlocalprovidersareoftenbestsuitedtoidentifythecorrectionalprogramming,treatment,andservicesthatwouldbestsuperviseandservetheiroffenderpopulations.Withthisinmind,somestateshavecreatedperformance-incentivegrantprogramstosupportcountiesintheireffortstoreducerecidivismandcorrectionscosts.TheCouncilrecommends• Fundingaperformance-incentivegrantfund,basedonRecommendation#18inthisreport,

whichisavailableforcounty-ledinnovationsthatreducerecidivismandcontrolcorrectionscosts.


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Reinvestinginrestitutioncollectionprocessesforvictimsofcrime

Manyvictimsandsurvivorsareunderservedbythecriminaljusticesystem.ToincludethevoicesofcrimevictimsandvictimadvocatesintheassessmentofMaryland’scriminaljusticesystem,aswellasintheprocessofdevelopingrecommendationsforlegislativeandbudgetarychanges,twoSurvivor-VictimRoundtableswereheld,oneinMillersvillefocusedonsurvivorsofcrime,andasecondgatheringinUpperMarlborofocusingonvictims’needs.DiscussionatbothRoundtablesfocusedonthechallengesofeffectiverestitutioncollectionandmanagementandelevateditasatoppriorityforrestorativejusticeaswellasameansofholdingoffendersaccountable.TheCouncilrecommends• Incaseswherethereisunpaidrestitutiontoanidentifiablevictim,directing25percentof

inmateearningstorestitutionpayments,tobeginafter$50.00hasbeenacquiredinthereservedaccount.Anychildsupportpaymentsshallhavepriorityconsistentwithexistinglaw.

• Collectingdataanddevelopingevidence-basedpracticesforrestitutioncollectionanddevelopingadditionalenforcementanddatacollectiontechnologyinfrastructure.

• TaskingtheGovernor’sOfficeofCrimeControlandPreventionwithidentifyingtheappropriateagencytooverseerestitutioncollection,makingarecommendationbyDecember31,2016,andrequestingtheGovernorimplementbyexecutiveorderthetransferofrestitutioncollectiontothesuccessoragency.

ReinvestinginreentryNearlyalloffendersenteringMarylandprisonseventuallyreturntotheirhomesandcommunities.Overthelast30years,agrowingbodyofresearchhaszeroedinoneffectivestrategiesforboostingsuccessfulreentryandreducingtheratesatwhichoffendersreturntocrime.TheCouncilrecommends• Expandingprogrammingoptionsforindividualsleavingprisonandreenteringthecommunity,

includingcommunity-basedemployment,treatment,andhousingservices.

• CreatingandfundingTransitionCoordinatorpositionstoprovidequalitytransitionplanningandsupportforhigh-riskoffenderswhoarebeingreleasedfromprison,including,butnotlimitedto,supportwithhousing,employment,treatment,andfamilyre-integration.

• Providingfundstosupportlocaldetentioncentersthathouseoffendersforthefinalmonthsoftheirincarceratedtermsinthecountiestowhichtheyarereturning.Thesefundswillonlybeavailabletolocaldetentioncentersabletoprovidereentryservicessuchasassistancerelatedtoemployment,housing,andmedicalcoverage.

ReinvestinginbedsformedicalparoleesFewerthan65offendersinthelast10yearshavebeenreleasedonmedicalparoleandtheCouncilheardtestimonyfromstakeholdersandpractitionersthatoneprimaryreasonforthislowrelease


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ratewasthedifficultytheDepartmentofPublicSafetyandCorrectionalServiceshasinidentifyinganappropriateplacetotransferterminallyillinmatesinthecommunity.TheCouncilrecommends• Directingfundstoprovideforatleastthreemedicalbedsforoffendersonmedicalparoleto

addressoneofthebiggestchallengesfacedbymedicalparolees,whichisfindingafacilitythatcanmaintaintherequiredsecuritylevelandaddresstheoffender’smedicalneeds.

Reinvestingintrainingforcriminaljusticedecisionmakers

Regulartrainingensuresthatcriminaljusticepractitionersareusingthemostcurrentresearchinthefieldonwhatworksbesttoreducerecidivismandtreatcriminogenicneeds.TheCouncilrecommends• Requiringannualtrainingsforprobationandparoleagentsandsupervisors,ParoleCommission

members,andhearingofficersonevidence-basedpracticesanddecision-making.Trainingtopicsshouldincludeidentifying,understanding,andtargetingcriminogenicrisksandneeds;principlesofeffectiverisk-reductioninterventions;andhowtosupportandencouragecomplianceandbehaviorchange.

AdditionalPolicyOptionsforLegislativeConsiderationInadditiontotheconsensuspackageofreformsabove,theCouncildiscussedthefollowingthreerecommendationsatlength.Whiletherewassignificantsupportfortheserecommendations,noneofthesepoliciesachievedconsensussupport.TheCouncilultimatelydecidedtoforwardthesepoliciesasadditionaloptionsforlegislativeconsideration.EliminatingmandatoryminimumsforalldrugoffensesMandatoryminimumswereenactedinordertoprovideconsistencyinsentencingthroughoutthestateandtoprovideastrongdeterrent.AnumberofCouncilmembersexpressedconcernsregardingtheuseofmandatoryminimumsasamechanismthatputsthediscretioninthehandsoftheprosecution,compelspleadealsfordefendantssimplytoavoidfacingamandatoryminimumattrialevenforhighlydefensiblecases,andunfortunatelyfostersbias.OftheoffenderssentencedtoamandatoryminimumforadrugcrimeinFY2013andFY2014,81percentwereblack.viiiTheCouncildiscussedseveraloptionsfordramaticallyreformingmandatoryminimumsfordrugoffenders,includingeliminatingthementirely.viii87percentoftheoffenderscurrentlyinprisonservingsentencesof10yearsormoreareblack.Thisincludesbothoffenderssentencedtomandatoryminimumsandoffenderssentencedtonon-mandatorysentencesof10yearsorlonger.


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Enhancingthepenaltyforseconddegreemurderfrom30to40years

IntheVictim/AdvocateRoundtables,participantsvoicedconcernsthatthecurrentmaximumpenaltyforseconddegreemurderwasnoteffectivelyholdinghomicideoffendersaccountable.Themaximumpenaltyforfirstdegreemurderislifewithoutparoleandthemaximumpenaltyforseconddegreemurderis30yearswithparoleeligibilityat50percentofsentenceserved.TheCouncildiscussedincreasingthemaximumpenaltyforseconddegreemurderto40yearswhichwouldrequirethatthedefendantserveatleast20yearsbeforebecomingeligibleforparole.Revisingcommercialdrugpenalties

Theoffenseofpossessionwithintenttodistributenarcotics(PWID)isthenumberoneoffenseforwhichoffendersaresentencedtoprison.InFY2014,462peopleweresentencedtoprisonforPWIDwithanaveragesentenceof63months.Duringthatsameperiod,240offendersweresentencedfordistributionofnarcotics,withanaveragesentencelengthof75months.Inaddition,226PWIDoffendersand266distributionoffenderswererevokedtoprisonfromprobation.Theiraveragesentenceswere73and78monthsrespectively,longerthanthosesentenceddirectlytoprison.Basedonthatdataandtheresearchdemonstratingthatlongerprisontermsdonotreducerecidivism,theCouncildiscussedreducingthemaximumsentencesforcommercialdrugoffenderswithenhancementsforrepeatoffendersinaccordancewiththefollowingschedule.42,43

DrugdistributionScheduleIandIInarcoticandhallucinogenicdrugs

Currentlaw

Councilconsideration

1stconviction upto20yrs 1stand2ndconvictions

upto5yrs

2ndconviction 10-20yrs(10yrsmandatoryminimum)

3rdconviction 25yrsmandatoryminimum

3rdconviction

upto8yrs

4thandsubsequentconviction

40yrsmandatoryminimum

4thandsubsequentconvictions

upto10yrs


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ImpactofConsensusPoliciesandAdditionalOptions

Addingthesethreeoptionstothefullpackagewillreducethestate’sprisonpopulation16percentfromitscurrentlevel,bringingthepopulationdownto17,221by2026.Marylandtaxpayerswillrealize$269millioninsavingsoverthenextdecade.

ENDNOTES:1Spohn,CassiaandDavidHolleran(2002),“TheEffectofImprisonmentonRecidivismRatesofFelonyOffenders:AFocusonDrugOffenders,”Criminology,40:329–358.;Drake,ElizabethK.,RobertBarnoski,andSteveAos(2009).“IncreasedEarnedReleaseFromPrison:Impactsofa2003LawonRecidivismandCrimeCosts,Revised.”Olympia:WashingtonStateInstituteforPublicPolicy,DocumentNo.09-04-1201.;Nieuwbeerta,P,DanielNagin,andAAJBlokland(2009).Assessingtheimpactoffirst-timeimprisonmentonoffenders’subsequentcriminalcareerdevelopment:amatchedsamplescomparison.JournalofQuantitativeCriminology25(3),227-257.2Nagin,Daniel,FrancisT.Cullen,andCherylLeoJonson(2009).ImprisonmentandReoffending.TheUniversityofChicago;Gendreau,Paul,ClaireGoggin,andFrancisCullen(1999).Theeffectsofprisonsentencesonrecidivism.ReporttotheSolicitorGeneralofCanada;UnitedStatesSentencingCommission(2014).RecidivismAmongOffendersReceivingRetroactiveSentenceReductions:The2007CrackCocaineAmendment.:http://www.ussc.gov/sites/default/files/pdf/research-and-publications/research-projects-and-surveys/miscellaneous/20140527_Recidivism_2007_Crack_Cocaine_Amendment.pdf;Meade,Benjamin,BenjaminSteiner,MatthewMakarios,andLawrenceTravis(2012).EstimatingaDose-ResponseRelationshipBetweenTimeServedinPrisonandRecidivism.JournalofResearchinCrimeandDelinquency,50(4)pp.525-550.3NationalAssociationofStateBudgetOfficers(1987),“TheStateExpenditureReport”,http://www.nasbo.org/sites/default/files/ER_1987.PDF;NationalAssociationofStateBudgetOfficers(2007),StateExpenditureReportFiscal2006”,http://www.nasbo.org/sites/default/files/ER_2006.pdf.Note:Comparisonexcludescapitalexpenditures.4NationalAssociationofStateBudgetOfficers,ExaminingFiscalStateSpending2013-2015,http://www.nasbo.org/sites/default/files/State%20Expenditure%20Report%20%28Fiscal%202013-2015%29S.pdf.5FederalBureauofInvestigation,UniformCrimeReports,UCRDataTool,accessedathttp://www.ucrdatatool.gov/Search/Crime/State/StateCrime.cfm

21,530

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12,000

14,000

16,000

18,000

20,000

22,000

24,000

FY17 FY18 FY19 FY20 FY21 FY22 FY23 FY24 FY25 FY26

MarylandProjectedPrisonPopula>on,FY17-FY26

BaselinePrisonPopula\on

PrisonPopula\onwithConsensusandNon-ConsensusJRCCRecommenda\ons


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6PewCharitableTrusts,“FactorsContributingtotheCrimeDecline,”September2014,accessedat:http://www.pewtrusts.org/en/research-and-analysis/analysis/2014/09/11/factors-contributing-to-the-crime-decline;WilliamSpelman,“TheLimitedImportanceofPrisonExpansion,”inTheCrimeDropinAmerica,eds.AlfredBlumsteinandJoelWallman(CambridgeUniversityPress,2000),97-129;StevenD.Levitt,“UnderstandingWhyCrimeFellinthe1990s:FourFactorsthatExplaintheDeclineandSixThatDoNot,”JournalofEconomicPerspectives18,no.1(Winter2004):163-190,http://pricetheory.uchicago.edu/levitt/Papers/LevittUnderstandingWhyCrime2004.pdf.7PewCharitableTrusts,“PrisonandCrime:AComplexLink:Crimedropsince1994hasbeenbiggerinstatesthatcutimprisonmentrates,”September2014,http://www.pewtrusts.org/en/multimedia/data-visualizations/2014/prison-and-crime.8PewCharitableTrusts,“MostStatesCutImprisonmentandCrime:Infographic,”November2014,http://www.pewtrusts.org/en/multimedia/data-visualizations/2014/imprisonment-and-crime.9PewCenterontheStates,PublicOpinionStrategiesandtheMellmanGroup,“PublicOpiniononSentencingandCorrectionsPolicyinAmerica,”March2012:http://www.pewtrusts.org/en/research-and-analysis/analysis/2012/03/30/public-opinion-on-sentencing-and-corrections-policy-in-america.10PewCharitableTrusts,“2012GeorgiaPublicSafetyReform,”http://www.pewtrusts.org/en/research-and-analysis/reports/0001/01/01/2012-georgia-public-safety-reform.11FederalBureauofInvestigation,UniformCrimeReports,UCRDataTool,accessedathttp://www.ucrdatatool.gov/Search/Crime/State/StateCrime.cfm;BureauofJusticeStatistics,CorrectionsStatisticalAnalysisTool(CSAT),accessedathttp://www.bjs.gov/index.cfm?ty=nps.12Naginetal(2009);Villetaz,Patrice,GlwadysGilleron,andMartinKillian(2015),“TheEffectsonReoffendingofCustodialvsNon-CustodialSanctions:AnUpdatedSystematicReviewoftheStateofKnowledge,”CampbellSystematicReviews,accessedat:http://www.campbellcollaboration.org/lib/project/22/.13SpohnandHolleran(2002);Drakeetal(2009);Nieuwbeertaetal(2009).14Naginetal(2009);Gendreau,etal(1999);USSC(2014);Meadeetal(2012).15Durose,Cooper,&Snyder(BJS),RecidivismofPrisonersReleasedin30Statesin2005:Patternsfrom2005to2010,April2014(findingthatdespitetheincreaseinprisontimeserved,approximately75percentofdrugoffendersreleasedfromprisonreturnwithinthreeyears.);Naginetal(2009),Gendreauetal(1999),USSC(2014).16Aos,Phipps,Barnoski,&Leib,(2001),“TheComparativeCostsandBenefitsofProgramstoReduceCrime,”WashingtonStateInstituteforPublicPolicy.17Blumstein,AlfredandJoelWallman,(2006),TheCrimeDropinAmerica,CambridgeUniversityPress;Boynum,DavidandPeterReuter(2005),“AnAnalyticAssessmentofU.S.DrugPolicy,”AmericanEnterpriseInstitutePress.18PewCharitableTrusts,“PublicSafetyAspectsoftheHeroinAbuseEpidemic,”accessedat:http://www.pewtrusts.org/~/media/assets/2015/07/public_safety_aspects_heroin_abuse_epidemic.pdf.19TheBrennanCenterforJustice(2015),“Crimein2015:APreliminaryAnalysis,”NewYorkUniversitySchoolofLaw,accessedat:https://www.brennancenter.org/sites/default/files/publications/Crime_in_2015.pdf20ArrestdatafromtheFBIUniformCrimeReports,accessedathttp://www.ojjdp.gov/ojstatbb/ezaucr/asp/ucr_display.asp;courtfilingsdatafromtheMarylandCourtsAnnualReports,FY2005andFY2014,accessedathttp://mdcourts.gov/publications/annualreports.html.21FederalBureauofInvestigation,UniformCrimeReports,UCRDataTool,accessedathttp://www.ucrdatatool.gov/Search/Crime/State/StateCrime.cfm.22BureauofJusticeStatistics(2014),CorrectionalPopulationsintheUnitedStates,2013,accessedat:http://www.bjs.gov/content/pub/pdf/cpus13.pdf.23TheDepartmentofPublicSafetyandCorrectionalServicesdatarevieweddidnotcaptureinformationonethnicity,thereforeitisunknownhowmanyprisonadmissionswereHispanic.24UnitedStatesCensusBureau,QuickFacts,Accessedat:http://quickfacts.census.gov/qfd/states/24000.html.25Andrews(1999),“RecidivismIsPredictableandCanBeInfluenced:UsingRiskAssessmentstoReduceRecidivism”,http://www.csc-scc.gc.ca/research/forum/e012/12j_e.pdf;Bonta,James,andD.A.Andrews(2007),"Risk-need-responsivitymodelforoffenderassessmentandrehabilitation,"Rehabilitation6(2007):1-22.26NationalResearchCouncil(2007),“Parole,DesistancefromCrime,andCommunityIntegration”,https://cdpsdocs.state.co.us/ccjj/Resources/Ref/NCR2007.pdf;Grattet,Petersilia,&Lin(2008),“ParoleViolationsandRevocationsinCalifornia”,https://www.ncjrs.gov/pdffiles1/nij/grants/224521.pdf.27Burke,Peggy,PaulHerman,RichardStroker,andRachelleGiguere(2010),TPCCaseManagementHandbook:AnIntegratedCaseManagementApproach,U.S.DepartmentofJustice,NationalInstituteofCorrections.28WashingtonStateInstituteforPublicPolicy.AdultCriminalJustice“Benefit-CostResults.”.http://www.wsipp.wa.gov/BenefitCost?topicId=2.


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29Nagin,DanielandGregPogarsky(2000),“IntegratingCelerity,Impulsivity,andExtralegalSanctionThreatsintoaModelofGeneralDeterrence:TheoryandEvidence”,https://www.ssc.wisc.edu/econ/Durlauf/networkweb1/London/Criminology1-15-01.pdf.30Id.31U.S.DepartmentofJustice,OfficeofJusticePrograms,BureauofJusticeStatistics,(2006),DrugUseandDependence,StateandFederalPrisoners.32Onestudyofthecost-benefitofdrugtreatmentprogramsfoundthatthenetbenefitfortreatmentinprisonisbetween$15,000and$17,000perparticipant,howeverthisdoesnottakeintoaccountthecostofincarcerationwhiletheoffenderscompletetreatment,whichcouldeasilyexceed$17,000tocompletean18-monthdrugtreatmentprograminprison.Community-baseddrugtreatmentprogramshavebeenextensivelystudiedandfoundtobeeffectiveatreducingrecidivism.WashingtonStateInstituteforPublicPolicy.“Benefit-CostResults.”UpdatedAugust2014;HollowayKR,BennettTH,FarringtonDP(2006).Theeffectivenessofdrugtreatmentprogramsinreducingcriminalbehavior:ameta-analysis.Psicothema.Aug;18(3):620-9,http://www.ncbi.nlm.nih.gov/pubmed/17296096;PerryAE,DarwinZ,GodfreyC,McDougallC,LunnJ,GlanvilleJ,CoultonS.(2009).Theeffectivenessofinterventionsfordrug-usingoffendersinthecourts,secureestablishmentsandthecommunity:asystematicreview,SubstUseMisuse.44(3):374-400,http://www.ncbi.nlm.nih.gov/pubmed/19212928;PrendergastML,PodusD,ChangE,UradaD.(2002).Theeffectivenessofdrugabusetreatment:ameta-analysisofcomparisongroupstudies.DrugAlcoholDepend.Jun1;67(1):53-72,http://www.ncbi.nlm.nih.gov/pubmed/12062779.33SpohnandHolleran(2002).34HatsukamiDK,FischmanMW.(1996)Crackcocaineandcocainehydrochloride.Arethedifferencesmythorreality?JAMA.1996Nov20;276(19):1580-8;UnitedStatesSentencingCommission,(2007),ReporttoCongress:COCAINEANDFEDERALSENTENCINGPOLICY.35PewCharitableTrusts(forthcoming),“TheEffectsofChangingStateTheftPenalties.”36Drake,ElizabethK.,RobertBarnoski,andSteveAos(2009).“IncreasedEarnedReleaseFromPrison:Impactsofa2003LawonRecidivismandCrimeCosts,Revised.”Olympia:WashingtonStateInstituteforPublicPolicy,DocumentNo.09-04-1201.37Md.CriminalLawCodeAnn.§5-609.138Andrews(1999);Bonta,James,andD.A.Andrews(2007).39NaginandPogarsky(2000);Wodahl,Garland,Culhane&McCarty(2011),UtilizingBehavioralInterventionstoImproveSupervisionOutcomesinCommunity-basedCorrections,CriminalJusticeandBehavior,vol.38no.4,pp.386-405. 40AmericanProbationandParoleAssociation,“AdministrativeResponsesinProbationandParoleSupervision:AResearchMemo,”March2014,http://www.appa-net.org/eWeb/Resources/SPSP/Research-Memo.pdf.41NationalConferenceofStateLegislatures,MembersoftheAdvisoryCommissionontheAdministrationofJusticeonAlternativeRecordClearingOptions,seehttps://www.leg.state.nv.us/interim/77th2013/Committee/StatCom/ACAJ/Other/8-July-2014/AlisonLawrenceNCSLCommutationBoards.pdf(findingatleast12statesadministeracertificateofrehabilitation:Arkansas,California,Colorado,Connecticut,Georgia,Hawaii,Illinois,NewJersey,NewYork,NorthCarolina,Ohio,andRhodeIsland).42Naginetal(2009).43USSC(2014).

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