csg jus(ce center—massachuse2s criminal jus(ce review · csg jus(ce center—massachuse2s...
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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.
CouncilofStateGovernmentsJus<ceCenter 3
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
CouncilofStateGovernmentsJus<ceCenter 4
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
CouncilofStateGovernmentsJus<ceCenter 5
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
CouncilofStateGovernmentsJus<ceCenter 6
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
CouncilofStateGovernmentsJus<ceCenter 7
MotorVehicle• Opera<ngwith
suspendedlicense
(OSL)
• Opera<ngunderthe
influence(OUI)
• OSLajerOUI
• Leavingthescene
• Insuranceviola<on
• Reckless/negligent
driving
• MVhomicide
Person• Assault&BaPery
(A&B)
• 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
CouncilofStateGovernmentsJus<ceCenter 8
SystemOverview
Execu(veSummary
KeyStatutes,Policies,andPrac(ces
SummaryofFindingsandNextSteps
3,18510,713
34,444
26,399
0
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
CouncilofStateGovernmentsJus<ceCenter 9
Sources:BureauofJus7ceSta7s7cs.CountofTotalJurisdic7onPopula7on.GeneratedusingtheCorrec7onsSta7s7calAnalysisToolatwww.bjs.gov.StateprisonJurisdic<onalpopula<onincludescriminaljurisdic<onalcases,includingpeopleawai<ngtrial.ThisdoesnotincludetheHOCpopula7on.
Theresidentpopula<onin
MassachusePsincreased14%
between1980and2010.
StatePrisonJurisdic<onalPopula<onandFBIUCRReportedViolentCrimes,1980–2014
DOCpop.
ViolentCrimes
+236%
-26%
AlthoughMassachusePs’sincarcera<onrateisbelowthe
na<onalrate,ithasincreasedatafasterrate
CouncilofStateGovernmentsJus<ceCenter 10
0
50
100
150
200
250
300
350
400
450
500
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.
MA
US
+242
+219%
Percentchange
1980–2014
Eachyearthestatespendsoveronebilliondollarson
incarcera<oninstate-orcounty-operatedfacili<es
CouncilofStateGovernmentsJus<ceCenter 11
$583million
$1.1BILLION
DEPARTMENTOFCORRECTION
$553million
HOUSESOFCORRECTION/JAIL
Approximatelyhalfofthe
incarceratedpopula<onisserving
<meinstateprison,theotherhalf
inHOCandjails. TOTALSPENDINGONINCARCERATION
Source:MassachusePsExecu<veOfficeforAdministra<onandFinance,StateBudgetSummary,2015
Manyopportuni<esexisttoresolveacasebeforesentencing
CouncilofStateGovernmentsJus<ceCenter 12
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)
2013
DistrictCourt,BostonMunicipalCourt,andSuperiorCourtCaseFilings
In2013,39,049criminaldocketsconcludedinconvic<onand
sentencing
CouncilofStateGovernmentsJus<ceCenter 13
23,559Fines/FeesandProba<on
60%
13,636HouseofCorrec<on
35%
1,854StatePrison
5%
Source:MassachusePsExecu<veOfficeoftheTrialCourt,FY2014AnnualReport.
In2013,therewere221,715totalcasefilingsintheDistrictCourt,Boston
MunicipalCourt,andSuperiorCourt.A
singlecase,orgroupofcases,maybe
associatedwithasingleconvic<on.
39,049Convic<ons
TherearenearlyasmanyCWOFdisposi<onsascriminal
convic<onsinMassachusePs
CouncilofStateGovernmentsJus<ceCenter 14
31,855
88
35,684
3,365
0
5,000
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
CWOFs
Convic<ons
AmajorityofCWOFsare
fromDistrictCourtorthe
BostonMunicipalCourt
458
5,701
476
1,880
1,0691,267
855 407 302 227 226 253
10,070
3,949
5,174
99
2,383
78
3,580
287
0
2,000
4,000
6,000
8,000
10,000
12,000
SuperiorCourtsentencesareprimarilyforpersonsanddrugoffenseswhileDistrict
Court/BMCsentencesareprimarilyformotorvehicleandpropertyoffenses
CouncilofStateGovernmentsJus<ceCenter 15
MOTORVEHICLE
27%OFCONVICTIONS
2013Convic<onsforGoverningOffensebyOffenseTypeandLevel*
N=39,049
*91percentofconvic<onswerefromDistrictCourt/BMC,and9percentwerefromSuperiorCourt.Chargesatsentencingareincluded.
Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.
PERSON
21%OFCONVICTIONS
PROPERTY
26%OFCONVICTIONS
DRUG
12%OFCONVICTIONS
OTHER
11%OFCONVICTIONS
WEAPON
2%OFCONVICTIONS
VIOLENTSEXOFFENSE
1%OFCONVICTIONS
Misdemeanor(DistrictCourt/BMC)
Felony(DistrictCourt/BMC)
Felony(SuperiorCourt)
Misdemeanor(SuperiorCourt)
36%ofDistrictCourt/BMCsentencesand82%ofSuperiorCourt
sentencesaretoincarcera<on
16
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)
468
4,126
5,647
6,999
11,3587,086
0
2,000
4,000
6,000
8,000
10,000
12,000
14,000
16,000
18,000
Fine Proba<on HOC StatePrison
0
470
723
1,854
121
180
0
200
400
600
800
1,000
1,200
1,400
1,600
1,800
2,000
Fine Proba<on HOC StatePrison
36%
43%
21%
55%
27%
18%
<1%
10%13% 13%
42%
21%
35%
22% 22%
18-24 25-34 35-44 45andolder
ResidentPopula<on
Convic<ons
Male
Female
Demographiccomposi<onoftheconvictedpopula<on
comparedtoresidentpopula<oninthestate
CouncilofStateGovernmentsJus<ceCenter 17
75%
6%10% 9%
66%
16% 15%
3%
White Black Hispanic Other
ResidentPopula<on
Convic<ons
83%17%
Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata;U.S.Census2010-2014AmericanCommunitySurvey5-YearEs<mates.
Male
Female52%
48%
PercentofResidentPopula<on/PercentofConvic<onsbyRace,2013
PercentofResidentPopula<on/PercentofConvic<onsbyAge,2013
PercentofResidentPopula<onbyGender,2013
PercentofConvic<onsbyGender,2013
Convic<ons,CWOFs,andsentencesbyrace
CouncilofStateGovernmentsJus<ceCenter 18
0
5,000
10,000
15,000
20,000
25,000
30,000
0
1,000
2,000
3,000
4,000
5,000
6,000
7,000
0
1,000
2,000
3,000
4,000
5,000
6,000
7,000
0
200
400
600
800
1,000
1,200
1,400
Disposi<onsandSentencesforWhiteIndividuals Disposi<onsandSentencesforBlackIndividuals
Disposi<onsandSentencesforHispanicIndividuals Disposi<onsandSentencesforOtherIndividuals
Convic<ons CWOFs Fines Proba<on HOC DOC
25,874
23,133
Percentof25,874Convic<ons
19%
44%
34%
3%
Convic<ons CWOFs Fines Proba<on HOC DOC
Convic<ons CWOFs Fines Proba<on HOC DOC
6,416
3,850
Percentof6,416Convic<ons
16%
38% 39%
7%
5,717
3,639Percentof5,717Convic<ons
20%
33%38%
9%
Convic<ons CWOFs Fines Proba<on HOC DOC
1,042
1,321
Percentof1,042Convic<ons
27%
41%
27%
5%
Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.
Anumberofstatutes,policies,andprac<cesshapethedistribu<onof
incarcera<onandcommunitysupervisionsentencesinMassachusePs
CouncilofStateGovernmentsJus<ceCenter 19
DATAANALYZEDTOEXPLORETHESETOPICS:
2013Sentencingdata(CARI)
2014CWOFdisposi<ondata(CARI)
2016JudicialsurveyconductedbyCSG
Criminalhistorydata(ICORI)
FACTORSSHAPINGINCARCERATIONANDSUPERVISION:
CWOFs
SentencingStatutes
SentencingGuidelines
DOC&HOCStructure
Post-ReleaseSupervisionStructure
Someanalysisisnotincludedinthispresenta<on*
CouncilofStateGovernmentsJus<ceCenter 20
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
CouncilofStateGovernmentsJus<ceCenter 21
SystemOverview
Execu(veSummary
KeyStatutes,Policies,andPrac(ces
SummaryofFindingsandNextSteps
KEYFINDING:Peoplewithpreviousjus<cesysteminvolvementare
responsibleforthree-quartersofnewconvic<ons
22
16%
21%
26%
18%
19%
21%
38%
34%
33%
28%
26%
20%
HOC
StatePrison
AllSentences
0priors 1to2priors 3to10priors 11ormorepriors
CouncilofStateGovernmentsJus<ceCenter
NumberofPriorOffensesbySentenceType,2013
Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.
74%hadprior
convic<ons
Recidivismdrivesmostnewconvic<onac<vity
CouncilofStateGovernmentsJus<ceCenter 23
PercentofIndividualsConvictedin2013EverReceivingaCWOF*
N=32,839
34%(11,188people)
NOPRIORCWOF
25%(8,372people)
ONEPRIOR
CWOF
18%(5,832people)
TWOPRIOR
CWOFs
23%(7,447people)
THREEOR
MORE
PRIORCWOFs
66percentofindividualsconvictedin2013hadahistoryofatleastoneCWOF.11percentof
convic<onsweretheresultofarevoca<onofaCWOF.
*Individuals’latestdisposi<ondatein2013wasselected.Datanotavailablefor0.7%ofconvic<ons.Juvenilecriminalhistorywasexcludedfromtheanalysis.
Source:CSGJus<ceCenteranalysisof2013CARIandiCORIdata.Criminalhistoriesarecalculatedusingthenumberofincidentsandincludesadultcriminalhistoryonly.
Peopleconvictedforpropertyoffenseshadthehighest
numberofpreviousconvic(ons
7.6
4.4
6.0
7.9
4.1
6.1
3.1
Other
Motorvehicle
Drug
Property
Weapons
Persons
Violentsexoffense
AverageNumberofPreviousConvic<onsbyOffenseType
ArevolvingdoorexistswithHOCsentencesandstateprison
24CouncilofStateGovernmentsJus<ceCenter
ofindividualssentencedtoDOCin2013hadaprior
HOCsentenceswithinthelastthreeyearsof
sentencingdata(sinceFY2010)
Sentencedto
HOC
Sentencedto
DOC
Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.
ofindividualssentencedtoHOCin2013hada
priorHOCsentencewithinthelastthreeyears
ofsentencingdata(sinceFY2010)43%
ofindividualssentencedtoDOCin2013hada
priorHOCsentencewithinthelastthreeyears
ofsentencingdata(sinceFY2010)31%
RELEASESFROMHOC
179
1,199
259
891
3,111
465266
2,380
179
1,000
1,055
1,763
889
0
500
1,000
1,500
2,000
2,500
3,000
3,500
4,000
4,500
5,000
Violentsex
offense
Persons Weapons Drug Property Motorvehicle Other
KEYFINDING:Motorvehicleandpropertyoffensesgeneratealarge
volumeofshortsentencestoHOC
CouncilofStateGovernmentsJus<ceCenter 25
2013SentencestoHOCbyOffenseTypeandLevel
N=13,636
Misdemeanor
Felony
47%ofallHOCsentences
6,394peoplereceived
asentencetoHOCfora
motorvehicleor
propertyoffensein
2013
Averagesentence
length:
Property7.3monthsMV4.4months
Alloffenseslistedinthischartare
the“governingoffense.”Individuals
mayhavehadaddi7onalchargeson
theircourtdocket,buttheoffense
shownherewasdeemedtobethe
mostseriousinthesentencingevent.
Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.
Morethan1,200peopleweresentencedtoHOC
forlarcenyoffenses,atacostofupto$13million
CouncilofStateGovernmentsJus<ceCenter 26
LESSTHAN$250MISDEMEANORLARCENY
Punishablebyafine/proba<onoruptoa
yearinanHOC
MORETHAN$250FELONYLARCENY
Punishablebyafine/proba<on,uptotwo
yearsinanHOC,orfiveyearsinstateprison
271
0
100
200
300
400
500
600
700
800
900
1,000984
2013LarcenySentencestoHOC
Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.MassachusePsSheriffsAssocia<onFY2013andFY2014costper
inmate.Thecalcula<onrepresentsanaveragecostacrosscountyfacili<es.Someofthecostperinmateinforma<onincludesbothcountyjailandHOCcosts.
NumberofsentencestoHOCfor
felonylarceny:
984
Es<matedLOsbasedonmaximum
sentencelength:
105days
Costtoincarcerateaone-yearcohort
offelonylarcenyoffendersinHOC:
$11.5M
NumberofsentencestoHOCfor
misdemeanorlarceny:
271
Es<matedLOsbasedonmaximum
sentencelength:
55days
Costtoincarcerateaone-yearcohort
ofmisdemeanorlarcenyoffendersin
HOC:$1.7M
TotalPoten(alCost:$13.2M
Theabovefiguresarecostes7mates.Amore
thoroughfiscalimpactanalysiswillbeconductedlaterintheprojecttoes7matecostsandpoten7al
savingsofspecificprac7cesandpolicies,andmay
differfromwhatisshownhere.
Thestatutorydefini(onoflarcenyonlystaircasestwolevelsofthel:
LESSTHAN$250andMORETHAN$250
NearlyhalfofHOCsentencesformisdemeanormotorvehicle
offenseswereforOpera<ngwithaSuspendedLicense
CouncilofStateGovernmentsJus<ceCenter 27
MisdemeanorMotorVehicleSentencestoHOCs2013
N=1,763
819
286
215180
132
73 58
0
100
200
300
400
500
600
700
800
900
Opera<ng
Suspended
License(OSL)
OUI Reckless
Negligence
Leavingthe
Scene
OSLajerOUI Insurance
Viola<on
Other*
47%ofmisdemeanormotor
vehiclesentencesto
incarcera<onarefor
drivingwithasuspended
license
MassachusePscould
bespendingasmuchas
$8millionayearincarcera<ng
misdemeanormotorvehicle
offenders
Theabovefigureisacostes7mate.A
morethoroughfiscalimpactanalysiswillbeconductedlaterintheprojectto
es7matecostsandpoten7alsavingsof
specificprac7cesandpolicies,andmay
differfromwhatisshownhere.
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
CouncilofStateGovernmentsJus<ceCenter 28
*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
$112
7,266x60
daysx$112
KEYFINDING:Sentencingprac<cesimpactwhetherpeople
sentencedtoincarcera<onreceivepost-releasesupervision
CouncilofStateGovernmentsJus<ceCenter 29
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.
620
387
233
355
245
110
536
447
89
343
172
171
Nearly20%ofstateprisonsentencesrestrictparoleandhave
noguaranteedpost-releaseproba<on
CouncilofStateGovernmentsJus<ceCenter 30
NoAndaDayorFrom&Ajer
From&Ajer+AndaDay
From&Ajer
AndaDay
Mandatory
Sentences
N=603
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
Asentenceofpost-releaseproba<on
aswellasminandmaxonedayapart
NoAndaDayorFrom&AlerNosentenceofpost-release
proba<onandtheperiodbetween
minandmaxlongerthanoneday42%haveasentencerangeofoneyearorless
20to50percentofstateprisonsentenceswillbereviewedbytheparoleboardtodetermine
eligibilityandreleasetopost-releasesupervision.
Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.
Thelikelihoodofreceivingapost-releaseproba<onsentence
decreasedascriminalhistoryscoreincreased
CouncilofStateGovernmentsJus<ceCenter 31
51%48% 49%
42%40%
34%
30%
24%
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.
Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.
Peoplewithmorethanthreeprioroffensesweremorelikelyto
receivestraightHOCsentenceswithnopost-releaseproba<on*
CouncilofStateGovernmentsJus<ceCenter 32
13%
20%
24%
17%
21%
25%
38%
38%
32%
32%
21%
19%
StraightHOC
HOCSplit
HOCFrom&Ajer
0priors 1to2priors 3to10priors 11ormorepriors
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
CouncilofStateGovernmentsJus<ceCenter 33
Recidivismdrivesmostnewconvic<onac<vity:74percentofpeoplesentencedhadapriorconvic<onand66percenthadahistoryofatleastoneCon<nuanceWithoutaFinding(CWOF).
Morethan40percentofpeoplesentencedtoanHOChadapriorHOCsentencewithinthepreviousthreeyears.
Peopleconvictedofpropertyoffenseshadthehighestnumberofprior
offenses.
SUMMARY:Motorvehicleandpropertyoffensesaccountfor
alargevolumeofshortsentencestoHOC
CouncilofStateGovernmentsJus<ceCenter 34
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.
*Theabovefigureisacostes7mate.Amorethoroughfiscalimpactanalysiswillbeconductedlaterintheprojecttoes7matecostsandpoten7alsavingsofspecificprac7cesandpolicies,andmaydifferfromwhatisshownhere.
SUMMARY:Sentencingprac<cesimpactwhetherpeople
sentencedtoincarcera<onreceivepost-releasesupervision
CouncilofStateGovernmentsJus<ceCenter 35
Nearlyhalfofsentencestostateprisonincludedasentenceofpost-releaseproba<on.
19percentofstateprisonsentencespreventanypost-releasesupervision,solelybasedonthesentence;drugsentencesweremost
likelytorestrictpost-releasesupervision.
Thelikelihoodofreceivingapost-releaseproba<onsentencedecreased
ascriminalhistoryscoreincreased.
Two-thirdsofHOCsentenceswerestraightsentencesthatdidnotincludepost-releaseproba<on,and40percentofpeoplewhoreceivedstraightsentenceswillnotbeeligibleforparoleduetosentencelength.
Keypolicyconsidera<ons
CouncilofStateGovernmentsJus<ceCenter 36
Recidivismaccountsforthreeoutofeveryfournewsentences.Whatstepscanbetakentoreduceratesofrecidivismacrosstheboard,
par<cularlyforpeoplereleasedfromHOC?
Massachuse2sspendstensofmillionsofdollarsincarcera(ngpeopleconvictedofmisdemeanoroffensessuchasmotorvehicleandpropertycrimes.Aretherelesscostlyapproachestoholdingthesepeopleaccountablefor
theiroffensesthatcouldalsoproducebePerpublicsafetyoutcomes?
Sentencingpoliciesandprac(cesresultininconsistentuseofpost-releasesupervisionandaccesstocommunitysupports.AretherewaystobePertargetresourcestopeoplewhoaremostlikelyto
reoffendandreduceinvestmentsinpeoplewhopresentalowrisk?
v
v
v
Presenta<onOverview
CouncilofStateGovernmentsJus<ceCenter 37
SystemOverview
Execu(veSummary
SummaryofFindingsandNextSteps
CWOFs
KEYSENTENCINGSTATUTES
SENTENCINGGUIDELINES
DOC&HOCSTRUCTURE
POST-RELEASESUPERVISION
DetailedDiscussionofKeyStatutes,Policies,andPrac(ces
Thislistispresentedinorderofanindividual’s
progressionthroughthecriminaljus7cesystem
anddoesnotreflectorderofpriorityorimpact.
Con<nuanceWithoutaFinding(CWOF)isabroadlydefined
andapplieddisposi<oninMassachusePscourts
CouncilofStateGovernmentsJus<ceCenter 38
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
CWOF
Source:MassachusePsGeneralLawsChapter278,Sec<on18
Therearefewrestric<onsonoffensesthatcanqualifyforaCWOF
CouncilofStateGovernmentsJus<ceCenter 39
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
CouncilofStateGovernmentsJus<ceCenter 40
31,855
88
35,684
3,365
0
5,000
10,000
15,000
20,000
25,000
30,000
35,000
40,000
2013Convic<onsand2014CWOFsbyCourt*
*2014istheonlyyearforwhichasnapshotofCWOFinforma<onisavailable.2013isthelatestyearofconvic<ondataavailabletotheCSGJus<ceCenter.
Source:CSGJus<ceCenteranalysisof2013and2014CARIsentencingdata.
DistrictCourt/BMC SuperiorCourt
RATIOOFCWOFsTOCONVICTIONS:
1TO38SUPERIORCOURT
1TO1.12
DISTRICTCOURT/BOSTONMUNICIPALCOURT
CWOFs
Convic<ons
AmajorityofCWOFsare
fromDistrictCourtorthe
BostonMunicipalCourt
0
2,000
4,000
6,000
8,000
10,000
12,000
14,000
CWOFsareusedinalloffensecategories,thoughthe
propor<onofCWOFstoconvic<onsvaries
CouncilofStateGovernmentsJus<ceCenter 41
MotorVehicle Property Persons Drug Other Weapons Violentsexoffense
95%
61%
39%
5%
10,623
13,528
10,151
6,047
8,222
5,760
4,5834,166 4,122
1,860
869451 479
131
2013Convic<onsand2014CWOFsbyOffense*
64%
36%
54%
46%
87%
13% 61%39%
100%
MisdemeanorConvic<on
FelonyConvic<on
MisdemeanorCWOF
FelonyCWOF
99%
1%
34%
66%
77%
23%
78%
22%
88%
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
1,744
1,074
4,139
173
5,517
731
4,174
909
4,842
70
2,166
2,828
4,457
6,224
1,333
1,618
3,282
142
4,528
532
3,251
911
4,024
125
2,157
2,8533,054
4,133
0
1,000
2,000
3,000
4,000
5,000
6,000
7,000
Convic<ons CWOFs
Thenumbersofconvic<onsandCWOFsvaryacrosscoun<es
CouncilofStateGovernmentsJus<ceCenter 42
2013Convic<onsand2014CWOFsbyCounty*
*2014istheonlyyearforwhichasnapshotofCWOFinforma<onisavailable.TheCSGJus<ceCenterhasnotyetreceived2014sentencingdata.
Source:CSGJus<ceCenteranalysisof2013and2014CARIsentencingdata.
Thereareavarietyofreasonsfordifferencesinthenumbersandpropor7onsofCWOFsandconvic7ons,
includingvariancesinlocalcrimeratesandseriousnessofoffenses.
Male
Female
Demographiccomposi<onofCWOFscomparedto
residentpopula<oninthestate
CouncilofStateGovernmentsJus<ceCenter 43
71%29%
10%13% 13%
42%
21%
35%
22% 22%
18-24 25-34 35-44 45andolder
ResidentPopula<on
CWOFs
Source:CSGJus<ceCenteranalysisof2014CARIcourtdata;U.S.Census2010–2014AmericanCommunitySurvey5-YearEs<mates.
.
Male
Female
52%
48%
PercentofResidentPopula<on/PercentofCWOFsbyRace,2013
PercentofResidentPopula<on/PercentofCWOFsbyAge,2013
PercentofResidentPopula<onbyGender,2013
PercentofCWOFsbyGender,201375%
6%10% 9%
72%
12% 11%
4%
White Black Hispanic Other
ResidentPopula<on
CWOFs
Two-thirdsofpeopleconvictedin2013hadahistoryofat
leastonepriorCWOFasanadult
CouncilofStateGovernmentsJus<ceCenter 44
PercentofPeopleConvictedin2013EverReceivingaCWOF*
N=32,839
34%(11,188people)
NOPRIORCWOF
25%(8,372people)
ONEPRIOR
CWOF
18%(5,832people)
TWOPRIOR
CWOFs
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
CouncilofStateGovernmentsJus<ceCenter 45
12%
25%
11%
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.
49%
Judgesiden<fiedseverityofoffenseandcriminalhistoryas
keyconsidera<onsindecisionstouseaCWOFoverconvic<on
CouncilofStateGovernmentsJus<ceCenter 46
Judgesiden(fiedaddi(onalfactorsasbeinginfluen(alin
theirdecisionmaking:
Inputandconsensus
amongvic<msinthecase
Likelihoodofadefendant
toreoffend
Thecourtinwhichthey
arepresiding:CWOFsare
rareinSuperiorCourt
PercentofJudgesRepor<ngFactorsasVeryImportanttoMakingDecisionsonCWOFs
*CSGJus<ceCenterelectronicsurveyofMassachusePsjudges,March2016.14BostonMunicipalCourtjudges,31DistrictCourtjudgesand30SuperiorCourtjudgespar<cipatedinthesurvey.
86%
93%
79% 79%
71%
50%
21%
87%90%
77% 77%
45%
39%
32%
93%
83%87%
73%
40%
33%
23%
Severityofcrime Criminalhistory Typeofoffense
(person,drug,
property,etc.)
First<me
offenderstatus
Ageofoffender Abilitytoprevent
collateral
consequences
Pleaagreement
offeredbyDA
anddefense
BostonMunicipalCourt DistrictCourt SuperiorCourt
CWOFsarebroadlyused,butliPleisknownabouttheirimpacton
thecriminaljus<cesystemorpeoplewhoreceivethem
CouncilofStateGovernmentsJus<ceCenter 47
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
CouncilofStateGovernmentsJus<ceCenter 48
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
CouncilofStateGovernmentsJus<ceCenter 49
SystemOverview
Execu(veSummary
SummaryofFindingsandNextSteps
CWOFs
KEYSENTENCINGSTATUTES
SENTENCINGGUIDELINES
DOC&HOCSTRUCTURE
POST-RELEASESUPERVISION
DetailedDiscussionofKeyStatutes,Policies,andPrac(ces
Thislistispresentedinorderofanindividual’s
progressionthroughthecriminaljus7cesystem
anddoesnotreflectorderofpriorityorimpact.
0
2,000
4,000
6,000
8,000
10,000
12,000
Motorvehicle Property Persons Drug Other Weapons Violentsex
offense
2,122
517 529 479
Overhalfofconvic<onswereforpropertyormotorvehicleoffenses
CouncilofStateGovernmentsJus<ceCenter 50
2013Convic<onsbyOffenseTypeandLevel
N=39,049
10,097
3,974
5,273
2,4613,605
340
6,177
526
2,949
Misdemeanor Felony
53%ofallconvic(ons 6,643
individualsreceived
asentenceto
incarcera<onfora
motorvehicleor
propertyoffensein
2013
Alloffenseslistedinthischartare
the“governingoffense.”Peoplemay
havehadaddi7onalchargesontheir
courtdocket,buttheoffenseshown
herewasdeemedtobethemost
seriousinthesentencingevent.
Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.
Thestatespentupto$15milliononincarcera<onfor
misdemeanormotorvehicleandpropertyoffenses
CouncilofStateGovernmentsJus<ceCenter 51
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.
1,055
1,432 1,487
0
200
400
600
800
1,000
1,200
1,400
1,600
HOC Proba<on Other
1,763
5,332
3,002
0
1,000
2,000
3,000
4,000
5,000
6,000
HOC Proba<on Other
MisdemeanorPropertyCrimebySentence MisdemeanorMotorVehicleCrimebySentence
N=10,097N=3,974
NearlyhalfofHOCsentencesformisdemeanormotorvehicle
offenseswereforOpera<ngwithaSuspendedLicense
CouncilofStateGovernmentsJus<ceCenter 52
MisdemeanorMotorVehicleSentencestoHOCs2013
N=1,763
819
286
215180
132
73 58
0
100
200
300
400
500
600
700
800
900
Opera<ng
Suspended
License(OSL)
OUI Reckless
Negligence
Leavingthe
Scene
OSLajerOUI Insurance
Viola<on
Other*
47%ofmisdemeanormotor
vehiclesentencesto
incarcera<onarefor
drivingwithasuspended
license
MassachusePscould
bespendingasmuchas
$8millionayearincarcera<ng
misdemeanormotorvehicle
offenders
Theabovefigureisacostes7mate.A
morethoroughfiscalimpactanalysiswillbeconductedlaterintheprojectto
es7matecostsandpoten7alsavingsof
specificprac7cesandpolicies,andmay
differfromwhatisshownhere.
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
CouncilofStateGovernmentsJus<ceCenter 53
LESSTHAN$250MISDEMEANORLARCENY
Punishablebyafine/proba<onoruptoa
yearinanHOC
MORETHAN$250FELONYLARCENY
Punishablebyafine/proba<on,uptotwo
yearsinanHOC,orfiveyearsinstateprison
271
0
100
200
300
400
500
600
700
800
900
1,000984
2013LarcenySentencestoHOC
Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.MassachusePsSheriffsAssocia<onFY2013andFY2014costper
inmate.Thecalcula<onrepresentsanaveragecostacrosscountyfacili<es.Someofthecostperinmateinforma<onincludesbothcountyjailandHOCcosts.
NumberofsentencestoHOCfor
felonylarceny:
984
Es<matedLOsbasedonmaximum
sentencelength:
105days
Costtoincarcerateaone-yearcohort
offelonylarcenyoffendersinHOC:
$11.5M
NumberofsentencestoHOCfor
misdemeanorlarceny:
271
Es<matedLOsbasedonmaximum
sentencelength:
55days
Costtoincarcerateaone-yearcohort
ofmisdemeanorlarcenyoffendersin
HOC:$1.7M
TotalPoten(alCost:$13.2M
Theabovefiguresarecostes7mates.Amore
thoroughfiscalimpactanalysiswillbeconductedlaterintheprojecttoes7matecostsandpoten7al
savingsofspecificprac7cesandpolicies,andmay
differfromwhatisshownhere.
Thestatutorydefini(onoflarcenyonlystaircasestwolevelsofthel:
LESSTHAN$250andMORETHAN$250
Thefelonylarcenythresholdhasnotbeenadjustedtokeep
upwithinfla<on
CouncilofStateGovernmentsJus<ceCenter 54
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
$977
$250
$0
$200
$400
$600
$800
$1,000
$1,200
1977
1979
1981
1983
1985
1987
1989
1991
1993
1995
1997
1999
2001
2003
2005
2007
2009
2011
2013
$977IN2014DOLLARSISEQUIVALENTTO$250IN1977DOLLARS
66%
16% 15%
3%
72%
16%11%
2%
72%
11%14%
4%
White Black Hispanic Other
Convic<ons Property MotorVehicle
21%
35%
22% 22%23%
36%
23%
19%
15%
34%
23%
28%
18-24 25-34 35-44 45andolder
Convic<ons Property MotorVehicle
2013Property,MotorVehicle,andTotalConvic<onsbyAge
Demographiccomposi<onofmotorvehicleandproperty
convic<onscomparedtototalconvic<ons
CouncilofStateGovernmentsJus<ceCenter 55
Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata;U.S.Census2010-2014AmericanCommunitySurvey5-YearEs<mates.
2013Property,MotorVehicle,andTotalConvic<onsbyRace
Male
Female
83% 17%
2013Convic<onsbyGender
Male
Female
75%25%
2013PropertyConvic<onsbyGender
Male
Female
84% 16%
2013MotorVehicleConvic<onsbyGender
Addi<onalanalysisonkeysentencingstatutes
CouncilofStateGovernmentsJus<ceCenter 56
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
CouncilofStateGovernmentsJus<ceCenter 57
SystemOverview
Execu(veSummary
SummaryofFindingsandNextSteps
CWOFs
KEYSENTENCINGSTATUTES
SENTENCINGGUIDELINES
DOC&HOCSTRUCTURE
POST-RELEASESUPERVISION
DetailedDiscussionofKeyStatutes,Policies,andPrac(ces
Thislistispresentedinorderofanindividual’s
progressionthroughthecriminaljus7cesystem
anddoesnotreflectorderofpriorityorimpact.
MassachusePsisoneof21stateswithsomeformof
sentencingguidelines
CouncilofStateGovernmentsJus<ceCenter 58
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
59CouncilofStateGovernmentsJus<ceCenter
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
60CouncilofStateGovernmentsJus<ceCenter
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
3,837
5,924
10,255
5,527
207
0
0
0
0
0
0 2,000 4,000 6,000 8,000 10,00012,000
Nogrid
Level1
Level2
Level3
Level4
Level5
Level6
Level7
Level8
Level9
999
9
767
6,658
2,811
1,067
575
218
118
77
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
CouncilofStateGovernmentsJus<ceCenter 61
“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
Life
Mandatory
Life
Mandatory
Life
Mandatory
Life
Mandatory
Life
8 StatePrison StatePrison StatePrison StatePrison StatePrison
7 StatePrison StatePrison StatePrison StatePrison StatePrison
6 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
HOC
StatePrison
HOC
3HOC
Proba<on
Fine
Prison/HOC
Proba<on
Fine
Prison/HOC
Proba<on
Fine
Prison/HOC
Proba<on
Prison/HOC
Proba<on
2 Proba<on
Fine
HOC
Proba<on
Fine
HOC
Proba<on
Fine
HOC
Proba<on
Fine
HOC
Proba<on
Fine
1 Proba<on
Fine
Proba<on
Fine
Proba<on
Fine
HOC
Proba<on
Fine
HOC
Proba<on
Fine
Notassigned OUI,mandatorygun,andnon-jailableoffenses
Offense
Severity
Criminal
History
Ofsentencesthatareassignedtothegrid,86%aresentencedwithintheproposedguidelinesranges,
58%wereinthe“discre<onaryzone”
Sentencingoutcomescanvaryforindividualswiththesame
offenseandsimilarcriminalhistory
CouncilofStateGovernmentsJus<ceCenter 62
EXAMPLEOFFENSE1:
LarcenyLessThan$250CriminalHistory:Minor—Moderate
OffenseSeverityLevel:2
EXAMPLEOFFENSE3:
DrugPossessionClassBCriminalHistory:Minor—Moderate
OffenseSeverityLevel:2
30%
HOC
57%
Proba<on
13%
Fine
39%
HOC
47%
Proba<on
14%
Fine
N=522
N=522
Theoffensesincludedinthisanalysisrepresent
thechargeatsentencingandmay,insome
cases,bedifferentfromtheoriginalcharge.
CSGJus<ceCenteranalysisof2013CARIsentencingdata.
N=278
EXAMPLEOFFENSE2:
Opera(ngLicenseSuspended(Subsequent)CriminalHistory:Minor—Moderate
OffenseSeverityLevel:2
48%
HOC
40%
Proba<on
12%
Fine
2013Sentences
11.2
15.614.0
22.6 22.9
25.5
SuperiorCourtsentencesareconsistentlylongerthanDistrict
Courtsentencesforsimilaroffenses
CouncilofStateGovernmentsJus<ceCenter 63
N=393
N=58
N=1,077
N=238
N=3,290
N=174
OFFENSESEVERITY
20-30
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
100%
longer
47%
longer
82%
longer
Addi<onalanalysisonsentencingguidelines
CouncilofStateGovernmentsJus<ceCenter 64
Howdojudgesusethesentencingguidelinesandother
informa<oninmakingsentencingdecisions?
Howmanycasesapplytothesentencinggridandwhere
dotheytypicallyfall?
Whatarethesentencingoutcomesforthesameoffense
withsimilarcriminalhistory?
Shouldprocessesbeimprovedtocreatemoreconsistency
andstandardiza<oninsentencing?
Whatarerela<vecostsandrecidivismoutcomesforsimilar
individualsreceivingdifferenttypesofsentences?
ü ü ü
Presenta<onOverview
CouncilofStateGovernmentsJus<ceCenter 65
SystemOverview
Execu(veSummary
SummaryofFindingsandNextSteps
CWOFs
KEYSENTENCINGSTATUTES
SENTENCINGGUIDELINES
DOC&HOCSTRUCTURE
POST-RELEASESUPERVISION
DetailedDiscussionofKeyStatutes,Policies,andPrac(ces
Thislistispresentedinorderofanindividual’s
progressionthroughthecriminaljus7cesystem
anddoesnotreflectorderofpriorityorimpact.
DOCandcountyfacili<es*managesimilarlysizedpopula<ons
andreceivesimilarlevelsofstatefunding
CouncilofStateGovernmentsJus<ceCenter 66
*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
CouncilofStateGovernmentsJus<ceCenter 67
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
68
6,401
47%
3,891
29%
8656%
2,479
18%
CouncilofStateGovernmentsJus<ceCenter
Misdemeanor
sentences
Felony
sentences
Lessthan1Year
1–2½Years
79
859
920
943
1,660
1,940
Weapons
Other
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
CouncilofStateGovernmentsJus<ceCenter 69
193
0
2
57
454
282
479
200
110
77
0 100 200 300 400 500
0
1
2
3
4
5
6
7
8
9
155
782
155220
482
29 31
179
1,199
259
3,111
891
465
266
2,380
179
1,0551,000
1,763
889
0
500
1,000
1,500
2,000
2,500
3,000
3,500
Felony
HOCFelony
HOCMisdemeanor
Violent/Sex
8%
Persons
42%
Weapons
8%
Property
12%
Drug
26%
MV
2%
Other
2%
0
10%
SentencestoHOCandStatePrisonbyOffense,2013SentencestoStatePrisonbyOffenseSeverityLevel,2013
1,091
1,059
3,597
5,846
1,539
453
43
8
0
0
0 2,000 4,000 6,000
0
1
2
3
4
5
6
7
8
9
SentencestoHOCbyOffenseSeverityLevel,2013
CSGJus<ceCenteranalysisof2013CARIsentencingdata.
Low
Severity
High
Severity
Low
Severity
High
Severity
26%
34%
21%18%
23%
39%
21%
17%
18-24 25-34 35-44 45orolder
HOC
DOC
Demographiccomposi<onofsentencestoHOCand
stateprison
CouncilofStateGovernmentsJus<ceCenter 70
64%
18%16%
2%
44%
26%27%
3%
White Black Hispanic Other
HOC
DOC 88%
12%
Source:CSGJus<ceCenteranalysisof2014CARIsentencingdata.
2013SentencestoHOCandStatePrisonbyRace
2013SentencestoHOCandStatePrisonbyAge
2013SentencestoHOCandStatePrisonbyGender
Male
Female96%
4%
Male
Female
DOCHOC
2013SentencestoStatePrison
One-thirdofsentencestostateprisonrequiremandatory
incarcera<onforamotorvehicle,drug,weapons,orpersonoffense
CouncilofStateGovernmentsJus<ceCenter 71
0
100
200
300
400
500
600
700
800
900
Other MV Drug Property Weapons Persons Violent
sex
offense
Mandatory
Nomandatory
N=1,854
67%mandatory
100%mandatory
96%mandatory
10%mandatory
*Mandatorypersonsoffensessentencedtoprisonwerelifesentences
5%
0%
59%
36%
Other
Possession
Distribu<on
Trafficking N=174
N=286
8%
44%
48%
0%
Other
Possession
Distribu<on
Trafficking
N=910
N=836
CSGJus<ceCenteranalysisof2013CARIsentencingdata.
2013SentencestoStatePrisonforDrugOffenses
2013SentencestoHOCforDrugOffenses
7,996
2,327
1,999
259
711
156 16226
White Black Hispanic Other
HOCNon-Mandatory
HOCMandatory
MandatorysentencestoHOCandDOCbyrace
CouncilofStateGovernmentsJus<ceCenter 72
2013Non-MandatoryandMandatorySentencestoHOCbyRace
Non-MandatoryN=12,581,MandatoryN=1,055
649
279 287
36
176
209 205
13
White Black Hispanic Other
DOCNon-Mandatory
DOCMandatory
2013Non-MandatoryandMandatorySentencestoDOCbyRace
Non-MandatoryN=1,251,MandatoryN=603
8%ofsentencestoHOCare
mandatories
33%ofsentencestoDOCare
mandatories
CSGJus<ceCenteranalysisof2013CARIsentencingdata.
Nearlythree-quartersofallsentenceswereimposedon
peoplewithatleastsomecriminalhistory
73
16%
21%
26%
18%
19%
21%
38%
34%
33%
28%
26%
20%
HOC
StatePrison
AllSentences
0priors 1to2priors 3to10priors 11ormorepriors
CouncilofStateGovernmentsJus<ceCenter
NumberofPriorConvic<onsbySentenceType,2013
Whatisthecostofthesereturnstoincarcera(on?
Whatimpactcouldrecidivismreduc(onstrategieshaveonHOCandstateprisonpopula(ons?
Source:CSGJus<ceCenteranalysisof2013CARIandiCORIdata.Criminalhistoriesarecalculatedusingthenumberofincidentsandincludesadultcriminalhistoryonly.
ArevolvingdoorexistswithHOCsentencesandDOC
74CouncilofStateGovernmentsJus<ceCenter
ofindividualssentencedtoDOCin2013hadaprior
HOCsentenceswithinthelastthreeyearsof
sentencingdata(sinceFY2010)
Sentencedto
HOC
Sentencedto
DOC
Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.
ofpeoplesentencedtoHOCin2013hadaprior
HOCsentencewithinthelastthreeyearsof
sentencingdata(sinceFY2010)43%
ofpeoplesentencedtoDOCin2013hadaprior
HOCsentencewithinthelastthreeyearsof
sentencingdata(sinceFY2010)31%
RELEASESFROMHOC
Addi<onalanalysisonHOCsandstateprison
CouncilofStateGovernmentsJus<ceCenter 75
WhattypesofoffensesaredrivingHOCandstateprison
sentences?
Whatistheoffenseseverityandcriminalhistoryforpeople
sentencedtoHOCandstateprison?
WhatisthelengthofsentencestoHOC?
WhoisinHOCandstateprisonforasupervisionviola<on
versusanewcrime?
Whatistheriskandneedsassessmentinforma<onforthis
popula<onandhowisitusedindeterminingtreatment
andprogramming?
Whatarethepropor<onofpeoplewithinHOCandstate
prisonthatareparoleeligibleandhowdoesgood<me
impacttheirsentence?
ü ü ü
Presenta<onOverview
CouncilofStateGovernmentsJus<ceCenter 76
SystemOverview
Execu(veSummary
SummaryofFindingsandNextSteps
CWOFs
KEYSENTENCINGSTATUTES
SENTENCINGGUIDELINES
DOC&HOCSTRUCTURE
POST-RELEASESUPERVISION
DetailedDiscussionofKeyStatutes,Policies,andPrac(ces
Thislistispresentedinorderofanindividual’s
progressionthroughthecriminaljus7cesystem
anddoesnotreflectorderofpriorityorimpact.
Sentencingop<onsresultinrestric<ngandrequiringpost-
releasesupervision
CouncilofStateGovernmentsJus<ceCenter 77
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
CouncilofStateGovernmentsJus<ceCenter 78
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
891
698
603
Fromandajer
Andaday
Mandatory
1,854totalstate
prison
sentences
3,507
1,055
1,033
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
CouncilofStateGovernmentsJus<ceCenter 79
51%48% 49%
42%40%
34%
30%
24%
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*
CouncilofStateGovernmentsJus<ceCenter 80
13%
20%
24%
17%
21%
25%
38%
38%
32%
32%
21%
19%
StraightHOC
HOCSplit
HOCFrom&Ajer
0priors 1to2priors 3to10priors 11ormorepriors
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
CouncilofStateGovernmentsJus<ceCenter 81
76%
51%48%
36%38%
69%
32%
37%
41%
19%
14%
23%
13%
HOC-Felony HOC-Misdemeanor
Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.
PercentofSentenceswithPost-releaseProba<onbyOffenseType,2013
Violentsex
offense
N=179
Persons
N=3,579
Weapon
N=438
Property
N=4,166
Drug
N=1,891
MotorVehicle
N=2,228
Other
N=1,155
19% 35% 22% 13% 21% 48% 12% 47% 3% 76% 28% 73%
Percentofcases
noteligiblefor
paroledueto
sentencelength
outofthosenot
receiving
proba<on
620
387
233
355
245
110
536
447
89
343
172
171
Nearly20%ofstateprisonsentencesrestrictparoleandhave
noguaranteedpost-releaseproba<on
CouncilofStateGovernmentsJus<ceCenter 82
NoAndaDayorFrom&Ajer
From&Ajer+AndaDay
From&Ajer
AndaDay
Mandatory
Sentences
N=603
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
Asentenceofpost-releaseproba<on
aswellasminandmaxonedayapart
NoAndaDayorFrom&AlerNosentenceofpost-release
proba<onandtheperiodbetween
minandmaxlongerthanoneday42%haveasentencerangeofoneyearorless
20to50percentofstateprisonsentenceswillbereviewedbytheparoleboardtodetermine
eligibilityandreleasetopost-releasesupervision.
Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.
Drugoffenseswerethemostlikelytohavean“AndaDay”
sentencewithoutpost-releaseproba<on
CouncilofStateGovernmentsJus<ceCenter 83
19%
9% 9%
17% 16%
41%
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
N=155
Source:CSGJus<ceCenteranalysisof2013CARIsentencingdata.
Confidenceinproba<onisevenlydistributedbetween
DistrictandSuperiorCourt,butvariedforparole
CouncilofStateGovernmentsJus<ceCenter 84
*DistrictCourtresponsesincludeBostonMunicipaljudges.CSGJus<ceCenterelectronicsurveyofMassachusePsjudges,March2016.45BostonMunicipalandDistrictCourtjudgesand30superiorcourtjudgespar<cipatedinthesurvey.
18%
10%
76%
77%
13%
13%
DistrictCourt*
SuperiorCourt
JudicialConfidenceinProba<on
Howconfidentareyouthatproba(on
iseffec(veinprotec(ng
communitysafety?
4%
3%
29%
63%
13%
17%
53%
17%
DistrictCourt*
SuperiorCourt
JudicialConfidenceinParole
Howconfidentareyouthatparoleis
effec(veinprotec(ng
communitysafety?
VeryConfident SomewhatConfident NotVeryConfident
Idonothaveadequateinforma<ontoanswerthisques<on
VeryConfident SomewhatConfident NotVeryConfident
Addi<onalanalysisonpost-releasesupervision
CouncilofStateGovernmentsJus<ceCenter 85
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
CouncilofStateGovernmentsJus<ceCenter 86
SystemOverview
Execu(veSummary
KeyStatutes,Policies,andPrac(ces
SummaryofFindingsandNextSteps
KEYFINDING:Peoplewithpreviousjus<cesysteminvolvementare
responsibleforthree-quartersofnewconvic<ons
CouncilofStateGovernmentsJus<ceCenter 87
Recidivismdrivesmostnewconvic<onac<vity:74percentofpeoplesentencedhadapriorconvic<onand66percenthadahistoryofatleastoneCon<nuanceWithoutaFinding(CWOF).
Morethan40percentofpeoplesentencedtoanHOChadapriorHOCsentencewithinthepreviousthreeyears.
Peopleconvictedofpropertyoffenseshadthehighestnumberofprior
offenses.
KEYFINDING:Motorvehicleandpropertyoffensesaccount
foralargevolumeofshortsentencestoHOC
CouncilofStateGovernmentsJus<ceCenter 88
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.
*Theabovefigureisacostes7mate.Amorethoroughfiscalimpactanalysiswillbeconductedlaterintheprojecttoes7matecostsandpoten7alsavingsofspecificprac7cesandpolicies,andmaydifferfromwhatisshownhere.
KEYFINDING:Sentencingprac<cesimpactwhetherpeople
sentencedtoincarcera<onreceivepost-releasesupervision
CouncilofStateGovernmentsJus<ceCenter 89
Nearlyhalfofsentencestostateprisonincludedasentenceofpost-releaseproba<on.
19percentofstateprisonsentencespreventanypost-releasesupervision,solelybasedonthesentence;drugsentencesweremost
likelytorestrictpost-releasesupervision.
Thelikelihoodofreceivingapost-releaseproba<onsentencedecreased
ascriminalhistoryscoreincreased.
Two-thirdsofHOCsentenceswerestraightsentencesthatdidnotincludepost-releaseproba<on,and40percentofpeoplewhoreceivedstraightsentenceswillnotbeeligibleforparoleduetosentencelength.
Jus<cereinvestment<meline
CouncilofStateGovernmentsJus<ceCenter 90
WorkingGroup(WG)
Mee(ng1
ImpactAnalysis
DataAnalysis
Ini<al
AnalysisDetailedDataAnalysis
WG
Mee<ng
2BillIntroduc(on
FinalReportReleased
PolicymakerandStakeholderEngagement
StakeholderEngagementandPolicymakerBriefings PolicyOp<onDevelopmentOngoing
engagement
WG
Mee<ng5:
Ini<alPolicy
Op<on
Discussion
Jan Feb Mar Apr May Jun Jul Aug Oct–Dec 2017Session
WG
Mee<ng
3
Steeringcommi;eetomeet1–2weeksinadvanceofeachworkinggroupmee7ng
WG
Mee<ng
4
WGMee<ng
6:
FinalPolicy
Op<ons
Discussion
Sept
CouncilofStateGovernmentsJus<ceCenter 91
ThankYouCassondraWarney,[email protected]
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