Adult and Juvenile Correctional Populations Forecasts

Transcription

1 Colorado Division of Criminal Justice Adult and Juvenile Correctional Populations Forecasts Pursuant to (m), C.R.S. January 2018 Prepared by Linda Harrison Office of Research and Statistics Division of Criminal Justice Colorado Department of Public Safety 700 Kipling Street, Suite 3000 Denver, CO Telephone: Fax: Office of Research and Statistics Kim English, Research Director Division of Criminal Justice Joe Thome, Director Colorado Department of Public Safety Stan Hilkey, Executive Director

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3 Table of Contents TABLES: 1 INTRODUCTION 2 THE COLORADO CRIMINAL JUSTICE FORECASTING MODEL 5 COLORADO ADULT PRISON POPULATION AND PAROLE CASELOAD PROJECTIONS 5 Adult Inmate Population Forecast 14 Factors Affecting The Adult Prison Population Projections 19 Adult Parole Caseload Forecast 21 ACCURACY OF DCJ PRISON POPULATION FORECASTS: LENGTH OF STAY ESTIMATES FOR FY 2017 PRISON AND PAROLE ADMISSIONS 36 YOUTH CORRECTIONS JUVENILE COMMITMENT AND PAROLE PROJECTIONS 37 Juvenile Commitment Population Forecast 40 Juvenile Parole Caseload Forecast 42 Juvenile Detention Population Forecast APPENDIX A: Laws Directly Affecting Prison Sentences and Length of Stay in Prison FIGURES: ; 6 Figure 1: Actual and projected total prison population FY 2005 through FY 2024: Comparison of DCJ December 2016, Summer 2016, and December 2017 Prison Population Projections 7 Figure 2: Actual and projected quarterly total and male prison population FY 2012 through FY Figure 3: Actual and projected quarterly female prison population FY 2012 through FY Figure 4: Colorado prison admissions by type: actual and projected FY 2012 through FY Figure 5: Colorado prison releases: actual and projected FY 2012 through FY Figure 6: Colorado prison release detail: actual and projected FY 2012 through FY Figure 7: Correspondence of Colorado criminal court filings FY 2000 through FY 2017 and new court commitments in following years 17 Figure 8: Semi-annual prison admissions for technical parole violations January 2014-December Figure 9: Historical and projected end of fiscal year parole caseloads FY 2012 through FY Figure 10: Historical and projected year-end year to date juvenile commitment average daily population FY 2002 through FY Figure 11: DCJ prison population forecast accuracy one, two and three years into forecast horizon 22 Figure 12: DCJ annual prison population forecast comparison: Figure 13: Historical and projected year-end year-to-date juvenile commitment average daily population FY 2002 through FY Figure 14: Historical and projected annual new juvenile commitments FY 2002 through FY Figure 15: Historical and projected juvenile parole year-end average daily population FY 2002 through FY Figure 16: Historical and projected juvenile detention year-end average daily population FY 2002 through FY 2022 Division of Criminal Justice/Office of Research and Statistics ii

4 8 Table 1: DCJ December 2017 Adult Prison Population Projection: Actual and projected populations FY 2005 through FY Table 2: DCJ December 2017 Quarterly Adult Prison Population Projection June 2017 through June Table 3: DCJ December 2017 Adult Prison Population Projections: Actual and projected prison admissions by type, FY 2005 through FY Table 4: DCJ December 2017 Adult Prison Population Projections, actual and projected prison releases by type, FY 2005 through FY Table 5: DCJ December 2017 adult domestic parole caseload projection FY 2017 through FY Table 6: Estimated average lengths of stay for FY 2017 new commitments 26 Table 7: Estimated average lengths of stay for FY 2017 male new commitments 27 Table 8: Estimated average lengths of stay for FY 2017 female new commitments 28 Table 9: Estimated average lengths of stay for FY 2017 parole returns with a new crime 29 Table 10: Estimated average lengths of stay for FY 2017 male parole returns with a new crime 30 Table 11: Estimated average lengths of stay for FY 2017 female parole returns with a new crime 31 Table 12: Estimated average lengths of stay for FY 2017 combined new court commitments and parole returns with a new crime 32 Table 13: Estimated average length of stay for FY 2017 new court commitments and parole returns with a new crime, category totals excluding habitual and sex offender act convictions 32 Table 14: Estimated average length of stay for FY 2017 new court commitments and parole returns with a new crime, category totals including habitual and sex offender act convictions 34 Table 15: Estimated average length of stay on parole for FY 2017 new parole intakes 38 Table 16: DCJ January 2018 juvenile commitment fiscal year-end average daily population and new admissions forecast, FY 2016 through FY Table 17: DCJ January 2018 quarterly juvenile commitment average daily population forecast, FY 2016 through FY Table 18: DCJ January 2018 juvenile parole year-end average daily caseload forecast, FY 2016 through FY Table 19: DCJ January 2018 juvenile detention fiscal year-end average daily population forecast, FY 2016 through FY Table 20: DCJ January 2018 quarterly juvenile detention average daily population forecast, FY 2017 through FY 2022 Division of Criminal Justice/Office of Research and Statistics iii

5 Introduction Background The Colorado Division of Criminal Justice (DCJ), pursuant to (m), C.R.S., is mandated to prepare correctional population projections for the Legislative Council and the General Assembly. Per statute, DCJ has prepared projections of these populations since the mid-1980s. This report presents forecasts for the Colorado adult prison and parole populations through FY 2024, and for the Colorado juvenile commitment, detention and parole populations through FY Also included are estimates regarding average length of stay for inmates admitted during the previous fiscal year. These are used to calculate cost savings resulting from proposed legislation and policy changes. Organization of This Report The first section of this report describes the Colorado Criminal Justice Forecasting Model (CCJFM). The adult prison population forecasts for fiscal years 2018 through 2024, including estimates of prison admissions and releases by type is then presented, followed by a discussion of factors and assumptions applied to the current projections. The next section presents the adult parole caseload forecasts for the fiscal years 2018 through Following the adult population forecasts, a brief discussion concerning the historical accuracy of the DCJ prison population forecasts is presented along with estimates of the average lengths of stay by offender category for prisoners admitted during fiscal year The last section presents the juvenile commitment, detention and parole projections for fiscal years 2018 through The juvenile population estimates include year-end and quarterly average daily population (ADP) forecasts for the committed population statewide, estimated numbers of new commitments, and year-end average daily caseload (ADC) forecasts for the juvenile parole population. These are followed by year-end and quarterly detention ADP forecasts. Division of Criminal Justice/Office of Research and Statistics 1

6 The Colorado Criminal Justice Forecasting Model Justice and Demographic Information Data from multiple sources are incorporated into the forecasting model to simulate the flow of individuals into the system, as well as the movement of those already in the system. These data include offender-based information concerning admissions to and releases from the Colorado Department of Corrections (DOC), as well as the population currently incarcerated. 1 Colorado population forecasts are provided by the Demographer's Office of the Department of Local Affairs. Criminal and juvenile case prosecution, conviction, sentencing and probation revocation data are obtained from the Colorado Judicial Branch's information management system and from annual reports issued by the Judicial Department. 2, 3 Adult Prison Population Forecasting Methodology Future prison populations are modeled for three cohorts: new court commitments to prison, parole returns to prison, and the population currently incarcerated. The cohort of new commitments is comprised of estimates of the composition and number of future admissions, including not only those newly sentenced to prison but also offenders who fail probation or community corrections and are subsequently incarcerated due to technical violations. These estimates are based on historical trends of prison admissions, crime rates, criminal case filings, conviction rates, sentencing practices, probation placements and probation revocation rates. Recent changes in laws or policies are also taken into account. This projected future admissions cohort is disaggregated into approximately 70 offender profile groups according to governing offense type, felony class and sentence length. The duration of each offender group s stay in prison is estimated using data concerning the length of stay for offenders with similar profiles released in prior years, adjusted to reflect recent changes in law or policy. Cumulative survival distributions are developed and applied to each of the offender profile/sentence length groups to determine a rate of release and the size of the remaining population. 1 Source: Data provided by the Colorado Department of Corrections and analyzed by the Division of Criminal Justice Office of Research and Statistics. 2 Data concerning criminal court filings are extracted from the Judicial Branch's information management system and analyzed by DCJ s Office of Research and Statistics. 3 Colorado State Judicial Branch. Colorado Judicial Branch Annual Reports. Denver, CO: Colorado Judicial Branch; Colorado State Judicial Branch. Colorado Judicial Branch Annual Recidivism Reports. Denver, CO: Colorado Judicial Branch, Division of Probation Services. Available at Division of Criminal Justice/Office of Research and Statistics 2

7 The cohort of currently incarcerated offenders is treated in a similar manner. This cohort is also disaggregated into approximately 70 offender profile and sentence length groups, with cumulative survival distributions calculated to estimate their rate of release. These survival distributions are adjusted to reflect changes in law or policy that may impact those currently incarcerated, which may differ from those influencing the future admissions cohort. The release of offenders currently in prison (referred to as the stock population), the estimates of future admissions, and the anticipated release of those admissions are combined to forecast the size of incarcerated populations in the future. A different approach is used to forecast parole populations. The number of releases to parole each year is estimated in the process of developing the prison population forecast. An average length of stay is applied to determine the number that will remain on parole at the end of each year and the number that will carry over into the following year. These figures are summed to estimate the number of parolees at the end of each fiscal year. Assumptions Affecting the Accuracy of the DCJ Projections Forecasting future prison populations is not an exact science, as factors which can affect growth are often unpredictable and somewhat speculative. The projection figures for the Colorado Department of Corrections' incarcerated and parole populations and for the Division of Youth Services commitment and parole populations are based on the multiple assumptions outlined below. The Colorado General Assembly will not pass new legislation that impacts the length of time offenders are incarcerated or the number of individuals receiving such a sentence. The General Assembly will not expand or reduce community supervision programs in ways that affect commitments. Decision makers in the justice system will not change the way they use their discretion, except in explicitly stated ways that are accounted for in the model. The data provided by the Colorado Department of Corrections (DOC) accurately describe the number and characteristics of offenders committed to, released from, and retained in DOC facilities. Incarceration times and sentencing data provided by DOC are accurate. Admission, release and sentencing patterns will not change dramatically from the prior year through the upcoming seven years, except in ways that are accounted for in the current year s projection model. Seasonal variations observed in the past will continue into the future. Division of Criminal Justice/Office of Research and Statistics 3

8 The forecasts of the Colorado population size, gender and age distributions provided by the Colorado Demographer s Office are accurate. District court filings, probation placements and revocations are accurately reported in annual reports provided by the Judicial Department. No catastrophic event such as war, disease or economic collapse will occur during the projection period. Division of Criminal Justice/Office of Research and Statistics 4

9 Colorado Adult Prison Population and Parole Caseload Projections ADULT INMATE POPULATION FORECAST The Colorado prison population is expected to increase by 38.2% between fiscal years 2017 and 2024, from an actual year-end inmate population of 20,101 to a projected population of 27,770. This rate of growth is substantially higher than that predicted at this time last year. During FY 2018, the overall inmate population is projected to decrease slightly, by 1.6%. However, strong growth is expected over the subsequent six years, averaging 5.8% per year. The number of men in prison is expected to increase from 18,108 to 24,806 (37.0%) by the end of FY 2024, while the number of women in prison is expected to increase from 1,993 to 2,964 (48.7%) across the same time frame. Figure 1 displays the year-end inmate population each year between FY 2005 and FY 2017, and compares the current projections to the DCJ December 2016 and Summer 2017 projection figures. As shown, after decades of continuous growth, the population began to decrease in FY This decline accelerated dramatically in FY 2012 and FY However, this decline stabilized in the fourth quarter of FY 2013, and was followed by a period of growth across FY 2014 into early FY Once again, this trend reversed, with the population declining at an accelerating rate through March of 2016 when the population reached 19,550. This is the lowest figure observed since prior to January However, the population began increasing through the remainder of FY 2016 and throughout FY To date in FY 2018 the population has declined, and is expected to continue this pattern throughout the year. Renewed growth is anticipated in FY 2019, continuing throughout the forecast horizon. IN BRIEF: The number of adult inmates in Colorado is expected to decrease by 1.6% across FY 2018, from 20,101 to 19,786 offenders by year-end. However, strong growth is expected in the following six years, such that the population is expected to increase 38.2% between fiscal years 2017 and 2024, from an actual year-end inmate population of 20,101 to a projected population of 27,770. The number of men in prison is expected to increase 37.0% by the end of FY 2024, while the number of women in prison is expected to increase 48.7%. The domestic parole caseload is expected to increase 4.6% in the upcoming year, from 8,286 to 8,670 parolees by the end of FY However, a decrease to 7,766 parolees is expected across FY 2019, followed by increases in each of the following five years. Overall, the caseload is expected to rise 21.9% between FY 2017 and FY As shown in Figure 1, the total population is expected to experience negative growth in the short term. This is the result of HB , which reduces the length of stay in prison following a parole revocation for many offenders. In FY 2019 and beyond, the growth in the prison population previously anticipated Division of Criminal Justice/Office of Research and Statistics 5

10 continues in the current forecast, but at a much greater rate. This adjustment is in small part due to the actual numbers of admissions and releases realized by the end of FY Figure 1: Actual and projected total prison population FY 2005 through FY 2024: Comparison of DCJ December 2016, Summer 2017 and December 2017 Prison Population Forecasts DCJ December 2016 forecast Summer 2017 interim forecast Current forecast Actual population Fiscal Year Data source: Actual population figures FY 2005 through FY 2017: Colorado Department of Corrections Monthly Capacity and Population Reports. Available at: New court commitments exceeded the number expected at the time of the 2016 forecast by 3.9%, while parole returns with a new crime exceeded expectations by 17.8%. Combined, these resulted in 5.7% more new sentence admissions than expected during FY Furthermore, parole releases fell short of expectations by 9.1%. This was especially evident among discretionary releases which were expected to increase slightly. However, the opposite occurred, such that 17.8% fewer discretionary releases occurred than projected. Overall, there were 8.0% fewer releases than expected. The following section provides greater detail regarding the factors influencing this expectation of accelerating growth in the prison population. Figure 2, below, displays the quarterly total and male prison populations between the end of FY 2012 through the first quarter of FY 2018 (September, 2017), and the projected population at the end of each quarter through FY Figure 3 displays the actual and projected trends in the female inmate population over this same time frame. Division of Criminal Justice/Office of Research and Statistics 6

11 Figure 2: Actual and projected quarterly total and male prison population FY 2012 through FY DCJ December 2017 projection: total inmate population December 2017 projection: male population Actual total inmate population Actual male inmate population Data source: Actual population figures June 30, 2012 through September 30, 2017 Colorado Department of Corrections Monthly Capacity and Population Reports. Available at: Figure 3: Actual and projected quarterly female prison population FY 2012 through FY December 2017 projection: female population 500 Actual female inmate population 0 Data source: Actual population figures June 30, 2012 through September 30, 2017 Colorado Department of Corrections Monthly Capacity and Population Reports. Available at: Division of Criminal Justice/Office of Research and Statistics 7

12 Table 1 displays the historical total and gender-specific growth in the prison population by fiscal year for FY 2005 through FY 2017, as well as the projected population through the end of fiscal year Table 2 displays total and gender-specific projected growth in the prison population by quarter for fiscal years 2018 through Annual projected numbers of admissions by type are given in Table 3, followed by the projected number of releases in Table 4. Historical and projected trends in admission types for fiscal years 2012 through 2024 are graphically displayed in Figure 4. Release trends for the same time frame can be found in Figures 5 and 6. Table 1: DCJ December 2017 Adult Prison Population Projections: Actual and projected populations FY 2005 through FY 2024 Fiscal Total Inmate Population Male Population Female Population Year End Annual Annual Annual Count Count Count Growth Growth Growth 2005* 20, % 18, % 2, % 2006* 22, % 19, % 2, % 2007* 22, % 20, % 2, % 2008* 22, % 20, % 2, % 2009* 23, % 20, % 2, % 2010* 22, % 20, % 2, % 2011* 22, % 20, % 2, % 2012* 21, % 19, % 1, % 2013* 20, % 18, % 1, % 2014* 20, % 18, % 1, % 2015* 20, % 18, % 1, % 2016* 19, % 17, % 1, % 2017* 20, % 18, % 1, % , % 17, % 1, % , % 18, % 2, % , % 19, % 2, % , % 20, % 2, % , % 22, % 2, % , % 23, % 2, % , % 24, % 2, % *Actual population figures. Data sources: Colorado Department of Corrections Annual Statistical Reports and Monthly Capacity and Population Reports. Available at: Division of Criminal Justice/Office of Research and Statistics 8

13 Table 2: DCJ December 2017 Quarterly Adult Prison Population Projections: June 2017 through June 2024 Fiscal Year End of Month Total Inmate Population Male Population Female Population Count Growth Count Growth Count Growth 2017* June 2017* 20, % 18, % 1, % 2018 September , % 17, % 1, % 2018 December , % 17, % 1, % 2018 March , % 17, % 1, % 2018 June , % 17, % 1, % 2019 September , % 18, % 2, % 2019 December , % 18, % 2, % 2019 March , % 18, % 2, % 2019 June , % 18, % 2, % 2020 September , % 18, % 2, % 2020 December , % 19, % 2, % 2020 March , % 19, % 2, % 2020 June , % 19, % 2, % 2021 September , % 19, % 2, % 2021 December , % 20, % 2, % 2021 March , % 20, % 2, % 2021 June , % 20, % 2, % 2022 September , % 21, % 2, % 2022 December , % 21, % 2, % 2022 March , % 21, % 2, % 2022 June , % 22, % 2, % 2023 September , % 22, % 2, % 2023 December , % 22, % 2, % 2023 March , % 23, % 2, % 2023 June , % 23, % 2, % 2024 September , % 23, % 2, % 2024 December , % 24, % 2, % 2024 March , % 24, % 2, % 2024 June , % 24, % 2, % *Actual population figures. Data source: Colorado Department of Corrections Monthly Population and Capacity Reports. Available at: Division of Criminal Justice/Office of Research and Statistics 9

14 Table 3: DCJ December 2017 Prison Population Projections: Actual and projected prison admissions by type, FY 2005 through FY 2024 Fiscal Year End New Court Commitments Prison Admissions Parole Returns with a New Crime Technical Parole Violations Other Admits Total Admissions 2005* 5, , , * 6,149 1,034 2, , * 6,380 1,014 3, , * 6,296 1,221 3, , * 5,922 1,131 3, , * 5,345 1,039 4, , * 5, , , * 4, , , * 5, , , * 5, , , * 5, , , * 5, , , * 5, , , , , , ,655 1,069 2, , , , , , , , , , , ,983 1,019 2, , ,653 1,063 3, ,900 *Actual prison admission figures. Data source: Colorado Department of Corrections Annual Statistical Reports; Admission and Release Trends Statistical Bulletins; Monthly Capacity and Population Reports. Available at: Division of Criminal Justice/Office of Research and Statistics 10

15 Table 4: DCJ December 2017 Adult Prison Population Projections: Actual and projected prison releases by type, FY 2005 through FY 2024 Fiscal Year End Releases to Parole Mandatory Discretionary 1 Total Sentence Discharge Other 2 Total Discharges 2005* 4,688 1,598 6,286 1, , * 4,370 2,813 7,183 1, , * 3,439 5,069 8,508 1, , * 3,279 5,596 8,875 1, , * 4,918 4,118 9,036 1, , * 6,466 2,868 9,334 1, , * 6,413 2,095 8,508 1, , * 5,584 3,607 9,191 1, , * 5,140 3,806 8,946 1, , * 5,020 3,220 8,240 1, , * 5,278 2,658 7,936 1, , * 5,228 3,084 8,312 1, , * 4,793 2,557 7,350 1, , ,620 3,466 9,086 1, , ,025 3,113 8, , ,095 3,278 8, , ,278 3,439 8, , ,567 3,664 9, , ,921 3,923 9,844 1, , ,353 4,237 10,589 1, , Due to a decrease in community transportation resources in 2005, inmates to be released on their mandatory release date were classified as discretionary releases. A change in the electronic coding of these inmates enabled them to be correctly classified as mandatory parole releases in The increase in discretionary releases between 2005 and 2008, and the decrease between 2008 and 2010 is an artifact of this change in coding. 2. This category includes, among other things death, releases on appeal, bond release, and court ordered discharges. *Actual prison discharge figures. Data Source: Colorado Department of Corrections Annual Statistical Reports; Admission and Release Trends Statistical Bulletins; Monthly Capacity and Population Reports. Available at: Division of Criminal Justice/Office of Research and Statistics 11

16 Figure 4: Colorado prison admissions by type: Actual and projected FY 2012 through FY Projected New Court Commitments Actual New Court Commitments Projected Parole Returns: New Crime Actual Parole Returns: New Crime Projected Parole Returns: Technical Violations Actual Parole Returns: Technical Violations Fiscal Year Data source: Actual prison admission figures: Colorado Department of Corrections Monthly Capacity and Population Reports. Available at: Division of Criminal Justice/Office of Research and Statistics 12

17 Figure 5: Colorado prison releases: Actual and projected FY 2012 through FY Projected Total Parole Releases Actual Total Parole Releases Projected Total Releases Actual Total Releases Fiscal Year Data source: Actual prison discharge figures: Colorado Department of Corrections Monthly Capacity and Population Reports. Available at: Figure 6: Colorado prison release detail: Actual and projected FY 2012 through FY Actual Mandatory Parole Release Projected Mandatory Parole Release Actual Discretionary Parole Release Projected Discretionary Parole Release Actual Sentence Completion Projected Sentence Completion Fiscal Year Data source: Actual prison discharge figures: Colorado Department of Corrections Monthly Capacity and Population Reports. Available at: Division of Criminal Justice/Office of Research and Statistics 13

18 Number of filings Number of new court commitment prison admissions FACTORS INFLUENCING THE DCJ DECEMBER 2017 PRISON POPULATION FORECAST The growth in the prison population previously forecast continues in the current forecast, but at a muchaccelerated rate. In the short term, the total population is expected to experience negative growth as a result of HB , which reduces the length of stay in prison following a parole revocation for many offenders. However, these offenders have a very short length of stay in prison and are not the primary contributors to future prison growth. Therefore, renewed growth is expected by the end of FY The main catalyst in the extended population growth is an increasing rate of growth in criminal court filings, which increased by 12.5% over each of the past two years. Over the past 5 years, criminal filings have increased 45.6%. There is significant correspondence between the number of cases filed in criminal court and the numbers of new court commitments to prison between one and two years later, as demonstrated in Figure 7, below. While the discretionary practices of prosecutors and judges significantly influence the level of this correspondence, large increases in filings consistently predict future increases in commitments to prison. Figure 7: Correspondence of Colorado criminal court filings FY 2000 through FY 2017 and new court commitments to prison in following years Criminal court filings New court commitment prison admissions: 1 year following New court commitment prison admissions:2 years following Fiscal year Data Sources: Colorado Dept. of Corrections Annual Statistical Reports; Colorado Judicial Branch Annual Statistical Reports, FY 2000-FY Division of Criminal Justice/Office of Research and Statistics 14

19 Adult probation revocations also play a role in new court commitments to prison, given that an estimated 38% of DOC sentences are due to probation revocations. Continuous growth in the proportion of probation sentences unsuccessfully terminated has occurred over the past five years, such that almost a quarter (24.0%) now end in revocation due to either technical violations or arrests for new crimes. 4 While revocations have been increasing, this has not always corresponded with trends in prison admissions due to judiciary discretion regarding sanctions for probation violations. After many years of decline, reductions in the proportion of those revoked who are subsequently sentenced to DOC has remained relatively stable between 11 and 12 percent. 5 Demographic trends also influence numbers of new court commitments. The very strong growth observed in the Colorado population is expected to continue into upcoming years, especially among those in the 24- to 44-year old age range, the demographic most likely to be sentenced to prison. 6 This may contribute to increases in new court commitments throughout the projection timeframe. The passage of HB , which created a class of felony DUI offenders, will serve to contribute to increases in new court commitments in upcoming years. During FY 2016, 110 offenders were admitted to prison with a felony DUI as their most serious crime. This number increased to 176 in FY 2017, and further increases are expected across upcoming years. 7 Life sentences will continually exert upward pressure on the overall population. The number of sentences to life without parole is small, but is very consistent at approximately 30 per year. However, even fewer (less than 10) are removed from the population per year. This discrepancy has resulted in a 98.3% increase in the population of such inmates over the past twelve years, from 360 in 2005 to 714 in This population will continue to increase, continually driving the size of the population upwards in the future. Sexual offenders sentenced under the Lifetime Supervision Act of 1998 have also contributed to the upward trend of the prison population and will continue to do so into the future. These individuals receive indeterminate prison sentences, ranging between one year and life. The first prison admission with an indeterminate sentence for a sexual offense occurred in late The number of these 4 Includes state-supervised adult probationers, excluding private DUI and non-dui clients. Source: Colorado State Judicial Branch. Colorado Judicial Branch Annual Reports. Denver, CO: Colorado Judicial Branch, Division of Probation Services; Colorado State Judicial Branch. Available at 5 Colorado State Judicial Branch. Colorado Judicial Branch Annual Recidivism Reports. Denver, CO: Colorado Judicial Branch, Division of Probation Services. Available at 6 Colorado State Demographer s Office, Department of Labor and Employment. Population forecasts based on the 2010 national census. Available at: 7 Colorado Legislative Council Staff Fiscal Note (October 10, 2015). Felony offense for repeat DUI offenders (H.B ). Division of Criminal Justice/Office of Research and Statistics 15

20 offenders in prison grew to 1,749 by the end of FY 2017, comprising 8.8% of the inmate population. While the growth of this population has slowed, the number is unlikely to diminish. Women in prison Very strong growth in the female prison population is expected throughout the forecast horizon. The 4.8% decline observed in the July-September quarter of FY 2017 is partially an artifact of circumstances including the re-classification of offenders in community corrections facilities on revocation status to parole. This reclassification occurred in response to the requirements of HB The female population rebounded with strong growth in the following 3 months, which is expected to continue. The increase in criminal filings discussed previously is a strong factor, with women comprising an increasing proportion of these filings. The proportion of new court commitments made up of women reached an unprecedented high of 16.0% in FY Overall, 14.6% of all prison admissions were women, and the proportion of the inmate population made up of women reached 9.9%, the highest observed in the past 9 years. Admission and release trends New court commitments increased by 11.9% across FY2017, the largest degree of growth observed in over a decade. Additionally, the proportion of admissions made up of new court commitments and of parolees returning with a new sentence has also grown substantially. This trend is expected to continue, and will put significant upward pressure on the population for many years in the future as these inmates will remain in prison for an average of three years. In contrast, admissions for technical parole violations declined 12.8% in FY Double-digit declines also occurred across the prior two years, at least partially due to legislation passed in 2014 and This included House Bill , which directed DOC to provide reentry services to offenders, and Senate Bill , which required the use of alternative sanctions for parole violations prior to revocation. Additionally, parole initiatives such as the Sure and Swift Program (which those imposed short time jail sanctions in lieu of revocation to prison) were expanded in FY Comparing these reductions across fiscal years is somewhat deceiving. Rather, examining numbers of admissions on a semi-annual basis provides a more telling display of trends in prison admissions. Figure 8 displays the numbers of admissions due to technical parole violations in six-month increments. As shown, the impact of these initiatives appears to have primarily occurred between January and June of 2016, or the second half of FY Such admissions have remained at this lowered base level throughout FY 2017 and to date in FY The passage of HB , which removed the mandatory imposition of certain parole conditions, may result in fewer revocations for technical parole violations in the upcoming year. However, no such reduction has been observed in the first half of FY 2018, as seen in Figure 8. Division of Criminal Justice/Office of Research and Statistics 16

21 Parole returns for techncial violations Figure 8: Semi-annual prison admissions for technical parole violations January 2014-December Jan-Jun 2014 Jul-Dec 2014 Jan-Jun 2015 Jul-Dec 2015 Jan-Jun 2016 Jul-Dec 2016 Jan-Jun 2017 Jul-Dec 2017 Time frame Data source: Colorado Department of Corrections Monthly Capacity and Population Reports. Available at: Releases to parole are expected to increase in FY After a significant drop in early FY 2017, discretionary parole releases have been on an increasing trend since mid-fy 2017, continuing into early FY In addition, mandatory parole releases will increase due to the implementation of HB Individuals whose parole has been revoked will be more likely to be re-released to parole, rather than remaining in prison until their sentence discharge date. Accordingly, prison releases due to discharging one s sentence are expected to fall across the next three years. Due to these increases in releases to parole, in combination with the impact of the legislation and initiatives described above having reached an equilibrium point, growth in parole returns is expected to resume by mid-fy 2018 and across FY Parole releases are expected to slow in FY 2019 due to the leveling of growth in the number of mandatory re-paroles in the wake of HB This reduction in releases to parole is expected to be followed by a decline in parole returns throughout FY Risks to the forecast The current forecast is heavily dependent on three main assumptions: That growth in criminal court filings will continue; and that Observed trends in admissions and discretionary parole releases will continue, and The impact of known legislation and policy changes has been accurately assessed. Division of Criminal Justice/Office of Research and Statistics 17

22 Given these assumptions, along with the additional factors discussed above, no rational exists to expect a decline or slowing of growth in the inmate population without significant reversals in legislation or policies. However, multiple factors are imparting uncertainty. For example, HB , which shortened the amount of time certain parole returns could be re-incarcerated, was not enacted until August 9, No savings from this bill were expected until September at the earliest. However, the number of mandatory parole releases in August increased 67.6% over the number experienced in July. The number of mandatory re-paroles more than doubled in August. This was at least partially due to the reassignment of a number of inmates in community corrections facilities to parole status. It is possible that the impact of this bill was underestimated, but the degree to which this may be the case is unknown given the recency of implementation and a lack of data on which to base an estimate. House Bill removed the mandatory imposition of certain parole conditions, and may result in fewer revocations for technical parole violations which in turn will increase parole caseload and reduce the inmate population. However, the extent to which these will occur is dependent on future decisions made by the Parole Board. No data are currently available to provide a basis for estimating the degree to which this may affect releases. A recent Colorado Supreme Court decision concluded that the Department of Corrections method of calculating parole eligibility dates for certain offenders with multiple sentences was incorrect. Changes in time computation methods in response to this ruling may result in the recalculation of PED for up to 432 inmates in FY 2018, and an additional 590 inmates in the following two years. The degree to which this will shorten time to parole eligibility is unknown. In addition, while some of these inmates may reach parole eligibility somewhat sooner, release to parole is still up to the discretion of the Parole Board. Minimal information exists on which to estimate the effect of this ruling on the prison and parole populations at this time. Should any of the assumptions outlined above prove to be false, and as additional data become available with which to examine the effects of legislation and extrapolate trends, adjustments to the current forecast will be made accordingly. Division of Criminal Justice/Office of Research and Statistics 18

23 ADULT PAROLE CASELOAD FORECAST The two components used when forecasting future parole caseloads are the number of releases to parole and the length of stay on parole. These may vary according to a number of factors, such as individual offender characteristics, legislation, parole board policies, community resources and parole success or failure rates. Table 5 displays the DCJ projections for the total domestic parole caseload through the end of FY The caseload remained very stable throughout FY 2017, following a period of rapid growth in late FY However, significant growth occurred in the first four months of FY 2018, during which the caseload grew by 4.0%. Much of this growth was attributable to mandatory re-paroles which occurred in response to HB As this legislation removed the Department s authority to operate community return-to-custody facilities, a number of inmates in community corrections facilities were reassigned to parole status. In the upcoming year, the caseload is expected to increase in conjunction with increasing parole releases and the quick re-release of certain offenders revoked on technical violations in the wake of HB With greater restrictions on the amount of time spent incarcerated as the result of a revocation, more of these parolees will return to the caseload rather than discharging their parole as inmates. However, the caseload is expected to fall in FY 2019 due to shortening lengths of stay. Drug offenders sentenced under the new legislation introduced by SB have much shorter parole periods than those sentenced prior to These individuals will be beginning to discharge their parole sentences in late FY 2018, exerting downward pressure on the size of the caseload in the following years. Overall releases to parole are expected to slow in FY 2019, partially as a leveling of the large increase expected in FY 2018, and partially due to the potential deceleration of new court commitments in FY By FY 2020 the current influx of new court commitments will begin to be released to parole, forcing the caseload up each year thereafter. In addition, HB created a class of felony-level DUI offenders who are expected to appear among prison admissions in increasing numbers. With an expected length of stay of 2.5 years, these individuals will begin to be paroled beginning in late FY 2019, additionally driving the caseload up. Due to the above factors in combination with the growth forecast for the inmate population, very strong and accelerating growth in the parole caseload is expected from FY 2021 through the remainder of the forecast horizon. Overall, the domestic caseload is expected to increase from 8,286 parolees at the end of FY 2017 to 10,104 by the end of FY 2024, a 21.9% increase. Division of Criminal Justice/Office of Research and Statistics 19

24 Table 5: DCJ December 2017 adult domestic parole caseload projection FY 2017 through FY 2024 Fiscal Year End Domestic Parole Caseload Annual Growth 2017* 8, % , % , % , % , % , % , % , % * Actual parole caseload figures. Data source: Colorado Department of Corrections Monthly Population and Capacity Reports. Figure 9: Historical and projected end of fiscal year total parole caseloads FY 2012 through FY Projected Domestic Parole Caseload Actual Domestic Parole Caseload Data Source: Historical data obtained from the Colorado Department of Corrections Monthly Population and Capacity Reports. Division of Criminal Justice/Office of Research and Statistics 20

25 ACCURACY OF DCJ PRISON POPULATION FORECASTS: Forecasting future prison populations is not an exact science, as factors which can affect growth are often unpredictable and somewhat speculative. The projection figures for the Colorado Department of Corrections' incarcerated population is based on a number of assumptions, including the following: The Colorado General Assembly will not pass new legislation that impacts the length of time offenders are incarcerated or the number of individuals receiving such a sentence. Decision makers in the justice system will not change the way they use their discretion, except in explicitly stated ways that are accounted for in the model. Admission, release and sentencing patterns will not change dramatically from the prior year through the upcoming seven years, except in ways that are accounted for in the current year s projection model. Each of the above assumptions applies to the error displayed in Figure 11, which range from -1.2% to 2.5% in the first forecast year, and from 0.5% to 9.5% in the second forecast year. Each year, the DCJ prison population forecast is calculated based on data available at the time, independent of the prior year s forecast. Though short-term downturns may be predicted, forecasts have consistently indicated a return to growth in the inmate population in future years as shown in Figure 12. The errors observed in the third year of the 2013 forecast and in the second and third years of the 2014 forecast projection were due to the same series of circumstances that occurred in late FY At the time of the 2013 and 2014 forecasts, the prison population was rising. This increase was mainly due to a decline in releases, in particular discretionary parole releases. Additionally, new court commitments were trending upward. However, the population began to fall in mid-fy 2015, such that the year-end population was lower than expected. The decline in late FY 2015 was due to a fall in admissions due to technical parole violations which, in turn, was due to legislation passed in 2014 and 2015 (and therefore unaccounted for in the 2013 and 2014 forecasts). This included House Bill , which directed DOC to provide reentry services to offenders, and Senate Bill , which required the use of alternative sanctions for parole violations prior to revocation. Additionally, parole initiatives such as the Sure and Swift Program (which those imposed short time jail sanctions in lieu of revocation to prison) were expanded in FY By the time of the December 2015 forecast, prison admissions due to technical parole violations were expected to fall due to the above legislation and initiatives, as can be seen in Figure 12. However, the reality far exceeded expectations which contributed to the first-year error of 2.5%. In the case of the December 2016 forecast, the first-year error of -1.2% was due to the extraordinary 1.4% growth that occurred between January and March of This degree of growth in a single quarter has not been observed since 2006, during the decades-long period of continuous growth in the population. This growth is attributed to substantially more sentences to prison than expected, such that Division of Criminal Justice/Office of Research and Statistics 21

26 Total inmate population admissions with new convictions increased by 12.3% by the end of FY However, this growth has stabilized, such that the 2016 forecast very slightly overestimated the size of the prison population. Figure 11: DCJ prison population forecast accuracy one, two and three years into forecast horizon Forecast compared to actual inmate population at end of fiscal year: N/A N/A N/A 100.0% 90.0% 99.8% 99.5% 93.5% 98.0% 99.4% 97.5% 98.8% 90.5% 91.0% 80.0% 70.0% 60.0% 1 year 2 years 3 years 50.0% 40.0% 30.0% 20.0% 10.0% 0.0% Forecast Preparation Year Figure 12: DCJ annual prison population forecast comparison: DCI 2013 Forecast Actual Population End of Fiscal Year Division of Criminal Justice/Office of Research and Statistics 22

27 Length of Stay Estimates for FY 2017 Prison and Parole Admissions Tables 6 through 12 below display the estimated average length of stay (ALOS) for admissions to prison during FY Parole returns due to technical parole violations are excluded. These figures are broken out by crime category and felony class, with separate tables provided for new court commitments and for parole returns with a new crime, by gender, and for these populations combined. Totals by admission type, gender and overall are presented in Tables 13 and 14. The average time that these new admissions are expected to remain in prison is estimated using data provided by the Department of Corrections regarding conviction crimes and sentence length, in combination with data concerning time actually served for inmates released during the same year. A series of new drug categories were introduced to these tables last year, to include admissions sentenced under Senate Bill which created a new series of drug felony (DF) levels. These do not correspond to the felony classes of other crime types, nor of drug crimes committed prior to October 1, Therefore, these crime categories are presented separately, under the offense categories of DF levels 1 through 4, and extraordinary risk (Ext) DF levels 1 through 4. An additional change from prior years is the presentation of the category totals. All totals are presented both including and excluding inmates sentenced under the Colorado Sex Offender Lifetime Supervision Act of 1998, as well as those subject to habitual offender sentence enhancers. Estimates for the length of stay on parole were also included last year, and are presented in Table 15. These figures include only new admissions to parole, and exclude any parolees who have previously had their parole revoked for either new crimes or for technical violations. The estimated length of stay is calculated using data regarding the length of stay for individuals who were discharged from parole in FY Please note the estimates provided regarding length of stay on parole for the Sex Offender Act category must be viewed with caution. The parole term for those convicted of a class 4 felony subject to the Sex Offender Lifetime Supervision Act is a minimum of 10 years up to the remainder of the offender's life. For those convicted of class 2 or 3 felonies, the parole term is 20 years to life. Of the 620 lifetime sex offenders on parole at the end of FY 2017, over 90% have been paroled only in the past 6 years. Since the inception of the Lifetime Supervision Act in 1998, only two have been approved for early discharge, both after serving 10 years. The pool of parolees eligible for discharge will remain very small for several years to come. Division of Criminal Justice/Office of Research and Statistics 23