Legislature(2025 - 2026)BUTROVICH 205
04/23/2025 01:30 PM Senate JUDICIARY
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| Audio | Topic |
|---|---|
| Start | |
| SB90 | |
| Presentation(s): Recidivism Efforts in Alaska | |
| Adjourn |
* first hearing in first committee of referral
+ teleconferenced
= bill was previously heard/scheduled
+ teleconferenced
= bill was previously heard/scheduled
| += | SB 90 | TELECONFERENCED | |
ALASKA STATE LEGISLATURE
SENATE JUDICIARY STANDING COMMITTEE
April 23, 2025
1:30 p.m.
MEMBERS PRESENT
Senator Matt Claman, Chair
Senator Gary Stevens
Senator Löki Tobin
Senator Robert Myers
MEMBERS ABSENT
Senator Jesse Kiehl, Vice Chair
COMMITTEE CALENDAR
SENATE BILL NO. 90
"An Act relating to the examination and treatment of minors;
relating to consent for behavioral and mental health treatment
for minors 16 years of age or older; and providing for an
effective date."
- MOVED SB 90 OUT OF COMMITTEE
PRESENTATION(S): RECIDIVISM EFFORTS IN ALASKA
- HEARD
PREVIOUS COMMITTEE ACTION
BILL: SB 90
SHORT TITLE: MINOR MENTAL HEALTH: AGE OF CONSENT
SPONSOR(s): SENATOR(s) GIESSEL
02/10/25 (S) READ THE FIRST TIME - REFERRALS
02/10/25 (S) HSS, FIN
03/04/25 (S) HSS AT 3:30 PM BUTROVICH 205
03/04/25 (S) Heard & Held
03/04/25 (S) MINUTE(HSS)
03/20/25 (S) HSS AT 3:30 PM BUTROVICH 205
03/20/25 (S) Moved SB 90 Out of Committee
03/20/25 (S) MINUTE(HSS)
03/24/25 (S) FIN REFERRAL REMOVED
03/24/25 (S) JUD REFERRAL ADDED
03/26/25 (S) HSS RPT 4DP
03/26/25 (S) DP: DUNBAR, CLAMAN, TOBIN, GIESSEL
04/02/25 (S) JUD AT 1:30 PM BUTROVICH 205
04/02/25 (S) Heard & Held
04/02/25 (S) MINUTE(JUD)
04/23/25 (S) JUD AT 1:30 PM BUTROVICH 205
WITNESS REGISTER
SENATOR CATHY GIESSEL, District E
Alaska State Legislature
Juneau, Alaska
POSITION STATEMENT: Sponsor of SB 90.
SUSANNE DIPIETRO, Executive Director
Alaska Judicial Council
Alaska Court System
Anchorage, Alaska
POSITION STATEMENT: Co-delivered a presentation on Recidivism
Efforts in Alaska, which focused on data analysis.
TRAVIS WELCH, Director
Health and Rehabilitation Services
Department of Corrections
Anchorage, Alaska
POSITION STATEMENT: Co-delivered a presentation on Recidivism
Efforts in Alaska.
DUSTY DUMONT, Director
Division of Pretrial, Probation and Parole
Department of Corrections
Juneau, Alaska
POSITION STATEMENT: Co-delivered a presentation on Recidivism
Efforts in Alaska.
ACTION NARRATIVE
1:30:55 PM
CHAIR CLAMAN called the Senate Judiciary Standing Committee
meeting to order at 1:30 p.m. Present at the call to order were
Senators Myers, Tobin, Stevens, and Chair Claman.
SB 90-MINOR MENTAL HEALTH: AGE OF CONSENT
1:31:33 PM
CHAIR CLAMAN announced the consideration of SENATE BILL NO. 90
"An Act relating to the examination and treatment of minors;
relating to consent for behavioral and mental health treatment
for minors 16 years of age or older; and providing for an
effective date."
CHAIR CLAMAN said this is the second hearing of SB 90 in the
Senate Judiciary Committee. The intention is look to the will of
the committee on this bill. He invited the bill sponsor to share
closing comments.
1:32:04 PM
SENATOR CATHY GIESSEL, District E, Alaska State Legislature,
Juneau, Alaska, sponsor of SB 90, expressed appreciation to the
committee for hearing SB 90. She said the testimony heard in the
committee regarding the bill's potential to help teen mental
health was impactful and could help prevent teen suicide,
substance abuse, and other challenges that teens face.
1:32:32 PM
CHAIR CLAMAN solicited the will of the committee.
1:32:35 PM
SENATOR TOBIN moved to report SB 90, work order 34-LS0275\A,
from committee with individual recommendations and attached
fiscal note(s).
1:32:48 PM
CHAIR CLAMAN found no objection and SB 90 was reported from the
Senate Judiciary Standing Committee.
1:32:53 PM
At ease.
^PRESENTATION(S): RECIDIVISM EFFORTS IN ALASKA
PRESENTATION(S): RECIDIVISM EFFORTS IN ALASKA
1:34:14 PM
CHAIR CLAMAN reconvened the meeting and announced a presentation
on recidivism efforts in Alaska presented by the Alaska Criminal
Justice Data Analysis Commission and the Department of
Corrections.
1:34:54 PM
SUSANNE DIPIETRO, Executive Director, Alaska Judicial Council,
Alaska Court System, Anchorage, Alaska, co-delivered a
presentation on recidivism efforts in Alaska, which focus on
data analysis. She explained that the Alaska Judicial Council
serves as staff to the Alaska Criminal Justice Data Analysis
Commission. She said her intention was to present criminal
recidivism data that was analyzed by the Commission.
1:35:22 PM
MS. DIPIETRO moved to slide 2, Alaska Criminal Justice Data
Analysis Commission.
[Original punctuation provided.]
Alaska Criminal Justice Data Analysis Commission
• Established in AS 44.19.641
• Sixteen members (judicial, executive, and
legislative branches)
• Annual report submitted each November must include
"a description of recidivism rates" among other
things.
MS. DIPIETRO explained that the slide showed the composition of
the Commission, which has 16 members drawn from the judicial,
executive, and legislative branches. She noted that Senator
Claman serves as chair of the Commission. She said the
Commission has numerous duties and responsibilities in statute,
but for purposes of the presentation, her focus is on one of
those duties: submitting an annual report each November that
includes, among other information, a description of recidivism
rates. She said the presentation would discuss the recidivism
data published in the Commission's 2024 annual report.
1:36:12 PM
MS. DIPIETRO moved to slide 3, Understanding "Recidivism":
[Original punctuation provided.]
Understanding "Recidivism"
The rate at which individuals who previously
have been convicted of a crime commit new
criminal acts.
Under AS 44.19.649(2): Recidivism means the percentage
of convicted defendants who are booked into, or who
return to, a correctional facility within three years
after release or the date of conviction, whichever is
later.
MS. DIPIETRO stated slide 3 addresses the meaning of recidivism.
She explained that criminal recidivism is generally understood
as the rate at which individuals who have previously been
convicted of a crime commit new criminal acts. She said that
once a person has been convicted, whether or not the individual
serves a prison sentence, the key question is whether the person
continues life as a law-abiding citizen or returns to the
criminal justice system.
1:36:50 PM
MS. DIPIETRO said recidivism is an important concept when
evaluating how resources are allocated within the criminal
justice system. It is particularly significant for the
Department of Corrections, which must house individuals who
return to custody, and for organizations that operate reentry
programs aimed at helping formerly convicted individuals avoid
committing new crimes and become productive members of society.
MS. DIPIETRO stated that the presentation would primarily use
the definition of recidivism contained in the Commission's
statute, which was referenced on the slide. She explained that
the statute defines recidivism as the percentage of convicted
defendants who are booked into or return to a correctional
facility within three years after release or at the date of
conviction, whichever occurs later. She said she would further
explain the definition.
1:38:24 PM
MS. DIPIETRO moved to slide 4, Three Components to Calculate
Recidivism:
[Original punctuation provided.]
Three Components to Calculate Recidivism
The Group
• Who is being assessed?
• Individuals convicted of a crime (misdemeanors
and felonies)
The Event
• What counts as recidivism?
• Being booked into a correctional facility
The Timeframe
• Over what period is recidivism being measured?
• Three years after conviction or release if
incarcerated
1:38:33 PM
MS. DIPIETRO explained that the statutory definition of
recidivism used by the Commission has three basic components:
• The population being studied.
She said the Commission studies individuals who have been
convicted of a crime, including both misdemeanor and felony
crimes. She noted that some states limit recidivism studies to
only felonies or only misdemeanors, but Alaska's approach
includes everyone convicted of a crime.
• The recidivism event.
Under the statute, the event is defined as being booked into a
correctional facility. She explained that being booked into a
correctional facility does not necessarily mean the individual
was convicted of a new crime. Individuals may be booked after
being arrested by an officer or for a probation violation,
which may or may not involve a crime. However, the statutory
definition focuses on the individual returning to the physical
custody of a correctional facility.
• The timeframe measured.
She said that the follow-up period for the study is three
years. The three-year period begins either after the date of
conviction or after the individual is released from
incarceration.
1:39:53 PM
MS. DIPIETRO further explained the timeframe for measuring
recidivism. Depending on the crime a person is convicted of,
they may or may not receive a sentence of incarceration. If the
person is convicted, they may receive a short sentence or a long
sentence, such as 10 or 20 years. The important concept to
consider is the "at-risk period." She described how to measure
recidivism. Assume that a person convicted of a serious offense
receives a 10-year sentence of incarceration. In this
circumstance, the Commission would not begin measuring
recidivism during the period of incarceration. The rationale is
that the individual is not in the community; therefore, not
considered at risk of reoffending during that time. She said,
instead, the three-year follow-up period begins upon release
from custody. On the other end of the spectrum, individuals who
receive a probationary sentence or a completely suspended
sentence may never serve time in a correctional facility, for
those individuals, the at-risk period begins immediately upon
conviction.
1:41:42 PM
SENATOR MYERS asked the presenter to elaborate on "booked into a
correctional facility," questioning whether that recidivism-
measurement event could miss some individuals specifically,
undercounting those who commit new crimes and go on probation or
a suspended sentence, while potentially overcounting others
booked but not ultimately charged.
1:42:46 PM
MS. DIPIETRO replied exactly, explaining that she agreed there
are other ways to measure recidivism that may also be useful.
She stated that later in the presentation, she would discuss
additional approaches for analyzing recidivism that may provide
a more complete picture.
1:43:32 PM
CHAIR CLAMAN further replied that the question illustrates
longstanding imperfections of the definition. He said the
Criminal Justice Commission, which was the predecessor to the
Alaska Criminal Justice Data Analysis Commission, discussed this
extensively. He said that during his service on both
commissions, members frequently debated how to define
recidivism. Although there were many hours of discussion and
various alternative proposals, the Commission never reached
consensus on a different definition. As a result, the definition
used by the former Criminal Justice Commission remains in
statute and is still in use. He said there was broad recognition
that every proposed definition of recidivism had limitations.
1:45:00 PM
MS. DIPIETRO moved to slide 5, What Behaviors are not Measured?
[Original punctuation provided.]
What Behaviors are not Measured?
Whether the previously convicted individual engaged in
behavior that would constitute a crime but there was
no criminal justice system response;
The date the individual engaged in the criminal
behavior may be different than the date that the
system responded;
Victim's decision not to report a crime;
Law enforcement & prosecutor behaviors and policies;
Crime rates in a particular community.
MS. DIPIETRO cautioned that there are important limitations on
the Commission's analyses. She highlighted that a better way to
think about recidivism is: "it measures the criminal justice
system's response to the behaviors of people who have been
convicted of a crime." She said that if an individual engaged in
conduct that constituted a crime, but the incident did not
result in a criminal justice system response, recidivism data
would not capture that behavior. She said an example of this is
a victim who chooses not to report a crime. The Commission would
like to count that person in the data to see whether they
desisted their criminal behavior. Conversely, even for reported
crimes, a response may not occur due to law enforcement,
prosecutorial resource limitations, or policy considerations.
These considerations affect the Commission's ability to collect
and measure what is happening. She further remarked that overall
crime rates in particular communities can also affect the
likelihood that conduct will come to the attention of the
criminal justice system.
1:47:14 PM
MS. DIPIETRO said another factor to consider is that the date an
individual engaged in criminal behavior may differ from the date
when the criminal justice system responded. She explained that a
person may be charged with an offense several years after the
conduct occurred, meaning the system's response does not
necessarily coincide with the timing of the behavior itself. She
emphasized that while recidivism data provides useful
information, it has limitations in fully capturing whether
individuals desist from criminal behavior or continue to engage
in it.
1:48:16 PM
MS. DIPIETRO moved to slide 6, Recidivism of One Group (2,989
Individuals):
[Original punctuation provided.]
Recidivism of One Group (2,989 individuals)
The Group (Cohort):
Individuals convicted of a misdemeanor or felony and
released to the community (if incarcerated) between
January 1 and March 31, 2020.
The Rate:
By year three, 56.9% had been booked into a
correctional facility at least once they
"recidivated."
MS. DIPIETRO drew attention to the chart, which illustrated the
recidivism curve for a specific cohort. She explained that the
cohort included approximately 3,000 individuals who became "at
risk" after being convicted of a crime during a three-month
period from January 1 through March 31, 2020. She said the
analysis followed those individuals from the date they became at
risk for criminal behavior, somewhere within those three months.
The analysis tracked them for three years to determine whether
they were booked into a correctional facility at least once. She
stated that 66.9 percent of individuals in that cohort were
booked into a correctional facility within the three-year
period.
MS. DIPIETRO noted that the chart shows recidivism events
occurring relatively soon after individuals become at risk. She
explained that many of the bookings occurred within
approximately the first 300 days, after which the curve begins
to flatten out. She said that 74 percent of those who
recidivated within the three-year period had already done so
within the first year. This trend appears consistently in the
data and was observed by the Criminal Justice Commission. She
remarked that although one might expect individuals recently
released from prison or recently convicted of a crime to be
highly motivated to avoid reoffending, the opposite occurs. The
data shows that recidivism is more common during the first year
and then it levels off. The pattern presents an issue the
criminal justice system must grapple with.
1:50:52 PM
MS. DIPIETRO moved to slide 7, Recidivism of Multiple Groups:
[Original punctuation provided.]
Recidivism of Multiple Groups
The Cohorts: All individuals convicted of a
misdemeanor or felony during a certain quarter based
on their conviction/release date.
The Rates: Between 2015 and 2020, the average
recidivism rate among cohorts was 59.5%.
MS. DIPIETRO explained that the previous slide illustrated only
one cohort. She said the analysis creates multiple cohorts over
time. The Commission does not put everyone into one big group
and analyze them; it analyzes them in groups of individuals who
become "at risk" every three months. She said the database
includes approximately 10 years of individuals who have been
convicted, and those individuals are grouped by the at risk date
into 3-year cohorts. She explained that this approach allows
analysts to compare criminal justice system responses across
time.
MS. DIPIETRO explained that the chart on slide 7 reflects all
cohorts between 2015 and 2020, and that the individuals in each
cohort were: convicted of a crime; became at risk during that
quarter; and had a three-year follow-up period.
1:51:53 PM
MS. DIPIETRO reported that the average recidivism rate among
those cohorts was 59.5 percent. She noted that this broader
analysis shows a similar overall pattern to the cohort discussed
on the previous slide, which had a recidivism rate of 66.9
percent. She pointed out that the chart shows some variation
among the cohorts, although the recidivism rates remain
relatively close to one another.
MS. DIPIETRO further noted that cohorts beginning in 2019 had
three-year follow-up periods that included the COVID-19
pandemic. She indicated that pandemic-era restrictions affected
data; the next slide provides additional detail.
1:53:01 PM
MS. DIPIETRO moved to slides 8 and 9, Recidivism of Groups Over
Time:
[Original punctuation provided.]
Recidivism of Groups Over Time
Beginning April 2020:
Cohorts were smaller than previous cohorts;
Initial convictions were more serious than previous
cohorts.
MS. DIPIETRO directed attention to the portion of the chart
highlighted in red, beginning around April 2020. She said the
chart shows a noticeable increase during that period. She noted
that the immediate question is whether the change reflects a
shift in individuals' behavior; the Commission does not know the
answer. She said what she does know is that the cohorts
beginning in 2020 were smaller than earlier cohorts. She said
each of those cohorts included approximately 2,000 individuals,
whereas earlier cohorts had roughly 3,000. She stated that the
smaller cohort sizes indicate that fewer individuals became "at
risk" during that period. Meaning: fewer individuals were
convicted of crimes, fewer were subsequently released, and fewer
became at risk during that period.
MS. DIPIETRO further explained that another interesting piece of
data about the cohorts represented in the jump is that their
initial convictions were more serious than those of earlier
cohorts. She said the data does not establish whether
individuals were committing more serious crimes during that
period. Rather, the data indicate that the criminal justice
system processed a greater proportion of more serious offenses
than before April 2020.
MS. DIPIETRO stated that she circled the jump on the chart
because it is visually noticeable and raises questions about
which factors contributed to the change. She emphasized that
recidivism rates are influenced not only by the behavior of
those individuals studied but also by the policies, procedures,
and resource decisions within the criminal justice system that
affect how offenses are processed and responded to.
1:55:21 PM
SENATOR TOBIN asked about the period between mid-2016 and mid-
2017 shown on the chart. She noted two small declines during
that time and observed that the 2017 data points do not appear
to reach the 60 percent line. She asked whether there was an
explanation for those variations.
MS. DIPIETRO responded that she did not have a specific
explanation for those fluctuations. She said her initial thought
is that they may reflect natural variability in the data. She
noted that while it can be tempting to associate small increases
or decreases with particular events or policy changes, some
variation may simply occur by chance.
1:56:39 PM
MS. DIPIETRO moved to two charts on slide 9, Recidivism of
Groups Over Time (continued):
MS. DIPIETRO explained that the slide illustrates the change
that occurred around April 2020. She said the chart on the left
shows the size of the cohorts declining beginning in 2019, with
cohort sizes dropping to approximately 2,000 individuals
compared with larger numbers in earlier periods. The chart on
the right examines the severity of the initial conviction among
individuals within these cohorts. She said the data shows a
shift in the composition of the cohorts, with a higher
proportion of individuals convicted of felonies and fewer
individuals convicted of misdemeanors.
MS. DIPIETRO explained that many individuals convicted of
felonies serve time in prison and are typically placed under
probation supervision upon release. She said keep in mind, that
generally, individuals who are closely supervised are more
likely to have criminal activity detected or reported than
individuals who are unsupervised in the community. As a result,
individuals convicted of felonies who are under supervision may
be more likely to return to a correctional facility than
individuals convicted of misdemeanors who are not under
supervision. She described the pattern as an interesting puzzle.
1:58:24 PM
MS. DIPIETRO moved to slide 10, Additional Ways of Thinking
about Criminal Re-Offending:
[Original punctuation provided.]
Additional Ways of Thinking About Criminal
Re-offending
• Different levels of re -offending;
• Timing of re - offending;
• Relative severity of recidivism event.
MS. DIPIETRO said she has used a binary baseline when
considering recidivism, meaning, an individual reoffends or does
not reoffend. The binary baseline provides an important starting
point for analysis. She said that while the binary measure is
useful as a baseline, additional insight can be gained by
examining how individuals reoffend, when the reoffending occurs,
and the nature of the conduct involved. She illustrated the
point with an example. An individual who had been convicted of a
felony, was released, did their at-risk period, and later failed
to comply with a probation condition, such as missing a required
drug test. In other words, the individual did something that
caused their probation officer to return them to incarceration
on a petition to revoke probation based on a technical violation
rather than a new crime. She noted that such a case may differ
in important ways from a situation in which an individual
commits a new criminal offense in the community, such as an
assault.
MS. DIPIETRO stated that those two situations may reasonably be
viewed differently when evaluating recidivism. She said that to
present a fuller picture of criminal reoffending, it is useful
to take those types of differences into account. The next few
slides examine those differences.
1:59:54 PM
MS. DIPIETRO moved to three charts on slide 11, Different Levels
of Involvement with the System, Recidivism by Cohort and Event
Type. The three charts are titled Incarceration, Arrest, and
Conviction. Each of those categories show the three-year
recidivism rates between 2015 and 2020. She explained that the
slide illustrates different levels of involvement with the
criminal system in recidivating behavior. She pointed out that
the highest recidivism rates occur when the recidivism event is
defined as reincarceration. She stated that the lowest
recidivism rates occur when recidivism is measured by
reconviction. The reason these rates are the lowest occurs
because many individuals who are rearrested, recharged, or
reincarcerated are not ultimately reconvicted of a crime. She
noted that some states measure recidivism by reconviction rather
than reincarceration, pointing out that using different
definitions can produce substantially different recidivism
rates.
2:00:54 PM
SENATOR MYERS sought confirmation that comparing recidivism
rates with other states may not represent an accurate apples-to-
apples comparison.
MS. DIPIETRO answered in the affirmative. She stated that when
comparing recidivism rates between jurisdictions, it is
important to ensure that the same definition of a recidivism
event is used. She explained that if Alaska measures recidivism
using incarceration while another state measures recidivism
using reconviction, the resulting rates are not directly
comparable as the data show on the charts.
2:01:31 PM
MS. DIPIETRO moved to charts on slide 12, Timing of Recidivism
Event. The charts on slide 12 show the number of days to 50
percent recidivism by cohort and event type. The chart
categories are incarceration, arrest, and conviction; the
timeframe is from 2015 to 2020.
MS. DIPIETRO explained that the timing of a recidivism event can
provide insight into the persistence of criminal behavior. She
said an individual who recidivates shortly after release from
prison may have more challenges than someone who remains law-
abiding for several years before reoffending. She stated that
although both individuals would be counted as having
recidivated, the individual who reoffends immediately after
release may require more resources and attention than someone
who remained law-abiding for a longer period. Individuals who
maintain law-abiding behavior for a period of time may be more
able to build on that success in the future.
2:02:43 PM
MS. DIPIETRO said recidivism most often occurs during the first
year. The average time to reincarceration is 136 days. The
average time to rearrest is 213 days, and the average time to
reconviction is 394 days. She said the data shows that the speed
at which a recidivism event occurs varies over time.
MS. DIPIETRO noted that the chart indicates the pace of
recidivism events slowed during the COVID-19 pandemic. She said
it took longer for the criminal justice system to respond to
criminal behavior during that period. She explained that it is
difficult to determine whether the change reflected differences
in individual behavior or constraints within the criminal
justice system that affected how cases were processed during the
pandemic.
2:04:10 PM
MS. DIPIETRO moved to a chart on slide 13, Relative Severity of
Recidivism Event:
[Original punctuation provided.]
Relative Severity of Recidivism Event
Relative Severity of Recidivism Conviction by
Original Conviction Severity
Recidivism Conviction
Original Unclassified Felony Felony Felony Misdemeanor Misdemeanor
Conviction Felony Percent A Percent B Percent C Percent A Percent B Percent
Unclassified
Felony 0 0 0 75.0 0 25.0
Felony A 0 0 10.9 18.8 51.6 18.8
Felony B 0 1.1 8.1 22.6 51.4 16.8
Felony C 0.1 0.4 4.3 23.0 55.3 16.8
Misdemeanor A <.1 0.3 2.3 12.9 63.8 20.6
Misdemeanor B <.1 0.3 1.7 9.7 52.5 35.8
MS. DIPIETRO explained that although all individuals shown on
the chart recidivated, the slide examines how the severity of
the recidivating offense compares with the severity of the
original conviction. She said one possible hopeful sign of
improvement would be if an individual originally convicted of a
felony later recidivated with a less serious offense, such as a
misdemeanor. She reported that the chart suggests there is a
slight probability that the recidivating offense may be less
serious than the original conviction offense. The difference is
small and may partly reflect statistical factors, noting that
most convictions are for misdemeanor offenses. She stated that
the chart nonetheless provides insight into whether individuals
who initially committed more serious offenses later recidivate
with less serious conduct.
2:05:58 PM
CHAIR CLAMAN found no further questions and expressed
appreciation for the illuminating presentation.
2:06:14 PM
At ease.
2:07:07 PM
CHAIR CLAMAN reconvened the meeting. He introduced staff from
the Department of Correction (DOC) and invited the presenters to
begin sharing DOC's recidivism efforts in Alaska.
2:07:52 PM
TRAVIS WELCH, Director, Health and Rehabilitation Services,
Department of Corrections, Anchorage, Alaska, co-delivered a
presentation on Recidivism Efforts in Alaska.
2:08:48 PM
MR. WELCH moved to slide 2, DOC Population Size and Capacity:
[Original punctuation provided.]
DOC POPULATION SIZE AND CAPACITY
• 26,998 bookings in FY2024
• 16,868 unique individuals
• 853 Title 47 non-criminal holds
• 4,279 Individuals in custody as of 4/16/2025
• 3,293 Individuals on probation or parole as of
4/16/2025
• 2 acute, 5 subacute - 306 psychiatric treatment beds
MR. WELCH explained that the department operates within a
unified correctional system. He said Alaska is responsible for
housing both the pretrial population, who are unsentenced, and
the sentenced population. He noted that many states operate
systems with municipal correctional facilities and jails, or
county jails, and state prison systems house individuals
convicted of more serious crimes. He said Alaska is unique in
that DOC houses both of those populations within a single
system.
MR. WELCH stated that in fiscal year 2024 DOC recorded just
under 27,000 bookings, which averages approximately 74 bookings
per day. He explained that individuals may enter the system for
a variety of reasons, including non-criminal holds, but that
most bookings involve individuals who have allegedly committed a
crime and are brought to a correctional facility.
2:10:00 PM
MR. WELCH noted that the total number of bookings during the
year is significantly larger than the April 16, 2025, population
count, which totaled nearly 4,300 in DOC's custody. He explained
that the difference reflects the large number of individuals who
enter and leave the system each day. Releases occur for a
variety of reasons, including dropped charges, individuals
released on their own recognizance, individuals placed in a
pretrial supervision program, and individuals who have completed
their sentences and are returning to their communities.
MR. WELCH said nearly 3,300 individuals were under probation and
parole supervision in Alaska communities as of April 16, 2025.
The department also serves a population with behavioral health
needs and is the state's largest mental health provider. He
reported that approximately 80 percent of the incarcerated
population lives with a substance use disorder and that
approximately 60 percent live with a mental health issue. The
department has just over 300 psychiatric inpatient beds to meet
Alaska's needs, along with two acute units: one at the Alaska
correctional complex in Anchorage, which is for the male
population, and one at Hiland Mountain Correctional Center,
which is for the female population. These centers provide
inpatient care comparable to that at Alaska Psychiatric
Institute. He said these are individuals who are a threat to
themselves or others. They might be off their medications, or
DOC is trying to get them back on their medications. Either way,
they are at an acuity level that requires the highest level of
care that DOC can provide in the system. He said DOC has five
subacute units located throughout Alaska, including Anchorage,
Hiland Mountain, the Valley, and Seward. Subacute units provide
care to people who can engage in programming, who are on their
medications for the most part, and who are stable. The
department's goal is to house people in a low-restrictive
environment so they can engage in programming and the services
DOC provides for a rehabilitative experience.
2:12:53 PM
MR. WELCH moved to slide 3, Recidivism's Downward Trend:
[Original punctuation provided.]
RECIDIVISM'S DOWNWARD TREND
• DOC recidivism data is sourced from the Alaska
Corrections Offender Management System (ACOMS). For
the sake of consistency, we are utilizing the
previous Departmental definition of recidivism. This
definition accounts for the reincarceration of
convicted felons due to a new sentence, including
parole or probation adjudications, within three
years of their release.
• FY2013 67.10 percent
• FY2017 60.61 percent
• FY2019 58.49 percent
• FY2021 54.59 percent
MR. WELCH expressed appreciation to the previous presenter for
effectively illustrating the complexity of measuring recidivism.
He explained that when DOC discusses recidivism, the department
is examining its own data rather than comparing Alaska's rates
with those of other states or jurisdictions. He noted that such
comparisons are difficult because definitions and measurement
methods vary across jurisdictions, which does not necessarily
make them apples-to-apples comparisons.
MR. WELCH stated that the department's analysis focuses on
individuals who have previously been convicted of a felony and
who are later reincarcerated due to a new sentence. A new
sentence includes outcomes related to parole or probation
adjudications. He directed attention to the graph shown on slide
3 and said it indicates that recidivism rates have trended
downward over approximately the past decade. He described that
trend as positive but emphasized it reflects extensive work by
many parties, including the legislature, the executive branch,
and community partners. The department witnessed a lot of work
on crisis stabilization and made efforts to divert individuals
away from the criminal justice system when appropriate.
MR. WELCH noted that legislation which enabled individuals who
were released from correctional facilities to obtain state
identification cards was a big win for the reentry community.
Individuals returning to their communities often face difficulty
accessing services without proper identification, and having a
state ID allows them to obtain services and take necessary steps
toward reintegration. The legislature also provided funding for
reentry housing, which is another key factor supporting
successful reintegration. Stable housing is essential for
individuals to successfully return to their communities after
incarceration.
2:15:08 PM
SENATOR TOBIN drew attention to the slide 2. She requested an
offline follow-up for information regarding parole and probation
adjudications, which she assumed were for technical violations.
She asked whether that data could be broken out to show how many
individuals were reincarcerated based on one of those
components.
MR. WELCH replied that the department would provide the
information.
2:15:41 PM
SENATOR MYERS referred to the graph on slide 3. He noted that
the graph shows recidivism rates declining by roughly a dozen
percent over the past decade. He contrasted that with the
previous presentation, which showed recidivism rates remaining
relatively flat or possibly increasing slightly. He asked for an
explanation about those differences.
2:16:15 PM
MR. WELCH responded that the characterization is accurate. He
explained that DOC examines its population through its internal
data systems. The recidivism figures may differ from those
reported by the Alaska Criminal Justice Data Analysis Commission
or other states.
2:16:43 PM
SENATOR MYERS stated that he would like to follow up later to
examine the differences between the two presentations in greater
detail.
MR. WELCH responded that the previous presentation analyzed a
broader population that included misdemeanors. He said that he
is happy to follow up with the committee.
2:17:05 PM
CHAIR CLAMAN stated that DOC's recidivism data would include
only individuals who have been in the correctional system. An
individual who receives a probationary sentence without serving
jail time would not appear in the department's dataset because
that person was never incarcerated. Further, DOC begins its
count only after the individual's release from jail.
2:17:32 PM
MR. WELCH replied that the department relies on data from the
Alaska Corrections Offender Management System (ACOMS). He
confirmed that DOC's dataset reflects a narrower population than
the broader population in the Alaska Criminal Justice Data
Analysis Commission.
2:17:42 PM
CHAIR CLAMAN asked whether DOC looks at the same three-year
window.
2:17:49 PM
MR. WELCH answered in the affirmative, stating DOC uses a three-
year lookback.
2:17:55 PM
MR. WELCH moved to slides 4 and 5, Services Provided by Health
and Rehabilitation:
[Original punctuation provided.]
SERVICES PROVIDED BY HEALTH AND REHABILITATION
Reentry Services Education Programs Vocational Programs
Offender Management Education Coordinators Plumbing, Electrical
Plans & Carpentry
Risk/Needs Assessment Placement Testing CDL Training
Halfway Houses (CRCs) Computer Literacy Culinary Arts
Community In-Reach GED Testing, Tutoring Food Handler &
& Certification & Serve Safe
Mental Health Release Job Readiness Skills Small Engine Repair
Programs
Reentry Coalitions English as a Barista Training
Second Language (ESL)
DOLWD & DEED Partnerships Parenting Welding
Peer Support Correspondence Courses Building Maintenance
Medical Social Work Barber School
Forming New
Partnerships
Prison Education
Program
2:18:00 PM
MR. WELCH stated that one of the guiding principles the
commissioner emphasizes is that individuals should leave the
correctional system better than when they entered. He said that
principle is central to the department's efforts to address
recidivism. DOC cannot accomplish the work alone; it requires
partnerships with community programs and other organizations.
DOC works with a number of partners, including the University of
Alaska system to provide educational programming in correctional
facilities, including automotive mechanics.
MR. WELCH said DOC recently entered into a memorandum of
agreement with the University of Alaska Fairbanks (UAF) -
Community and Technical College (CTC). It is establishing a
position called the director of correctional education. He
explained that the director will work with DOC to expand
educational programming in correctional facilities through UAF-
CTC programs. That partnership also includes participation in
the Prison Education Program (PEP) to support and sustain
educational programming within correctional facilities.
MR. WELCH further noted that CTC has locations in Bethel and
Nome, which expands opportunities for educational programming in
those regions.
2:20:03 PM
SENATOR TOBIN expressed that federal dollars might be available
through Application for Federal Student Aid (FAFSA) and Federal
Pell Grants, to name a few. Some of these applications require
online access and knowledge of an individual's family tax
history and other information. She expressed interest in how DOC
supports an individual's ability to access those federal dollars
and whether UAF will provide technical assistance.
MR. WELCH replied that CTC would apply for grant funds on behalf
of the student.
2:21:04 PM
SENATOR TOBIN stated that she was aware that Johnson-O'Malley
funds and other tribal resources may also be available for
communities such as Bethel and Nome. She said she would be
interested in following up offline regarding whether those
funding sources might also support the programming discussed.
MR. Welch responded that expanding access to additional funding
opportunities is one of the reasons DOC is excited about the
partnership.
2:21:31 PM
MR. WELCH said that along with the university, DOC also partners
with several tribal organizations. Such partnerships include
Southcentral Foundation, the Tanana Chiefs Conference, the Cook
Inlet Tribal Council, and the Central Council of the Tlingit and
Haida Indian Tribes of Alaska, among others.
MR. WELCH said Southcentral Foundation operates culturally
relevant programming at Hiland Mountain Correctional Center and
is open to all incarcerated individuals, not solely Alaska
Native participants. Incarcerated individuals report strong
interest in participating in the program. He noted that the
program focuses on behavioral health and providing support
systems. He stated that DOC is working to expand similar
programming to Palmer Correctional Center so that comparable
services will be available for the male population.
MR. WELCH stated that DOC partnered with the Alaska Native
Heritage Center (ANHC) to bring Native art and dance into
correctional facilities. He said that, though this particular
grant was expended, he seeks ways to bring ANHC back into
correctional facilities to offer new programming.
MR. WELCH further stated that DOC has partners with several
community organizations that provide services within facilities
and support reentry efforts. He said those partners include
organizations such as Juneau Alliance for the Mentally Ill,
Health and Wellness, Alaska Addiction and Recovery Services,
True North Recovery, the Salvation Army, Norton Sound Health
Corporation, and members of the state's reentry coalition, to
name a few.
2:23:35 PM
MR. WELCH continued with slide 4 to discuss educational
services, stating the emphasis is on adult basic education. He
explained that when an individual enters DOC's care and custody,
educational and vocational instructors receive notice of the
arrival. He said staff review the individual's paperwork and
reach out to determine whether the person is interested in
educational opportunities. Institutional probation officers also
inform individuals about available programming, and DOC
advertises programs through posters and other outreach within
the facilities.
MR. WELCH stated that when an individual expresses interest, the
educational coordinator assesses the person's current
educational level. He said individuals who do not have a GED or
high school diploma are first encouraged to work toward
completing a GED. Individuals may also participate in classes to
strengthen technical skills such as math, reading, and writing
so they can meet the educational requirements needed to
participate in vocational training offered in the facilities.
2:24:52 PM
MR. WELCH said DOC works closely with the Department of Labor
and Workforce Development and the Department of Education and
Early Development to evaluate Alaska's workforce needs and
identify relevant vocational training opportunities. He
mentioned that Alaska has a shortage of truck drivers. He
highlighted that DOC launched a pilot commercial driver's
license (CDL) program at Wildwood Correctional Center that
prepares participants through all training except the road test.
The program uses virtual reality and a driving simulator to
allow participants to practice tasks such as vehicle inspections
and operational procedures. He said individuals complete the
program at a point where, upon release, they are prepared to
take the CDL driving test. Only one cohort has completed the
program so far, as it is a new project, but expressed enthusiasm
about its potential to address workforce needs and to provide
strong employment opportunities for individuals upon release.
MR. WELCH highlighted a program developed in partnership with
the Carpenters Union. He explained that the union provides a
curriculum originally designed for high school-level training,
which vocational instructors use to teach skills within the
facilities. Participants complete four instructional books and
receive a certificate for each one. He said individuals may
present those certificates to the Carpenters Union after release
to help them enter the union's apprenticeship program. He said
DOC is working to establish a similar agreement with the
electrical union of the International Brotherhood of Electrical
Workers (IBEW).
2:26:50 PM
MR. WELCH stated that DOC has a longstanding relationship with
Alaska's Ironworkers Union. He explained that the organization
operates a mobile welding trailer that travels to various
correctional facilities to teach welding and ironworking skills.
DOC recently provided the organization with a letter of support
for a federal funding application intended to expand the
program. He expressed hope that additional funding would allow
DOC and its partners to increase the number of classes.
MR. WELCH emphasized that when DOC develops vocational
programming, it seeks to align training opportunities with
workforce needs in Alaska. He said the goal is to ensure that
individuals leaving the department's custody possess skills that
can lead to well-paying employment and allow them to contribute
to Alaska's economy.
2:27:41 PM
SENATOR MYERS stated that slide 4 lists several vocational
programs and asked how programs such as welding or barber
training are conducted in a correctional setting, noting that
the tools used in those trades could be potentially dangerous.
MR. WELCH responded that DOC takes significant precautions when
offering vocational programming involving tools. He explained
that security measures include conducting tool counts before and
after each class to ensure no tools are missing. The department
carefully evaluates which individuals are permitted to
participate in particular programs. Individuals are screened to
determine whether they are appropriate candidates for programs
that involve equipment or tools. He explained that the
department exercises caution in assigning participants to
classes such as carpentry and assesses potential risks before
allowing individuals to enroll. The department instituted
security measures to ensure tools remain within the program area
and cannot later be used as a weapon.
2:29:11 PM
MR. WELCH moved to slide 5, Services Provided by Health and
Rehabilitation (continued):
[Original punctuation provided.]
SERVICES PROVIDED BY HEALTH AND REHABILITATION
Mental Health Substance Use Sex Offender
Services Disorder Treatment Management_______
Group & Individual Screening Institutional Sex
Counseling Offender Treatment
In-Patient Treatment Assessment Community Sex
Units Offender Treatment
Intensive Reentry Intensive Outpatient Rural Telehealth
Planning Treatment (IOPSAT) Treatment
Suicide Prevention Residential Treatment Containment Model
(RSAT)
Dual Diagnosis Medication Assisted Safety Nets
Treatment Treatment(MAT)
Title 47 Management AA/NA Specially Trained
Probation Officers
Medication Management Prevention Services
Trauma Informed Care CRC Direct Access
to Treatment
Mental Health First Aid
MR. WELCH said a number of individuals entering DOC's care and
custody are living with mental health conditions, substance use
disorders, or co-occurring disorders. The department offers
group and individual counseling services as well as inpatient
and outpatient substance use disorder treatment programming. He
explained that the department works with community partners to
support behavioral health programming and supplement services
provided by department clinicians. He noted that organizations
such as the Salvation Army assist in delivering behavioral
health services.
2:29:48 PM
MR. WELCH stated that DOC is excited about expanding its use of
furlough as a means of supporting treatment and reentry. He
explained that individuals who meet certain criteria, including
being within three years of release, may be allowed to finish
their sentence in the community. He said DOC may furlough
individuals to inpatient substance use disorder treatment
providers such as Alaska Addiction and Recovery Services,
formerly known as Nugen's Ranch. He reported that five
individuals are participating in the furlough program and
receive inpatient substance use disorder treatment at the 3.5
level of care. He explained that the program may last several
months and can extend up to approximately 18 months. He said
that while individuals participate in treatment through
furlough, Medicaid covers the cost of that programming.
MR. WELCH emphasized that the program supports continuity of
care by allowing individuals to receive treatment and develop
relationships with community-based providers prior to release.
He said this approach helps ensure individuals can continue
receiving care from the same providers and case managers after
returning to the community rather than relying solely on
services within DOC. The department is working with Alaska
Addiction and [Rehabilitation] Services as well as True North
Recovery and the Salvation Army to support these treatment
opportunities.
2:31:16 PM
SENATOR TOBIN asked, in general terms, how many incarcerated
individuals receive mental health or substance use disorder
treatment services. She noted that if approximately 80 percent
of the roughly 4,200 individuals incarcerated are living with a
substance use disorder, that number exceeds 3,400 individuals.
She stated that she assumed DOC does not have 3,000 individuals
who take advantage of substance use treatment programs. She
asked for an approximate number of individuals receiving
services within those programs.
MR. WELCH responded that he would provide that information.
2:32:06 PM
DUSTY DUMONT, Director, Division of Pretrial, Probation and
Parole (DP3), Department of Corrections, Juneau, Alaska, co-
delivered a presentation on Recidivism Efforts in Alaska.
MS. DUMONT moved to slide 6, Services Provided by Probation and
Parole:
[Original punctuation provided.]
SERVICES PROVIDED BY PROBATION AND PAROLE
• Structured environment with accountability while
living in the community
• Collaboration with community partners
• Access to supports and services
• Ensuring public safety in accordance with court
and/or parole board orders
MS. DUMONT said the division aims to balance accountability with
the goal of rehabilitation by supporting individuals as they
reintegrate into society while minimizing the risk of
reoffending.
MS. DUMONT stated that she has worked in corrections for more
than 27 years in a variety of roles. She served for the past 22
years primarily as a field probation officer, although she also
worked in institutional settings and with the Alaska Board of
Parole. She described herself as passionate about the work,
despite the challenges of the field.
MS. DUMONT said she views probation and parole officers as
"change agents" whose role is to encourage individuals under
supervision to pursue positive change. Individuals are not
always ready to change, but officers seek opportunities to
support them when they are. She added that a deputy director in
the division describes officers as working with individuals in
the "pre-contemplation" stage, helping them recognize the need
for change and move toward future success.
MS. DUMONT stated that officers perform many roles in
supervising individuals in the community. She said officers
connect individuals with services such as mental health
treatment, substance use disorder treatment, and community
reentry resources. She noted that officers encourage individuals
throughout their journey and help them recover when setbacks
occur. She said officers play the role of strict parents, which
sometimes leads to discipline and consequences.
MS. DUMONT emphasized that the work requires maintaining a
complex balance between rehabilitation and public safety. She
said the division is motivated by success stories of individuals
who return to their communities, remain clean and sober,
maintain employment, and raise their families. She stated that
those outcomes represent the goals the division strives to
achieve.
2:35:12 PM
SENATOR TOBIN said that she asked officers and community members
at the Bethel facility how the system supports individuals
returning to very small villages, particularly when the crime
was very terrible. She said that, though the individual paid
their debt, she asked about the process of supporting reentry in
those circumstances where communities still need to heal. She
asked how to facilitate reintegration in these circumstances.
She expressed interest in learning more about collaboration with
community partners and about potential approaches to help
individuals return to their communities without causing further
harm.
MS. DUMONT responded that she would welcome that conversation.
2:35:57 PM
CHAIR CLAMAN asked for a short preview.
MS. DUMONT replied that Bethel is one of the areas that is hard
to staff. She noted that returning individuals to small
communities can present complex challenges, particularly in
cases involving serious offenses such as sex offenses. She said
communities often face a difficult balance between accepting
individuals who have served their sentences and addressing the
harm they caused the community. She stated that in those
situations, DOC seeks to proceed carefully, erring on the side
of public safety while also protecting victims.
2:37:01 PM
CHAIR CLAMAN expressed appreciation to the presenters.
2:37:33 PM
There being no further business to come before the committee,
Chair Claman adjourned the Senate Judiciary Standing Committee
meeting at 2:37 p.m.
| Document Name | Date/Time | Subjects |
|---|---|---|
| ACJDAC Presentation on Recidivism to SJUD 4.23.25.pdf |
SJUD 4/23/2025 1:30:00 PM |
|
| Department of Corrections Presentation on Recidivism to Senate Judiciary 4.23.25.pdf |
SJUD 4/23/2025 1:30:00 PM |