Legislature(2023 - 2024)BELTZ 105 (TSBldg)
02/02/2023 01:30 PM Senate COMMUNITY & REGIONAL AFFAIRS
Note: the audio ![]()
and video ![]()
recordings are distinct records and are obtained from different sources. As such there may be key differences between the two. The audio recordings are captured by our records offices as the official record of the meeting and will have more accurate timestamps. Use the icons to switch between them.
| Audio | Topic |
|---|---|
| Start | |
| Presentation(s): Department of Public Safety Overview | |
| Presentation(s): Department of Corrections Overview | |
| Adjourn |
* first hearing in first committee of referral
+ teleconferenced
= bill was previously heard/scheduled
+ teleconferenced
= bill was previously heard/scheduled
ALASKA STATE LEGISLATURE
SENATE COMMUNITY AND REGIONAL AFFAIRS STANDING COMMITTEE
February 2, 2023
1:31 p.m.
MEMBERS PRESENT
Senator Forrest Dunbar, Chair
Senator Donald Olson, Vice Chair
Senator Elvi Gray-Jackson
Senator Jesse Bjorkman
Senator Cathy Giessel
MEMBERS ABSENT
All members present
COMMITTEE CALENDAR
PRESENTATION(S): DEPARTMENT OF PUBLIC SAFETY OVERVIEW
- HEARD
PRESENTATION(S): DEPARTMENT OF CORRECTIONS OVERVIEW
- HEARD
PREVIOUS COMMITTEE ACTION
No previous action to record
WITNESS REGISTER
JAMES COCKRELL, Commissioner
Department of Public Safety (DPS)
Anchorage, Alaska
POSITION STATEMENT: Presented the department overview.
JOEL HARD, Director
Policy and Programs
Village Public Safety Officer Operations
Department of Public Safety (DPS)
Anchorage, Alaska
POSITION STATEMENT: Answered questions during the presentation.
LISA PURINTON, Legislative Liaison
Department of Public Safety (DPS)
Anchorage, Alaska
POSITION STATEMENT: Answered questions during the DPS
presentation.
JENNIFER WINKELMAN, Commissioner Designee
Department of Corrections (DOC)
Juneau, Alaska
POSITION STATEMENT: Presented the department overview.
Adam Rutherford, Acting Director
Division of Health and Rehabilitation Services
Department of Corrections (DOC)
Anchorage, Alaska
POSITION STATEMENT: Answered questions during the DOC overview.
JEFF EDWARDS, Executive Director
Alaska Board of Parole
Department of Corrections (DOC)
Anchorage, Alaska
POSITION STATEMENT: Answered questions during the DOC overview.
ACTION NARRATIVE
1:31:01 PM
CHAIR FORREST DUNBAR called the Senate Community and Regional
Affairs Standing Committee meeting to order at 1:31 p.m. Present
at the call to order were Senators Gray-Jackson, Giessel and
Chair Dunbar. Senator Bjorkman joined the meeting immediately
thereafter. Senator Olson arrived while the meeting was in
progress.
^PRESENTATION(S): DEPARTMENT OF PUBLIC SAFETY OVERVIEW
PRESENTATION(S): DEPARTMENT OF PUBLIC SAFETY OVERVIEW
1:31:37 PM
CHAIR DUNBAR announced an overview of the Department of Public
Safety (DPS) presented by Commissioner Cockrell. He invited the
commissioner to put himself on the record and begin the
presentation.
1:32:42 PM
JAMES COCKRELL, Commissioner, Department of Public Safety (DPS),
Anchorage, Alaska, presented the department overview. He made a
brief statement about the department's status, indicating it is
strong and has received a lot of support from the governor and
legislature. He said the Village Public Safety Officer (VPSO)
program has blossomed. He has seen the number of Village Public
Safety Officer increase from 45 to 68. DPS is funded for 65, but
the department pinched its pennies and funded an additional
three VPSOs for communities that desperately need law
enforcement coverage.
COMMISSIONER COCKRELL advanced to slide 2, stating the
department's mission is protecting life and property. He
considers the state's core issues, then drafts the department's
budget around them. He reviewed the department's key objectives:
• Recruit and Retain
• Rural Alaska Law Enforcement and Safety
• Domestic Violence and Sexual Assault
• Village Public Safety Officer Program
• Fisheries and Wildlife Resource Protection
• Narcotics, Missing and Murdered Indigenous Persons,
and Major Investigations
1:35:23 PM
SENATOR BJORKMAN joined the meeting.
1:38:20 PM
COMMISSIONER COCKRELL shared some department successes on slide
3, noting this list could contain about 100 more:
Department Success in 2022
• Added two missing and murdered indigenous persons
investigators
• Seized 13,425,000 potentially fatal doses of
fentanyl statewide
• Currently have 68 Village Public Safety Officers
1:39:52 PM
SENATOR GRAY-JACKSON asked how many communities need a public
safety officer.
COMMISSIONER COCKRELL replied he did not have the exact number.
He will gather that information for the committee. The state has
failed rural Alaska in providing reasonable law enforcement
protection. It has been an injustice since statehood. He
surmised that of the 229 federally recognized tribes, over half
of them need a law enforcement presence. They might have a
federally funded village police officer (VPO) or a tribal police
officer. However, they do not have a VPSO, who has a higher
level of training, or a state trooper. He said it would take
considerable effort, and the state should focus on this issue at
some point. It has been 50 years since statehood, and the issue
remains unresolved.
SENATOR GRAY-JACKSON commented that she appreciates the
progress. She asked if Akutan has a VPSO.
COMMISSIONER COCKRELL replied yes, but said the Director of
Village Public Safety Officer Operations could verify.
1:41:40 PM
JOEL HARD, Director, Policy and Programs, Village Public Safety
Officer Program, Department of Public Safety (DPS), Anchorage,
Alaska, answered questions during the presentation. He said the
closest VPSO on the Aleutian Chain is located in Adak; two VPSOs
are stationed there.
1:42:00 PM
COMMISSIONER COCKRELL continued the review of slide 3.
Department Success in 2022 [continued from above]
• 15.2% decrease in Alaska's overall crime rate
• This reflects the lowest number of reported
offenses since 1975 and continues the downward
trend in Alaska crime that started in 2018
COMMISSIONER COCKRELL said the one area of crime that
continues to climb is sexual assaults. Last year in the
Yukon-Kuskokwim Delta, law enforcement received 320 reports
of felony-level sexual assaults; the targets were primarily
females. For comparison purposes, consider Anchorage's
population, and that it had just over 600 felony sexual
assaults last year.
• Continuing to work to hire new State Troopers; 51
new Troopers started training in 2022
COMMISSIONER COCKRELL said on the positive side, the
department sent 51 candidates to the Alaska State Trooper
Academy in the last two years. Twenty-four graduated from
the previous class. The class in February is pushing for 25
graduates. The DPS recruitment effort has been strong,
working statewide and nationwide. He expressed that he'd
like to hire more Alaskans and see more diversification in
the Alaska State Trooper (AST) ranks.
• Expansion of the wellness program
1:43:14 PM
COMMISSIONER COCKRELL summarized slide 4 that shows the
department's organizational chart. He said the department has
four divisions and four councils.
1:43:40 PM
COMMISSIONER COCKRELL advanced to slides 5 and 6, Division of
State Troopers. He summarized the division's sections and
bureaus on slide 5:
Division of Alaska State Troopers
Alaska Bureau of Investigation
Statewide Drug and Alcohol Enforcement
Four State Trooper Detachments
Aircraft Section
Bureau of Highway Patrol
Bureau of Judicial Services
Search and Rescue
Prisoner Transportation
Dispatch Services
Rural Trooper Housing
Training Academy Recruit Salaries
Recruitment and Retention Incentives
COMMISSIONER COCKRELL reviewed slide 6 and the department
detachment boundaries. A map depicted the four geographical
headquarters for state trooper detachments A, B, C, and D. The
northernmost post is in Kotzebue, and the southernmost post is
down by Klawock on Prince of Wales Island. He expressed his
belief that Alaska is just shy of 43 posts statewide. Slide 6
reads:
Accomplishments
• Seized 215% more methamphetamine, 440% more
fentanyl, and 334% more heroin in 2022 than in 2021
• Solved 85% of homicides that occurred within Alaska
State Trooper jurisdiction (includes boroughs,
municipalities, and cities when support was
requested)
• Expansion of the two-on/two-off shared housing
program
Challenges
• Recruitment and Retention
• Technological changes allow for new criminal
exploitations, including identity theft, child
pornography, online sexual exploitation, and
computer fraud schemes
• Importation of drugs and alcohol into rural
Alaska
1:45:45 PM
CHAIR DUNBAR asked whether Alaska has appreciably fewer smuggled
drugs and usage compared to previous years.
COMMISSIONER COCKRELL responded that based on the number and
amount of drug seizures, Alaska is inundated with more drugs and
usage than in previous years. He said the profit margin is one
reason for the rise in drugs. Most of the drugs moving through
Alaska originate in Mexico. Smugglers move the drugs to Los
Angeles, Las Vegas, and elsewhere via Alaska Airlines, Delta
Airline, the United States Postal Service, boats, and other
methods. The department refocused its efforts and is
intercepting and seizing huge amounts of drugs, more than in the
past. He said the price of street drugs is one way the
department knows whether it is making a big dent in shipments;
the department does not see a rise even with the huge increase
in seized drugs. An increase in the number of drugs seized
during traffic stops and warrant arrests is another way the
department can identify the number of smuggled drugs is growing.
1:48:22 PM
SENATOR GRAY-JACKSON drew attention to "detachments" on slide 6
and requested more information about the four trooper
detachments.
COMMISSIONER COCKRELL replied that the state is divided into
four geographical areas; each area has a headquarters.
SENATOR GRAY-JACKSON sought confirmation that detachments could
be likened to satellite police stations.
COMMISSIONER COCKRELL replied that the detachment areas are
permanent. The detachment boundaries are tweaked but have mostly
stayed the same in the past 30 years.
1:50:00 PM
COMMISSIONER COCKRELL advanced to slide 7, Vacancies. This slide
graphed trooper vacancy rates. He said a lot of discussions
revolve around trooper vacancies; the department can never seem
to catch up. The department gains a batch of trooper
[graduates], then loses some to retirement, or they move
elsewhere. He said the department has 320 authorized state
trooper positions and 42 vacancies, which is not a bad number.
The department has 89 wildlife trooper positions, eight of which
are vacant. The total number of vacancies is approximately 50 in
the trooper job class.
1:50:52 PM
COMMISSIONER COCKRELL advanced to slide 8, Division of Alaska
Wildlife Troopers. He said wildlife troopers are essentially
game wardens. They are fully-fledged Alaska State Troopers
focused on fish and game enforcement. Fish and Game resources in
the state are worth over $5 million per year; this includes
sport fishing, hunting, dip netting on the Kenai, and wildlife
viewing. The state needs wildlife troopers to enforce fish and
game laws, ensuring Alaskans all get their fair share. He said
when he started with the department in 1983, there were 121
wildlife troopers. Today the state has 89 or 90. Almost one
million licenses were sold last year, and 90 troopers enforced
fish and game regulations. The fishing and hunting industries
are huge economic drivers in many areas of the state. Wildlife
troopers have a larger presence in those areas. Wildlife
troopers rely heavily on vessels and aircraft.
COMMISSIONER COCKRELL mentioned that a newspaper wrote about how
long it took state troopers to arrive at a violent crime scene
in one of the villages, three or four days. State troopers
relied on charter aircraft for transportation to rural villages
but after COVID, many charter services closed their doors. The
department now relies heavily on its own aircraft because it can
no longer rely on charters. Slide 8 listed wildlife trooper
accomplishments and challenges:
Accomplishments
• Collaboration with State and federal agencies,
search and rescue groups, and public resource users
• Boating safety education and enforcement to reduce
boating fatalities
• Identification of commercial resource crime and
successful prosecution
Challenges
• 6,640 miles of coastline, significant hunts and
fisheries
• Complicated regulatory structure and limited
resources; 891,000 licenses sold and 90 Troopers
1:53:01 PM
COMMISSIONER COCKRELL advanced to slides 9 and 10, Village
Public Safety Officer Program. The VPSO program is a bright star
in the department. It is the strongest it has been in a long
time. Previously, the Division of Alaska State Troopers managed
the VPSO Program. Now, the VPSO Program has a director-level
position to run operations. This position is equivalent to a
trooper colonel. It deservedly directly under the Office of the
Commissioner. He said DPS has a budget ask for that position.
These changes advanced the program by leaps and bounds in a
short period of time. Slide 9 reads as follows:
Bridging the department's public safety responsibility
with tribal partners
• Law Enforcement
• Fire Suppression and Prevention
• Water Safety
• Search and Rescue
• Emergency Medical Services
• Probation and Parole
COMMISSIONER COCKRELL spoke to slide 10:
Program Status
• $15,207.7 awarded
• 10 Grantees
• 68 VPSOs currently employed
Accomplishments
• 2022 Statute Reform: Added program clarity and
improved wages and support (multi-officer
assignment, traveling officers, training reform,
Tribal relationships w/ DPS liaison)
Challenges
• Recruitment and retention
• Insufficient rural public safety infrastructure,
lack of housing
COMMISSIONER COCKRELL emphasized that one of the department's
problems is a lack of decent VPSO and trooper housing in rural
areas. The lack of decent housing has been ongoing for many
years and is a stumbling block, even in bigger hubs like Nome,
Kotzebue, and Bethel. U.S. Senator Murkowski got $3 million in
federal funds for trooper rural housing. Decent housing is
necessary if VPSOs and troopers are sent to rural areas.
1:55:21 PM
COMMISSIONER COCKRELL advanced to slide 11 and spoke to the
subject of deputy fire marshals:
Division of Fire and Life Safety
Mission: to prevent the loss of life and property from
fire and explosion. Fire safety is improved through
three means:
• Enforcement (Life Safety Inspection Bureau)
• Engineering (Plan Review Bureau)
• Education (Bureau of Fire Accreditation, Standards
and Training)
Accomplishments
• 664 building fire and life safety inspections
• 776 fire and building plan reviews completed
• 45 significant fire investigated
Challenges
• Rural fire department capacity
• Communication methods to reach high-risk groups and
areas regarding personal responsibility to decrease
loss
1:56:20 PM
COMMISSIONER COCKRELL reviewed slide 12, Division of Statewide
Services.
Alaska Public Safety Communication Services
• Supported 12,409,758 calls and 20,436,826 push to
talks
• Completed update of site repeaters in all State-
owned sites
Information Systems
• Initiated a digitization of case files to the Alaska
Records Management System
• Rolled out Online Police Reporting
Criminal Justice Information Systems Program
• Secured multiple federal grants for Criminal Justice
Information Services modernization project
• FBI approved the DPS National Incident Based
Reporting System for data to be submitted on behalf
of 30 law enforcement agencies
Alaska Scientific Crime Detection Lab
• 9,146 DNA database samples from arrestees and
convicted offenders
• 2,491 sexual assault kit testing completed; backlog
reduced by 57% per AS 44.41.065
1:57:48 PM
SENATOR GIESSEL asked if this is where background checks are
done.
LISA PURINTON, Legislative Liaison, Department of Public Safety
(DPS), Anchorage, Alaska, answered yes. The Alaska Public Safety
Information Network (APSIN) is the criminal history repository;
fingerprint-based background check information flows from this
network.
SENATOR GIESSEL sought clarification on whether fingerprint
background checks are submitted on paper or electronically.
MS. PURINTON answered that the Division of Statewide Services is
modernizing its Criminal Justice Information Services. The APSIN
system was designed in the 1980s. The infrastructure on that
application is old. The division accepts some electronically
submitted fingerprints. She said DPS has to accept fingerprints
submitted from state or government agencies. For example, the
Department of Corrections (DOC) submits the electronic
fingerprints of those arrested through a live scan device.
Fingertips are placed on a glass device and transmitted
electronically; the process is inkless. The division works with
the Department of Family and Community Services (DFCS). DFCS is
kind of a clearinghouse for its clients and submits its
fingerprints to DPS electronically. The division partners with
other entities that want to submit their fingerprints
electronically. Fingerprint results are usually sent to the
applicant and the licensing or employing body in a mailed
letter.
1:59:41 PM
SENATOR GIESSEL said that she was told the glacial licensing
process is partially due to an antiquated background check
process with paper fingerprints. She asked whether the division
plans to improve the paper fingerprint process.
MS. PURINTON answered that the division accepts electronic
fingerprints from state and government agencies. She explained
the division could not accept scanned fingerprints from a
private entity like a daycare center. The division must maintain
the system's integrity for security purposes because that data
enters the state and national databases. State and federal
agencies require background checks for certain licenses and
employment, including fingerprint submission. Licensing and
employing agencies required to obtain criminal histories are DPS
clients. The division's turnaround time on electronic and hard
card fingerprints is a little over 4.04 days. With current
staffing, the department turns them around as quickly as
possible.
2:01:56 PM
COMMISSIONER COCKRELL spoke to slide 13, Alaska Scientific Crime
Detection Lab. He said that Alaska has one of the nation's
premier crime labs when it comes to quality of work, facilities,
and staff. The crime lab belongs to DPS, not the state troopers.
The department wants to ensure that there is no internal
influence on evidence handling or processing. The charts on
slide 13 showed the yearly DNA submissions, backlog, and lab
processing times.
2:02:42 PM
SENATOR GRAY-JACKSON commented that the crime lab was impressive
and had a great team.
COMMISSIONER COCKRELL commented the lab got caught up on and
processed its backlog of sexual assault kits. Victims of sexual
assault will be able to track their kit all the way through the
system; the tracking app will be live soon.
2:04:30 PM
COMMISSIONER COCKRELL reviewed slide 14, Council on Domestic
Violence and Sexual Assault:
Purpose: To empower Alaska communities to create a
future free of domestic and sexual violence.
Mission: Promotes the prevention of domestic violence
and sexual assault and provides safety for Alaskans
victimized or impacted by domestic violence and sexual
assault through a statewide system of crisis
intervention and support, and by supporting
perpetrator accountability and rehabilitation.
• Eleven (11) member Board of Directors;
• Eleven (11) full-time staff;
• Fund 34 community-based agencies serving Utqiagvik
to Unalaska;
• Manage and monitor a total of 90 grant awards;
• Support statewide efforts to reduce and end domestic
and sexual violence in Alaska.
COMMISSIONER COCKRELL mentioned language accessibility for
victims searching for resources in native and other languages.
2:05:59 PM
CHAIR DUNBAR commented that the Anchorage Police Department
(APD) does not inform federal immigration about domestic
violence calls because APD does not want to disincentivize that
kind of reporting. He asked about the DPS policy on notifying
federal immigration when the caller reporting domestic violence
is undocumented.
COMMISSIONER COCKRELL replied that he does not know. He will get
that information for the committee.
2:06:43 PM
SENATOR GRAY-JACKSON asked about sex trafficking and the
department's progress in this area.
COMMISSIONER COCKRELL answered that Alaska has a sex trafficking
issue. The [Governor's Council on Human and] Sex Trafficking
issued a report. He believed the report was posted on the
department's website. The governor's bill contains several
statutes addressing sex trafficking. Alaska and the Federal
Bureau of Investigation (FBI) each have a sex trafficking task
force, and APD is involved. DPS focuses on sex trafficking based
on compliance but does not have a unit dedicated to sex
trafficking.
2:07:40 PM
COMMISSIONER COCKRELL reviewed slide 15, Violent Crimes
Compensation Board. He said the Department of Administration
(DOA) transferred this board about a year and a half ago. When
DPS took the board over, well over 1,000 applications were
pending. The board has a staff of three, which includes the
executive director. The board's mission is to alleviate some
financial burdens victims face following a violent crime. He
said the board is grossly understaffed. He said that nationwide
most states average between six and eight staff, some with fewer
applications than Alaska receives. The board addresses these
types of crimes and expenses:
Crime and Expense Type
Homicide Funeral & Burial
Assault Lost Wages
Arson Medical & Mental Health
Child Abuse Relocation
Sexual Assault Safety & Security
DUI/DWI Crime Scene Clean Up
Robbery Travel
2:09:03 PM
COMMISSIONER COCKRELL summarized slide 16, Alaska Police
Standards Council. The council provides the curriculum for
police training. He said the council also reviews discipline
issues, noting it can suspend a correction officer's
certificate. Most of the council's funding is from surcharges on
traffic tickets and court fees. Four people serve on the
council. The slide reads:
Mission:
To produce and maintain a highly trained and
positively motivated professional, capable of meeting
contemporary law enforcement standards of performance.
Values:
A - Accountability
P - Professionalism
S - Service
C - Character
2:09:38 PM
CHAIR DUNBAR commented that a coalition of police chiefs
contacted legislators regarding $500,000 to produce a manual. He
asked about the fee and how it relates to the Alaska Police
Standards Council.
COMMISSIONER COCKRELL replied the Alaska Association of Chiefs
of Police (AACOP) requested a $500,000 grant to have a company
compile a standardized operations procedure manual. They planned
to share it with police departments statewide. Communities could
tweak it to meet their needs. It could be a statewide
standardized manual if that is the direction police departments
want to go. Compiling a standardized procedure manual is a
daunting task, especially for smaller police departments. The
contracted company would compile a policy manual based on best
practices. Other departments could adopt and fine-tune it to
their needs.
CHAIR DUNBAR asked whether the policy manual would dovetail with
the standards upheld by the Alaska Police Standards Council.
COMMISSIONER COCKRELL answered the policy manual is separate
from the council's standards though the council could offer
guidance to the contractors.
2:11:41 PM
SENATOR BJORKMAN said a big concern on the Kenai Peninsula and
in many places statewide is trooper response time. He asked what
the legislature could do to help reduce trooper response time.
COMMISSIONER COCKRELL replied that B Detachment, which covers
the MatSu Valley and west, is grossly understaffed to meet its
obligations. The ultimate goal is 415 troopers; that would be
adequate.
COMMISSIONER COCKRELL said the police force is reactive, not
proactive, right now. The department lost proactive functions
like a full-time borough highway patrol, domestic violence (DV)
support troopers, and VPSO oversight troopers in 2015-2016. He
said it is now a reactive police department. There is only a
little time to do general patrol. Troopers are running back and
forth and taking reports. He likened the situation to killing a
moose; the work starts after the kill. Likewise, all the work
begins after an arrest. Depending on the type of arrest, the
trooper has to complete reports, process criminal complaints,
get search warrants, and transport suspects to jail. It takes
time. The average driving under the influence (DUI) arrest takes
four to five hours to process. When the trooper stops a car, the
person is processed and transported to Wildwood Correctional
Complex. Then the trooper returns to the office and starts the
reports. The bottom line is that to make a difference in rural
and urban Alaska, the department needs more staff. The
department has to fill the positions and keep them filled.
SENATOR BJORKMAN asked how many law enforcement troopers the
department has.
COMMISSIONER COCKRELL answered the department is authorized for
320.
SENATOR BJORKMAN asked whether the ultimate goal of 415 troopers
includes wildlife troopers.
COMMISSIONER COCKRELL answered no. That is just state troopers.
He would like to increase the number of wildlife troopers by 10
for a total of 100. He said in a perfect world that he would
like the additional state troopers all at once. However,
recruitment challenges would make that difficult. He expressed
his belief that he could fill an extra ten state trooper
positions each year, and it would be better for the budget to do
it that way.
2:15:26 PM
CHAIR DUNBAR commented that, overall, crime fell about 15
percent. He asked to what the commissioner ascribes the
decrease. He asked whether that is year-over-year or in the last
several years.
COMMISSIONER COCKRELL answered the department has seen a
decrease in crime in the last few years. Trends can tweak those
numbers one way or the other, especially in a state as small as
Alaska. He explained that it would take two more cycles to know
if the decrease was an anomaly. He said Anchorage increased its
number of police officers. He said he had an inkling that this
affected crime suppression in Anchorage and increased crime in
the Valley. He said it would take one or two more cycles to know
whether the 15 percent reduction was an anomaly due to COVID.
CHAIR DUNBAR expressed his belief that Anchorage increased the
number of officers from 350 to 420 in the last several years. It
was a significant reinvestment in the police department.
COMMISSIONER COCKRELL commented that the number of people under
Department of Corrections (DOC) supervision makes a difference
in crime. A person cannot recommit a crime if they are back in
jail. DOC has 4,500 to 5,000 people under its supervision; this
puts a bite in crime. He recalled that in 2017-2018,
perpetrators were released and cited the law change under Senate
Bill 91 [chapter 36, SLA 2016].
2:18:33 PM
At ease.
^PRESENTATION(S): DEPARTMENT OF CORRECTIONS OVERVIEW
PRESENTATION(S): DEPARTMENT OF CORRECTIONS OVERVIEW
2:19:45 PM
CHAIR DUNBAR announced an overview of the Department of
Corrections (DOC) presented by Commissioner Designee Winkelman.
He invited the commissioner designee to put herself on the
record and begin the presentation.
2:20:30 PM
JENNIFER WINKELMAN, Commissioner Designee, Department of
Corrections (DOC), Juneau, Alaska, presented the department
overview. She mentioned that corrections was originally under
the Department of Health and Social Services. An executive order
moved corrections into its own department in 1984.
COMMISSIONER DESIGNEE WINKELMAN summarized slide 2, Mission and
Core Services:
Mission: To provide secure confinement, reformative
programs, and a process of supervised community
reintegration to enhance the safety of our communities
Department FY2024 Positions: 2,109 PFT
Department FY2024 Budget Request: *$419,410.9
[just over $4 million]
*$ in thousands
COMMISSIONER DESIGNEE WINKELMAN said the chart on slide 2, shows
each department division and its core service areas. She said
she will review each of the following divisions in the
presentation:
- Institutions
- Health and Rehabilitation Services
- Pretrial, Probation and Parole, and
- Administrative Services.
2:22:14 PM
COMMISSIONER DESIGNEE WINKELMAN reviewed slide 3, DOC at a
Glance:
• Alaska is one of seven states that operate a unified
correctional system. A state unified system is one
in which there is an integrated state-level prison
and jail system.
COMMISSIONER DESIGNEE WINKELMAN explained that Alaska's jails
and prisons are under one umbrella. Some un-unified states will
have jails operated by boroughs, cities, sheriff offices, and
courts. Alaska integrated its jails and prisons.
COMMISSIONER DESIGNEE WINKELMAN summarized these at-a-glance
facts:
• DOC booked 27,748 offenders into its facilities in
FY2022
• 16,978 were unique offenders
COMMISSIONER DESIGNEE WINKELMAN said unique offenders are those
who return more than one time.
• 660 were non-criminal Title 47 bookings
• As of January 1, 2023, DOC was responsible for
10,748 individuals
• 4,404 offenders in jail or prison
COMMISSIONER DESIGNEE WINKELMAN said 4,404 equates to about 85
percent capacity. She stated her intention to talk more about
this later in the presentation.
• 191 offenders on sentenced electronic monitoring
(EM)
• 339 offenders in community residential centers
(CRCs)
• 3,163 offenders on probation or parole
• 2,651 defendants on pretrial supervision (1,864
on pretrial EM)
2:24:06 PM
COMMISSIONER DESIGNEE WINKELMAN advanced to slide 4, which shows
the department's organizational chart and leadership. She noted
that DOC houses the parole board budgetarily, but the board is
fully autonomous. Those appointed and confirmed report directly
to the State Board of Parole.
2:24:49 PM
COMMISSIONER DESIGNEE WINKELMAN spoke to slide 5, Division of
Institutions that starts the process. It is the division that
provides secure confinement with an emphasis on public safety,
the process of rehabilitation, and community reintegration:
DIVISION OF INSTITUTIONS
• Institution Director's Office
• Inmate Time Accounting
• Chaplaincy Program
• Prison Rape Elimination Act Oversight
• Inmate Grievance Resolution
• Security Threat Group
• Inmate Transportation and Point of Arrest
• Inmate Medical Transports
• Inmate Housing Transports
• K-9 Unit
• Point of Arrest
• Classification and Furlough
• Inmate Classification
• Inmate Furlough
• 13 Correctional Centers
• 7 Community Residential Centers (CRC)
• 5 Locations
• 6 Sentenced Electronic Monitoring (EM) Offices
• Out-of-State
• Medical and Separate placements
2:27:30 PM
COMMISSIONER DESIGNEE WINKELMAN reviewed the chart on slide 6,
Facility Capacity. She explained a facility reaches maximum
capacity when the department fills all its general population
and half of its segregation beds. The department works hard to
keep the number of filled beds below general capacity. It is
significant to inmate and officer safety to keep capacity
numbers down. She explained the factors that make this a
difficult task.
COMMISSIONER DESIGNEE WINKELMAN reviewed the chart on slide 7,
Prison Population by Legal Status. She said this is a popular
topic, and there are frequent inquiries about it. The
department's unsentenced population continues to outgrow the
sentenced population. She noted that DOC is a downward agency.
It has no control over who is confined or for how long. She
identified a few reasons the unsentenced population has grown.
2:29:59 PM
COMMISSIONER DESIGNEE WINKELMAN reviewed the chart on slide 8,
Prison Population by Offense Class. The chart shows the
breakdown of the prison population by offense as of July 1,
2022:
Class Percent Population
Public Order/Admin 13 603
Non-Registerable Sex Offense Under 1 9
Registerable Sex Offense 18 857
Weapons 2 100
Alcohol 5 236
Drugs 4 198
Vehicle 3 128
Federal Hold 4 197
[Crimes Against a] Person 28 1,337
Probation/Parole 13 621
Property 10 450
COMMISSIONER DESIGNEE WINKELMAN said she separated registerable
sex offense crimes from crimes against a person because the
public is interested in the number of individuals in custody for
sex offenses. Under the category of registerable sex offense
crimes, there were 857. Under the category of crimes against a
person, there were 1,337. In total, over 2100 individuals were
in custody for crimes against a person.
COMMISSIONER DESIGNEE WINKELMAN noted that DUIs fall under the
category of alcohol. Driving on a suspended license or a similar
offense falls under the category of vehicle.
2:31:30 PM
SENATOR GRAY-JACKSON asked the difference between non-
registrable and registerable sex offenders.
COMMISSIONER DESIGNEE WINKELMAN replied there are a few sex
crimes that do not require the offender to register. She listed
exposure as one. She expressed her belief that online enticement
is a non-registerable offense.
2:32:19 PM
COMMISSIONER DESIGNEE WINKELMAN advanced to slide 9, Division of
Health and Rehabilitation Services. She noted that the
department has a constitutional and statutory obligation to
provide healthcare to offenders placed in custody. The
department provides timely access to essential care through an
evidence-based, multi-disciplinary approach. DOC assesses every
individual who is booked. The department follows the guidance
and standards of the National Commission on Correctional
Healthcare. She praised this division for its good work serving
the health needs of a really unhealthy population. She
summarized slide 9:
• Health & Rehabilitation Director's Office
• Medical Oversight
• Medicaid Assistance
• Physical Health Care
• Medical
• Dental
• Behavioral Health Care
• Mental Health Services
• Assess Plan Identify & Coordinate (APIC)
• Institutional Discharge Planning Plus (IDP+)
• Substance Abuse
• Assessment
• Residential Treatment
• Institutional Out-Patient Treatment
• Sex Offender Management
• Polygraph
• Institutional Sex Offender Program
• Community Sex Offender Program
• Domestic Violence Program
• Batterer's Intervention Program
• Reentry & Recidivism Unit
• Offender Reentry
• Community Coordination
• Education/Vocational Programs
• Basic Adult Education
• Apprenticeship Training
• Vocational Training
2:34:56 PM
CHAIR DUNBAR drew attention to "polygraph" listed under Sex
Offender Management on slide 9. He commented that he read a
little about polygraphs and their effectiveness. He asked to
what degree and in what context the division uses polygraphs.
COMMISSIONER DESIGNEE WINKELMAN answered the department uses
polygraphs as part of a sex offender's treatment and
supervision. It applies to those convicted of a sex offense who
have a condition to do sex offender treatment and participate in
polygraphs ordered by the court or the parole board. The
department supervises using the containment model, a triangle
approach to supervision using a probation officer, a treatment
provider, and sometimes a community member. Polygraphs are a
supervision tool used to gain information and supervise the
offender.
CHAIR DUNBAR sought confirmation that polygraphs are a condition
of release or are ordered by the court in most cases.
COMMISSIONER DESIGNEE WINKELMAN answered that it is a condition
once sentenced. The court or the parole board will order the
sentenced individual to sex offender treatment. Participating in
polygraphs is typically part of the sex offender treatment.
CHAIR DUNBAR commented that he would continue the conversation
offline with the court system for their perspective. He
commented it is interesting that the treatment relies on
something largely discredited.
2:36:45 PM
COMMISSIONER DESIGNEE WINKELMAN advanced to slide 10, Division
of Pretrial, Probation & Parole (DP3). This division covers
community corrections, overseeing those out in the community.
She explained to whom oversight applies. She expressed her
belief that there are around 5,000 individuals under community
supervision at any time. The Victim Service Unit falls under
this division. She reviewed slide 10:
• Probation and Parole Director's Office
• Victim Service Unit
COMMISSIONER DESIGNEE WINKELMAN explained that a victim of a
registerable crime would receive either automated responses or
phone calls if there is any change in an offender's status.
2:38:14 PM
SENATOR GRAY-JACKSON directed attention to the Reentry and
Recidivism Unit on slide 9. She asked what programs the unit
offers so prisoners do not return to the system.
COMMISSIONER DESIGNEE WINKELMAN replied the Recidivism Unit
works with programming established in facilities and the
community. Primarily the unit works with stakeholders in the
Department of Labor and Workforce Development (DOLWD). The unit
will:
- work with job support specialists and reentry coalitions,
- will ensure individuals get bus tokens,
- know where the individual should look for available housing,
and
- work with communities that have reentry coalitions to do
outreach.
COMMISSIONER DESIGNEE WINKELMAN directed the question to the
Division of Health and Rehabilitation Services director.
2:39:29 PM
CHAIR DUNBAR invited Mr. Rutherford to put himself on the
record.
2:39:33 PM
Adam Rutherford, Acting Director, Division of Health and
Rehabilitation Services, Department of Corrections (DOC),
Anchorage, Alaska, said the division offers a wide array of
services internally like education services to get GEDs,
employment skill building, resume building, accessing resources
available in the community, housing resources, and connecting to
Medicaid.
2:40:34 PM
CHAIR DUNBAR expressed that recidivism and reentry are topics he
cares about, and there may be more questions later on this
subject.
2:41:02 PM
COMMISSIONER DESIGNEE WINKELMAN continued reviewing slide 10:
Division of Pretrial, Probation & Parole (DP3)
[continued from above]
• Pretrial Services
• Assessments
• Supervision
• Pretrial Electronic Monitoring
• Statewide Probation and Parole
• 13 regional locations
• Probation Accountability with Certain Enforcement
• Pre-Sentencing Unit
• Interstate Compact
• 15 Regional and Community Jails
• Bristol Bay Borough
• City of Cordova
• City of Craig
• City of Dillingham
• City of Haines
• City of Homer
• City of Kodiak
• City of Kotzebue
• North Slope Borough
• City of Petersburg
• City of Seward
• City of Sitka
• City of Unalaska
• City of Valdez
• City of Wrangell
COMMISSIONER DESIGNEE WINKELMAN said the department oversees
regional and community jails and is responsible for each on this
slide. DOC works with each jail independently and the community
as a whole to determine the community's needs for their jail.
These jails fall under the Division of Pretrial, Probation, and
Parole.
2:41:49 PM
COMMISSIONER DESIGNEE WINKELMAN summarized slide 11, Board of
Parole:
• Board of Parole
• Discretionary Parole
• Mandatory Parole
• Special Medical Parole
• Geriatric Parole
• Executive Clemency Program
• Parole Board Members
• Leitoni Matakaiongo Tupou, Chair
• Sarah Possenti, Vice Chair
• Steve Meyer, Member
• Jason Wilson, Member
• Ole Larson, Member
COMMISSIONER DESIGNEE WINKELMAN reiterated that the governor
appoints parole board members, and the legislature confirms
them. The parole board has its own staff. The State Board of
Parole has two primary functions:
1. The application process. The parole board reviews
applications, hears cases, makes decisions, and recommends
conditions.
2. Respond to violations. After the parole board grants parole
and the parolee subsequently violates a condition, the parole
officer returns the individual to custody. Then the parole
board hears the violation and goes through a process similar
to a court proceeding.
2:42:59 PM
CHAIR DUNBAR asked whether there has been a significant change
in the number of discretionary paroles in recent years.
COMMISSIONER DESIGNEE WINKELMAN directed the question to the
executive director of the Board of Parole.
2:43:26 PM
SENATOR OLSON joined the meeting.
2:43:33 PM
JEFF EDWARDS, Executive Director, Alaska Board of Parole,
Department of Corrections (DOC), Anchorage, Alaska, replied that
there was a slight increase in discretionary paroles in 2022. He
briefly explained changes in statutes that impacted the number
of discretionary paroles over the past seven years, including
the passage of Senate Bill 91, the Omnibus Crime Bill [in 2016],
followed by the passage of House Bill 49 [in 2019] that repealed
those statutes. He added that the board's makeup was a little
bit different, which influenced the fluctuation in discretionary
parole numbers too.
CHAIR DUNBAR expressed interest in data over the last ten to
twenty years, removing Senate Bill 91 from the discussion, and
focusing on fluctuation over time. He commented that the board's
makeup should not really matter. It should be a neutral
application of existing laws.
MR. EDWARDS said he would supply the numbers for the committee.
2:45:07 PM
COMMISSIONER DESIGNEE WINKELMAN spoke to the makeup of the
parole board. She said that according to statute, three members
must reside in different judicial districts, and two are at
large.
2:45:26 PM
COMMISSIONER DESIGNEE WINKELMAN advanced to slide 12, Division
of Administrative Services. She said that DOC's Administrative
Services Division is unique statewide because it encompasses
areas outside budget and finance. She reviewed the services the
division provides on slide 12:
• Administrative Services
• Budget and Finance
• Inmate Banking
• Auditing and Internal Controls
• Alaska Police Standards Council (APSC)
• Construction Procurement and Space Liaison
• Alcohol Ignition Interlock Device Certification
• Information Technology
• Alaska Corrections Offender Management System
• Inmate Law Library
• Inmate Technology Support
• Research and Records
• Permanent Fund Dividend Eligibility
Determination/Appeals
• Research and Reporting
• Criminal Justice Information Security
• Data Management
• Web Page
• Inmate DNA Collections and Tracking
• Facilities Capital Unit & OSHA Compliance
• Management Renovation, Repairs, and Construction
Management
• OSHA Compliance and Oversight
2:46:43 PM
COMMISSIONER DESIGNEE WINKELMAN spoke to slide 13, Office of the
Commissioner, stating that the training academy is probably the
most noteworthy in this office:
• Commissioner's Office
• Constituent Relations
• Compliance Standards
• Inmate ADA Grievances
• Public Information
• Policy and Procedures
• Employee Wellness Program
• Human Resources
• Employee Backgrounds
• Recruitment and Retention
• Recruitment Outreach
• Applicant Assistance
• Officer Medical Reimbursement
• Recruitment Incentive Leave Program
• Correctional Officer Seniority Tracking
• Training Academy
• Basic Officer Training
• Field Officer Training
• Prisoner Transportation Officer Training
• Firearm / Taser Training and Certification
• Municipal Officer Academy
• Offender Time Accounting
• Use of Force
• Methods of Instruction
2:47:45 PM
COMMISSIONER DESIGNEE WINKELMAN reviewed the chart on slide 14,
Positions by Category, which shows budgeted versus filled
positions by category. She said the vacancy rate for the entire
department is 13 percent as of today. Some facilities have
extreme vacancy rates. She explained the incentivization methods
the department is using to recruit workers.
2:49:29 PM
SENATOR BJORKMAN asked how slide 14 relates to slide 6 with
regards to capacity, specifically whether the capacity on slide
6 is a function of the vacancy rate at those facilities.
COMMISSIONER DESIGNEE WINKELMAN answered no. Maximum capacity in
a facility contributes to mandatory overtime and involves moving
officers between facilities to cover. The slides do not
correlate because each facility must maintain a staffing
profile.
SENATOR BJORKMAN sought clarification that the capacity shown on
slide 6 pertains to physical space.
COMMISSIONER DESIGNEE WINKELMAN answered yes, beds for inmates.
2:50:42 PM
COMMISSIONER DESIGNEE WINKELMAN advanced to slide 15 to discuss
the department's primary goals and objectives:
GOALS AND OBJECTIVES
Health and Well Being of Staff
COMMISSIONER DESIGNEE WINKELMAN expressed gratitude to her
staff, who perform a tough and sometimes thankless job. Their
health and well-being are absolutely imperative. She emphasized
that if the department has an unhealthy team, then DOC will not
be staffed. This pertains to recruitment and retention. If DOC
is understaffed, the department will be unable to make a
difference to those it serves.
Inmates, Defendants and Probationer/Parolees leave us
better than when they entered the system
Identifying Efficiencies and Resources to Reduce
Recidivism
2:53:08 PM
COMMISSIONER DESIGNEE WINKELMAN took the opportunity to address
inmate deaths. She expressed that one death is too many for the
families affected, staff, and herself. She spoke about health
challenges, stating over half of those in DOC's custody arrive
with a chronic medical condition. She said the department wants
to do better daily, so those in custody leave better than they
entered the system. She shared improvements the department has
made to this end. She emphasized that correction officers save
lives all the time, whether it is an inmate that collapsed for
medical reasons or the prevention of a suicide. Inmate deaths
affect everyone. She said she would be remiss if she did not
address this subject. She said the department would do and be
better.
2:57:57 PM
SENATOR GRAY-JACKSON asked whether the department tracks
recidivism.
COMMISSIONER DESIGNEE WINKELMAN replied yes. The Research and
Records Section tracks it.
SENATOR GRAY-JACKSON discussed the importance of well-being for
staff.
2:58:57 PM
CHAIR DUNBAR invited the commissioner to make closing comments.
COMMISSIONER DESIGNEE WINKELMAN displayed slide 16 and
acknowledged the K-nine Unit dogs shown on the final slide.
3:00:03 PM
There being no further business to come before the committee,
Chair Dunbar adjourned the Senate Community and Regional Affairs
Standing Committee meeting at 3:00 p.m.
| Document Name | Date/Time | Subjects |
|---|---|---|
| Department of Public Safety Overview SCRA 2.2.2023.pdf |
SCRA 2/2/2023 1:30:00 PM |
|
| FINAL-S-CRA February 2, 2023 DOC Overview.pdf |
SCRA 2/2/2023 1:30:00 PM |
|
| S-CRA DPS Clarification on VPSO 20230203.pdf |
SCRA 2/2/2023 1:30:00 PM |
|
| DPS Objectives.pdf |
SCRA 2/2/2023 1:30:00 PM |
|
| DOC Response to S-CRA 02.02.2023.pdf |
SCRA 2/2/2023 1:30:00 PM |