TH D CONGRESS SESSION H. R. 5682

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II115TH CONGRESS2D SESSIONH. R. 5682IN THE SENATE OF THE UNITED STATESMAY 23, 2018ReceivedAN ACTTo provide for programs to help reduce the risk that prisoners will recidivate upon release from prison, and forother purposes.1Be it enacted by the Senate and House of Representa-Sspencer on DSK30JT082PROD with BILLS2 tives of the United States of America in Congress assembled,VerDate Sep 11 201400:33 Aug 02, 2018Jkt 079200PO 00000Frm 00001Fmt 6652Sfmt 6201E:\BILLS\H5682.RDSH5682

21SECTION 1. SHORT TITLE; TABLE OF CONTENTS.2(a) SHORT TITLE.—This Act may be cited as the3 ‘‘Formerly Incarcerated Reenter Society Transformed4 Safely Transitioning Every Person Act’’ or the ‘‘FIRST5 STEP Act’’.6(b) TABLEOFCONTENTS.—The table of contents for7 this Act is as follows:Sec. 1. Short title; table of contents.TITLE I—RECIDIVISM REDUCTIONSec. 101. Risk and needs assessment system.Sec. 102. Implementation of system and recommendations by Bureau of Prisons.Sec. 103. GAO Report.Sec. 104. Authorization of appropriations.Sec. 105. Rule of construction.Sec. 106. Faith-based considerations.TITLE II—BUREAU OF PRISONS SECURE FIREARMS STORAGESec. 201. Short title.Sec. 202. Secure firearms storage.TITLE III—RESTRAINTS ON PREGNANT PRISONERS PROHIBITEDSec. 301. Use of restraints on prisoners during the period of pregnancy andpostpartum recovery prohibited.Sspencer on DSK30JT082PROD with BILLSTITLE IV—MISCELLANEOUS CRIMINAL JUSTICESec. 401. Placement of prisoners close to families.Sec. 402. Home confinement for low risk prisoners.Sec. 403. Federal prisoner reentry initiative reauthorization; modification of imposed term of imprisonment.Sec. 404. Identification for returning citizens.Sec. 405. Expanding inmate employment through Federal prison industries.Sec. 406. De-escalation training.Sec. 407. Evidence-based treatment for opioid and heroin abuse.Sec. 408. Pilot programs.Sec. 409. Ensuring supervision of released sexually dangerous persons.Sec. 410. Data collection.Sec. 411. Healthcare products.Sec. 412. Prison rape elimination standards auditors.Sec. 413. Adult and juvenile collaboration programs.HR 5682 RDSVerDate Sep 11 201400:33 Aug 02, 2018Jkt 079200PO 00000Frm 00002Fmt 6652Sfmt 6211E:\BILLS\H5682.RDSH5682

32TITLE I—RECIDIVISMREDUCTION3SEC. 101. RISK AND NEEDS ASSESSMENT SYSTEM.14(a) IN GENERAL.—Chapter 229 of title 18, United5 States Code, is amended by inserting after subchapter C6 the following:7‘‘SUBCHAPTER D—RISK AND NEEDS8ASSESSMENT ��‘3634.‘‘3635.Duties of the Attorney General.Development of risk and needs assessment system.Evidence-based recidivism reduction program and recommendations.Report.Definitions.9 ‘‘§ 3631. Duties of the Attorney General10‘‘(a) IN GENERAL.—The Attorney General shall11 carry out this subchapter in consultation with—12‘‘(1) the Director of the Bureau of Prisons;13‘‘(2) the Director of the Administrative Office14of the United States Courts;1516‘‘(3) the Director of the Office of Probation andPretrial Services;1718‘‘(4) the Director of the National Institute ofJustice; andSspencer on DSK30JT082PROD with BILLS19‘‘(5) the Director of the National Institute of20Corrections.21‘‘(b) DUTIES.—The Attorney General shall—HR 5682 RDSVerDate Sep 11 201400:33 Aug 02, 2018Jkt 079200PO 00000Frm 00003Fmt 6652Sfmt 6201E:\BILLS\H5682.RDSH5682

41‘‘(1) conduct a review of the existing prisoner2risk and needs assessment systems in operation on3the date of the enactment of the FIRST STEP Act;4‘‘(2) develop recommendations regarding evi-5dence-based recidivism reduction programs and pro-6ductive activities in accordance with section 3633;78‘‘(3) conduct ongoing research and data analysis on—9‘‘(A) evidence-based recidivism reduction10programs relating to the use of prisoner risk11and needs assessment tools;12‘‘(B) the most effective and efficient usesSspencer on DSK30JT082PROD with BILLS13of such programs;14‘‘(C) which evidence-based recidivism re-15duction programs are the most effective at re-16ducing recidivism, and the type, amount, and17intensity of programming that most effectively18reduces the risk of recidivism; and19‘‘(D) products purchased by Federal agen-20cies that are manufactured overseas and could21be manufactured by prisoners participating in a22prison work program without reducing job op-23portunities for other workers in the United24States;HR 5682 RDSVerDate Sep 11 201400:33 Aug 02, 2018Jkt 079200PO 00000Frm 00004Fmt 6652Sfmt 6201E:\BILLS\H5682.RDSH5682

Sspencer on DSK30JT082PROD with BILLS51‘‘(4) on an annual basis, review and validate the2risk and needs assessment system, which review3shall include—4‘‘(A) any subsequent changes to the risk5and needs assessment system made after the6date of the enactment of this subchapter;7‘‘(B) the recommendations developed under8paragraph (2), using the research conducted9under paragraph (3);10‘‘(C) an evaluation to ensure that the risk11and needs assessment system bases the assess-12ment of each prisoner’s risk of recidivism on in-13dicators of progress, and of regression that are14dynamic and that can reasonably be expected to15change while in prison;16‘‘(D) statistical validation of any tools that17the risk and needs assessment system uses; and18‘‘(E) an evaluation of the rates of recidi-19vism among similarly classified prisoners to20identify any unwarranted disparities, including21disparities among similarly classified prisoners22of different demographic groups, in such rates;23‘‘(5) make any revisions or updates to the risk24and needs assessment system that the Attorney Gen-25eral determines appropriate pursuant to the reviewHR 5682 RDSVerDate Sep 11 201400:33 Aug 02, 2018Jkt 079200PO 00000Frm 00005Fmt 6652Sfmt 6201E:\BILLS\H5682.RDSH5682

61under paragraph (4), including updates to ensure2that any disparities identified in paragraph (4)(E)3are reduced to the greatest extent possible; and45‘‘(6) report to Congress in accordance with section 3634.6 ‘‘§ 3632. Development of risk and needs assessment78system‘‘(a) IN GENERAL.—Not later than 180 days after9 the date of the enactment of the FIRST STEP Act, the10 Attorney General shall develop and release a risk and11 needs assessment system (referred to in this subchapterSspencer on DSK30JT082PROD with BILLS12 as the ‘System’), which shall be used to—13‘‘(1) determine the recidivism risk of each pris-14oner as part of the intake process, and classify each15prisoner as having minimum, low, medium, or high16risk for recidivism;17‘‘(2) assess and determine, to the extent prac-18ticable, the risk of violent or serious misconduct of19each prisoner;20‘‘(3) determine the type, amount, and intensity21of evidence-based recidivism reduction programs that22are appropriate for each prisoner and assign each23prisoner to such programs accordingly, and based on24the prisoner’s specific criminogenic needs, and in ac-25cordance with subsection (b);HR 5682 RDSVerDate Sep 11 201400:33 Aug 02, 2018Jkt 079200PO 00000Frm 00006Fmt 6652Sfmt 6201E:\BILLS\H5682.RDSH5682

71‘‘(4) reassess the recidivism risk of each pris-2oner periodically and reassign the prisoner to appro-3priate evidence-based recidivism reduction programs4or productive activities based on the revised deter-5mination to ensure that—6‘‘(A) all prisoners at each risk level have a7meaningful opportunity to reduce their classi-8fication during the period of incarceration;9‘‘(B) to address the specific criminogenic10needs of the prisoner; and11‘‘(C) all prisoners are able to successfully12participate in such programs;13‘‘(5) determine when to provide incentives and14rewards for successful participation in evidence-15based recidivism reduction programs or productive16activities in accordance with subsection (e); and17‘‘(6) determine when a prisoner is ready to18transfer into prerelease custody in accordance with19section 3624(c).20 In carrying out this subsection, the Attorney General may21 use existing risk and needs assessment tools, as appro22 priate.Sspencer on DSK30JT082PROD with BILLS23‘‘(b) ASSIGNMENTOFEVIDENCE-BASED RECIDIVISM24 REDUCTION PROGRAMS.—The System shall provide guid25 ance on the type, amount, and intensity of evidence-basedHR 5682 RDSVerDate Sep 11 201400:33 Aug 02, 2018Jkt 079200PO 00000Frm 00007Fmt 6652Sfmt 6201E:\BILLS\H5682.RDSH5682

81 recidivism reduction programming and productive activi2 ties that shall be assigned for each prisoner, including—3‘‘(1) programs in which the Bureau of Prisons4shall assign the prisoner to participate, according to5the prisoner’s specific criminogenic needs; and6‘‘(2) information on the best ways that the Bu-7reau of Prisons can tailor the programs to the spe-8cific criminogenic needs of each prisoner so as to9most effectively lower each prisoner’s risk of recidi-10vism.11‘‘(c) HOUSINGANDASSIGNMENT DECISIONS.—The12 System shall provide guidance on program grouping and13 housing assignment determinations and, after accounting14 for the safety of each prisoner and other individuals at15 the prison, provide that prisoners with a similar risk level16 be grouped together in housing and assignment decisions17 to the extent practicable.18‘‘(d)EVIDENCE-BASED19 PROGRAM UCTIVE ACTIVITIES RE-System shall provide incentives and rewards21 for prisoners to participate in and complete evidence-based22 recidivism reduction programs as follows:Sspencer on DSK30JT082PROD with BILLS2324‘‘(1) PHONEAND VISITATION PRIVILEGES.—Aprisoner who is successfully participating in an evi-HR 5682 RDSVerDate Sep 11 201400:33 Aug 02, 2018Jkt 079200PO 00000Frm 00008Fmt 6652Sfmt 6201E:\BILLS\H5682.RDSH5682

91dence-based recidivism reduction program shall re-2ceive—3‘‘(A) phone privileges, or, if available, video4conferencing privileges, for up to 30 minutes5per day, and up to 510 minutes per month; and6‘‘(B) additional time for visitation at the7prison, as determined by the warden of the pris-8on.9‘‘(2) TRANSFER10RELEASE RESIDENCE.—A11fully participating in an evidence-based recidivism12reduction program shall be considered by the Bu-13reau of Prisons for placement in a facility closer to14the prisoner’s release residence upon request from15the prisoner and subject to—16prisoner who is success-‘‘(A) bed availability at the transfer facil-17ity;18‘‘(B) the prisoner’s security designation;19Sspencer on DSK30JT082PROD with BILLSTO INSTITUTION CLOSER TOand20‘‘(C) the recommendation from the warden21of the prison at which the prisoner is incarcer-22ated at the time of making the request.23‘‘(3) ADDITIONALPOLICIES.—TheDirector of24the Bureau of Prisons shall develop additional poli-25cies to provide appropriate incentives for successfulHR 5682 RDSVerDate Sep 11 201400:33 Aug 02, 2018Jkt 079200PO 00000Frm 00009Fmt 6652Sfmt 6201E:\BILLS\H5682.RDSH5682

101participation and completion of evidence-based re-2cidivism reduction programming. Such incentives3shall include not less than two of the following:4‘‘(A) Increased commissary spending limits5and product offerings.6‘‘(B) Extended opportunities to access the7email system.8‘‘(C) Consideration of transfer to preferred9housing units (including transfer to different10prison facilities).11‘‘(D) Other incentives solicited from pris-12oners and determined appropriate by the Direc-13tor.14‘‘(4) TIMESspencer on DSK30JT082PROD with BILLS15CREDITS.—‘‘(A) INGENERAL.—Aprisoner, except for16an ineligible prisoner under subparagraph (D),17who successfully completes evidence-based re-18cidivism reduction programming or productive19activities, shall earn time credits as follows:20‘‘(i) A prisoner shall earn 10 days of21time credits for every 30 days of successful22participation in evidence-based recidivism23reduction programming or productive ac-24tivities.HR 5682 RDSVerDate Sep 11 201400:33 Aug 02, 2018Jkt 079200PO 00000Frm 00010Fmt 6652Sfmt 6201E:\BILLS\H5682.RDSH5682

111‘‘(ii) A prisoner determined by the2Bureau of Prisons to be at a minimum or3low risk for recidivating, who, over two4consecutive assessments, has not increased5their risk of recidivism, shall earn an addi-6tional 5 days of time credits for every 307days of successful participation in evi-8dence-based recidivism reduction program-9ming or productive activities.10‘‘(B) AVAILABILITY.—A prisoner may not11earn time credits under this paragraph for an12evidence-based recidivism reduction program13that the prisoner successfully completed—14‘‘(i) prior to the date of the enactmentSspencer on DSK30JT082PROD with BILLS15of this Act;16‘‘(ii) during official detention prior to17the date that the prisoner’s sentence com-18mences under section 3585(a); or19‘‘(iii) if that prisoner is an inadmis-20sible or deportable alien under the immi-21gration laws (as such term is defined in22section 101 of the Immigration and Na-23tionality Act (8 U.S.C. 1101)).24‘‘(C) APPLICATION25OF TIME CREDITS TO-WARD PRE-RELEASE CUSTODY.—TimeHR 5682 RDSVerDate Sep 11 201400:33 Aug 02, 2018Jkt 079200PO 00000Frm 00011Fmt 6652Sfmt 6201E:\BILLS\H5682.RDSH5682credits

121earned under this paragraph by prisoners who2successfully participate in recidivism reduction3programs or productive activities and who have4been determined to be at minimum risk or low5risk for recidivating pursuant to their last two6reassessments shall be applied toward time in7pre-release custody. The Director of the Bureau8of Prisons shall transfer prisoners described in9this subparagraph into prerelease custody, ex-10cept that the Director of the Bureau of Prisons11may deny such a transfer if the warden of the12prison finds by clear and convincing evidence13that the prisoner should not be transferred into14prerelease custody based only on evidence of the15prisoner’s actions after the conviction of such16prisoner and not based on evidence from the17underlying conviction, and submits a detailed18written statement regarding such finding to the19Director of the Bureau of Prisons.Sspencer on DSK30JT082PROD with BILLS20‘‘(D) INELIGIBLEPRISONERS.—A21is ineligible to receive time credits under this22paragraph if the prisoner is serving a sentence23for a conviction under any of the following pro-24visions of law:HR 5682 RDSVerDate Sep 11 2014prisoner00:33 Aug 02, 2018Jkt 079200PO 00000Frm 00012Fmt 6652Sfmt 6201E:\BILLS\H5682.RDSH5682

131‘‘(i) Section 113(a)(1), relating to as-2sault with intent to commit murder.3‘‘(ii) Section 115, relating to influ-4encing, impeding, or retaliating against a5Federal official by injuring a family mem-6ber, except for a threat made in violation7of that section.8‘‘(iii) Any section of chapter 10, relat-9ing to biological weapons.10‘‘(iv) Any section of chapter 11B, re-Sspencer on DSK30JT082PROD with BILLS11lating to chemical weapons.12‘‘(v) Section 351, relating to Congres-13sional, Cabinet, and Supreme Court assas-14sination, kidnapping, and assault.15‘‘(vi) Section 793, relating to gath-16ering, transmitting, or losing defense infor-17mation.18‘‘(vii) Section 794, relating to gath-19ering or delivering defense information to20aid a foreign government.21‘‘(viii) Any section of chapter 39, re-22lating to explosives and other dangerous23articles, except for section 836 (relating to24the transportation of fireworks into a State25prohibiting sale or use).HR 5682 RDSVerDate Sep 11 201400:33 Aug 02, 2018Jkt 079200PO 00000Frm 00013Fmt 6652Sfmt 6201E:\BILLS\H5682.RDSH5682

141‘‘(ix) Section 842(p), relating to dis-2tribution of information relating to explo-3sive, destructive devices, and weapons of4mass destruction, but only if the conviction5involved a weapon of mass destruction (as6defined in section 2332a(c)(2) of such7title).8‘‘(x) Subsection (f)(3), (h), or (i) of9section 844, relating to the use of fire orSspencer on DSK30JT082PROD with BILLS10an explosive.11‘‘(xi) Section 924(e), relating to un-12lawful possession of a firearm by a person13with three or more convictions for a violent14felony.15‘‘(xii) Section 1030(a)(1), relating to16fraud and related activity in connection17with computers.18‘‘(xiii) Any section of chapter 51, re-19lating to homicide, except for section 111220(relating to manslaughter), 1113 (relating21to attempt to commit murder or man-22slaughter, but only if the conviction was23for an attempt to commit manslaughter),241115 (relating to misconduct or neglect of25ship officers), or 1122 (relating to protec-HR 5682 RDSVerDate Sep 11 201400:33 Aug 02, 2018Jkt 079200PO 00000Frm 00014Fmt 6652Sfmt 6201E:\BILLS\H5682.RDSH5682

151tion against the human immunodeficiency2virus).3‘‘(xiv) Any section of chapter 55, re-4lating to kidnapping.5‘‘(xv) Any offense under chapter 77,6relating to peonage, slavery, and traf-7ficking in persons, except for sections 15928through 1596.9‘‘(xvi) Section 1751, relating to Presi-10dential and Presidential staff assassina-11tion, kidnapping, and assault.12‘‘(xvii) Section 1841(a)(2)(C), relating13to intentionally killing or attempting to kill14an unborn child.15‘‘(xviii) Section 1992, relating to ter-16rorist attacks and other violence against17railroad carriers and against mass trans-18portation systems on land, on water, or19through the air.20‘‘(xix) Section 2113(e), relating toSspencer on DSK30JT082PROD with BILLS21bank robbery resulting in death.22‘‘(xx) Section 2118(c)(2), relating to23robberies and burglaries involving con-24trolled substances resulting in death.HR 5682 RDSVerDate Sep 11 201400:33 Aug 02, 2018Jkt 079200PO 00000Frm 00015Fmt 6652Sfmt 6201E:\BILLS\H5682.RDSH5682

161‘‘(xxi) Section 2119(3), relating to2taking a motor vehicle (commonly referred3to as ‘carjacking’) that results in death.4‘‘(xxii) Any section of chapter 105, re-5lating to sabotage, except for section 2152.6‘‘(xxiii) Any section of chapter 109A,7relating to sexual abuse, except that with8regard to section 2244, only a conviction9under subsection (c) of that section (relat-10ing to abusive sexual contact involving11young children) shall make a prisoner in-12eligible under this subparagraph.13‘‘(xxiv) Section 2251, relating to the14sexual exploitation of children.15‘‘(xxv) Section 2251A, relating to the16selling or buying of children.Sspencer on DSK30JT082PROD with BILLS17‘‘(xxvi)Anyofparagraphs18through (3) of section 2252(a), relating to19certain activities relating to material in-20volving the sexual exploitation of minors.21‘‘(xxvii) A second or subsequent con-22viction under any of paragraphs (1)23through (6) of section 2252A(a), relating24to certain activities relating to materialHR 5682 RDSVerDate Sep 11 2014(1)00:33 Aug 02, 2018Jkt 079200PO 00000Frm 00016Fmt 6652Sfmt 6201E:\BILLS\H5682.RDSH5682

171constituting or containing child pornog-2raphy.3‘‘(xxviii) Section 2260, relating to the4production of sexually explicit depictions of5a minor for importation into the United6States.7‘‘(xxix) Section 2283, relating to the8transportation9chemical, or radioactive or nuclear mate-10explosive,biological,rials.11‘‘(xxx) Section 2284, relating to the12transportation of terrorists.13‘‘(xxxi) Section 2291, relating to the14destruction of a vessel or maritime facility,15but only if the conduct which led to the16conviction involved a substantial risk of17death or serious bodily injury.18‘‘(xxxii) Any section of chapter 113B,19relating to terrorism.20‘‘(xxxiii) Section 2340A, relating to21torture.22‘‘(xxxiv) Section 2381, relating to23Sspencer on DSK30JT082PROD with BILLSoftreason.24‘‘(xxxv) Section 2442, relating to the25recruitment or use of child soldiers.HR 5682 RDSVerDate Sep 11 201400:33 Aug 02, 2018Jkt 079200PO 00000Frm 00017Fmt 6652Sfmt 6201E:\BILLS\H5682.RDSH5682

Sspencer on DSK30JT082PROD with BILLS181‘‘(xxxvi) Section 57(b) of the Atomic2Energy Act of 1954 (42 U.S.C. 2077(b)),3relating to the engagement or participation4in the development or production of special5nuclear material.6‘‘(xxxvii) Section 92 of the Atomic7Energy Act of 1954 (42 U.S.C. 2122), re-8lating to prohibitions governing atomic9weapons.10‘‘(xxxviii) Section 101 of the Atomic11

2 tives of the United States of America in Congress assembled, Sspencer on DSK30JT082PROD with BILLS VerDate Sep 11 2014 00:33 Aug 02, 2018 Jkt 079200 PO 00000 Frm 00001 Fmt 6652 Sfmt 6201 E:\BILLS\H5682.RDS H5682. 2

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