The Prison Churn is Costing Us. Graduated Sanctions Might Help.

By Alejandro Caceres-Aranda and Will Cooley

The Problem of Prison Churn

In 2019, over 60% of new admissions to Minnesota’s prisons resulted from supervision failures—this means that most of the people entering the facility had been there before, and were back for a violation of their supervision. These individuals comprised approximately 25% of the total prison population and cost taxpayers more than $77 million per year. On top of that, a significant number of these admissions were for “technical” violations of sentence conditions—such as failing a drug test, violating curfew, or missing meetings with supervision agents—rather than new criminal conduct. This system of warehousing people for short terms of 60 to 90 days and churning them back out increases recidivism and undermines public safety.

Since then, policymakers have taken steps to reduce prison admissions due to supervision failures. The Department of Corrections reported that 28% of admissions in 2025 were for people revoked to prison on supervision violations. While this is significantly lower than the percentage in 2019, these unnecessary and costly cases still make up too big a percent of admissions and releases. The MNJRC found that 48% of people released from Minnesota prisons in 2025 had served less than one year (figure drawn from MNJRC data request, October 17, 2025). This churn is disruptive to the culture inside prisons and is resented by long-term incarcerated people, correctional staff, and Department of Corrections leadership alike.

As the scholar John Pfaff asserts, numbers like these show that when we talk about “prison populations,” we should make distinctions between those in prison for long sentences and those  “flowing” through prisons. These two sets of the prison population are often in prison for very different reasons and require different policy responses.

With the closure of the Stillwater Correctional Facility underway, can the state reduce the number of people warehoused in prisons for brief stints? Graduated sanctions might be a solution.

What Are Graduated Sanctions?

Graduated sanctions are a pre-established set of consequences applied when people on probation or supervised release make technical violations. Instead of sending someone directly to jail or prison, graduated sanctions start with less severe responses that only escalate if the behavior continues. For example, a string of sanctions might progress from verbal warnings or increased frequency of check-ins to community service, curfews, or short jail stays (not prison) according to behavior.

Why Are They Used?

Graduated sanctions are designed to:

• Respond quickly to violations

• Avoid prison for minor mistakes (non-criminal)

• Support behavior change with accountability

• Give officers more options than just revoking supervision

• Establish clear, fair rules that are consistently applied

  
  

Can They Help Reduce Prison Populations While Still Ensuring Accountability?

Yes. The PEW Research Center found that graduated, swift, proportional sanctions combined with positive incentives significantly reduced revocation rates in multiple states, allowing individuals to remain on supervision while preserving accountability. In South Carolina, for example, adopting graduated sanctions led to compliance revocations decreasing 46%

What Are the Risks?

Graduated sanctions can have unintended consequences if:

• They are overused

• People aren’t clearly informed about expectations

• Individuals with mental health or substance use issues struggle to comply

Even short jail stays disrupt jobs, housing, or caregiving responsibilities. Without clear structures and positive incentives, graduated sanctions can become another slow path back to prison.

How MNJRC is Exploring Graduated Sanctions in 2026

As the DOC’s own research shows, these practices undermine public safety. In 2026, MNJRC will continue to research evidence-based ways to reduce revocations to prison for supervision failures and decrease the churn in Minnesota prisons. We're seeking out input from impacted people, supervision agents, and experts in other states. And we're working to educate lawmakers about the possibilities graduated sanctions could offer us right here in the North Star State.

To keep up with our progress on this issue, subscribe to our newsletter, follow us on socials, and stay tuned at mnjrc.org.

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For more information, contact Will Cooley, MNJRC Policy Director: will@mnjrc.org

Or Alejandro Caceres-Aranda, MNJRC Policy Assistant: alejandro@mnjrc.org