Opinion ID: 1844374
Heading Depth: 1
Heading Rank: 4

Heading: Whether Inmates Who Live and Work Within the Institution Are Entitled to Earn More Than Three Days Per Month Under Iowa Code Section 903A.2.

Text: The applicants also contend that they each should be able to earn more than three work bonus day credits per month under section 903A.2. On this point, section 903A.2 provides that [i]n addition to the sentence reduction of one day for each day of good conduct, each inmate is eligible for an additional reduction of sentence of up to five days a month if the inmate participates satisfactorily in employment in the institution, in Iowa state industries, in an inmate employment program established by the director, or in an inmate educational program approved by the director. (Emphasis added.) The applicants strenuously urge this language plainly mandates that inmates who work should receive five days of work bonus day credits per month in addition to good conduct time if their work performance is acceptable. The inmates maintain that the department rule limiting inmates living and working within each institution to earn up to four days of work bonus day credits a month is contrary to the plain language of the statute. Andthey point outthe reformatory's rule further compounds the error because it only allows such inmates to earn up to three days per month.
[i]nmates who demonstrate satisfactory performance in work assignments or educational programs are eligible for [work bonus credits] which shall not exceed four (4) additional days per month for those inmates in maximum, medium, or minimum status during the entire month. Inmates living and working in minimum live-out status or work release can receive up to five (5) days additional good time credit. The granting of this additional credit shall be at the discretion of the housing institution and shall be based upon such factors as performance, number of hours devoted to the activity, supervision requirements, the skill level necessary to perform the activity, and the inmate's status within any level system. We think the department's rule meets the requirements of section 903A.2 for several reasons. Iowa Code section 903A.4 authorizes the Iowa department of corrections to develop policy and procedural rules to implement section 903A.2. That authority plus the permissive language (up to five days) in section 903A.2 vests considerable discretion in the department to decide how to allocate work bonus day credits. The burden is on the applicants to establish that the department's exercise of this discretion is arbitrary or capricious. In addition, the department's implementing rule recognizes the maximum five day allowance provided in section 903A.2. Inmates living and working in minimum live-out status or work release can receive up to the maximum five days additional work bonus day credits per month. Inmates in maximum, medium, or minimum status who perform satisfactorily in work assignments or educational programs can receive up to four days of credit. We do not think this is an arbitrary or capricious determination by the department. In this regard, we, like the district court, find the policy behind such differentiation persuasive: [T]he rationale behind more work bonus credits for those outside the walls of the prison is the increased trust placed in those individuals. Those job assignments are ones [in which] there is little supervision and security provided. Offering more credits for these occupations provides an added incentive for the inmate[s].
Inmates classified as maximum or medium custody who demonstrate average performance for the entire month and have not missed work may be awarded a maximum of one day [work bonus credit]. Inmates who demonstrate above average performance for the entire month and have not missed work may be awarded a maximum of two days [work bonus credit]. Inmates who demonstrate outstanding performance for the entire month and have not missed work may be awarded a maximum of three days [work bonus credit]. Inmates classified as medium out, minimum or minimum overnight who demonstrate at least average performance and have not missed work may be awarded up to four days [work bonus credit]. Only inmates in minimum live-out or work release status are eligible to receive a maximum of five days [work bonus credit]. As these inmates urge, there is one glaring difference between the department's rule and the reformatory's rule. Under the department's rule, inmates living and working inside the institution can earn up to four days of work bonus credits per month. In contrast, under the reformatory's rule the maximum credits such inmates can earn are three. (Evidence was introduced showing that the Iowa State Penitentiary at Ft. Madison allows inmates living and working in the institution to earn up to four days of credit.) To this extent, the reformatory's rule conflicts with the department's rule and is therefore invalid. Consistent with the department's rule, the reformatory must allow inmates living and working within the institution to earn up to four days of work bonus credits per month.