Opinion ID: 739082
Heading Depth: 2
Heading Rank: 1

Heading: The Texas Parole System---an Overview

Text: 10 The legislative parameters of the Texas parole system are established in large measure by Texas Code of Criminal Procedure article 42.18. Under this statute, the Board of Pardons and Paroles (Board) is the exclusive authority for determining whether qualified prisoners receive parole. 4 Tex.Code Crim. Pro. art. 42.18 §§ 1, 2(1), 8(a) and (g); Creel v. Keene, 928 F.2d 707 (5th Cir.1991), cert. denied, 501 U.S. 1210, 111 S.Ct. 2809, 115 L.Ed.2d 982 (1991). See also Tex. Const. art. IV, § 11. Although the statute does not fetter the Board's discretion to deny parole, it does limit the situations in which parole is authorized to those where the prisoner has secured outside placement and is able and willing to fulfill the obligations of a law-abiding citizen. Tex.Code Crim. Pro. art. 42.18 § 8(f)(5). Furthermore, a parole panel is empowered to grant parole only for the best interest of society, not as an award of clemency, and must determine prior to paroling a prisoner that his release will not increase the likelihood of harm to the public. Id. at § 8(f)(5) and (a). 11 The statute also states that the Board shall develop and implement parole guidelines based on the seriousness of the offense and the likelihood of favorable parole outcome. Id. at § 8(f)(5). If a member of the board deviates from the parole guidelines in casting a vote on a parole decision, the member shall produce a brief written statement, to be placed in the prisoner's file, describing the circumstances regarding the departure from the guidelines. Id. The Texas scheme does not, however, require that a parole panel state its reasons for denying parole, nor does it create any constitutionally protected interest in a tentative release date prior to the termination of the sentence imposed. Gilbertson v. Texas Bd. of Pardons & Paroles, 993 F.2d 74 (5th Cir.1993). 12 The Board generally executes its statutory mandate in three-member panels. The particularities of the parole review process are recited in the magistrate judge's opinion: 13 Most inmates are reviewed for parole consideration by a panel of three [members of the Board]. The first panel member often (but not always) interviews the inmate at the institution and writes a summary of the interview for inclusion in the inmate's parole file. The first panel member then 'votes the case' by indicating on the docket sheet in the file whether he or she favors release on parole. The second panel member then receives the file and votes the case without an interview. If the first two panel members disagree, the file then goes to the third member for the dispositive vote. If the first two panel members agree, the case does not go to the third member. 14 If the panel votes against release on parole the inmate receives a form notice from the Board listing reasons for the unfavorable decision. If the panel votes in favor of release, the inmate is notified of that fact and is told that the decision is tentative and may be rescinded, depending upon the Board's further investigation. The inmate receives a notice known as an 'F.I.' (further investigation). 15 At a point in time roughly contemporaneous with the panel's consideration of an inmate's case, the Board sends out notification to the persons entitled to receive notice under the statute. Johnson II, 910 F.Supp. at 1216. 16 Texas Code of Criminal Procedure article 42.18 § 8(f)(2) mandates that the parole division of the TDCJ-ID notify the victim, his or her legal guardian, or a close relative (if the victim is deceased) when the prisoner incarcerated for the victimizing offense is being considered for parole. This provision specifically allows the person notified to submit to the panel a written statement. In addition, the person notified is entitled to appear before the panel, either in person or through a representative, and voice his or her views about the offense, the prisoner, and the crime's effect on the victim. 5 Subsection 8(f)(2) also declares, however, that [t]his subsection may not be construed to limit the number of persons who may provide written statements for or against the release of the prisoner on parole. Finally, subsection 8(f)(2) requires that in making individual parole determinations a parole panel consider the victim impact statement, a document which is developed during the prisoner's prosecution and details the effects of the crime on the victim. See Tex.Code Crim. Proc. art. 56.03. 17 Generally, the parole panel's review is guided in large part by the contents of the prisoner's parole file. Subsection 8(e) of article 42.18 directs that the prisoner's parole file include the victim impact statement and any written comments or information provided by local trial officials or victims of the offense. Thus, relevant correspondence, pro or con, from any and all interested parties may be received and considered by a parole panel; correspondence from local trial officials and victims must be included in the prisoner's parole file, while the victim impact statement must be considered in making the ultimate parole determination. Regardless of what circumstances must be considered in a parole hearing, the ultimate result (parole or denial) is a matter left completely to the parole panel's discretion. 18 Subsection 8(e) also provides that the parole file contain all pertinent information relating to the prisoner, including but not limited to, a sentencing report, the circumstances of the prisoner's offense, records of the prisoner's prior social and criminal history, physical and mental health records, and reports reflecting the prisoner's conduct, employment, and attitude while incarcerated. The statutory language makes it clear that this listing is not exhaustive, i.e., information other than that mandated by subsection 8(e) may appear in a prisoner's parole file. 6 Finally, under subsection 18(a) of article 42.18 the contents of the prisoner's parole file are confidential and privileged and therefore generally inaccessible to the prisoner. 7