From January 2010 until July 1 of this year, Denver prosecutors filed 25 habitual-criminal cases. Prosecutors in the 1st Judicial District, encompassing populous Jefferson County and Gilpin County, filed eighteen cases.
During that same eighteen-month period, Chambers's office filed 623 habitual-criminal cases.
Prosecutors in the 18th Judicial District filed 623 habitual-criminal cases in an 18-month period; more than half of the total targeted repeat offenders facing escape (130), drug (123) or theft (107) charges.
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Four years ago, when Westword first reported on the flood of habitual-criminal filings in the 18th, DA Chambers expressed surprise that the numbers weren't higher. "I guess we have fewer habitual criminals than I thought," she said ["The Punisher," February 8, 2007]. She's since stepped up the pace, going from 232 bitch filings in 2006 to 455 in 2010, according to data obtained from the state court administrator's office. Of the 2,028 habitual-criminal cases filed statewide over a three-year period, almost half of them were filed by just one of the state's 22 district attorneys: Carol Chambers.
Does Arapahoe County have a far greater concentration of "people who need to be incarcerated for a long period of time" than the rest of the state? There's no question that Chambers seeks enhanced habitual-criminal sentences for cases involving homicide, assault and sex crimes at a greater rate than other district attorneys — and she's not shy about defending that policy.
"Eight percent of the population commits 80 percent of the crime," she says. "We want to make clear to repeat offenders that they can expect enhanced sentences if they continue to engage in criminal conduct in this community."
But what's striking about the habitual filings in the 18th district is the type of offender being targeted most of the time. In more than three-fourths of the cases, the underlying crime is a non-violent one (see graph). And more than half of them fall into one of three categories: drugs, theft or "escape" — which, in the vast majority of cases, involves not tunneling out of prison, but walking away from a halfway house or failing to keep a parole officer informed of your current residence. A felony escape charge in Denver or Adams County might result in a prison sentence of one or two years; in Arapahoe County, the prospect of a 48-year habitual-criminal sentence for the same offense typically results in plea deals that send the offender to prison for between six and twelve years.
"It's a bit like living in a Third World country," says Jim O'Connor, the 18th's chief public defender. "If you walk across Colfax with a rock of crack in your pocket and you get picked up by the cops in Arapahoe County, your entire universe just changed."
Defense attorneys say that the kind of prosecutorial discretion and case-by-case review that's expected in habitual cases has gone by the wayside since Chambers was elected in 2004. "They file habitual charges on everyone who is eligible, from the very start," says Natalie Chase, a former prosecutor who now specializes in fighting habitual charges. "The purpose of the statute is to punish repeat, violent offenders. What Carol Chambers is doing is taking that a step further: People with simple drug-possession charges are getting habitualized. There's no violence involved. They may have been stopped, and they have crack or cocaine on them. If you question the legality of the traffic stop, if you raise any constitutional issues, all offers are revoked and your client is facing the maximum years."
Chambers disagrees with Chase about the intent of the statute. All prosecutors tend to deal more harshly with people who have prior felonies than with those who don't, she points out; her office just happens to uniformly file habitual charges on everyone who's eligible to "ensure consistency." The fact that many of the underlying offenses are non-violent doesn't mean the offenders don't deserve to have the book thrown at them. Escapes from halfway houses are "a community safety issue," she says, and even property crimes "have a significant impact on victims or the community."
"Seeking an enhanced sentence for a habitual offender is no different than seeking a legislatively authorized mandatory sentence for a crime of violence," she says. And an enhanced sentence of 48 years doesn't really mean 48 years, she adds; since the prison system routinely gives time off for good behavior, it's more likely to be around 24 years.
That may not be much consolation to people serving that kind of time, or to critics who claim the policy costs the state millions in added prison costs. Arapahoe County sends fewer people to prison each year than Denver, Jefferson County or Adams County, yet the high number of habitual cases suggests that the average offender in the 18th is probably going away for a longer period of time than felons from other jurisdictions who commit the same crime.
The district attorneys who file habitual cases less frequently than Chambers certainly don't consider themselves any softer on crime; instead, they talk about what they consider to be appropriate degrees of punishment — and the fact that not all felonies are created equal. "The legislature in the 1990s and early 2000s felonized many offenses that were previously misdemeanors," Garnett notes. "Having three prior felonies can, in some instances, mean three prior convictions for not terribly serious behavior."
Chambers says her deputies have discretion to dismiss the habitual-criminal charge if mitigating factors are involved. The disparity in sentencing between her district and surrounding counties doesn't trouble her at all.