Budget, Policy & Sentencing
Georgia\'s Parole System: Denial Rates, Life Sentences & Fiscal Impact
This GPS research brief documents the Georgia Board of Pardons and Paroles' use of the denial reason 'insufficient amount of time served given the nature and circumstances of the offense' in life-sentence parole cases, evidenced through three federal court records (Slakman 2021, Moore 2023, Buttrum 2026) and press accounts. The Board's own published guidance states that lifers' parole suitability is 'dictated by the nature of their crime,' and the Buttrum plaintiff asserts the Board has no written standard for how much time is 'enough.' Board annual report data show lifer parole rates fell from 21.9% (FY2001-FY2006) to 5.8% (FY2022-FY2025), even as the Board decides roughly three times as many lifer cases annually. Adult due-process and equal-protection challenges have failed, while challenges to policy adoption procedures and retroactive rule changes have succeeded; an Eighth Amendment claim by a person sentenced at 17 is proceeding.
Key Findings
The most impactful data from this research collection.
21.9%
Lifer Parole Rate Fell 21.9% to 5.8%
Statistic4.5%
Only 4.5% of lifers approved for parole in 2024
Statistic$40B
Lifer System Cost Nears $40 Billion
Statistic$126M
$126 Million Lost Annually
Statistic28%
Parole grant rate collapsed from 38% to 28% in 5 years
StatisticBoard as Shadow Sentencer
FindingAll Data Points
127 verified data points extracted from primary sources.
FY24 parole releases from Georgia prisons Statistic
In FY24, the Parole Board released 5,443 offenders from prison, representing 420 fewer parole board-initiated releases from the previous fiscal year.
5,443 offenders released vs. FY23 parole releases
Slakman order quotes Board denial wording as fact Legal fact
The N.D. Ga. order of June 22, 2021 (Doc. 26, p. 2) in Slakman v. State Board of Pardons and Paroles quotes the Board's August 4, 2020 notice as stating: 'The main reason cited by the Board, after a review of the totality of your case, is insufficie…
FY24 parole successful completion rate: 72% Statistic
Georgia's percentage of parolees successfully completing parole in FY24 was 72%. The national average was estimated to be approximately 60%.
72% vs. National average parole completion rate
Slakman dismissed and affirmed by Eleventh Circuit Legal fact
Slakman's case was dismissed and the dismissal affirmed by the Eleventh Circuit, No. 21-12226 (Nov. 2, 2021, unpublished).
Total parole eligible cases considered by Board in FY24 Statistic
The total number of parole eligible offender cases considered by the Board Members during the fiscal year was 19,328.
19,328 cases
Moore R&R recounts plaintiff's account of denial reason Legal fact
The Report and Recommendation (Doc. 2, March 22, 2023, p. 2) in Moore v. Georgia Board of Pardons and Paroles records: 'According to plaintiff, the Board most recently denied him parole because he had served an insufficient amount of time to date gi…
Total Board clemency votes in FY24 Statistic
In FY24, the five Board Members made a total of 69,375 votes. The total represents all Board decisions requiring a vote and multiple votes or decisions for each offender case during the fiscal year.
69,375 votes
Moore: 2023 dismissal vacated by the Eleventh Circuit; case in discovery Legal fact
The district court dismissed Moore v. Georgia Board of Pardons and Paroles at screening on June 29, 2023. The Eleventh Circuit vacated and remanded on April 24, 2024 (No. 23-12468, unpublished, 2 to 1, Brasher, J., dissenting), holding that Moore, s…
FY24 cost avoidance from parole: $343 million Statistic
The annual estimated cost avoidance to the state, due to offenders being under parole supervision as opposed to housing them in a state prison, was more than 343 million dollars for FY24. Calculated based on FY24 cost per day to incarcerate ($68.51)…
$343M vs. FY23 cost avoidance (million dollars)
Buttrum order recounts plaintiff's account of form denial letters Legal fact
The March 16, 2026 order (Doc. 39, p. 19) in Buttrum v. Herring (now Buttrum v. Holmes) recounts the plaintiff's account of the Board's 'form denial letters': 'The main reason cited by the Board, after a review of the totality of your case, is insuf…
Daily incarceration cost per inmate in Georgia (GDC figure) Statistic
The most recent Georgia Department of Corrections cost per day to incarcerate a state inmate was $68.51.
$68.51 vs. Parole supervision cost per day
Buttrum Eighth Amendment claim proceeding; discovery through January 14, 2027 Legal fact
Buttrum's Eighth Amendment claim is proceeding, with discovery through January 14, 2027. Her due-process claim was dismissed under the Eleventh Circuit's 2025 ruling in Howard v. Coonrod and may be revived if that ruling changes on rehearing.
FY24 parole population decreased from 16,369 to 15,105 Statistic
During Fiscal Year 2024, the population of offenders on parole under community supervision decreased from 16,369 on July 1, 2023, to 15,105 on June 30, 2024. The cumulative number of offenders under parole supervision during the fiscal year was 22,4…
15,105 parolees vs. Parole population July 1, 2023
CourtListener full-text search found no other filing with denial wording Methodology note
A full-text search of Georgia federal court filings on CourtListener found no other filing with the denial wording. The search reaches only filings someone has uploaded, so it cannot be read as a count of how often the Board uses the reason.
FY24 parole discharges: 4,930 Statistic
The number of offenders discharged from parole was 4,930 in FY24.
4,930 discharges
2001 Board guidelines: lifer suitability dictated by nature of crime Policy
The Board's 2001 guidelines page states: 'Board members do not apply Parole Decision Guidelines to life-sentence offenders, whose suitability for parole is dictated by the nature of their crime.'
FY24 parole revocations: 1,437 Statistic
During FY24, the Board revoked 1,437 parole violators returning the offenders to prison to serve their sentences in confinement. The number revoked decreased by 115 from the previous fiscal year. Of the FY24 total number of revocations, less than 1%…
1,437 revocations vs. FY23 revocations
2001 Board guidelines: offense severity may preclude release despite conduct Policy
The Board's 2001 guidelines page states: 'The offense severity may preclude any eventual release despite stellar prison conduct, remarkable family support, or other factors.'
FY24 Board warrants issued: 3,747 Statistic
In FY24, a total of 3,747 warrants were issued by the Parole Board for arrest of alleged parole violators.
3,747 warrants
Current Board policy: lifer reconsideration up to eight years Policy
The Board's current Life Sentences page states: 'It is the policy of the Board that all life-sentenced offenders denied parole may be set for reconsideration up to a maximum of eight years from the date of last denial.'
FY24 GCIC/NCIC warrant entries: 2,100 Statistic
In FY24, the GCIC Unit entered 2,100 warrants into the GCIC/NCIC system.
2,100 warrant entries
Board rule requires informing inmates of denial reasons Legal fact
Ga. Comp. R. & Regs. 475-3-.05(2) provides: 'The Board will inform inmates denied parole of the reasons for such denial without disclosing confidential sources of information or possible discouraging diagnostic opinions.'
FY24 final revocation hearings conducted: 272 Statistic
Parole Board Members conducted 272 final revocation hearings during FY24. Each hearing is presided over by an individual Board Member who hears the evidence.
272 hearings
Buttrum plaintiff: Board had no documents on how it decides enough time served Data gap
According to the Buttrum plaintiff, as recounted in the court's order (p. 18), the Board had no documents setting out how it decides whether a life-sentenced person has served enough time 'considering the nature and circumstances of the offense.'
FY24 life sentence cases considered: 2,046; granted: 93 Statistic
Total life sentence cases considered for parole in FY24: 2,046. Life sentence cases granted/released: 93 (including 67 serious violent felony life sentence cases). Life sentence cases denied: 1,953.
93 life sentence grants vs. Total life sentence cases considered
O.C.G.A. § 42-9-53 makes Board records confidential state secrets Legal fact
O.C.G.A. § 42-9-53 makes the Board's records 'confidential state secrets until declassified by the board.' Hearings and their transcripts are exempt, as is information the law requires to go to the General Assembly, the Governor or the state auditor.
FY24 lifer SVF cases granted: 67 of 2,046 Statistic
FY 2024 Parole Decisions for Parole Eligible Inmates Serving Life Sentences for a Serious Violent Felony: 67 granted/released out of 2,046 total lifers considered for parole.
67 grants vs. Total lifer cases considered
Lifer parole rate FY2022-FY2025: 5.8% Statistic
Across FY2022 to FY2025 the Board decided 8,461 lifer cases and paroled 488, a rate of 5.8%.
5.8%
Average time served for life sentence SVF parolees: 29.2 years in FY24 Statistic
In 1973, life-sentenced inmates convicted of serious violent felonies served less than nine years in prison, on average, before being released from prison. By 2000, the average had increased to more than 15 years. By 2010, the average time served wa…
29.2 years vs. Average time served in 1973
Lifer parole rate FY2023: 4.9% Statistic
The lifer parole rate was 4.9% in FY2023 (110 paroled of 2,254 decided).
4.9%
FY24 guidelines decisions: 12,257 Statistic
Total guidelines decisions made by the Board in FY24: 12,257.
12,257 decisions
Lifer parole rate FY2024: 4.5% Statistic
The lifer parole rate was 4.5% in FY2024 (93 paroled of 2,046 decided).
4.5%
FY24 cases initialized for consideration: 16,972 Statistic
In FY24, there were 16,972 offender files initiated for consideration by the Clemency Division.
16,972 cases initialized
Lifer parole rate FY2025: 5.4% Statistic
The lifer parole rate was 5.4% in FY2025 (123 paroled of 2,277 decided).
5.4%
FY24 PIC points awarded: 29,962 Statistic
In FY24, the Parole Board members granted 29,962 PIC or PIC points to state inmates who had earned them by completing specific programming and work details. Each PIC point equals one month that a TPM can be changed to an earlier date.
29,962 PIC points vs. FY23 PIC points awarded
Lifer parole rate FY2001-FY2006: 21.9% Statistic
In FY2001 to FY2006, the Board paroled 941 of 4,297 lifer cases, a rate of 21.9%. The Board now decides roughly three times as many lifer cases a year as it did then, and paroles fewer people.
21.9% vs. FY2022-FY2025 rate
FY24 preconditions to parole imposed: 2,404 Statistic
There were 2,404 preconditions to parole imposed by the Board on inmates during the fiscal year.
2,404 preconditions imposed
Trend: lifer parole rate declined sharply from FY2001-FY2006 to FY2022-FY2025 Trend
The Board's lifer parole rate fell from 21.9% (FY2001-FY2006) to 5.8% (FY2022-FY2025), while the number of lifer cases decided annually roughly tripled.
FY24 GPEDS notifications generated: 41,271 Statistic
For FY24, 41,271 notifications (all types) were generated by GPEDS to judges, prosecutors, law enforcement, wardens, inmates, and victims regarding clemency actions.
41,271 notifications
Eleventh Circuit en banc: Georgia parole system creates no liberty interest Legal fact
The Eleventh Circuit, sitting en banc in Sultenfuss v. Snow, 35 F.3d 1494 (11th Cir. 1994), held that Georgia's parole system creates no liberty interest protected by due process because it 'contains a statutory presumption against parole and fails …
FY24 second solicitation notifications to judges and prosecutors: 2,324 Statistic
In FY24, 2,324 case notifications or second solicitations/notifications were sent to judges and prosecutors regarding offenders convicted of serious felonies.
2,324 notifications
Equal protection parole claim requires proof of better treatment of similarly situated Legal fact
A parole denial can be challenged on equal-protection grounds, but the claim fails without proof that people in the same situation were treated better. Slakman lost on that point.
FY24 90-day notifications for serious violent felonies: 208 Statistic
In FY24, the Board sent 90-day notifications in 208 cases for offenders convicted of serious violent felonies being considered for parole release.
208 notifications
Griffin v. Nix: 90% Policy struck down for failure to follow APA Legal fact
In 2005 the Fulton County Superior Court held in Griffin v. Nix that the Board's '90% Policy' was 'ineffective and has no force and effect as to these Petitioners because it was not adopted pursuant to the Administrative Procedures Act,' and ordered…
FY24 clemency investigations completed: 34,936 Statistic
In FY24, the clemency investigators completed 34,936 investigations for the Parole Board.
34,936 investigations
Board FY2005 annual report: 90% policy discontinued Policy
The Board's FY2005 annual report states: 'A new agency rule was adopted by the Board that discontinued the 90% policy.'
FY24 final reviews completed by CAU: 9,193 Statistic
During FY24, 9,193 final reviews were completed by the Critical Analysis Unit and hundreds of random audits were completed to verify the accuracy of case evaluations, risk level assessments and assigned crime severity levels.
9,193 final reviews
Jackson v. State Board: injunction against retroactive 90% Policy Legal fact
In a federal case over the 90% Policy, the district court permanently enjoined the Board from applying it to the plaintiff and ordered him an initial parole hearing. That injunction is recounted in the Eleventh Circuit's later ruling on attorney's f…
FY24 pardons and restorations granted: 446 Statistic
In FY24, 845 pardon and restoration of rights applications were received and 446 were granted (all types). There were 118 fewer applications granted during the fiscal year compared to the previous year.
446 grants vs. FY23 pardons and restorations granted (estimated from 118 fewer)
Ex post facto test for parole rule changes (Morales; applied in Garner v. Jones) Legal fact
The U.S. Supreme Court's ex post facto test asks whether a retroactive change creates "a sufficient risk of increasing the measure of punishment attached to the covered crimes" (California Department of Corrections v. Morales, 514 U.S. 499, 509 (199…
FY24 pardon DA notifications: 617 Statistic
During FY24, the Parole Board sent 617 notifications to district attorneys regarding ex-offenders applying for pardons.
617 notifications
Day v. Bernard: Court of Appeals lets a lifer file a gross-abuse-of-discretion complaint Legal fact
In Day v. Bernard, No. A20A1019 (Ga. Ct. App. Sept. 4, 2020), the Georgia Court of Appeals reversed a trial court's refusal to let a lifer file a complaint alleging that the Board grossly abused its discretion, and directed the clerk to file it. It …
FY24 total agency budget: $20.44 million Statistic
FY 2024 total funds budget was $20,441,436.00 with total expenditures of $20,240,569.85. State funds comprised $20,050,228.34, federal funds $78,069.11, and other funds $112,272.40.
$20.4M
GPB News 2022: family member describes Board denial wording Quote
GPB News (2022) reported a family member describing the Board as saying, 'Due to the nature of your crime, you haven't served enough time.'
Agency total full-time employees: 179 Statistic
As of June 30, 2024, the Georgia Board of Pardons and Paroles had 179 total full-time employees. By gender: 148 female, 31 male. By race: 101 Black, 74 White, 2 Asian, 1 Hispanic, 1 Other.
179 employees
Filter: man in prison says denial cited nature of offense Quote
Filter reported a man in prison saying his last denial said 'due to the nature of your offense,' and that appeal answers can be that one sentence.
57 parole investigators in Investigations Unit Statistic
Fifty-seven (57) investigators work in the Investigations Unit. Thirty-six (36) are assigned to the field, ten (10) work within prisons conducting personal history statements, and eleven (11) are P.O.S.T. certified criminal investigators conducting …
57 investigators
AJC: attorney describes Board letter citing nature of offense Quote
The Atlanta Journal-Constitution's juvenile-lifer investigation reported an attorney describing a Board letter saying, 'due to the nature of your offense you're being denied parole.'
FY24 GOVS phone calls handled: 13,189 Statistic
In FY24, 13,189 phone calls from or to victims were handled by Georgia Office of Victim Services staff.
13,189 phone calls
Courthouse News Service on Buttrum: five denials citing not enough time served Case detail
Courthouse News Service, reporting on Buttrum, described five denials, each citing 'not enough time served.'
FY24 GOVS outgoing correspondence: 29,665 Statistic
29,665 outgoing correspondences were sent to victims in FY24.
29,665 pieces of correspondence
Howard v. Coonrod 2025 ruling dismissed Buttrum due-process claim Legal fact
Buttrum's due-process claim was dismissed under the Eleventh Circuit's 2025 ruling in Howard v. Coonrod, 134 F.4th 1136 (11th Cir. 2025), and may be revived if that ruling changes on rehearing.
FY24 GOVS incoming correspondence: 9,320 Statistic
9,320 correspondences were received from victims and filed with the office in FY24.
9,320 pieces of correspondence
FY24 new GA-V.I.P. registrants: 3,078 Statistic
For FY24, there were 3,078 new GA-V.I.P. registrants, and 4,480 phone calls from victims were logged into the system. The system made 2,097 calls to victims.
3,078 registrants
19 Victim Impact Sessions conducted since program inception (April 2022) Statistic
Since April 2022, nineteen (19) Victim Impact Sessions have been conducted, and three hundred (300) victims have had the opportunity to meet with the Board. In FY24, nine (9) sessions were conducted.
19 sessions
FY24 Victim Offender Dialogues initiated: 5 Statistic
In Fiscal Year 2024, five (5) Victim Offender Dialogue dialogues were initiated. Five (5) more dialogues are in the process of being completed in FY 2025.
5 dialogues
FY24 ICE REPAT releases: 14 at estimated $2.53 million cost avoidance Statistic
Via the ICE Rapid REPAT Program, fourteen (14) foreign national offenders were released to ICE for deportation at an estimated cost avoidance of $2,530,348.
14 releases to ICE vs. Estimated cost avoidance in dollars
FY24 SB174 commutation cases considered: 761; commuted: 9 Statistic
During FY 2024, the Parole Board considered 761 cases for commutation under SB174 and commuted nine (9) cases that met the strict criteria of the Board.
9 commutations granted vs. SB174 cases considered
FY24 out-of-state supervision releases: 222 Statistic
During FY24, the Interstate Compact Unit released 222 offenders to out-of-state supervision.
222 offenders
Georgia parolees under out-of-state supervision: 2,143 Statistic
As of June 30, 2024, there were 2,143 Georgia offenders under active parole supervision in Compact states and 1,349 other Compact state offenders on parole supervision in Georgia.
2,143 parolees out-of-state vs. Other state parolees supervised in Georgia
FY24 documents scanned: 38,110 Statistic
During FY24, 38,110 documents were scanned into the case management systems. There were 1,016 active lifer offender parole files scanned, and 10,109 archived files imaged. Approximately 127,459 archived files remain to be imaged.
38,110 documents scanned vs. Archived files remaining to be imaged
New Direction Recovery Program: 30 referrals, 19 graduates in FY24 Statistic
For FY24, thirty (30) parolees were referred to the New Direction Recovery Program at Treutlen Probation Detention Center. As of June 30, 2024, nineteen (19) parolees had graduated during the fiscal year.
30 referrals vs. graduates
FY24 sworn staff training hours: 3,245 Statistic
In FY24, sworn staff completed 3,245 training hours and non-sworn staff completed 711 training hours. The Parole Training Office delivered 1,262 training hours.
3,245 training hours (sworn) vs. Non-sworn training hours
Georgia inmate population approximately 50,000 Statistic
Today, with an inmate population at approximately 50,000, the Board still consists of five voting members. In 1973, when the Board was expanded to five members, the prison population was 9,000.
50,000 inmates (approximate) vs. Prison population in 1973
Parole Board established 1943 by constitutional amendment Legal fact
In August of 1943, Georgia voters ratified, by a ratio of four and a half to one, a landmark amendment to the State Constitution establishing the State Board of Pardons and Paroles as an independent agency authorized to grant paroles, pardons, repri…
Board is sole authority to commute death sentences in Georgia Legal fact
The Board is the only entity in Georgia with the constitutional authority to commute a death sentence. The Governor does not have this authority in Georgia.
Three of five Board votes required for parole grant or denial Legal fact
Eligible inmates are automatically considered for parole. Three of the five board members must agree on a decision.
No parole hearings held in Georgia Policy
Parole hearings are not held. However, each offender entering the Georgia prison system is interviewed by parole staff.
Life sentence denial reconsideration policy: at least every 8 years Policy
If parole is denied to an inmate serving life, the Board, by policy, will reconsider the case again at least once every eight years. The duration between considerations is a decision made by the Board.
Life sentence parole eligibility: statutory changes over time Legal fact
If a 'seven deadly sins' offense was committed prior to 1995, the offender is eligible after seven years. Beginning in 1995, offenders became eligible after serving 14 years. If the crime is committed after June 30, 2006, the offender is eligible fo…
Board updated guidelines effective July 1, 2023: gang activity and arson severity levels raised Policy
The Board changed the crime severity level for the offenses of criminal street gang activity (raised from level five to level eight) and arson 1 (changed from level five to level six). The Board also amended the weights of risk factors for male and …
SB174 commutation provision for split sentence offenders Legal fact
Senate Bill 174, passed in 2017, included a provision requiring the Board to consider commuting the sentences of specific offenders serving a split sentence who have successfully completed twelve (12) consecutive months of parole supervision (O.C.G.…
FY24 pardon application fully automated Policy
Requirements to download, print, complete and then mail Georgia's pardon application are no longer necessary as the Georgia Parole Board's new electronic filing system became active in FY 2024. Applicants now complete an electronic application and E…
Parole release rate declined steadily: 9,455 (FY19) to 5,443 (FY24) Trend
Parole releases show a consistent decline over six years: FY19: 9,455, FY20: 10,429, FY21: 8,634, FY22: 6,245, FY23: 5,863, FY24: 5,443. This represents a 42% decline from FY19 to FY24.
Parole revocations declined from 2,720 (FY19) to 1,437 (FY24) Trend
Parole revocations show a consistent decline: FY19: 2,720, FY20: 2,199, FY21: 2,373, FY22: 1,825, FY23: 1,552, FY24: 1,437.
PIC points awarded declined from 39,374 (FY20) to 29,962 (FY24) Trend
Performance Incentive Credit points awarded: FY19: 37,012, FY20: 39,374, FY21: 36,257, FY22: 30,313, FY23: 26,855, FY24: 29,962.
Average time served for SVF lifers increased from <9 years (1973) to 29.2 years (2024) Trend
Life sentence time served for serious violent felonies has increased dramatically: 1973: 15 years, 2010: ~20 years, 2024: 29.2 years. This represents more than a tripling of average time served over approximately 50 years.
Chair David Herring quote on serving the Board Quote
"Thank you for this opportunity. I do not take this opportunity lightly. I appreciate the position that I am being given. I can promise you this, like I have always done, I will serve this board with hard work and integrity whether I am the chairman…
Executive Director Barnett quote on stakeholders Quote
"Everyone is a stakeholder in the parole process."
Joyette Holmes quote on appointment Quote
"I am grateful as well to the Governor for the appointment, grateful for him believing me to be a good addition to this board and to this team that does so much work across the state."
Wayne Bennett quote on appointment Quote
"I am honored to serve at the request of Governor Kemp. These first few days have been a tremendous learning experience, and I've realized that the employees of this agency are truly dedicated to their roles and to doing their part for public safety…
GPS analysis: parole release rate collapsed to 34.3% in 2024 Statistic
Historical parole release rates show decline: 1993: 69.9%, 2000: 49.4%, 2010: 58.1%, 2020: 42.3%, 2024: 34.3%, 2025: 37.5%.
34.3% vs. 1993 parole release rate
GPS: 54.55% of Georgia prison releases in 2025 are max-outs Statistic
Of 13,724 total releases in 2025 calendar year: Max-out (full sentence): 7,486 (54.55%), Parole: 4,283 (31.21%), Deaths in custody: 301 (2.19%), Other: 1,654 (12.05%).
54.6% vs. Percent released on parole
GPS: 37% of parolees released within 12 months of max release date Finding
Of 10,353 current parolees analyzed by GPS: 37% released within 12 months of max release date (~2,000/year), 23% released within 6 months of inevitable release. These 'near max-out' paroles suggest the Board is not meaningfully reducing incarceratio…
GPS: Near max-out parole rates highest for minor offenses Finding
Near max-out rates by offense: Entering vehicle 73.3%, Possession cocaine 70.6%, Possession meth 67.4%, Theft by shoplifting 61.1%. Lowest: Meth trafficking 7.5%, Cocaine trafficking 9.5%, Armed robbery 17.6%.
GPS: Average time served increased 158% since 1993 Statistic
Average time served increased 158% since 1993 (1.9 years to 4.2 years).
158%
GPS: Life sentence parolees average age 63.9 years Statistic
1,540 lifers currently on parole. Average age: 63.9 years. 98.9% born before 1980. Only 17 born in 1980s.
63.9 years average age
GPS: FY24 lifer approval rate only 4.5% Statistic
FY 2024 lifer approval rate: 4.5% (93 approved from 2,046 cases). This contrasts with the Board's framing of 93 grants as a significant number.
4.5%
GPS: Daily incarceration cost $86.61 per person (GPS figure vs Board's $68.51) Statistic
GPS analysis uses a daily incarceration cost of $86.61/person (annual cost $31,612), which is higher than the Board's cited GDC figure of $68.51/day. This suggests the Board may be understating the true cost.
$86.61 vs. Board-cited GDC cost per day
GPS: Medical costs for inmates over 65 are 9x higher Statistic
Medical costs for inmates over 65: $8,500/year (9x higher than younger inmates). FY 2025 healthcare/pharmacy increase: $72 million.
$8,500
GPS: Additional cost of 18.5-year lifer increase ~$585,000 per person Statistic
The additional cost of the increased time served for lifers (from ~11 years to ~29.5 years, an 18.5-year increase) is estimated at approximately $585,000 per person.
$585,000
GPS: Cumulative lifer system cost approaches $40 billion Statistic
Cumulative lifer system cost approaches $40 billion for approximately 10,000 lifers.
$40B
GPS: ~$126 million annually lost from parole decline Statistic
Approximately $126 million annually is lost from the decline in parole releases (4,000 fewer releases compared to historical rates).
$126M
GPS: Parole grant rate collapsed from 38% to 28% (FY19-FY24) Statistic
2019: 9,455 granted from 24,738 cases (38%). 2024: 5,443 granted from 19,328 cases (28%). This represents a 42% drop in releases over 5 years.
28% vs. FY19 grant rate
GPS: Average time served increased 27% (2014-2023) Trend
Average time served increased 27%: 3.94 years (2014) to 5.00 years (2023). For 10-15 year sentences: 45% jump from 4.67 years (2014) to 6.77 years (2023). COVID spike: 4.45 years (2019) to 5.55 years (2021), never returned to baseline.
GPS: Total cost of increased length of stay ~$1.1 billion annually Statistic
The total cost of increased length of stay from the Board's increasingly restrictive parole decisions is estimated at approximately $1.1 billion annually.
$1.1B
Georgia received $82 million in federal truth-in-sentencing grants Statistic
Georgia received $82 million in federal 'truth in sentencing' grants (1996-2001), which incentivized longer sentences and reduced parole.
$82M
GPS: 301 deaths in custody among 2025 releases Statistic
Of 13,724 total releases in 2025: 301 (2.19%) were deaths in custody.
301 deaths
GPS: Life sentence average time served 31.1 years before release in 2025 Statistic
Life sentence cases: average 31.1 years served before release in 2025.
31.1 years vs. FY2024 average per Board report
1995 Seven Deadly Sins law eliminated parole for 7 serious violent crimes Legal fact
1995: 'Seven Deadly Sins' law (SB 441) eliminated parole for 7 serious violent crimes.
1997 Parole Board implemented 90% sentence requirement Legal fact
In 1997, the Parole Board implemented a 90% sentence requirement.
2006 HB 1059 increased life sentence parole eligibility from 14 to 30 years Legal fact
2006: HB 1059 increased life sentence parole eligibility from 14 to 30 years for crimes committed after June 30, 2006.
Board's 80-year anniversary celebrated December 2023 Case detail
The State Board of Pardons and Paroles celebrated 80 years at the State Capitol on December 6, 2023, with the theme 'Enhancing Public Safety through Informed Clemency Decisions, 1943-2023.' Former Board Members from five decades attended.
FY24 medical reprieves: 10 Statistic
In FY24, the Board granted 10 medical reprieves from prison.
10 medical reprieves
FY24 commutations: 0 Statistic
In FY24, the Board granted zero (0) commutations (excluding SB174 cases).
0 commutations
FY24 parole certificates issued: 3,890 Statistic
In FY24, 3,890 parole certificates were issued.
3,890 certificates
FY24 conditional transfers: 751 in-state, 120 out-of-state Statistic
FY24 clemency actions included 751 conditional transfers and 120 out-of-state conditional transfers.
751 conditional transfers vs. out-of-state conditional transfers
FY24 supervised reprieves: 461 Statistic
In FY24, 461 supervised reprieves were granted.
461 supervised reprieves
FY24 Clemency Division budget: $17.27 million (84.5% of total) Statistic
Clemency Decisions program had FY2024 budget of $17,266,713 with expenditures of $17,101,467.06, representing 84.5% of total agency budget.
$17.3M
Personal services comprises 86.96% of agency expenditures Statistic
Personal services (salary/benefits) totaled $17,602,670.30, comprising 86.96% of all FY24 expenditures.
87.0%
GPS: FY 2025 healthcare/pharmacy increase $72 million Statistic
FY 2025 healthcare/pharmacy cost increase for GDC is $72 million.
$72M
Checks and balances: Legislature sets range, judiciary sentences, Board manages prison beds Legal fact
Georgia's constitution provides for three branches of government: the legislative branch sets the minimum and maximum range of the prison sentence, the judicial branch sentences the offender within that range, and the State Board of Pardons and Paro…
Joyette Holmes served as special prosecutor in Ahmaud Arbery case Case detail
Georgia's Attorney General selected Joyette Holmes to serve as the special prosecutor for the Ahmaud Arbery case. She is the first African American and woman to serve as both Chief Magistrate Judge and District Attorney in Cobb County.
Wayne Bennett is first former Georgia sheriff appointed to Parole Board Case detail
Wayne Bennett is the first former Georgia sheriff to be appointed to the Parole Board. He served as sheriff of Glynn County from 1992 to 2012.
GPS finding: Board is functioning as shadow sentencer Finding
GPS analysis characterizes the Board's increasing length of stay decisions as 'shadow sentencing,' where the Parole Board effectively adds additional time to judicial sentences without formal proceedings. Average time served increased 27% from 2014 …
Less than 1% of FY24 revocations were for technical violations Statistic
Of the FY24 total number of revocations (1,437), less than 1% were revoked based on technical violations which include but are not limited to drug use, curfew violations, or failure to pay fines and fees.
1%
Board revalidated Guidelines Rating System and Sex Offender Risk Assessment Tool in FY24 Policy
In FY 2024, in an effort to better serve public safety, the Board revalidated its Guidelines Rating System and Sex Offender Risk Assessment Tool and expanded the electronic notifications and solicitation processes.
Sources
43 cited sources backing this research.
Primary
Official report
1997 Parole Board 90% Sentence Requirement Policy
Primary
Legislation
2015 State Law — Pardon Notification to Victims and Prosecutors
Primary
Data portal
Bureau of Justice Statistics — Parole Completion Rates
Primary
Legal document
Secondary
Journalism
Primary
Legal document
Secondary
Official report
Federal Truth in Sentencing Grants to Georgia (1996-2001)
Secondary
Journalism
Primary
Legal document
Fuller v. Georgia State Board of Pardons and Paroles, 851 F.2d 1307 (11th Cir. 1988)
Primary
Legislation
Ga. Comp. R. & Regs. 475-3-.05(2)
Primary
Legal document
Garner v. Jones, 529 U.S. 244 (2000)
Primary
Legal document
Georgia Constitution — Provisions on Board of Pardons and Paroles
Primary
Official report
Georgia Department of Corrections — Incarceration Cost Data
Primary
Official report
Georgia Department of Corrections — Performance Incentive Credit (PIC) Program Data
Secondary
Journalism
Secondary
Gps original
Primary
Legal document
Griffin v. Nix, Civil Action No. 2004-CV-92152 (Fulton Cnty. Super. Ct. Mar. 3, 2005)
Primary
Legislation
HB 1059 (2006) — Life Sentence Parole Eligibility Increase
Primary
Legal document
Howard v. Coonrod, 134 F.4th 1136 (11th Cir. 2025)
Primary
Official report
Interstate Commission for Adult Offender Supervision (ICAOS) — Membership and Rules
Primary
Legal document
Jackson v. State Board of Pardons and Paroles, 331 F.3d 790 (11th Cir. 2003)
Primary
Official report
Primary
Legal document
Primary
Legal document
Primary
Legislation
O.C.G.A. § 17-10-6.1 — Serious Violent Felony 90-Day Notification
Primary
Legislation
O.C.G.A. § 17-17-13 — Victim Notification of Parole Consideration
Primary
Legislation
O.C.G.A. § 42-8-21 — Commutation Under Senate Bill 174 (2017)
Primary
Legislation
O.C.G.A. § 42-9-41 and § 42-9-44(a) — Pending Release Notification
Primary
Legislation
O.C.G.A. § 42-9-43(c)(1) — Parole Notification Requirements
Primary
Legislation
O.C.G.A. § 42-9-45(b) and § 42-9-46 — Parole Eligibility Date
Primary
Legislation
O.C.G.A. § 42-9-47 — 72-Hour Statutory Notification Prior to Parole
Primary
Legislation
O.C.G.A. § 42-9-51 — Automatic Revocation of Parole
Primary
Legislation
O.C.G.A. § 42-9-53
Primary
Official report
Primary
Legislation
SB 441 (1995) — Seven Deadly Sins Law
Primary
Legislation
Senate Bill 174 (2017) — Commutation Provisions
Primary
Legal document
Primary
Official report
Primary
Official report
Primary
Official report
Primary
Official report
State Board of Pardons and Paroles, FY2005 Annual Report
Primary
Legal document
Sultenfuss v. Snow, 35 F.3d 1494 (11th Cir. 1994) (en banc)
Secondary
Journalism
Key Entities
Organizations, people, facilities, and other named entities referenced in this research.
90% Policy
[organization]
Brian Kemp
[person]
Buttrum v. Herring
[case]
Christopher L. Barnett
[person]
Critical Analysis Unit
[program]
David J. Herring
[person]
Day v. Bernard
[case]
Fuller v. Georgia State Board of Pardons and Paroles
[case]
Ga. Comp. R. & Regs. 475-3-.05(2)
[legislation]
Garner v. Jones
[case]
Georgia Board of Pardons and Paroles
[organization]
Georgia Crime Information Center
[organization]
Georgia Department of Community Supervision
[organization]
Georgia Department of Corrections
[organization]
Georgia Diagnostic and Classification Prison
[facility]
Georgia Office of Victim Services
[organization]
Georgia Prisoners' Speak
[organization]
Georgia Victim Information Program
[program]
GPEDS
[program]
Griffin v. Nix
[case]
HB 1059
[legislation]
Howard v. Coonrod
[case]
ICE Rapid REPAT Program
[program]
Immigration and Customs Enforcement
[organization]
Interstate Commission for Adult Offender Supervision
[organization]
Jackson v. State Board of Pardons and Paroles
[case]
Joyette Holmes
[person]
Meg Heap
[person]
Moore v. Georgia Board of Pardons and Paroles
[case]
New Direction Recovery Program
[program]
O.C.G.A. § 42-9-53
[legislation]
Parole Decision Guidelines Rating System
[program]
Performance Incentive Credit Program
[program]
Rita Rocker
[person]
SB 174
[legislation]
SB 441
[legislation]
Slakman v. State Board of Pardons and Paroles
[case]
State Board of Pardons and Paroles
[organization]
Sultenfuss v. Snow
[case]
Terry E. Barnard
[person]
Treutlen Probation Detention Center
[facility]
Victim Impact Sessions
[program]
Victim Offender Dialogue Program
[program]
Wayne Bennett
[person]
Related Topics
Research topics that draw on data from this collection.
Budget & Spending
Georgia's Department of Corrections now spends roughly $1.8 billion a year, a 44 percent increase over FY2022, but the money has moved away from state-run prisons and toward private beds, health contracts, and surveillance technology. GPS's canonical line-item data shows about $27.1 million in new security and technology spending across the AFY2026 and FY2027 cycles against roughly $1.23 million in new rehabilitation spending — a ratio of about 22 to 1. The spending surge has not been matched by oversight: Georgia still has no prison ombudsman, no corrections inspector general, and no public accounting of what the increase bought.
6,311 data points
Legal Standards & Case Law
Georgia's prison conditions are governed by an Eighth Amendment framework — Estelle v. Gamble, Wilson v. Seiter, Farmer v. Brennan — that prohibits deliberate indifference to serious harm in principle but produces, in practice, roughly a 1 percent success rate for incarcerated plaintiffs. The Eleventh Circuit, which binds Georgia's federal courts, has adopted the strictest deliberate indifference standard in the country after Wade v. McDade, while the Prison Litigation Reform Act imposes exhaustion, physical-injury and fee barriers that apply to no other class of litigant. This page traces the doctrine that governs Georgia's prisons, from Guthrie v. Evans and Brown v. Plata to the DOJ's October 2024 findings and the 1868 state constitutional provision the Georgia courts have never fully interpreted.
7,533 data points
Oversight & Accountability
Georgia has no independent correctional oversight body — no ombudsman, no correctional inspector general, no oversight commission with statutory access to its prisons — while roughly 19 to 20 states plus the District of Columbia do. The only external accountability the state has faced is episodic federal litigation: a DOJ CRIPA investigation that produced a 93-page Eighth Amendment findings letter on October 1, 2024 with 82 remedial measures, followed by no consent decree, no enforcement action, and a state legislature that has twice declined to create an oversight office. What remains is a self-policing apparatus — PREA audits recording zero failures, a grievance system that rejects hundreds of appeals on procedural technicalities, and internal investigations classified as confidential state secrets — that documents compliance while the DOJ documents constitutional violations.
11,992 data points
Parole & Sentencing
Georgia's parole system has contracted to a fraction of its former output: parole releases fell 42% between FY19 and FY24, the Board's overall grant rate hit a record-low 28% in FY24, and only 4.5% of the 2,046 life-sentence cases decided that year ended in release. At the same time, the average time served on a life sentence before release rose from under nine years in 1973 to 29.6 years in FY25. The result is a release regime in which most people now leave prison by serving out their maximum sentence rather than by parole, and in which people die waiting — including people whose release dates were already set.
11,774 data points
Policy & Advocacy
Georgia's policy landscape is defined by a decade of reform followed by a decade of reversal: the Deal-era Justice Reinvestment Initiative cut prison commitments and shortened probation terms, while the Kemp administration and the 2025–2026 General Assembly responded to a federal civil rights investigation by adding $634 million in new corrections spending without funding population reduction, parole expansion, or independent oversight. What has passed recently — HB 176's out-of-time appeals fix, the Wrongful Conviction and Incarceration Compensation Act, the Survivor Justice Act — addresses narrow slices of a post-conviction and parole system that Georgia's own Chief Justice has called 'a mess.' What has failed — SB 25's parole transparency, HB 1504's ombudsman, HB 126's near-unanimous out-of-time appeals bill, HB 714's restrictive-housing caps — maps the outer limits of the current legislative coalition.
7,149 data points
Recidivism & Reentry
Georgia reports one of the lowest recidivism rates in the country — an official 25–27% three-year felony reconviction rate — but that figure counts only reconvictions, only within three years, and excludes people who die, who return on technical violations, or who are rearrested without conviction. National data that count arrests find 83% of released state prisoners rearrested within nine years, and GPS's own research library estimates Georgia's real return-to-incarceration rate is closer to 50%. This page tracks what the state measures, what it doesn't, what the evidence says actually reduces recidivism, and how thin Georgia's reentry infrastructure remains relative to the 12,000–16,000 people it releases each year.
12,264 data points