justice system change initiative-riverside county jail ...€¦ · headcount management unit (hmu)...

JusticeSystemChangeInitiative-RiversideCountyJailUtilizationReport

ScottMacDonaldKevinO’Connell

December9,2015

Justice System Change Initiative (JSCI) A Project of CaliforniaForward11079thStreet,Suite650Sacramento,CA95814

www.cafwd.org

CaliforniaForwardissupportedbygrantsfromTheWilliamandFloraHewlettFoundation,TheJamesIrvineFoundationandtheDavidandLucilePackardFoundation.

RiversideJUS Page 2 of 50

ExecutiveSummary

TheJusticeSystemChangeInitiative.ThisreportpresentsinformationdevelopedbyacollaborationbetweentheRiversideCountySheriff’sOfficeandCAFwd’sJusticeSystemChangeInitiative(J-SCI).CaliforniaForwardisanindependent,bipartisangovernancereformorganizationthatpromotespolitical,fiscalandorganizationalreformtoimprovetheimpactofpublicprograms.J-SCIwasdevelopedtobuildthecapacityandskillsofcountiestotransformjusticesystemsthroughdata-drivenpolicyandfiscaldecisions.Thescopeofthisinitiativeincludesidentifyingmoreeffective,evidence-basedservicesthatsupportindividualbehaviorchange;aswellaspromotingnewjusticesystempoliciesandpracticesthatbetteralignresourcestopromotepublicsafety.

J-SCIprovidesateamofsubjectmatterexpertstoinitiateacollaborativereviewofcurrentpolicyandpractice.Thisincludesthecollectionandanalysisofcomplexcross-systemdata;facilitationofthelocaldiscussionregardingdatafindingsandopportunitiesformoreeffectivepractice;and,thedevelopmentoflocalsystemsandcapacityforongoinganalysisandpolicydevelopment.Theresultisasustainable,locallydrivenreview,analysisandreformthatprovideslocalpolicymakersgreaterchoiceandconfidenceintheprioritiesandprogramstheyoversee.

ThePurposeoftheJailUtilizationStudy.Incarcerationrepresentsoneofthecostliestelementsofthecriminaljusticesystem.Nationwide,theuseofincarcerationtorespondtocrimeincreasedmorethanfivefoldinrecentdecades,withtheaccompanyingcostsofbuildingandstaffingthistremendousexpansionofjailandprisoncapacity.Nowthatabipartisanconsensusismountingtoreexaminethistrend,itbecomesclearthatmostcommunitieslackmeaningfuldataabouttheirjails.Whoisinjail?Howdidtheygetthere?Howlongdotheystayandhowoftendotheyreturn?Withoutknowingsomeofthesebasicfacts,leadersareunderstandablyreluctanttoendorsechanges.

Riversidecountyjailshavefacedfederallyimposedpopulationcapsbasedonsignificantcrowdingissues.JailexpansionandconstructionhasnotbeensufficienttoaddressthegrowthofthejailpopulationandleadersinRiversideunderstandthatbuildingnewjailspace,alonewillnotbesufficienttoaddresstheseproblems.Understandingjailutilizationisanessentialstartingpoint,andprovidesaninitialmapforsystemchange.TheJ-SCIteamworkedincollaborationwithsystemstakeholdersinRiversideCountytocompileandanalyzedataregardinglocaljailutilization.AfteraninitialkickoffinOctober2014,theJ-SCIexecutivesteeringcommitteeshowedinterestinbetterunderstandingthecounty’suseofoneoftheirmostlimitedandexpensiveresources.Workingdirectlywiththejail’sstaff,J-SCIteamdevelopedadataanalysisapproachthatengagedcountyexpertsinthejail’sHeadcountManagementUnit(HMU)tobetterunderstandtheissuesandopportunitiesfacingthejail.Theresultingdatawasanalyzedtoidentifykeyareasforfurtherstudyandconsideration.Theobservationsandrecommendationsofthisreportareastartingpointforfurtherexaminationanddiscussionamongallsystempartners.Theendresultofsuch

discussionswillbepolicyrecommendationsthatarefoundedindataandsupportedbyabroadconsensus.

TheStructureofthisReport.Tohelporganizethekeyvariablesofthejailpopulation,thisreportcharacterizesthemajorpathwaysor“doors”intoandoutofjail.The“frontdoor”entriesarethoseenteringjailastheresultofanewcrime;the“sidedoor”arethosealreadyinthesystemwhoenterforprobationviolations,warrants,courtcommitmentsorfactorsotherthanarrestforanewlawviolation.Jailexitsarethe“backdoor,”andthosewhorecidivatearedescribedasbeinginthe“revolvingdoor.”Thedataalsocharacterizessomeofthetrendsinsidethedoors:theaveragedailypopulation,jailprogramming,thekeyvariableoflengthofstay,andthecalculationoftotal“beddays”consumedbyindividuals.Finally,twoareasofspecialconcernareaddressed:jailusebymentallyilloffendersandtheimpactofProposition47.Thereportconcludeswithobservationsandrecommendationsforfurtherstudyandpolicyconsideration.

KeyObservations.Evenatthispreliminarystageofinvestigationofjailusagein2014,anumberofimportantandcompellingobservationshaveemerged.

ü Mostnewcrime(frontdoor)bookingsaredrugoralcoholrelated

ü Nearly80percentofnewcrimebookingsarenon-violent

ü 41percentofjailbookingsdonotinvolveanewcrime

ü Drugandalcoholnewcrimesmakeuptwothirdsofreleasesbeforearraignment

ü Halfoftheinmatesinjailarenotincustodyforanewcrime

ü Sidedoorjailentriesarenotinfluencedbycrimetypeorseverity

ü Nearlytwothirdsofthedailyjailpopulationarependingtrial.

ü 90percentofinmateswillreturndirectlytothecommunity

ü Jailrecidivistsused2.1millionbeddaysoverafive-yearperiod

ü 59percentofjailre-bookingsof2009cohortwerenotfornewcrimes

ü Mentallyillindividualsarebookedmoreoftenandstaylongerthanotherinmates

ü Mentallyillindividualsarebookedmostlyforwarrantsandholds

ü Inthefirsthalfof2015,Felonydrugbookingsdecreasedby76percentandmisdemeanordrugbookingsincreased19%afterProp47

Recommendations.ThepreliminarydataanalysisofRiversideCountyjailutilizationindicatesanumberofareasforfurtherstudyandrevealsanumberofpromisingopportunitiestoaddresschallengesfacingRiversideCounty’scriminaljusticesystem.Manyoftheseopportunitiesinvolvepracticeandpolicychangesthatcanbequicklyimplementedwithmodestinvestmentsthatgeneratenear-termcostsavings.Other

solutionsrequireamoresignificantinvestmentthatshouldyieldmoresubstantialcostsavingsorcostavoidance,whilereducingrecidivismandjailusage.

1. Increasesuccessinthecommunitytoreduce“sidedoor”entries.

2. Improveprobationsuccessandincreasealternativeresponsestotechnicalviolations.

3. Explorethepotentialtoreducedelaysandexpeditecourthearings.

4. Maximizetheuseofpre-trialreleasesandprograms.

5. Expandcosteffectivecommunity-basedcustodyalternatives,expandeffectivejailprogramstargetedtoreducejailrecurrenceandconsideranon-ormedium-securefacilityfortransitionalprogramsandprobationviolations.

6. Developinterventionstoimprovementalhealthoutcomesandreducejailtimeforthementallyill.

7. Workcollaborativelytobetteraddresssubstanceuseandabuse.

8. EstablishdedicatedJ-SCIpositionstoinstitutionalizeandbolstersystemchangeacrosscountydepartmentsandthejudiciary.

NextSteps.Theintentionofajailutilizationstudyistorevealopportunitiesforsystemchange,includingopportunitiesforimprovementstopracticeandpolicychoicesthatpresentsmartandcost-effectivealternatives.TheRiversidestudyappearstohaveidentifiedsuchopportunities.Countyleaderswillneedtodeterminewhichareastopursuegoingforward.Whateverthelocalchoices,CAFwdstronglyrecommendsthatadedicatedJ-SCIteambedevelopedtoworkunderthedirectionoftheJ-SCIExecutiveSteeringCommitteetooperationalizethesystemchangeeffortutilizingthedata-drivenprocess.CaliforniaForwardremainsadedicatedpartnerasRiversideCountymovestothenextexcitingphaseoftheJ-SCIprocess.

BackgroundTheJusticeSystemChangeInitiative(J-SCI)wascreatedbyCaliforniaForwardtoassistcountiesinimplementingdata-drivenstrategiestoaddressnewandlong-standingchallengesfacinglocaljusticesystems.

Inrecentyears,theRiversideCountySheriff’sDepartmentwasrequiredtoreleasethousandsofindividualsearlybecauseofinadequatejailspace.Earlyreleasesundermineeffortstoholdoffendersaccountable,providemeaningfulandappropriatepunishment,enhanceparticipationinevidence-basedprograms,andmaximizethebenefitsofcommunitysupervision.In2014some10,000peoplewerereleasedduetocapacityconstraints.

RiversideisthefirstofthreeCaliforniacountiestoparticipateintheJ-SCI.Thecountyrecognizesbuildingnewjailspacealoneisnotafiscallyplausiblesolutiontothejailcrowdingproblemandthateveryreasonableopportunitytoreducethejailimpactwhilemaintainingpublicsafetymustbepursued.Overthepastyear,theProbationDepartmenthasfocusedonimprovingprobationsuccessandreducingtechnicalprobationviolationwarrantsthatfrequentlyresultinareturntojail.Duringthissameperiod,theSheriff’scorrectionalleadershaveestablishedaJ-SCIworkgroupwithaninitialfocusonthefollowingjailutilizationstudy.Thisreporthighlightssomeofthefindingsofthisinitialworkandofferssomerecommendationsforcountyofficialstoconsider.

WhyfocusonJailData?Interventionsoccurthroughoutthecriminaljusticeprocessfromcitation,diversion,arrest,jail,pretrialrelease,courtdueprocess,sentencing,probation,community-basedtreatment,andprison.Jailisanimportantandlimitedcountyresourcethatisreliedupontodisruptcrime,ensurepublicsafety,andadministerpunishment.

Forthosewhoposeflightorre-offenserisk,jailisanelementofdueprocesswhileawaitingtrial.Forthosewhohavebeensentenced,jailisapunishmentandatimeoutperiodfromthecommunity.

Intheabsenceofoptionsandalternativesthatensuresafetyandaccountability,jailcanbecometheoptionoffirstratherthanlastresort,evenforindividualswhoarealowpublicsafetyrisk.CountyjailsystemsinCaliforniahavelongbeenimpactedbyovercrowding,poorconditionsofconfinement,andlimitedresourcestomakesureoffenderswhoreturntothecommunitydosobetterpreparedtobelaw-abidingandproductivecitizens.

Mostjailswerenotdesignedtoprovideadequaterehabilitativeprograming.Theysimplydonothavetheproperspaceandadministratorshavenotbeenhistoricallytrainedorresourcedtoproviderehabilitativeprograms.Hence,theriskfactorsandrootcausesofcrimeareoftenunaddressedduringconfinement.Additionally,theco-minglingoflowandhigh-riskoffenderscanhavetheunintendedconsequenceofincreasing,ratherthanreducingrecidivism.Theselong-standingproblemshavebeenexacerbatedbythenewdemandsplacedonlocaljurisdictionsduetoprisonrealignment,imposingthesamechallengesofcrowdedfacilitieswithpoorconditions.

Toensurethatthereisspaceavailableincountyjailforthoseposingapublicsafetyrisk,jailadministrators,andjusticesystemdecision-makersneedgoodinformationtomanagecorrectionalpopulationsandmaximizesafealternativestojail.

Withoutgoodinformationtosupportcollaborativecross-disciplinarystrategicplanningandimplementation,jailsoftenbecomeover-reliedupontoholdlow-riskoffenders,andindividualswithunaddressedalcohol,drug,andmentalhealthissues.Withoutgooddatatomonitorsystemprocesses,outcomes,andalternatives,inmatesoftenstayincustodylongerthannecessary,contributingtopoorjailconditionsandhighratesofrecidivism.Unfortunately,mostjailmanagementsystems,likeRiversideCounty’s,werenotdesignedtocapturedatathathelpadministratorsknowwhoisincustody,forhowlongandwhy.

ThroughtheJ-SCIpartnership,correctionaladministratorsandCAFwd’sJ-SCIteamhaveworkedtogethertoprovidethisinitialjailportrait.Byexaminingthejailpopulationandprovidingafreshpictorialofrecentjailusage,opportunitieswillbeidentifiedtoreduceunnecessaryorunwantedutilizationofjail.Thisreportisnotintendedtodeterminetheneedforadditionaljailspace.Rather,itprovidesaninitialsteptowardensuringthatcurrentresourcesareusedeffectivelybeforemakingthisdetermination.Thisinformationwillalsocontributetothecounty’seffortstoimproveconditionsofconfinementwhilemaximizingtheeffectiveuseofcountyjusticeandhealthandhumanservicestoaddresstherootcausesandconditionsofcrime.Thispictorialonlybeginstoilluminatetheissuesthatneedtobeaddressedwithspecificsolutionsandalternatives,butcanhelpdirectthestrategicnextsteps.

AcknowledgementsThisstudywouldnothavebeenpossiblewithouttheongoingsupportandinvolvementoftheSheriff’sadministration.UndertheleadershipoftheSheriffStanSniffandthedirectinvolvementofAssistantSheriffJerryGutierrez,theJ-SCIteamconvenedandengagedaworkgroupofSheriffstafftobetterunderstandandgivecontexttoRiverside’sjailsystem.

CaptainCherylEvansandCorrectionalLieutenantTatiaDaviswereinstrumentalintheirleadershipoftheinitialworkinggroup,madeupofstafffromtheHeadcountManagementUnit,includingSergeantHylandandSergeantMiernik.HMUAnalystKathyGentrywasofgreatassistanceinprovidingcontextandhelpingtoexploretopicsofinteresttotheworkgroup.JohnMcClanahanwaspatientandextremelyhelpfulinrefiningthejailbookingsdatabase.ChiefDeputyScotCollinsprovidedessentialfeedback,commentsandeditsthatwereinvaluableinproducingthefinaldraftofthisreport.

CaliforniaForwardwouldalsoliketoacknowledgeSergeantPerrySexonfororganizingandleadingatouroffourfacilitiesaroundthewesternpartofRiversideCounty.

StudyDesign:Methods,DataandDefinitionsThedailyjailpopulationisasimplefunctionoftwovariables--whogetsbookedoradmittedandhowlongtheystay.Someindividualsarebroughttothe“frontdoor”ofjailforanewcrime,whileothersarriveinjailforotherconditions,suchaswarrantsbasedonsomefailure(failuretoappearforcourt,failuretoreporttoprobation)relatedtopendingorpreviouslysentencedmatters.

Thisinitialreportfocusesonthereasonforbooking,lengthofstay,averagedailypopulationandreleasedynamicsforinmatesbookedorreleasedintoRiversideCountyjailbetweenJanuary1,2009andDecember31,2014.TheanalysisalsousesdatafromJanuarytoJune2015toanalyzecurrentpatternsofusageafterProp47.

Thepurposeofthisapproachistoprovideaportraitofcurrentjailusageandilluminateareasthatappeartobefertileforsystemimprovementandhelpdirectfurtherexaminationthatwillleadtopolicy,procedureorprogramchanges.Thisdatawillalsoprovidebaselineinformationthatwillhelpmeasuretheimpactofsystemchangesgoingforward.

JailUtilizationDataDomains

CountyContext

• Popula/onGrowth• Crime• Arrests• Facili/es

JailAdmissions

• NewCrimes• Holds• OtherHousing

JailLengthofStay

• Pre-Trial• Sentenced• OtherPolicies

TheDataTheinitialdatasetcontainedover341,000uniquebookingsoverasix-yearperiodfromJanuary2009toDecember2014involving190,000differentindividuals.Thisreportprimarilyfocusesonthemostrecentfullcalendaryearof2014.ThedatasetwasappendedtoaddinformationthroughJune2015.WiththeenactmentofProposition47in2014,anexaminationofthe2015datawasconductedtocapturetheearlyimpactofthispolicychange.

SignificanttimewasdedicatedtoqueryingthedatafromtheJailInformationManagementSystem(JIMS)andformattingthisinitialdatainauseableform.Fromatechnicalpointofview,theJIMSsystempresentsachallenge:Onlycertainpartsofthejaildatabaseareinadatawarehouseaccessiblebyjailstaff.OthercomponentshadtobecustomqueriedfromaCOBOLdatasystem,addingtimeandcomplication.RecentdiscussionstomodernizetheJIMSsystemwouldlikelyimprovetheaccessibilityandtimelinessofanalyses.Asaresultofthispartnership,J-SCIdevelopedadatabaseformatandsomeanalyticaltoolsthatcanbeusedbyRiversideCountyinitsongoingeffortstoincreasedata-drivenpractices.

Thefulluniverseofbookingsincludesindividualswhoareinjaillessthanoneday,butnot“housed”beyondaholdingtank.Thisincludesasignificantnumberofindividualsandillustratesaneffectiveefforttoreducejailrelianceattheearlydecisionpointofbooking.

Tosummarizethebookings,thereportusedtheattributesofthemostseriouschargewithinthebookingmappedtotheCaliforniaDepartmentofJustice’s(CADOJ)hierarchytable.1Thehierarchytablelists4,500standardizedchargesusedinCaliforniaforfeloniesandmisdemeanorsthatassistanalystsinautomatingtheresearchprocess.Overtheyears,thedataenteredintoRiversideJailManagementsystemcreatedover12,000uniquecharges,whichweremappedtotheCADOJcodes.Thishierarchywasusedtocategorizeeachbookingbyusingthemostseriouscharge.Feloniesareconsideredmoreseriousthanmisdemeanantsandwithinthosegroupingsthetopchargeisbasedonseverity.Forexample,ifanoffenderhasbeenbookedforfelonyburglary(PC459)andfelonydissuadingawitness(PC136.1(B)(1)),theburglarywouldbeshownasthemostseriouscrimeindescribingthebookingevent.Throughoutthisdocumenttheterms“mostseriouscharge”or“topcharge”refertothishierarchicalapproach.Abookingchargedoesnotreflectthefinalcourtchargeoroutcome,however.Becausereliableorconsistentdatawasnotavailableregardingthefinaldisposition,itwasnotpossibletoanalyzefinaloutcomes.2Instead,theinitialbookingchargewasusedconsistentlythroughoutthisdocument.

1Thevariablesusedinthedatasetareinthetechnicalappendix.TheyincludedesignationsfortheoriginalvariablescreatedbyRiversideJailsystems,andvariablescreatedorderivedtoeaseanalysis.2Sentencedcrimesareoftenlessseriousthanbookingchargesforseveralreasons,includingdismissals,chargereductionsbasedonlackofevidence,pleanegotiations,non-guiltyverdictsandotherfactors.

Tosimplifyanalyses,chargesweregroupedintocrimecategories.Thetablebelowshowsthecommoncrimetypesandgroupingsusedinthisdocument.Forexample,ifanindividualwasbookedforatheft,itfallsunderapropertyoffense.

CrimeCategoriesforSystemAnalysisGROUPING SUBTYPESALCOHOL DriveUnderTheInfluenceCRIMESAGAINSTPERSONS Assault&AssaultAndBattery OtherFelony Robbery OtherSexLawViolations LewdorLascivious Kidnapping ForcibleRape Homicide UnlawfulSexualIntercourse Manslaughter,Vehicle ManslaughterNARCOTICSANDDRUGS Possession/UndertheInfluence SalesandManufacturing Transportation SalestoaMinorPROPERTYOFFENSES Burglary Theft MotorVehicleTheft Forgery,Checks,AccessCards PettyTheft Arson ChecksAndAccessCardsALLOTHERS Weapons Trespassing Vandalism Prostitution Traffic HitAndRun DisturbingThePeace

Thesegroupingssimplifythediscussionofnewcrimebookingstofocusonthemostseriouschargewithinabooking.Appendix1disaggregatescrimegroupingandtypeandofferspercentageandthenumberofbookingsin2014.

Tohelporganizethedata,thisreportcharacterizesthemajorpathwaysor“doors”intojail.Thoseenteringjailforanewcrimearereferredtoas“frontdoor”entries.Thosewhoenterjailforfactorsotherthananarrestforanewcrimearereferredtoas“sidedoor”entries.

Sidedoorentriesincludeviolationsofprobationandparole,warrants,andcourtcommitments.Newcrimes,or“on-view”crimestrumpothersidedoorcrimesifabookingincludesboth,andarecategorizedasa“frontdoor”entry.Sidedoorentriesincludeseveralcategories3:

• Warrants.Thesebookingscanbeforcourt-issuedwarrantsforfailuretoappearincourt,aswellasnotappearingforprobationsupervision.Individualscanalsobebookedonwarrantsoriginatingfromothercountyorstateagencies.RiversideCountypolicyrequiresthatindividualswithwarrantsfromotheragencies,felonywarrants,ormorethan13misdemeanorwarrantsbeheld.JIMScategorizesbookingsforin-countywarrants,aswellasout-of-countywarrantsseparately.

• CourtCommitments.Thesebookingsareforinstanceswhenthecourtsendsanoffendertocustody,eitherremandedatthepretrialstageofthecourtprocessortoserveasentence.JIMSdifferentiatesun-sentencedfromsentencedcommitments.

• TechnicalSupervisionViolations.Inthisreportviolationsaredefinedasallegedlybreakingtherules,termsorconditionsofprobationorparole—notnewallegedlawviolations.Ifaprobationviolatorwasarrestedwithanewcrime,thenewcrimewouldbeconsideredthetopcharge.ProbationandParoletechnicalviolationsinclude:paroleunderPenalCodesection(PC)3056,ProbationandMandatorySupervisionunderPC1203.2,andPostReleaseCommunitySupervisionparoleesforaviolationunderPC3456orflashincarcerationunderPC3454.SinceJIMSdoesnotindicatesupervisiontypes,thesearederivedfromseveralvariables,suchascrimestatuteandbookingreason.

• HoldsandOther.Offendersbroughtinforfederalholds,aswellascourtorderstotransportanoffendertoanotheragency,makeupagroupofbookingtypesoutsidethenormalgroupings.ThisgroupingalsoincludesthosebeingbroughttoRiversidetobewitnessesinatrial,orattendchildcustodyhearings.

Together,frontandsidedoorentries,ornewcrimes,warrants,holds,andcourtcommitmentsprovideapictureofwhogetsbookedintojail.

Todeterminethelengthofjailstaysandunderstandwhatthedailypopulationlookslike,itisnecessarytoknowbothwhogetsintojailandwhentheyarereleased,whichthisstudywillrefertoasthe“backdoor”exit.Byunderstandingwhogetsintojailthroughthefrontandsidedoors,andatwhatpointtheyleave(backdoor),itispossibletoassesskeycharacteristicsofthedailypopulation,includingtheaveragelengthofstayandtheaggregatejail“beddays”thatareconsumedinayear.

3SeetheappendixforcodesavailableinJIMS.

Giventheinterestinreducingrecidivism,thisstudyincludesafocusonjailrecurrence,the“revolving”door.FiveyearsofdatawereexaminedtogetasenseofhowmanyindividualsreturnedtoRiversideCountyjailandhowmanytimes,aswellasthebeddaystheyused.

ThedatacollectedbyRiversideCountythroughitsjailmanagementsystemisfarmoreencompassingthanthedataandfindingspresentedinthisstudy.Thisstudydistilledinformationtoidentifyareasthatcouldbefertilegroundforsystemchange,andpointtopolicyandpracticechoicesthatcouldbeconsidered.Thesefindingsshouldbeconsideredasastartingpointandshouldpromptmorequestionsthananswers.Tofullyunderstandopportunitiesforsystemimprovement,additionalcollaborativeworkisrequiredtodigdeeperandtriangulatequantitativeandqualitativejaildatawithothersources,suchasthecourts,probation,andotherserviceproviders.Therealsoarelimitationstothedataanalysisinthisreport.Somefactorsthatcaninfluencedecisionstoholdindividualsinjailwerenotanalyzed,mostnotablythefullcriminalrecord.If,forexampleanindividualisbookedonanewdrugoffense,butalsoheldonawarrantforapriorviolentcrime,andinsomecases,awarrantonanewcrime,itwouldnotbeidentifiedinthisstudy.Deeperanalysisisneededtofullyunderstandtherangeandviabilityofalternativepolicyoptions.

TherecommendationsinthisreportarenotprescriptionsfromtheJ-SCIteamorCaliforniaForward.Theyarepresentedaspromisingareasforconsiderationascountyleadersdeterminethenextsteps.TheJ-SCIteamispreparedtosupportRiversideCountyasitpursuesspecificimprovementopportunities.

AnalysisandFindings: MultipleViewpointsRiversideCountyoperatesfivejailfacilities.Thechartbelowliststhefacilities,bedcapacity,andrecentcensusdatainthecounty:4

RiversideJailFacilities:CapacityandAverageDailyPopulation(ADP)Facility BedCapacity March2014

ADP March2015

Blythe 115 111 100

Indio 353 359 385

SmithCorrectionalFacility(Banning) 1,520 1,497 1,504

PresleyDetentionCenter(Riverside) 815 836 800

SouthwestDetentionCenter(Murrieta) 1,111 1,126 1,142

4BSCCJailSurvey,March2014andMarch2015.

1.TheFrontDoorView:BookingsfornewcrimeviolationsWhocameinthroughthefrontdoorofjailin2014?Whatwasthebasisofthosearrests?Whoisheldandwhoisreleasedatthefrontdoorandwhoremainsincustodyaftertheircourtappearance?

TheU.S.CensusestimatesRiversideCounty’spopulationtobe2.3millionpeople.5Thisimpliesa6.4percentpopulationgrowthsince2010.Theyearoveryearpopulationgrowthhasslowed,butthecountyisstilladding30,000peopleperyear.

In2014,59,363individualswerebookedintojail.Table1belowprovidessomedemographicsaboutbookingsin2014ascomparedtothegeneralpopulationinRiverside.

RiversideCountyandJailPopulationCharacteristics(2014)

BookingsinRiversideCountyhavebeenrelativelyflatoverthelastsixyears,averaging15,000perquarter.Likemostjails,thereisaseasonalfluctuationwithapeakinbookingseverysummer,andalowpointinthewinter.Bookingsdroppedto13,000inQuarter42014,likelyduetotheconversionofseveraldrugandpropertyfelonycrimestomisdemeanorsbyProposition47,whichthevoterspassedonNovember4,2014.6Thelawaffectsbookingsfornewcrimes,aswellastheresentencingandreleaseofinmates,andareductioninbookingsforviolationsandwarrants(sidedoors).

5http://quickfacts.census.gov/qfd/states/06/06065.html6http://ballotpedia.org/California_Proposition_47,_Reduced_Penalties_for_Some_Crimes_Initiative_(2014)

JailBookingsbyQuarter,January2014toJune2015

Nearly60percentofthosebookedwerefornewcrimes.Newcrimeswerecloselysplitintermsofseverity,withslightlymoremisdemeanorsthanfelonsbroughttothefrontdoorofjail.Ofthosebooked,slightlyunderathirdwerefornewfelonycrimes.

2014BookingsbyType(N=59,363)

Newcrimesor“frontdoor”bookingswerelargelycomposedofdrugoffenders,makingup37percentofnewbookings,or20percentofallbookings.Newdrugcrimebookingswere90percentpossessioncrimes,orundertheinfluence,with10percentmoreseriousdrugcrimeslikesales,manufacturing,andtransportation.Alcohol-relatedbookingsarethesecondmostcommon.Together,nearlytwothirdsofnewbookingsarerelatedtosubstanceuse(includingalcohol),substance

ü Mostnewcrimebookingsaredrugoralcoholrelated

possessionordrugsales.Personcrimesarethethirdmostcommonbookingcategoryofnewcrimesat19percent,followedbypropertycrimesat11percent.Itshouldbenotedthatsubstanceabuseissuescanalsobeafactordrivingothercrimecategories,inparticularpropertycrimeswhichareoftenconductedtosupportadrughabit.

BookingsforNewCrimesbyCrimeType(2014)

Fromapublicsafetyperspective,personcrimesareofhighconcern;theyrunthegamutfrommisdemeanorassaults,tomoreseriousfelonyassaults,tothemostegregiouscrimes,includinghomicide.Domesticviolencewasinvolvedin1,900bookings,or5percentofnewcrimebookings;51percentofthosebeingwerebookedasmisdemeanors.Domesticviolencecrimesaregroupedwithcrimesagainstpersons,underassault.Ofallbookings(frontandsidedoors),felonypersoncrimesaccountedfor8percentofallcrimes;misdemeanorpersoncrimesaccountedforanadditional3.5percent.Conversely,88.5percentofthejailbookingswerefornon-violentcrimesandviolations.Homicide,kidnapping,forciblerape,sexoffenses,andlewdandlasciviousconductcombinedmakeuplessthan2percentofallbookings.Asillustratedlaterinthisdocument,whileallegedpersoncrimesareasmallpercentageofbookings,asignificantportionofthedailyjailpopulationiscomprisedofindividualsinvolvedinviolentcrimesbecauseoftheirlongercustodytimes.

PersonsCrimeasaPercentageofTotalBookings,2014

2.TheSideDoorView:Bookingsthatarenotbasedonnewcrime

Of those booked for New Crimes 2014, most were for Drug Crimes

SideDoors41%

NewCrimes“FrontDoors”59%

59,363Booked

Alcohol22%

AllOthers11%

Personcrimes19%

NarcoEcsandDrugs37%

Property11%

34,965NewCrimes

0.9%0.4% 0.2% 0.2% 0.1% 0.1%

34,965NewCrimes

59,363Booked

ü Nearly90percentofnewcrimebookingsarenon-violent

Warrantsarethebiggestreasonforjailbookingsnotassociatedwithnewcrimes.Thereasonsforwarrantsasdescribedabovecanbemany,includingfailingtoappearforcourtandabscondingfromprobation.

Additionally,somewarrantsarebasedonnewcrimesthathadnotresultedinaninitialarrestorbooking.Adeepanalysisofwarrantswasnotincludedinthisinitialstudy,butshouldbeconsideredinthefutureasatargetedareaforpotentialjailreduction.

BookingsforOtherThanNewCrimes(“SideDoor”)byType

Ofthosebooked,46percentor27,320individualswerereleasedimmediatelyorbeforethearraignmenthearing(withinseveraldays).TheSheriffreleasesindividualswithlowlevelcrimes,oftenmisdemeanantswhowillgothroughthecourtordiversionprocessoutofcustody,andalsowillmakeadditionalreleaseswhenovercrowdedtoachievefederalcapitationmandates.Someoftheseindividualsmayhavebeenassessedbythepretrialprogram,whichisrunbytheProbationDepartmentandoperateswithinthejail.Pretrialstaffassessesandrecommendthereleaseofindividualswhoarenotconsideredarisktoreoffendorfleafromcourtduringcourtproceedings.

Thetableonthenextpageshowsthe24,039releases(referredtoascitereleases)beforearraignmentin2014,usuallyjusthoursaftertheirarrestandwhatcrimetheywerechargedwith.Alcohol-relatedarrestswerethemostcommonandwereconductedmostlybytheCaliforniaHighwayPatrol.Secondweredrugandnarcoticarrestsconductedbypoliceagenciesthroughoutthecounty.Together,alcohol,drugandnarcoticarrestsmakeuptwo-thirdsofindividualsreleasedpriortoarraignment,mostofwhomareneverassignedajailbed.

ü About41percentofjailbookingsdonotinvolveanewcrime

NumberofIndividuals“CiteReleased”PriortoArraignmentforNewCrimes,ByCrimeType,2014

3.TheTypicalDayView:ThejailpopulationonadailybasisTheAverageDailyPopulation(ADP)injailisafunctionofwhoisadmittedandhowlongapersonstays.Sincelengthofstayisdifferentfordifferenttypesofcrimeandindividualrisklevels,thecharacteristicsoftheADParenotthesameasthepopulationatbooking.Forexample,manyalcohol-relatedcrimesarereleasedveryquickly,sotheymayrepresentalargepercentageofbookings,butdonotgreatlyimpacttheaveragedailypopulation.

CrimeTypesasaPercentageofTotalBookingsandTotalADP,2014

TheADPprovidesapictureofwhoisinjailonadailybasis.In2014theaveragedailypopulationwas3,891.

Asdisplayedonthefollowingpagesidedoors(warrants,technicalprobationandparoleviolations,andholds)were

DrugsandNarco/cs

Warrants Alcohol PersonCrimes

CourtCommits

TechnicalViola/ons

Holds PropertyCrimes

AllOthers

PercentofBookings PercentofADP

PersonCrimes Alcohol Narcotics,

DrugsPropertyOffenses AllOther

4,089 7,246 8,125 1,882 2,695

17% 30% 34% 8% 11%

ü Halfoftheinmatesinjailarenotincustodyforanewcrime

fairlyevenlysplitwithfrontdoorentries(thosewithnewcrimes).

ADP2014:IndividualsHeldasaResultofNewCrimes(FrontDoor)vs.ThoseinJailforWarrants,Holds,andViolations(SideDoor)

Onadailybasis,thejailholdsveryfewmisdemeanants.Only3percentoftheaveragedailypopulationishousedfornewmisdemeanorcrime.Anadditional3percentaresidedoorentriesinwhichtheunderlyingoffenseisamisdemeanor.Combined,about6percentofthejailpopulationisdrivenbymisdemeanantcrime,thisincludesdomesticviolenceandDUImisdemeanorsthatmayhavestatutorilyrequiredjailtime.Sowhilemisdemeanantsmakeup32percentofthebooking,theyareamuchsmallerpercentageofdailypopulation–reflectingthepracticeofquicklyreleasinglowerleveloffenders.

ADP2014:Felonyvs.MisdemeanorNewCrime

Inmatesassociatedwithpersoncrimesaremostprevalent,comprising868individualsonanaveragedailybasis,followedbydrugandnarcoticoffensesandpropertyoffenses.Whiletheymakeup11percentofbookings,personcrimescomprise44percentoftheADP.

Average Daily Popula0on in 2014 was split evenly between Front and Side doors

WarrantsHolds

Viola.ons49%,

1,897ADP

NewCrimes51%,

1,994ADP

SideDoor FrontDoor

2014ADP:3891

48% of the daily jail popula2on was for Felony new crime

SideDoors,49%1897ADP

FelonyNewCrime,48%1891ADP

MisdemeanorNewCrime,102ADP

2014ADP:3890

ADP2014:IndividualsHousedforNewCrimesbyCrimeType

Nearlyhalfofthedailypopulationcameintojailassidedoorentries,comprisedmostlyofcourtcommitments,followedbywarrantsandviolationsofprobationandparolesupervision.Withtheexceptionofalikelysmallpercentageofwarrantsbasedonanewcrime,thewarrantandsupervisionviolationcategories(technicalprobationandparoleviolations,withoutnewcrimes)representafailuretocomplywithacourtrequirementthatoccurredseparatefromandsubsequenttotheunderlyingcrime.Someofthecourtcommitments,particularlythosestillpendingincourt,mayalsobetheresultofsomefailureoratleastsomeindicatorthatremaininginthecommunitywhilependingcourtposesaflightorre-offenserisk.Itcouldalsobetheresultoffailingtocomplywithconditionsofrelease.

ADP2014:IndividualsHousedforSideDoorBookings,ByType

Thoseindividualswhoaresentencedcourtcommitmentspresumablyarereceivingjailasapunishment,ratherthanaperceivedpublicsafetyrisk,consideringthefactthatitappears

51% of the daily popula1on are new crimes.

SideDoors,1,897

FrontDoors,1,994

2014ADP:3890

Alcohol1% AllOthers

CrimesAgainstPersons44%

NarcoDcsandDrugs30%

PropertyOffenses19%

NewCrimesADP:1994

thattheywereallowedtoremaininthecommunityduringthecourtproceedingswhileonbailorcourtrelease.Thatisanassumption,asthereisnotenoughinformationinthedatasettoknowforsure.Adeeperanalysisintothesidedoorpopulationisneeded.Learningmoreaboutthefailuresthatresultinsidedoorentrieswouldlikelyprovideopportunitiestoreducefailuresthatresultinjailusagenottriggeredbyanewcrimeorsignificantpublicsafetyconcern.TheProbationDepartmentalreadyhasbeguntotargetprobationwarrantsandtechnicalprobationviolations.Strategiesarebeingimplementedtoimproveprobationengagement,probationsuccessandincreasetheuseofcommunity-basedintermediatesanctions.

Thechartbelowdisplaysthetopchargesunderlyingthesewarrantsandcourtcommitments.Itisimportanttonotethatsomeoftheseindividualshavealreadybeensentencedforthesecrimesandmaybecomingbackinonthatcaseforanotherreason,whileothersmaystillbependingacharge.Thereappearstobeverylittledifferencebetweentheunderlyingcrimesforindividualsjailedforcourtcommitmentsorwarrants,andnewcrimes.Beingjailedforacourtcommitmentandwarrantsappearstobeindependentofcrimetypeorseverity,oratleastthecompositionofunderlyingcrimeslookssimilartothecompositionofnewcrimes.Theunderlyingcrimesforprobationandparoleviolatorswerenotavailablefromthisdataset.However,datapreviouslycollectedandanalyzedfromtheProbationDepartmentrevealedthat49percentofprobationfailuresandviolationswereforindividualsonprobationfordrugoffenses.

ADP2014:IndividualsHousedforCourtCommitmentbyUnderlyingCrimeType

Onanygivenday,63percentofthedailyjailpopulationisinpretrialstatus,meaningthatthoseindividualsaregoingthroughthecourtprocessandhavenotbeenconvictedorsentenced.Conversely,sentencedprisonersmakeupapproximatelyonethirdofthedailypopulation.Pretrialreleaseprogramsaredesignedtoprovidejudgeswithinformationabouttheriskofre-offenseorfailingtoappearifreleasedpendingadjudication,oftenwithsupervisioninthecommunitytoincreasethenumbersofdefendantswhomakecourtappearancesanddonotreoffend.Well-designedpretrialoperationscanhelptokeeplow-riskindividualsfrommixingwith

Court Commitments comprise 757 ADP, Person Crimes represent 35% of them.

2014CourtCommitmentADP:757

CourtCommitmentbyUnderlyingCrimeHolds/Viola6ons/Other,81,11%

Alcohol,71,9%

CrimesAgainst

Persons,268,35%

Narco6csandDrugs,203,

PropertyOffenses,135,

ü Sidedoorjailentriesarenotinfluencedbycrimetypeorseverity

ü Nearlytwothirdsofthejailpopulationispendingtrial

thehigherriskjailedpopulations.TheProbationDepartmentoperatesapretrialprograminthejailandcontinuestoexaminewaystoimproveandexpandsuccessfulreleases.

ADP2014:PercentageofPretrialvs.SentencedInmates

4.TheJailConsumptionView:Lengthofstayandjailbeddaysused

The59,582releasesin2014resultedin1,421,083aggregatejailbeddays7.Thosebeddayswereapproximatelytwo-thirdspresentenceandone-thirdsentenced.

JailBedDays2014:Pre-trialvs.Sentenced

Thechartbelowshowsaggregatebeddaysbycrimecategory.Crimesagainstpersonsrepresentthelargestuseofjailbeds,whilealcoholoffenses,whichareoftenmisdemeanorsreleasedwithinaday,representthesmallestaggregatebeddays,eventhoughtheyrepresentasignificantnumberofbookings.

7Fivepercentofthosejailedaresenttoprison.Individualsmayspendadditionaltimeinstateprison

Average Daily Popula0on in 2014 was 63% Pretrial.

Pre-Trial,63%

2,467ADP

Sentenced,37%

1,423ADP

2014AverageDailyPopula4on

Total2014ADP:3890

JailBedDays2014:AggregateBedDaysUsedbyCrimeType

Therelativeamountofjailbeddaysspentbetweenpretrialandsentencedstatusvariesbycrimetype.Pretrialjailusageisafunctionofthevolumeindividualsheldandthelengthofthecourtprocesstodetermineinnocenceorguilt.Thegoalofpretrialincarcerationistoensureoffenderaccountability,whilesentencedinmatesaregenerallyincustodyforthepurposeofpunishmentorincapacitationtopreventnewcrimes.

JailBedDays2014:AggregateBedDaysUsedbyCrimeType,Pretrialvs.Sentenced

Whenexaminingtheaveragelengthofstay,baseduponallbookings,includingthosewhoarereleasedwithinaday,alcoholhasthesmallest,averagingonedayinjail.Crimesagainstpersonshavethelongeststays,averaging48daysinjail.Thecourtcommitmentandpropertyoffensecategoriesarethenextlongestaveragelengthofstay.Thechartbelowalsoshowsabreakdownofthejaildaysthatarespentpretrial(duringdueprocess)andpostsentence.Amajorityofjaildaysarespentpretrial.

Bed Days Used in 2014 by Crime Type

316,914

276,648

218,276

175,216

136,897

135,994

105,086

46,887

0 50,000 100,000 150,000 200,000 250,000 300,000 350,000

CrimesAgainstPersons

CourtCommitment

Narco=csandDrugs

Warrant

PropertyOffenses

Viola=on

Holds/Other

AllOthers

Alcohol

2014AggregateJailBedDays

Total2014JailBedDays:1,421,083

JailBedDays2014:AverageLengthofStaybyCrimeType

Whenthebookingsthatarereleasedimmediatelyorwithinthefirstfewdays(beforeoratthetimeofarraignment)areremovedfromthisdata,thelengthofstaypicturelookssignificantlydifferent.Thechartbelowprovidesabetterpictureoftheactuallengthofstayforthoseindividualswhoareheldinjailaftertheirfirstcourthearing,whichissignificantlylongerthantheaveragesabove.Amongthesecases,drugoffenses,holdsandcourtcommitmentshavelongerlengthsofstaythanpropertyorpersoncrimes,andpromptquestionsaboutjailusagefromapublicsafetyperspective.

JailBedDays2014:AverageLengthofStaybyCrimeTypeforIndividualsIncarceratedFourDaysorMore

Whilejailsmayofferprogramstoreducerecidivism,manyinmatesareunabletoparticipatebecausepresentencefacilitiesandhousingunitsoftenlackadequateprogramspace.Inaddition,sincepretrialinmateshavenotpledorbeenfoundguilty,thereisnomandateforparticipationbasedonprovencriminalbehavior.Typically,jailshaveashortageofprogramsandthoseprogramsthatareavailableareofferedtosentencedindividuals.Giventhatjailenvironmentscanbecriminogenic,considerationmustbegiventomixinglow-riskindividualswithhigh-riskindividualsindeliveringjail-basedprogramsthataddresstherootcausesandriskfactorsthatleadtocriminalbehavior.

2014 Average Length of Stay for those who stay 4 days or more by Crime Type

0 20 40 60 80 100 120 140

CourtCommitment

Hold/Other

Narco?csandDrugs

PropertyOffenses

Alcohol

AllOthers

CrimesAgainstPersons

Warrant

Viola?on

2014ALOS

5.TheProgram,ReentryandBackDoorView:ThepathwaybacktocommunityWhoreturnstothecommunityandaretheypreparedtobesuccessful?Whilethedatadoesnotyetprovideenoughinformationtoassessreadinessforsuccessfulreentry,itisclearthat90percentofthejailinmateswhoexitedfromjailin2014returnedtothecommunity.SomewerereleasedunderthesupervisionoftheProbationDepartmentwhileotherswereundernoformofsupervisionorsupportforreentry.

JailReleasebyTypeofRelease,2014

Forindividualswhoarereleasedwithacitationshortlyafterbooking,theSheriffoperatesarobustworkreleaseprogramforlow-leveloffendersthatcaninvolveuptoanestimated2,000individualsatvariousjobsiteswiththeRoadsDepartment,CalTrans,andtheCountyLandfillthroughouttheweekonflexibleworkdays.Thisprovidesacommunityservicealternativeforlowleveloffendersthatisnotdisruptivetowork,childcareandotherfunctionalaspectsofanoffender’slife.Additionally,thereareapproximately200to250individualsonelectronicmonitoringasaworkreleasealternative.ThesearesolideffortsonthepartoftheSheriff’sOfficetomanagelowriskpopulationsthatdonotrequirejail.

Forthoseoffenderswhoareheldincustodyaspartoftheirsentence,RiversideCountyhasintroducedin-custodyprogramsbasedonbestcorrectionalpractice.TheprimaryresponsibilityoftheSheriff’sInmateTrainingandEducationBureau(SITE-B)istoassess,develop,implement,deliver,andevaluateinmateprograms.SITE-B,acounty-widebureauforjailprogramming,isadjacenttotheSmithCorrectionalFacilityinBanning.Thebureaumaintainsacomprehensive,evidence-basedstrategytoprovidereentryservices,withthefollowingmission:

“Tomaximizeopportunitiesforoffenderstoparticipateinprogramsthatreducecriminalbehaviorandenhancetheoffender'sreintegrationintothecommunity.Thisobjectivewillbeaccomplishedinacost-effectivemannerintheleastrestrictivesetting,withoutcompromisingpublicsafety.”

90% of 2014 bookings are ul5mately released from the jail to the community a=er their sentence.

CDCR5%

OtherAgencies5%

Community90%

59,363Bookings

ü 90percentofinmateswillreturndirectlytothecommunity

SITE-Bgoalsaretoreducecriminalbehaviorbyprovidingprogramstoinmatestopreparethemforreintegrationintosociety.Theprogramsteachself-awarenessandbehaviormodificationskills.Asetofservicesareprovidedovertime,withincentivesforinmatestoearntheirwaythroughvariouslevels.Althoughsomeservicesmayhappeninapre-setsequence,individualizedcaseplansandreentrystrategiesaredevelopedtoprovidetherightprogrammingoptionsattherightpointinthechangeprocess.

SITE-BoffersavarietyofprogramsatallfiveRiversidecorrectionalfacilities.TheGuidanceandOpportunitiestoAchieveLifelongSuccess(GOALS)programprovidesaphasedapproachtoreentrythatincludescognitive-behavioralinterventionsforcriminalthinking,jobreadiness,substanceusedisordertreatment,andmentalhealthservices.TheResidentialSubstanceAbuseTreatment(RSAT)programisacomprehensive120-daytreatmentprogramtoreducesubstanceabuseandrelatedcriminality.TheRiversideCountyOfficeofEducationprovidescareertechnicaleducation,adultbasiceducation,andlifeskillsclasses.TheVeteransEnrichmentandTransition(VET)programprovidesintensivetherapeuticservicestoaddressthespecificneedsofveteraninmates.

CapacityandCurrentCensusofSITE-BPrograms

Program Capacity CensusOctober2015

GOALS:CognitiveBehavioralProgramming 112 84

RSAT(AlsoparticipatinginGOALS) n.a. 57

VET:TargetedVeteransProgramming 20 12

AdultEducation,SkillsandVocationalEducation 48 44

Inadditiontoin-custodyprograms,theRiversideSheriff’sDepartmentoperatestheRiversideAlternativeSentencingProgram(RASP),electronicmonitoringandsupervisionunit.ElectronicmonitoringallowsinmatestocompletetheircustodytimeunderthesupervisionofaGPS-enabledbraceletoverseenbySheriffdeputies.In2014,115peoplewerereleasedtoRASPonElectronicMonitoring,andtherecentcaseloadisabout100.RASPdoesnotprovideassertivecasemanagementstrategiestoplaceandmonitorindividualsinvocational,educationalandtreatmentprogramsinthecommunity.Studieshaveshownthebenefitsofelectronicmonitoringinrecidivismreductiondecayquicklywithoutsuchinterventions.Theprogramisalsonotintegratedwithmentalhealthorprobationservices,whichmakethegoalsofreentrymorechallenging.

Inadditiontorunningpretrialservices,theProbationDepartmentofferstheTransitionandReentryUnit(TRU).TRUpreparesinvestigativereports,completescriminogenicneedsassessmentsanddevelopsandimplementscaseplansfor“realigned”inmatespriortotheirreleasefromcustody.TheTRUalsofollowsindividualstoensureseamlessreentryandhandofftoprobationofficerswhosuperviseoffendersinthecommunity.TheProbationDepartmenthasproposedexpandingexistingandnewalternatives,including

pretrialservices,electronicmonitoring,transitionalhousing,workfurlough,theTRUprogramandtheirsuccessfulDayReportingCentermodel.

WhilerootedinbestcorrectionalpracticetheprogramsofferedatSiteBandprogramsdeliveredattheothercorrectionalfacilitiestouchlessthan5percentofthepopulation,andmanyprogramsareonlyofferedonceaweekormonthly.Yet90percentofthejailpopulationwillreturntothecommunitiesinRiverside.Adheringtoariskprinciple,mediumandhighriskindividualsreceiveservicessoastonotmixinlowriskoffenders.However,lowriskoffendersmayendupbeingmixedwithhigherriskinanon-directive(lackofpro-socialprogramming)jailsetting.Forexample,ElectronicMonitoringcanprovidesupervisionandaccountabilityinthecommunityandavoidthecriminogeniccontagionofmixinglowleveloffenderswithmoreseriousoffendersinjail.Thecounty’sfacilitiesareinsufficienttobringtheSheriff’sforwardthinkingapproachtoappropriatescaleandsizetomaximizepublicsafetygoalsandreducerecidivism.

6.TheRevolvingDoorView:ThepathwaybacktojailTounderstandtheimpactofrecidivismonjailusage,acohortstudywasconductedofindividualswhowerereleasedin2009toidentifyhowmanytimestheyreturnedoverthefollowingfive-yearperiodandtheaggregatebeddaystheyoccupied.Ofthe44,296individualsinthiscohort,25,056werenotrebookedinlocaljailsby2014(57percentofthecohort).Ofthe19,240individualswhowererebooked(43percentofthecohort),themajorityofthem(66percent)wererebookedonetothreetimes;20percentwererebookedfourtosixtimes;and14percentwererebookedsevenormoretimes.

Althoughtheycomprisedlessthanhalfofthe2009releasecohort,individualswhowererebookedconsumed90percentofthejailbeddaysusedbythecohort.Courtrecordswerenotavailabletotracktheseindividualsthroughthecourtsystemafterrebooking,butfurtheranalysisintothese“frequentflyers”wouldlikelyshowwhichsubgroupsaremorelikelytocomebackandpotentiallywhy.

ü Jailrecidivistsused2.1millionbeddaysoverafive-yearperiod

PercentageofTotalBedDaysbyInmatesReleasedin2009,Rebookedby2014

Clearly,recidivismisakeydriverofjailutilization.Notallindividualswererebookedbasedonanewlawviolation,howeverCourtholds,probationviolations,andother“sidedoor”entriesrepresented59percentofrebookings.Thisrepresentsatotalannualjailbedusageofover1.2millionjailbeddays.

Asshownearlierinthisreport,“sidedoor”inmatesmakeupalargepartofthejailpopulation.Thismayinpartbeduetothefactthat,unlikeanarrestonanewoffense,

PercentofTotalCohort PercentofCohortJailUsage

Individualswhowererebookedoneormore/mesfollowingini/alreleasein2009

Individualswhowerenotrebookedfollowingini/alreleasein2009

2,150,579JailBed

DaysWereUsedByRebookedIndividuals

SideDoors59%

FrontDoors41%

SideDoors FrontDoors

2,135,807subsequentJailBedDaysusedbythosereleasedin2009

ü 59percentofjailrebookingsof2009cohortwerenotfornewcrimes

whichoccursonceattheinitialpointofarrest,asidedoorentrycanoccuratmultiplepointsintimeforfailingtocomplywithcourtorderedrulesduringanentireprobationterm,orwhileundercourtsupervision.Sidedoorentriesthereforehaveacumulativeeffectovertime,whichhelpsexplainwhytheycomprisealargeportionofthejailpopulation.Reducingfailures,beingdeliberateandparsimoniousabouttheamountofrulesthatarerequiredandmakingsurethatprobationtermsandcomplianceorderstrulyrelatetocriminogenicriskfactors,anddevelopingstrategiestobetterengageoffenders,couldhaveasignificantimpactinproducinghighersuccessrates,whilereducingjailrecurrence,recidivism,andassociatedcostscausedbyindividualswhootherwisecyclethroughjail.

7.TheClinicDoor:Theimpactofmentallyilloffenders.Assessingthecriminaljusticesystemimpactsofmentallyillindividualswouldrequiremergingjaildatawithbehavioralhealthdataonindividualswithmentalillnesses.Thiswasnotpossibleduringthedevelopmentofthisstudy,anditisrecommendedthatlocalagenciesworktogethertodevelopthisdata.Asaproxy,however,thisstudyaccesseddatafromthejailunitforinmateswithseriousmentalillness,Unit5BinRiverside’sMainjail.Thisunithousesindividualswhoarediagnosedwithmentalillnessandwhoareunderpsychiatricandbehavioralmentalhealthcare.Thesementallyilloffendershavedoublethebookingsoftherestofthejailpopulationandareinjailmorethan2.5timeslonger.

MentallyIllIndividuals:AnnualBookingsandAverageLengthofStay

Thementallyillaremorelikelythantherestofthejailpopulationtobeincustodyforreasonsotherthananewcrime.

Mental'health'Inmates'are'booked'more'o1en'and'stay'longer

0$0.2$0.4$0.6$0.8$1$

1.2$1.4$1.6$1.8$2$

2014$Annual$Bookings$Per$Person$

All$Others$ Mental$Health$

90$2014$Average$Length$of$Stay$

All$Others$ Mental$Health$

ü Mentallyillindividualsarebookedmoreoftenandstaylongerthanotherinmates

BookingsbyCrimeType:MentalHealthInmatesvs.GeneralInmatePopulation

Mentallyillindividualsused39,000jailbeddaysin2013and2014.Nearlyhalfofthesewereindividualswithmorethanonebooking.Thoughtheyrepresentarelativelysmallpercentageofoveralljailutilization,itwouldbevaluabletofurtherassesstheimpactofthiscaseloadgiventheadditionalresourcesrequiredtosafelyhousethem.Thejailisnottheidealplacefortheseindividualstoreceivethecareandinterventionneededtodeterfurthercriminalbehavior.

JailUtilizationbyMentallyIllIndividualsreleasedfromUnit5B,2013and2014

Inrecentyears,improvementshavebeenmadeincoordinatingpsychiatricandclinicalcareincollaborationwithcorrectionalstaff.However,oncereleasedthereisalackofcasemanagementandintensiveclinicalservicesneededtomaximizecommunitystabilityandreducethelikelihoodofjailrecurrence.

Mental'Health'inmates'come'in'more'o0en'for'Holds'and'Viola4ons

15%$ 14%$

9%$ 8%$

1%$0%$

Hold/Other$ Viola8on$ Narco8cs$and$Drugs$

Crimes$Against$Persons$

Warrant$ All$Others$ Property$Offenses$

Alcohol$

2014$Bookings$by$Crime$Type$

Other$Cells$ Mental$Health$

MH#bookings#used#39,000#bed#days#in#2013#and#2014

Bookings(People(in(MH(Unit( ALOS( Jail(Bed(Days(

Jail(Day(per(person(

1( 139( 147( 20,390( 147(2( 62( 61( 7,612( 123(3( 26( 56( 4,342( 167(4( 11( 25( 1,085( 99(5( 11( 38( 2,113( 192(6( 7( 16( 662( 95(7( 2( 33( 459( 230(8( 4( 52( 1654( 414(9( 0( 0( 0( 0(10( 1( 4( 44( 44(11+( 5( 22( 1633( 327(

Unique(People(:((268(in(2013(and(2014((

ü Mentallyillindividualsarebookedmostlyforwarrantsandholds

7.Thestatepolicyview:TheimpactofProposition47

StartinginNovember2014,Proposition47reclassifiedanumberoffelonycrimes–especiallycertainfelonydrugcrimes–asmisdemeanors.Thisappliestonewcourtcasesaswellastheresentencingandreclassifyingpreviousconvictions.Thepredictableresulthasbeenadramaticreductioninfelonydrugbookings.Thechartbelowisafullyearprojectionbasedonthefirstsixmonthsof2015,usingaformulabasedontypicalpatternsbetweenthefirstandsecondsix-monthperiodsofacalendaryear.Overall,76percentdeclineinthenumberoffeloniesisprojected,witha19percentincreaseinmisdemeanors,foranetreductionintotalbookingsof18percent.

NewCrimeDrugandNarcoticsBookings,FelonyandMisdemeanor:

2014vs.2015(Projected)

Proposition47iswidelyexpectedtohaveasignificantongoingimpactthatwillreducejailusagefordrugoffenders.In2014,felonydrugcrimescomprised555jailbedsonanaveragedailybasis.Themoreseriousdrugcrimessuchasdrugsales,manufacturingandtraffickingthatwillnotbeimpactedbyProposition47constituted221ofthatADP.Theremaining334APDin2014arefelonycasesthatcurrentlyqualifyforProposition47,suchassimplepossessionandundertheinfluenceofdrugs.Basedonouranalysisofthefirstsixmonthsof2015,theseProposition47casesnowcompriseanADPof23,nearlya70reductionfrom2014.WhiletheimpactofProposition47willreducepressureonthejail,thelawisstillnewandthesystemisstillrecalibrating.Manyfactorscanimpactjailpopulationsandjailcapacityotherthanthenumberofbookings.Somefelonydrugoffendershavenotyetbeenresentencedandcouldtheoreticallyreturntojailonprobationviolationsandwarrants.Drugoffendersarepronetowarrantsandviolations;withfewerdrugoffendersonfelonyprobation,thereshouldbesomechangesinthisregardovertime.Italsoisnotclearhowthegrowingnumberofmisdemeanantswillimpactthejail.Itwilltakesometimetoknowthecumulativeimpacttojailusage.

76%$decline$in$Felony$Drug$Crime,$but$19%$increase$in$misdemeanor$Drug$crime$bookings

6768$6326$

1,000$

2,000$

3,000$

4,000$

5,000$

6,000$

7,000$

8,000$

Felony$ Misdemeanor$

#$of$boo

kings$

2014$vs.$2015$New$Crime$Drugs$and$NarcoFcs$bookings$$

2014$ 2015$

(Full$Year$ProjecFon)$

(Full$year$ProjecFon)$

ü Felonydrugbookingsdecreasedby76%andmisdemeanordrugbookingsincreased19%afterProp47

Also,reducingjailusagedoesnotequatetoemptyjailbeds.Forexample,thejailhashadtomakefederallyimposedearlyreleasesduetocrowding.Asthepopulationdecreases,therearefewerofthesereleases,resultinginmoreindividualsservingtheirfullsentencesand,thus,consumingthebedsfreedupbyProposition47.

ThegraphbelowhelpsillustratethecombinedimpactofProposition47andotherefforts,suchastheProbationDepartment’sefforttoreducetechnicalprobationviolationsonfederallyrequiredreleases.Inthefirstsixmonthsof2015,capacityreleasesdroppedfromnear3,000perquarterin2014to725perquarter.Whilethisdemonstratesthatthejailcontinuestobeovercrowded,italsoreflectsachangingdemandforjailbedsinthecounty,whichwillcontinuetoplayoutaschangesinlengthsofstayandbookingsmovethroughthesystem.

Asfewerdrugusersareinjail,communitieswillfeeltheimpactofsubstanceuseandabuseandtheneedfortreatment.Thesetrendswillrequirethoughtfulpolicyandpracticeresponses,andstrategicuseandexpansionoffederalfundsacrosspublicservicesectorstoeffectivelyaddressthesechanges.

ObservationsandRecommendationsfromJail Data Thisreportprovidesabroadbrushportraitofthejailpopulation.Itprovidesinformationonthechargesatthefrontdoor–whocomesinfornewcrimes–aswellasthosewhocomethroughthesidedoorforotherreasons.Itrevealswho,basedontopcharge,isincustodyonadailybasis.Thisportraitprovidessomeinformationonrecidivism,andmentalhealthpopulations(usingthehousingunitassignedforseriousmentallyillasaproxy).Thisinitialviewofjailusagecaninformadeeperexaminationthatwillenablethecountytoreducejailrecidivismandusagewithsystemicandprogrammaticalternatives.

Countyleaderswillneedtodeterminehowtoproceed.OfferedbelowareopportunitiesthatprovidesignificantpotentialtoachievethethreegoalsofJ-SCI:buildinglocalworkforcecapacitytoengageindata-drivensystemimprovement;reduceunnecessaryincarcerationthroughthedevelopmentofeffectivealternatives;and,ensurethatpracticesandalternativesarecost-effectivewhilepromotingandmaintainingpublicsafety.Riversidecurrentlyreleasessentencedindividualsduetoafederalmandatethatlimitsovercrowding.Makingappropriatereductionsinjailusagewillalsohelptoensurethatthereisspaceforservingcourtorderedjailsentences.

1. Increasesuccessinthecommunitytoreduce“sidedoor”entries.Some51percentoftheindividualsincustodyonadailybasisaretherefornewcrimes;theother49percentcamethroughthesidedoors–returnedtocustodyforwarrants,technicalsupervisionviolations,courtcommitmentsandholdsbyotheragencies.Thisanalysisofjailrebookingsilluminatesthecumulativeimpactofrepeatedfailureandnon-complianceonthejailpopulation.Withtheexceptionofprobationviolations,whicharediscussedbelow,notenoughisknownaboutthesourceofthesefailuresandtheappropriateresponses.Adeeperdiveintothesedatawouldprovideabetterunderstandingofthereasonsforthischurning,andthepotentialfortargetedstrategiestoreducefailuresandprovidealternativeformsofaccountabilityfornon-criminalactivitiesthatdonotposeimmediatepublicsafetyrisk.Thepotentialforimprovementisgreat,butwillrequirethecommittedinvolvementofmanyagencies,includingthecourts,probation,andbehavioralhealth.

2. Improveprobationsuccessandincreasealternativeresponsestotechnicalviolations.

Technicalprobationviolatorsareasignificantcontributortosidedoorentries.Probationviolatorsgenerated10percentofthejailbeddaysin2014.TheProbationDepartmentwasthefirstagencytoengageintheJ-SCIdata-drivenprocesstoreducetheprobationfailuresthatresultintheseviolations.Technicalprobationviolationsdroppedinthefirstsixmonthsof2015by25percentasthedepartmentfocusedonthisissueaspartoftheJ-SCIinitiative.Additionally,theaveragetimeinjailforprobationviolatorsdroppedfrom28daysto20days.TheProbationDepartmentshouldbesupportedtocontinueitseffortstoreducetechnicalviolationsandincreasealternativesanctionsinthecommunitytodivertmoreprobationviolatorsorreducetheirtimeincustody.Forexample,defenseattorneys,prosecutorsandjudgescouldagreetogiveProbationofficialsdiscretiontoprovidecommunity-baseddiversions,suchastreatmentorrestorativejusticeresponses,fortechnicalviolators.Theswiftandcertainresponseswouldaddressproblembehaviorsandreducedemandsonthecourts,allowingthattimetoberedirectedtomoreseriousmatters.

3. Explorethepotentialtoreducedelaysandexpeditecourthearings.Some65percentoftheindividualsinjailonatypicaldayareinpretrialstatus.Inmatespendingtrialtypicallygetfewornoprograms.Thedatasuggestssignificantefficienciesmightbefoundbymaximizingsuccessfulpretrialreleasesandexpeditingcourtcasesso

lengthsofstayaredeterminedmorebysentencesthancourtcalendars.Thisapproachalsocreatesopportunitiestodeployevidence-basedprogramsforthosewhowillremainincustodyandagreaterabilitytoprovidecommunity-basedsanctionsandsupervision,includingelectronicmonitoring.RiversideCountyhasahistoryofanoverburdeneddocket.Collaborationamongcourtpractitionerscouldleadtoimprovements.Establishingandsupportingadedicatedteam–includingacourtexpeditorandqualitycontrolanalyst–tomonitorandidentifyefficiencies,suchasreducingunnecessarydelays,willreduceworkloadsandfreeupresources.

4. Maximizetheuseofpre-trialreleasesandprograms.TheimplementationandevaluationofapretrialprogramwiththeassistanceoftheCrimeandJusticeInstituteisoneexampleofthecommitmentandpartnershipthatexistsbetweentheSheriff’sOfficeandtheProbationDepartment.Structureddecisionmakingtoolsandinstrumentsareusedtohelpmakeobjectivedecisionsaboutreleasesandalternatives,includinga“proxy”screenerfollowedbypretrialassessmenttoolandacompasscriminogenicneedsassessment.Thecountycancapturemorebenefitsbyfullydevelopingarobust,right-sizedandefficientpretrialassessmentandreleaseprogram.AnumberofothercountiesoperatesuchprogramsandcaninformRiversideCounty’sefforts.

5. Expandcosteffectivecommunity-basedcustodyalternatives,expandeffectivejailprogramstargetedtoreducejailrecurrenceandconsideranon-ormedium-securefacilityfortransitionalprogramsandprobationviolations.

Forindividualswhoare“citereleased”atbookingandsubsequentlysentenced,theSheriffoperatesarobustworkreleaseprogram,oftenserving2000individualstoworkonflexibledaysatvariousjobsitesinthecommunityasasanctionthroughouttheworkweek,andanoptionofelectronicmonitoringforanadditional200to250individuals.Forthosewhoareheldincustodyaspartoftheirsentence,theCorrectionsDivisionhasbeguntodevelopprogramsrootedinevidence-basedpracticesandtheSupervisedElectronicConfinementProgram(S.E.C.P.)servesapproximately90individuals.Stepsareunderwaytoincentivizeparticipationbygivingpriorityconsiderationfortheelectronicconfinementprogramtograduatesofin-custodyprograms.Still,capacityislimitedto140to180peopleandfederal“kicks”(mandatedreleases)underminetheabilitytoprovideincentivesforparticipation.Currentprogramsreachabout5percentofthetotaldailyjailpopulation.Thelackofprogramspace,thelackofprogramingthattakesplaceinjail,andtheinsufficientreentryplanningshouldbeaconcernfromapublicsafetyperspective,sincethevastmajorityofinmatesreturntothecommunitywithoutbeingadequatelyprepared.Amongtheopportunities:

• IncreasetheSheriff’scurrentjailprogramstoreachmoreinmates.

• Expandtheuseofelectronicmonitoringandaddmorecasemanagementsupportandsupervisiontoreferandmonitoreducational,vocational,skillbuildingandtreatmentprogramsinthecommunitywhileonelectronicmonitoring.Vocationalsupportandjobplacementisanundevelopedbutpromisingarea.Probationdoesnottraditionallybeginservicesuntilcustodyiscompleted.Butconsistentwithbestreentrypractices,theProbationDepartmenthasimplementedtheTransitionalReentryUnit(TRU)toassesscriminogenicneeds,developreentryplansandlinkoffenderstoappropriateservicesastheytransitionoutofcustody.TheTRUprogramwouldbeanexcellentcomplementtotheelectronicsupervisionprogram.AnotheralternativewouldbetodeveloppositionswithintheSheriff’sdepartmentorthroughcontractswithcommunity-basedorganizationstoprovidecasemanagementservices.Eitherway,thereshouldbecoordinatedpoliciesandprogramstoincentivizeparticipationandmotivationandprovideseamlesstransitionsfromjailtoelectronicmonitoringandfromthecompletionofelectronicmonitoringtoprobationsupervision.Buildingtheseincentivesintothesystemwillimprovethecultureinthejail,motivatepositivechange,improveaccountabilityinthecommunityandreducerecidivism.

• Understandingthatthelackofuseableprogramspaceisalimitingfactor,considerationshouldbegiventodevelopinganonorsemi-securefacilitythatcanmaximizeprogramsthroughareentryfocus.ATransitionalReentryFacility(TRF)hasbeenproposedbytheProbationDepartment,whichcouldbelinkedwiththeTRUprogramforsentencedoffendersandcouldintegratewellwiththeelectronicmonitoringcustodyprogram.Thismodelcouldreducerecidivism;improveemployment,education,andtreatmentoutcomes;and,linkincommunitypartnerstoprovideservices.

Essentiallythereareopportunitiestodevelopandcoordinateprogramsthatintegratewellwithanumberoflessrestrictivesettingsthanasecurejailfacility.Lessrestrictivealternativesarenotonlymorecost-effectivethansecurejailfacilities;theyalsocanbemoreeffectiveinproducingsustainablechangeandrecidivismreduction.

6. Developinterventionstoimprovementalhealthoutcomesandreducejailtimeforthementallyill.

Thedatasystemdoesnotprovideanadequateunderstandingofhowthementallyillpopulationimpactsthejail.Asaproxy,thisstudyuseddatafromthejailunitdedicatedtoindividualswithmentalhealthneedstoestimatejailusage.Basedonthisdata,itappearsthatmentallyilloffendersareincustodyforlongerperiodsoftimeforlessercrimes.Riversideshoulddevelopamorerobustsetofinterventionsformentalhealthpopulations,withaparticularfocusonthosediagnosedwithaseriousmentalillness.Someoptions:

• DevelopbetterdatasystemstomonitorservicesandtrackjailepisodesforoffenderssufferingfromSeriousMentalIllness(SMI)whocyclethroughjail.ThisdatacanbeusedinpartnershipwiththecountyBehavioralHealthDepartmenttodrawdownadditionalfederaldollarsforthosewithmentalhealthandsubstance

usedisorders.Thiswillalsohelpestablishbaselinestomeasureimprovementsandreductionsinjailepisodes.

• Continuemultidisciplinarystaffinginjailtoensurehighestqualityinterventionsformentalhealthpopulations.

• Developanassertivecasemanagementapproach,suchasForensicAssertiveCommunityTreatment,whichcreatespartnershipsamongprobation,corrections,lawenforcementandwithmentalhealthprofessionalstoreducecriminalsysteminvolvementfortheSMI.Thisprovenstrategycanresultinreducedjaildays,recidivismandanincreaseinfunctioningandstabilityinthecommunity.

7. WorkCollaborativelytobetteraddresssubstanceuseandabuse.Drugoffensesandrelatedcrimesareasignificantdriverofthejailpopulation.Whenlookingfortheunderlyingcrimeforallbookings,31percenthavetraditionallybeenfordrug-relatedcrimesandanumberofothercrimecategoriesmaybeinfluencedbyadrugaddiction,suchaspropertycrimes.Drugoffendersalsohavehadhighratesofrecidivismduetorelapseandcontinueddruguse.

PostProposition47,theseindividualsarespendinglesstimeinjailandmoretimeinthecommunity.Still,itwillbeimportanttoreducetheimpactsofdrugandalcoholabuseonjailusageaswellasthecommunity.BymaximizingfederalDrugMediCaldollarsthroughthe1115waiver,RiversideCountywillbeinabetterpositiontoaddresstheunderlyingissues.Anongoingcollaborativecouldmakesurethefundsareusedforcommunity-basedservicesthatimproveoutcomesforindividualsandreducethecostsassociatedwithre-incarceratingoffenderswithmentalhealthandsubstanceabuseproblems.

8. EstablishdedicatedJ-SCIpositionstoinstitutionalizeandbolstersystemchangeacrosscountydepartmentsandthejudiciary.

Thesuggestionsofferedaboveareelementsofwhatshouldbeasustainedsystemofcontinuousimprovement.Systemimprovementrequiresinformativedata,strategicanalysis,andcollaborationacrossagencies.Sucheffortsrequireamodestinvestmentinorganizationalinfrastructure–afunctionlargelysupportedandresourcedbyCAFwd’sJ-SCIteamoverthelastyear.Thismodestinvestmentiscriticaltoidentifyingandcapturingsignificantopportunitiestoreducecurrentandfuturecostsandimproveresults.Withoutsuchaninfrastructure,improvementeffortsaretypicallylimitedto–andlimitedby–departmentsilos.Theyaretrumpedbythe“urgency”ofdailyeventsthatleadtocostlyremediesbornefromcrisis.Andtheyareoverlydependentonindividualleaders,andthuslosemomentumorarediscontinuedasaresultoftransitionsinleadership.

TheJ-SCIprojectproducedthedatabaseusedforthisanalysis,whichdemonstratesthevalueofadata-basedapproachtoevaluatingtrendsandoutcomes.Thisdatabasecanbematuredanddeployedbythecounty’sdedicatedJ-SCIteam.Thedatasystemcouldbeguidedbyastaffcollaborativeinvolvingthecourts,probation,correctionalstaffandotherkeyagenciessuchasbehavioralandmentalhealth.Thecollaborative,forexample,should

meetregularlytoreviewinformationwiththecourtexpeditorandqualityassurancemonitor.ThisgroupwouldreporttoandadvisetheJ-SCIExecutiveSteeringCommittee.

ThegoalsoftheJ-SCIteam–tobuildcapacityforcontinuousdata-drivensystemchange,reducejailusagethroughpracticechangeandalternativestoincarceration;and,reduceoverallcostswhilepreservingpublicsafety–canbemanagedsothatoptionslikethosedescribedabovecanbeimplementedinwaysthatreducethecounty’soverallcostsandtoenablepublicresourcestobeusedtoprovidethemaximumpublicbenefit.

ConclusionThisanalysisrevealsanumberofpromisingopportunitiestoaddresschallengesfacingRiversideCounty’scriminaljusticesystem.Manyoftheseopportunitiesinvolvepracticeandpolicychangesthatcanbequicklyimplementedwithmodestinvestmentsthatgeneratenear-termcost-savings.Othersolutionsrequireamoresignificantinvestmentthatifimplementedwellwouldyieldmoresubstantialcostsavingsorcostavoidance,whilereducingrecidivismandjailusage.CaliforniaForwardremainsadedicatedpartnerasRiversideCountymovestothenextexcitingphaseoftheJ-SCI.

DataAppendexTable1:2014BookingsforNewCrimes,bySeverity,Grouping,andSub-type

Table2:2014PeopleReleasedbeforeArraignmentfornewCrimes,byCrimeTypeandAgency

*Doesnotincludeagencieswithfewerthan50releases(these150agenciesaccountfor500releases),foratotalof24,037

Table3:2014ReleaseReason,byseverity

Table4:AverageDailyPopulationandBookings,byCrimeTypes

Table5:FelonyReleasesandBedDaysbyDrugCrimeType,2014andfirst6monthsof2015

TechnicalAppendixMerginganddataManagementProcessThegoalistocreateaflexibledatastructurethatcansummarizeabooking,aswellasanalyzecharges,andcasestatus.Sincemanyofthebookingsincludenumerouspendingandadjudicatedcases,andoftencanhavemultipleholdingauthorities,severalassumptionsweremadetosummarizethebookingsandtakeintoaccountthebookingauthority,thereleasereason,andotherquantitativefactors.Thedevelopmentofthisdatasetused9separatedatatables:

1. BookingHistory

2. In-custodyandOutofCustody

3. FiledCharges

4. BookedCharges

5. ArrestRecord

6. Caseindex

7. ChargeStatus

8. Hold

Thesearelinkedusing5differentidentifiers:• BookingID(BKNUM):Definestheuniqueentryandexitintojail

• PersonID(XREF):Definesthepersonacrossbookings

• Case/CourtID(CasePTR):Thisdefinesthecourtgroupingofcases.Sincesomeonecanbecominginonmultiplecases,itgroupstheminthewaythecourtreceivesthem

Merge1:CombineincustodyandoutofcustodyinmatesonXREFintoonemasterfileMerge2:Bookinghistory,arrest,filedcharges,demographyonBKNUM,CASEPTR,andXREF.

Merge3:ExtractBookingswherechargeswerebookedonly,butnotfiledandmergeremainderontothefiledchargesinMerge#2.

Merge4:AttachChargeCodesTodeterminethemostseriouscharge(ifanewon-viewcharge),thegloballistofchargesinmergedwithalistofnumericalhierarchiestodeterminerelativeseverity,beyondtheFelony/Misdemeanorlevel.Forexample,ifsomeoneisbookedformurder(FelonyPC187)andshootingatabuilding(FelonyPC246),thenumericalhierarchywouldreturnmurderasthemostseriouscrimewhensummarizingthebooking.AneffortwasmadetoseparateFelonyseverity,butduetothesizeofthetable,misdemeanorsweregroupedtogetheriftheydidnotmatchthelist.Eachchargecodesectioncontainsinformationaboutthenatureofthechargeandseverity.UsingamasterlistfromtheDepartmentofJustice,thisapproachthenappendsinformation

thatleadstoeasiersummarization.SincechargesareenteredbytheDA/courtsonchargingdocuments,thejailmustusethoseinthesystemaswellasaccountforpastchargelistingandlogic.Theuseofspacing,parenthesis,andtyposcontributetosubstantialvariationwhenmerginglisttogetherbasedonseverity,codesection,andstatutecode.Tocreateasinglerowperbookingandsummarizetheauthorityforthebooking,thefollowinghierarchyisused.

1. AFreshArrestisthebookingreasonifaninmatehasnewon-viewcharges.

2. ACourtCommitmentifthecourtisauthorizingthebooking

3. AHoldifnonewchargesarepresent,suchaswarrantsorparoleholds

4. Otherisusedforvariousbookingsofoutsideagenciesorreasons.

Table6:VariablesAvailableNewVariable VariableDescription InoriginalDataset

CBKNUM UniqueIdentifieroftheBookinginthesystem Y

CXREF UniqueIdentifieroftheInmateinthesystem(?) YFacility LocationofBookingInRiverside Y

Gender Gender YDOB DOB Y

CZIP ZipCodeofInmateBeingBookedin YBookingagency BookingAgencyDescription Y

c_status ChargeStatus Y

Bookingauth BookingReason YFCODE ChargeCode(PC,VC,etc) Y

FSECTION ChargeSection YFCLASS ChargeLevel(F,M) Y

Releasemethod ReleaseReason Y

r_date ReleaseDateofinmateforthebooking Yb_date BookingintoFacilityDate Y

s_date SentenceDateonthecharge YAGYCASENO AGENCYCASENUMBER Y

CIDXCASENUM COURTCASENUMBER YArraigned Wasthepersonarraignedincustody? Y

Releasecat ReleasedTypesmappedto7Categories Created

Bookingcat BookinginTypesmappedto5Categories CreatedAgency_cat BookingAgencyTypesmappedto7Categories Created

status_cat ReleasedTypesmappedto7Categories CreatedAgeatbooking BookingintoFacilityDateminusDOB Calculated

LOS ReleaseDateminusBookingDate Calculatedcharge_id DerivedUniqueIDforeachCharge Createdb_charge_count CountofChargesoneachbooking CalculatedHighcharge HighestChargeSeverityforeachBookingacrossCharges Calculated

Table7:BookingReasons

JIMSBookingReason Type BookingCategoryBailsurrender–onview FrontDoor FreshArrestChildcustodycourtservices SideDoor Other(Transfers/Witness/ETC)Court SideDoor CourtCommitmentFugitivewarrant SideDoor HoldMaterialwitness SideDoor Other(Transfers/Witness/ETC)On-view FrontDoor FreshArrestOut-of-countywarrant SideDoor HoldRiversidewarrant SideDoor HoldSentencedcourtcommit SideDoor CourtCommitmentTransportationcourtorder SideDoor Other(Transfers/Witness/ETC)Un-sentencedcourtcommit SideDoor CourtCommitmentHold(spar,ice,etc) SideDoor Hold

TechnicalViolationsViolationType MethodProbation PC1203.2onlyandBookingtypeison-

viewParole PC3056onlyandBookingtypeison-viewPRCSviolation PC3456onlyandbookingtypeison-viewPRCSflash PC3454or3455andbookingtypeison-

BookingCategories Hierarchy

FreshArrest 1Hold 2CourtCommitment 3Other(Transfers/Witness/ETC) 4

Table8:ReleaseReasonsJIMSReleaseReason CategoryBailbond Bail/pre-trialreleaseBookedinerror OtherCashbail Bail/pre-trialreleaseCitation Timeserved/feespaid/citationCiteoutofCo.warrant Timeserved/feespaid/citationCourtorder Courtorderedrelease/chargedismissal/nopcCourtrelease Courtorderedrelease/chargedismissal/nopcCreditfortimeserved Timeserved/feespaid/citationCYA(releasedto) TransfertoanotheragencyCYA(sent.To) TransfertoanotheragencyDeceased OtherEarlyrelease Timeserved/feespaid/citationFederalCRTorder CapreleaseFTAweekender OtherHoldcleared HoldreleaseHold(spar,ice,etc) HoldreleaseLackofprobablecause Courtorderedrelease/chargedismissal/nopcNotarraigned/pc825 Courtorderedrelease/chargedismissal/nopcOwnrecognizance Bail/pre-trialreleasePc821/822 HoldreleasePc849 Courtorderedrelease/chargedismissal/nopcReleasetootheragency TransfertoanotheragencyStatehospital TransfertoanotheragencyStateprison TransfertoanotheragencyTimeserved Timeserved/feespaid/citationUSborderpatrol TransfertoanotheragencyUnknown OtherCountyParole OtherEscape(temp.Rel.Statusfor90days) OtherSignout OtherSecuredelectronicconfinementprogram Other

ReleaseCategories Transfertoanotheragency TimeServed/FeesPaid/Citation Bond/Pre-trialRelease CourtOrderedRelease/Charge

Dismissal

Other HoldRelease CapRelease

Table9:ChargeCodeMappingExample-FieldsinItalicscomefromJIMS

Severity OffenseGrouping OffenseType Hierarchy Code Section DescriptionF NarcoticsandDrugs OtherDrugLawViolations 59900 H&S 11352(B)X2 TRSPF/SALESSTHAN1OZF NarcoticsandDrugs OtherDrugLawViolations 59900 H&S 11352(C) TRSPF/SA1KILO(2.2LB)F NarcoticsandDrugs OtherDrugLawViolations 59900 H&S 11352.1(A) DISPENSEDRUGW/OLICF NarcoticsandDrugs OtherDrugLawViolations 59900 H&S 11352A TRSPF/SALESSTHAN1OZF NarcoticsandDrugs OtherDrugLawViolations 59900 H&S 11353X2 USINGMINORFORSALEF NarcoticsandDrugs OtherDrugLawViolations 59900 H&S 11353.1(1) SELLDRUGSNEARSCHOOLF NarcoticsandDrugs OtherDrugLawViolations 59900 H&S 11353.1(A)(2) SALESW/IN1000FTSCHL

F NarcoticsandDrugs OtherDrugLawViolations 59900 H&S 11353.6(B)SALECONTRSUBNEARSCHO

F NarcoticsandDrugs OtherDrugLawViolations 59900 H&S 11354(A)MINRGVNARCSUBSMINOR

F NarcoticsandDrugs Marijuana 58400 H&S 11357(A) POSSCONCENTCANNABISF NarcoticsandDrugs Marijuana 58400 H&S 11357(A)(1) POSSCONCENTCANNABIS

F NarcoticsandDrugs Marijuana 58400 H&S 11357(B)POSSMARIJ28.5GMLW/P

F NarcoticsandDrugs Marijuana 58400 H&S 11357(B)(1)POSSMARIJ28.5GMLW/P

F NarcoticsandDrugs Marijuana 58400 H&S 11357(B)(2) POSSMARIJ

F NarcoticsandDrugs Marijuana 58400 H&S 11357(C)POSSMARIJ0/1OZ/28.5GR

F NarcoticsandDrugs Marijuana 58400 H&S 11357(D)ADLTPOSSMARIGRNDSSCH

F NarcoticsandDrugs Marijuana 58400 H&S 11357A POSSCONCENTCANNABIS

F NarcoticsandDrugs Marijuana 58400 H&S 11357BPOSSMARIJ28.5GMLW/P

F NarcoticsandDrugs Marijuana 58400 H&S 11358(A)CUL/MARIJ(50-199PLANTS)

F NarcoticsandDrugs Marijuana 58400 H&S 11359X3 POSSMARIJFORSALEF NarcoticsandDrugs Marijuana 58400 H&S 11359X4 POSS/SALE/TRANSMARIJF NarcoticsandDrugs Marijuana 58400 H&S 11359X2 POSS/SALE/TRANSMARIJF NarcoticsandDrugs Marijuana 58400 H&S 11359(A) POSS/SALE/TRANSMARIJF NarcoticsandDrugs Marijuana 58400 H&S 11359(B) POSS/SALE/TRANSMARIJ

F NarcoticsandDrugs Marijuana 58400 H&S 11359(F)POSSMARIJUANA/HASHSALE

F NarcoticsandDrugs Marijuana 58400 H&S 11360APOSS/SALE/TRANSOFMARIJ

F NarcoticsandDrugs Marijuana 58400 H&S 11360(A)POSS/SALE/TRANSOFMARIJ

F NarcoticsandDrugs Marijuana 58400 H&S 11360(A)X2POSS/SALE/TRANSOFMARIJ

TechnicalRecommendations1. Compileandmaintainananalytic“datadictionary”toaidanalysisand

interpretation.Adatadictionarydescribeshowoperationaldataisinterpreted,thenusedinaggregatetodescribethejailsystem.Thiswillcreateaunifiedviewofthejailsystem’soperationaldatawhichwillaidininterpretation.Thiswillalsopromoteacommonsetoftermsforbasicjailmanagementamountsandcountythatcanbeusedacrossthecounty.Further,itwillprovideaframeworkforagreeingoncategoriesandtypesofbookingsandreleases.Thetechnicalappendixlaysoutthedatastructure,queryandorganizingprinciplesusedforthisinitiallyreport.

2. ImplementaRiversidecountychargecodetabletomapchargesandcrimeconsistentlyatthepointofentryintothejailmanagementsystem.Sincethejailmustenterchargesastheyaregiventothematthepointofbookingorfiling,havingthecountyuseasinglelistofchargeswillhelponpartofthesystemincleaningandmaintainchargedata.Thismasterlistcanthenincludeattributesabouteachcharge,suchascrimetype,relativeseriousness,orotherdescriptiveinformationthatwillaidanalysisinanautomatedway.

3. Developapproachestomergeandshareuniquecountyidentifiertotrackpeopleacrosscountysystems.CommonidentifierssuchasCIIcanbeusedtounderstandwhatresourcesoffendersusethroughouttheRiversidesystem.Althoughmanualdatacollectioncandothesamepurpose,itislaborintensiveandnoteasilydonewithacountyofRiverside’ssize.Bookingidentifiersmaybetheeasiestwaytoshareinformation.

4. Usedata“freezes”tolookatthehistoricaldatausingaconsistentmultipurposedataset.Byusinghistoricalbookingandreleasedata,jailmanagerscanlookdatathatallowsforconsistentmeasurement.Afreezewouldincludeallbookingsthathavebeenclosedorreleased,aswellasthosethatarecurrentlyincustody.

5. Developasingledaysnapshotofthein-custodypopulation.Sinceabookingandreleasefileonlytellspartofthestoryofthejail,amorenuancedviewwouldinvolvethejailpopulationsstatusonagivenday,suchassentenced/un-sentenced,housingunits,andcourthearingstatus.Ideally,thissnapshotwouldbeautomatedtocreateanongoingarchiveforanalysis

6. Developbaselineorconsistentreportstomonitorprogress,andstandingteamtoanalyzeanddiscuss.Developingateamthatroutinelygoesoverreports,assuresqualityofdata,andthenmatchesdatareportswithoperationalrealitiesgivesjailmanagementanongoingresourcetostandardizereportsandinformationtoleadership,andbetterusesstafftimeinstandardizingreportexpectations.Standardreportingthenallowsforautomation.

7. Createindicatorsformentalhealthandserviceneedsusingexistingdiagnostictools.Withtheuseofpre-trialtoolsandotherbehavioralhealthdiagnostics,thereisbetterabilitytoaccuratelypredictandmanagetheneedsofbehavioralhealthissues.Thisdatadoesn’tneedtobeusedforcasemanagement,butinsteadinaggregateforms.

8. Developasecondarydatabaseofprogramreferralsrunbythejail.Sincenotallprogramreferralssuchasworkrelease,orotherpartnershipswithagenciesare“released”fromsheriffcustodyadministratively,itisdifficulttotelltheeffectsofusingtoolssuchasEMorworkfurloughinthedata.

9. Developanindictorusingadateorotherflagtoindicatesomeonechangingstatusfromun-sentencedtosentenced.Theexistingdatasetdoesn’thaveawaytoclearlydifferentiatesomeone,whileincustody,movesfromawaitingadjudicationtoasentencedperson.Thismakesitchallengingtoclearlydifferentiatethechangeinlegalstatus,whichcanmeandifferentpolicyoptions.Althoughjailmanagerscanlookatanindividualandseetheirstatusonagivendaybytallying,aggregatehistoricaldataisusuallyonlyabletolookatoffendersstayatthepointofentry(bookingauthority)andthepointofexit(releasereason).Althoughdateflagsdoexistforcertaincharges,themovementofsomeonefromun-sentencedtosentencedwouldbeabetterindicatorsinceaninmatemayhavemultiplecasespending.

10. DevelopanindicatorofProbationstatusattimeofbookings,eitherfortechnicalviolationorwithnewcrimesattached.Thecurrentsetupmakesitdifficulttoconsistentlyidentifyviolationssincetherecanbemultipleflagsoridentifiers,suchasa1203.2withanewcrime,a1203.2along,orsomeonecominginonawarrantattachedtoaprobationviolation.Thiswouldalsoincludetheunderlyingcrimefortheviolator,whichwouldrequireabetterinformationanddatasharingbetweenprobationandtheSherriff’soffice.

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