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JusticeSystemChangeInitiative-RiversideCountyJailUtilizationReport
ScottMacDonaldKevinO’Connell
December9,2015
Justice System Change Initiative (JSCI) A Project of CaliforniaForward11079thStreet,Suite650Sacramento,CA95814
www.cafwd.org
CaliforniaForwardissupportedbygrantsfromTheWilliamandFloraHewlettFoundation,TheJamesIrvineFoundationandtheDavidandLucilePackardFoundation.
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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
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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
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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.
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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.
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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.
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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
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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.
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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.
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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.
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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
ADP
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.
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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)
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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
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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
6.1%
3.5%
0.9%0.4% 0.2% 0.2% 0.1% 0.1%
0.0%
1.0%
2.0%
3.0%
4.0%
5.0%
6.0%
7.0%
34,965NewCrimes
59,363Booked
59,363Booked
ü Nearly90percentofnewcrimebookingsarenon-violent
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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
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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
0.0%
5.0%
10.0%
15.0%
20.0%
25.0%
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
RiversideJUS Page 17 of 50
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
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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
6%
CrimesAgainstPersons44%
NarcoDcsandDrugs30%
PropertyOffenses19%
NewCrimesADP:1994
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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,
27%
PropertyOffenses,135,
18%
ü Sidedoorjailentriesarenotinfluencedbycrimetypeorseverity
ü Nearlytwothirdsofthejailpopulationispendingtrial
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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
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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
9,165
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
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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
95.3
32.3
32.3
46.6
28.8
36.3
27.9
25.0
20.4
20.5
35.6
35.6
12.4
27.5
16.2
20.7
12.5
11.5
0 20 40 60 80 100 120 140
CourtCommitment
Hold/Other
Narco?csandDrugs
PropertyOffenses
Alcohol
AllOthers
CrimesAgainstPersons
Warrant
Viola?on
2014ALOS
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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
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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
RiversideJUS Page 25 of 50
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
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PercentageofTotalBedDaysbyInmatesReleasedin2009,Rebookedby2014
Clearly,recidivismisakeydriverofjailutilization.Notallindividualswererebookedbasedonanewlawviolation,howeverCourtholds,probationviolations,andother“sidedoor”entriesrepresented59percentofrebookings.Thisrepresentsatotalannualjailbedusageofover1.2millionjailbeddays.
Asshownearlierinthisreport,“sidedoor”inmatesmakeupalargepartofthejailpopulation.Thismayinpartbeduetothefactthat,unlikeanarrestonanewoffense,
57%
10%
43%
90%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
PercentofTotalCohort PercentofCohortJailUsage
Individualswhowererebookedoneormore/mesfollowingini/alreleasein2009
Individualswhowerenotrebookedfollowingini/alreleasein2009
2,150,579JailBed
DaysWereUsedByRebookedIndividuals
SideDoors59%
FrontDoors41%
SideDoors FrontDoors
2,135,807subsequentJailBedDaysusedbythosereleasedin2009
ü 59percentofjailrebookingsof2009cohortwerenotfornewcrimes
RiversideJUS Page 27 of 50
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
1.8$
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$Health$
78$
0$
10$
20$
30$
40$
50$
60$
70$
80$
90$2014$Average$Length$of$Stay$
All$Others$ Mental$Health$
ü Mentallyillindividualsarebookedmoreoftenandstaylongerthanotherinmates
RiversideJUS Page 28 of 50
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
28%$
20%$
15%$ 14%$
9%$ 8%$
5%$
1%$0%$
5%$
10%$
15%$
20%$
25%$
30%$
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
RiversideJUS Page 29 of 50
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$6326$
1662$
7530$
0$
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
RiversideJUS Page 30 of 50
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.
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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
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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.
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• 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
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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
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meetregularlytoreviewinformationwiththecourtexpeditorandqualityassurancemonitor.ThisgroupwouldreporttoandadvisetheJ-SCIExecutiveSteeringCommittee.
ThegoalsoftheJ-SCIteam–tobuildcapacityforcontinuousdata-drivensystemchange,reducejailusagethroughpracticechangeandalternativestoincarceration;and,reduceoverallcostswhilepreservingpublicsafety–canbemanagedsothatoptionslikethosedescribedabovecanbeimplementedinwaysthatreducethecounty’soverallcostsandtoenablepublicresourcestobeusedtoprovidethemaximumpublicbenefit.
ConclusionThisanalysisrevealsanumberofpromisingopportunitiestoaddresschallengesfacingRiversideCounty’scriminaljusticesystem.Manyoftheseopportunitiesinvolvepracticeandpolicychangesthatcanbequicklyimplementedwithmodestinvestmentsthatgeneratenear-termcost-savings.Othersolutionsrequireamoresignificantinvestmentthatifimplementedwellwouldyieldmoresubstantialcostsavingsorcostavoidance,whilereducingrecidivismandjailusage.CaliforniaForwardremainsadedicatedpartnerasRiversideCountymovestothenextexcitingphaseoftheJ-SCI.
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DataAppendexTable1:2014BookingsforNewCrimes,bySeverity,Grouping,andSub-type
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Table2:2014PeopleReleasedbeforeArraignmentfornewCrimes,byCrimeTypeandAgency
*Doesnotincludeagencieswithfewerthan50releases(these150agenciesaccountfor500releases),foratotalof24,037
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Table3:2014ReleaseReason,byseverity
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Table4:AverageDailyPopulationandBookings,byCrimeTypes
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Table5:FelonyReleasesandBedDaysbyDrugCrimeType,2014andfirst6monthsof2015
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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.
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Merge3:ExtractBookingswherechargeswerebookedonly,butnotfiledandmergeremainderontothefiledchargesinMerge#2.
Merge4:AttachChargeCodesTodeterminethemostseriouscharge(ifanewon-viewcharge),thegloballistofchargesinmergedwithalistofnumericalhierarchiestodeterminerelativeseverity,beyondtheFelony/Misdemeanorlevel.Forexample,ifsomeoneisbookedformurder(FelonyPC187)andshootingatabuilding(FelonyPC246),thenumericalhierarchywouldreturnmurderasthemostseriouscrimewhensummarizingthebooking.AneffortwasmadetoseparateFelonyseverity,butduetothesizeofthetable,misdemeanorsweregroupedtogetheriftheydidnotmatchthelist.Eachchargecodesectioncontainsinformationaboutthenatureofthechargeandseverity.UsingamasterlistfromtheDepartmentofJustice,thisapproachthenappendsinformation
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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
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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-
view
BookingCategories Hierarchy
FreshArrest 1Hold 2CourtCommitment 3Other(Transfers/Witness/ETC) 4
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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
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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
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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.
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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.