Volume 78 No. 30 November 3, 2007
The New Essential
This latest addition to the Oklahoma Practice Series compiles coverage of all applicable family law caselaw and statutes in a single volume. It offers practice tips, checklists and essential forms, as well as Child Support Guidelines. It is a “must have” for anyone who occasionally or consistently practices in this area. ALSO INSIDE About the author . . . • Meet This Year’s Award Winners A former president of the Oklahoma Bar Association, Melissa DeLacerda has • 2008 Committee Sign-Up Form over 25 years of private practice experience, with heavy emphasis on family law. • New Member Benefit Announced She received her J.D. with honors from the University of Tulsa College of Law.
For more information, please call 1-800-762-5272
© 2007 West, a Thomson business L-330490/6-07
Vol. 78 — No. 30 — 11/3/2007 IncarcerationThe Oklahoma Bar JournalAlternatives 2801 Calendar of Events OBA CLE Seminars
NOV. 30 – OKC DEC. 12 – OKC IT’S TIME TO GROW YOUR RETIREMENT Advanced Estate Planning 2007 DEC. 13 – TULSA The Winner’s Circle: An Evening Where in the World is Atticus Finch of Ethics, Food & Racing Fun in 2007? Ethics, Professionalism, and Civility in the Practice of Law
DEC. 6 – OKC 22nd Annual Advanced Bankruptcy DEC. 19 – OKC Seminar: A Centennial Year’s DEC. 20 – TULSA Retrospective and Prospective View The 5th Annual Legal Ethics Musical of Bankruptcy - Day 1 - A Singing Centennial Celebration
DEC. 6 – TULSA DEC. 20 – OKC DEC. 13 – OKC DEC. 21 – TULSA Recent Developments Day 1 Darrow - Attorney for the Damned
DEC. 7 – OKC DEC. 14 – TULSA Legal professionals know that growing a future begins now. 22nd Annual Advanced Bankruptcy DEC. 21 – OKC A good start is selecting the right resource for a retirement plan Seminar: A Centennial Year’s for your firm. Your best option may be the cost-effective program Retrospective and Prospective View Litigation and Trials in the Digital Age that was created by lawyers for lawyers, and run by experts. of Bankruptcy - Day 2 ABA Retirement Funds has been providing tax qualified plans for over 40 years. Today our program offers full service solutions DEC. 7 – TULSA including plan administration, investment flexibility and advice. DEC. 14 – OKC Now we also offer our new Retirement Date Funds that regularly Recent Developments Day 2 rebalance the fund’s assets based on your selected target Check registration retirement date. Plus, our program now accepts Roth 401(k) contributions from profit sharing plans that currently offer a times at 401(k) feature. Isn’t it time to start growing your future with Please visit the ABA www.okbar.org the ABA Retirement Funds? Retirement Funds Booth at the upcoming You may register LEARN HOW YOU CAN Call an ABA Retirement Funds Consultant at Oklahoma Bar Association GROW YOUR FUTURE WISELY 1-877-945-2272 www.abaretirement.com online at Annual Meeting for a free www.okbar.org GET A FREE PLAN COST COMPARISON cost comparison and Is your plan as cost-effective as it could be? plan evaluation. or call Just call 1-877-945-2272 for a custom cost comparison 405.416.7006 November 7-9, 2007
Sheraton Hotel, Oklahoma City, OK
For a copy of the Prospectus with more complete information, including charges and expenses associated with the Program, or to speak to a Program consultant, call 1-877-945-2272, or visit www.abaretirement.com or write November & December ABA Retirement Funds P.O. Box 5142 • Boston, MA 02206-5142 • [email protected]. Be sure to read the Prospectus carefully before you invest or send money. The Program is available through the Oklahoma Bar Association as a member benefit. However, this does not constitute, and is in no way a recommendation with respect to any security that is available through the Program. 11/2006 IT’S TIME TO GROW YOUR RETIREMENT
Legal professionals know that growing a future begins now. A good start is selecting the right resource for a retirement plan for your firm. Your best option may be the cost-effective program that was created by lawyers for lawyers, and run by experts. ABA Retirement Funds has been providing tax qualified plans for over 40 years. Today our program offers full service solutions including plan administration, investment flexibility and advice. Now we also offer our new Retirement Date Funds that regularly rebalance the fund’s assets based on your selected target retirement date. Plus, our program now accepts Roth 401(k) contributions from profit sharing plans that currently offer a 401(k) feature. Isn’t it time to start growing your future with Please visit the ABA the ABA Retirement Funds? Retirement Funds Booth at the upcoming LEARN HOW YOU CAN Call an ABA Retirement Funds Consultant at Oklahoma Bar Association GROW YOUR FUTURE WISELY 1-877-945-2272 www.abaretirement.com Annual Meeting for a free GET A FREE PLAN COST COMPARISON cost comparison and Is your plan as cost-effective as it could be? plan evaluation. Just call 1-877-945-2272 for a custom cost comparison November 7-9, 2007
Sheraton Hotel, Oklahoma City, OK
For a copy of the Prospectus with more complete information, including charges and expenses associated with the Program, or to speak to a Program consultant, call 1-877-945-2272, or visit www.abaretirement.com or write ABA Retirement Funds P.O. Box 5142 • Boston, MA 02206-5142 • [email protected]. Be sure to read the Prospectus carefully before you invest or send money. The Program is available through the Oklahoma Bar Association as a member benefit. However, this does not constitute, and is in no way a recommendation with respect to any security that is available through the Program. 11/2006 The New Essential
This latest addition to the Oklahoma Practice Series compiles coverage of all applicable family law caselaw and statutes in a single volume. It offers practice tips, checklists and essential forms, as well as Child Support Guidelines. It is a “must have” for anyone who occasionally or consistently practices in this area.
About the author . . . A former president of the Oklahoma Bar Association, Melissa DeLacerda has over 25 years of private practice experience, with heavy emphasis on family law. She received her J.D. with honors from the University of Tulsa College of Law.
For more information, please call 1-800-762-5272
© 2007 West, a Thomson business L-330490/6-07 Litigation support Discovery Forensics covercover YOURYOUR ASSETSASSETS
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Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2801 Mark Your Calendar and Register Today ANNUAL CRIMINAL LAW SECTION LUNCHEON Petroleum Club - 100 North Broadway, Oklahoma City Wednesday, November 7, 2007, 12:00 - 1:30 p.m.
David Iglesias, former United States Attorney, has graciously accepted our invitation to be the guest speaker at the Annual Criminal Law Section Luncheon to be held at the Petroleum Club on Wednesday, November 7th dur- ing the annual meeting of the Oklahoma Bar Association. Seating is limited so register today! The delicious luncheon menu includes a salad, hali- but and chicken, Petro potato and vegetable, rolls, crème brulee cheesecake with fresh berries and chocolate sauce, coffee, tea and water.
Registration Form
Last Name (Print) ______First Name ______Address ______City ______State ______Zip ______E-Mail ______Phone (___)______Fax ( __ )______OBA Number: ______
Registration (Check appropriate boxes): [ ] $18 - Criminal Law Section Member attending the luncheon [ ] $25 after Nov. 1st [ ] $20 per guest if accompanied by a member. Guest Name: ______[ ] $30 - Nonmember (includes section membership for 2008) $____ Total Enclosed
Payment (Select One): Check ___ Visa ___ MasterCard ___ Card #______Exp. Date ______
Signature required ______
Remit form and payment to Jenny Barrett, Membership Coordinator OBA, PO Box 53036, Oklahoma City, OK. 73152 or fax to (405) 416-709
2802 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 DEPARTMENTS HEME T : 2804 From the President DIVERSION PROGRAMS 2882 From the Executive Director INCARCERATION ALTERNATIVES 2884 Law Practice Tips Editor: Judge Lori Walkley 2887 Ethics/Professional Responsibility 2888 OBA Board of Governors Actions 2892 Oklahoma Bar Foundation News contents 2894 Access to Justice November 3, 2007 • Vol. 78 • No. 30 2896 Young Lawyers Division 2899 Calendar 2901 For Your Information 2903 Bench and Bar Briefs 2908 In Memoriam 2883 Editorial Calendar 2912 The Back Page
pg. 2807 pg. 2842 Award Winners
FEATURES PLUS 2807 Oklahoma Drug Courts: 2842 Annual Meeting Fighting Addictions & Changing Behaviors 2877 New Member Benefit Announced 2815 Family Drug Courts 2878 Committee Invites Review of Proposed Code of Judicial Conduct 2823 Mental Health Courts 2879 2008 Committee Sign-Up Form 2829 A Prosecutor’s Viewpoint on Community Sentencing: 2880 Custer County Bar Association Hosts Public Safety Comes First OBA Board of Governors 2833 AAP: Procedural View from a Defense Attorney 2837 Community Sentencing: A Judicial Perspective pg. 2877 Member Benefit
Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2803 FROM THE PRESIDENT
The Good that Lawyers Do By Stephen Beam
As all of you know, when a lawyer commits a month, the Young Lawyers Division crime or is being subjected to discipline, the press is quick is planning a will signing at the to cover it. These things make front page news “above the Oklahoma County Jail. The young fold,” as I have learned to say from Carol Manning, and lawyers will be present at the vari- appear on the evening news. However, the press is not ous shift changes to be available to nearly as quick to cover the good things we do. the maximum number of law enforcement personnel on that date. Last year, I decided a great service project for the Okla- Future will signings will take place homa Bar Association to undertake was the Wills for in Tulsa and rural areas of the state. Heroes program. The program is designed to provide free- of-charge wills, powers of attorney and advance directives Partially through the efforts of our to firefighters and law enforcement personnel Young Lawyers Divi- across the state. I assigned this task to the sion, the ABA Young OBA’s public service arm, the Young Law- Lawyers Division has yers Division. Chris Camp, this year’s YLD The OBA… made the Wills for chair, was quick to embrace this program. He Heroes project its asked Lindsey Willis Andrews and Rick Rose is ahead of national public service to co-chair this program. Chris has agreed to the curve project. Our young serve as the Tulsa County coordinator begin- lawyers have received ning in January when his term as YLD chair nationally. an ABA sub-grant to ends. assist with the imple- mentation of this pro- Since this is a new program, it took several gram. Once again, the months to get it off the ground. Training sessions have OBA, and in particular our Young now been held both in Oklahoma City and Tulsa. Approxi- Lawyers Division, is ahead of the mately 15 young lawyers are trained to prepare wills and curve nationally. other estate planning documents. A DVD featuring Mark Osby of Yukon is being used in these training sessions. I personally attended the Fraternal Mark prepared the intake sheet and will drafting forms. Order of Police will signing. I want to let you know the law enforcement The effort necessary to make this program a success is officers were truly grateful for this tremendous. Our young lawyers first make contact with service. I think it is always good for the various fire and law enforcement departments to dis- lawyers to meet with and interact cuss the program. Intake sheets are then personally with police officers and firefighters distributed by the young lawyers. Questions are then other than in a professional setting answered about the intake sheets and documents to at the courthouse. be prepared. On the day of the will signings, the young lawyers meet personally with each individual As you know, many people do not about the will or other estate planning documents. have wills or other estate planning The documents are then prepared, produced and documents. There is a great need for executed on the spot. This is an unbelievable public this service. I want to thank Lindsey, service project. Chris, Rick and Mark for their out- standing efforts in this area. You GableGotwals and Echols & Associates provided make all of us look good. The media the computers and printers necessary to prepare the has not been quick to embrace this documents at the various will signings. I want to project, but the Communications thank both of these law firms for their generous con- Department is continuing efforts to tributions. Miller Dollarhide has provided a legal publicize these events. I wanted to assistant, Maranda Miles, at all will signings to nota- let you know about the efforts of the President Beam rize the documents and assist in other ways. practices in Young Lawyers Division in general Weatherford. To date, will signings have taken place at the and the young lawyers I mentioned [email protected] Yukon Fire Department and at the Fraternal Order of above in particular. Please tell them (580) 772-2900 Police Lodge in Oklahoma City. Within the next thank you when you see them.
2804 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 OFFICERS & BOARD OF GOVERNORS Stephen D. Beam, President, Weatherford J. William Conger, President-Elect, Oklahoma City EVENTS CALENDAR Jack S. Dawson, Vice President, Oklahoma City William R. Grimm, Immediate Past President, Tulsa NOVEMBER Julie E. Bates, Oklahoma City Dietmar K. Caudle, Lawton 7-9 OBA 103rd Annual Meeting; Sheraton Hotel, One North Broadway, Cathy M. Christensen, Oklahoma City Oklahoma City Donna L. Dirickson, Weatherford Robert S. Farris, Tulsa 8 OBA Board of Governors Meeting; Sheraton Hotel, One North Brian T. Hermanson, Ponca City Broadway, Oklahoma City; Contact: John Morris Williams (405) 416-7000 Michael W. Hogan, McAlester R. Victor Kennemer III, Wewoka OBF Board of Trustees Meeting; Sheraton Hotel, One North Broadway, Deborah A. Reheard, Eufaula Oklahoma City; Contact: Nancy Norsworthy (405) 416-7070 Robert B. Sartin, Tulsa 12 Veteran’s Day (State Holiday) Alan Souter, Bristow Peggy Stockwell, Norman 14 Ginsburg Inn of Court; 5 p.m.; Oklahoma Bar Center, Oklahoma City; Christopher L. Camp, Tulsa, Chairperson, Contact: Julie Bates (405) 691-5080 OBA/Young Lawyers Division 16 Statehood Day (State Holiday) BAR CENTER STAFF John Morris Williams, Executive Director; 19 OBA Alternative Dispute Resolution Section Meeting; 4 p.m.; Dan Murdock, General Counsel; Donita Bourns Oklahoma Bar Center, Oklahoma City and Tulsa County Bar Center, Tulsa; Douglas, Director of Educational Programs; Contact: Larry Yadon (918) 595-6607 Carol A. Manning, Director of Public Information; 22-23 Thanksgiving Holiday (State Holiday) Craig D. Combs, Director of Administration; Gina L. Hendryx, Ethics Counsel; Jim Calloway, 28 OBA Clients’ Security Fund Committee Meeting; 2 p.m.; Oklahoma Director of Management Assistance Program; Rick Bar Center, Oklahoma City and Tulsa County Bar Center, Tulsa; Contact: Loomis, Director of Information Systems; Beverly S. Micheal Salem (405) 366-1234 Petry, Administrator MCLE Commission; Jane McConnell, Coordinator Law-related Education; Janis Hubbard, First Assistant General Counsel; DECEMBER Mark Davidson, Loraine Dillinder Farabow and Janna D. Hall, Assistant General Counsels; Robert 4 OBA Bar Center Facilities Committee Meeting; 9 a.m.; Oklahoma D. Hanks, Senior Investigator; Sharon Orth and Bar Center, Oklahoma City and Tulsa County Bar Center, Tulsa; Contact: Dorothy Walos, Investigators Bill Conger (405) 521-5845 Nina Anderson, Manni Arzola, Jenn Barrett, 6 OBA Legal Intern Committee Meeting; 3:30 p.m.; Oklahoma Bar Debbie Brink,Melissa Brown, Brenda Card, Center, Oklahoma City; Contact: H. Terrell Monks (405) 733-8686 Sharon Dotson, Johnny Marie Floyd, Matt Gayle, 12 State Legal Referral Service Task Force Meeting; 1 p.m.; Susan Hall, Brandon Haynie, Suzi Hendrix, Misty Hill, Debra Jenkins, Durrel Lattimore, Heidi Oklahoma Bar Center, Oklahoma City and Tulsa County Bar Center, Tulsa; McComb, Renee Montgomery, Wanda Reece- Contact: Dietmar Caudle (580) 248-0202 Murray, Tracy Sanders, Mark Schneidewent, 14 OBA Family Law Section Meeting; 3 p.m.; Oklahoma Bar Center, Dana Shelburne, Robbin Watson,Laura Willis & Oklahoma City and OSU Tulsa; Contact: Donelle Ratheal (405) 842-6342 Roberta Yarbrough OBA Board of Governors Meeting; Oklahoma Bar Center, Oklahoma EDITORIAL BOARD Editor in Chief, John Morris Williams City ; Contact: John Morris Williams (405) 416-7000 News & Layout Editor, Carol A. Manning 25 Christmas Day (State Holiday) Editor, Melissa DeLacerda, Stillwater Associate Editors: Steve Barnes, Poteau; Martha Rupp Carter, Tulsa; Mark Curnutte, Vinita; Luke Gaither, Henryetta; D. Renee Hildebrant, Oklahoma City; John Munkacsy, Lawton; Julia For more events go to www.okbar.org/news/calendar.htm Rieman, Enid; James Stuart, Shawnee and Judge Lori M. Walkley, Norman The Oklahoma Bar Association’s offi cial Web site: www.okbar.org NOTICE of change of address (which must be in THE OKLAHOMA BAR JOURNAL is a publication of the Oklahoma Bar writing and signed by the OBA member), unde- Association. All rights reserved. Copyright© 2007 Oklahoma Bar Association. liverable copies, orders for subscriptions or ads, The design of the scales and the “Oklahoma Bar Association” encircling the news stories, articles and all mail items should be scales are trademarks of the Oklahoma Bar Association. Legal articles carried sent to the Oklahoma Bar Association, P.O. Box in THE OKLAHOMA BAR JOURNAL are selected by the Board of Editors. 53036, Oklahoma City, OK 73152-3036. THE OKLAHOMA BAR JOURNAL (ISSN 0030-1655) IS PUBLISHED FOUR TIMES A Oklahoma Bar Association (405) 416-7000 MONTH IN JANUARY, THREE TIMES A MONTH IN FEBRUARY, MARCH, APRIL, Toll Free (800) 522-8065 FAX (405) 416-7001 MAY, AUGUST, SEPTEMBER, OCTOBER, NOVEMBER AND DECEMBER AND BI- Continuing Legal Education (405) 416-7006 MONTHLY IN JUNE AND JULY EFFECTIVE JAN. 1, 2003. BY THE OKLAHOMA BAR Ethics Counsel (405) 416-7083 ASSOCIATION, 1901 N. LINCOLN BOULEVARD, OKLAHOMA CITY, OKLAHOMA General Counsel (405) 416-7007 73105. PERIODICALS POSTAGE PAID AT OKLAHOMA CITY, OK. POSTMASTER: Law-related Education (405) 416-7005 SEND ADDRESS CHANGES TO THE OKLAHOMA BAR ASSOCIATION, P.O. BOX Lawyers Helping Lawyers (800) 364-7886 53036, OKLAHOMA CITY, OK 73152-3036. SUBSCRIPTIONS ARE $55 PER YEAR EX- Mgmt. Assistance Program (405) 416-7008 CEPT FOR LAW STUDENTS REGISTERED WITH THE OKLAHOMA BAR ASSOCIA- Mandatory CLE (405) 416-7009 TION, WHO MAY SUBSCRIBE FOR $25. ACTIVE MEMBER SUBSCRIPTIONS ARE IN- OBJ & Public Information (405) 416-7004 CLUDED AS A PORTION OF ANNUAL DUES. ANY OPINION EXPRESSED HEREIN Board of Bar Examiners (405) 416-7075 IS THAT OF THE AUTHOR AND NOT NECESSARILY THAT OF THE OKLAHOMA BAR ASSOCIATION, OR THE OKLAHOMA BAR JOURNAL BOARD OF EDITORS. Oklahoma Bar Foundation (405) 416-7070
Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2805 2806 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 Diversion Programs Oklahoma Drug Courts: Fighting Addictions & Changing Behaviors By Michael Tupper
klahoma’s drug courts are working. From the inception of the first drug court in Payne County in 1995, to the now Onearly 40 operational drug courts statewide, this thera- peutic court system has transformed from a grass roots move- ment of “specialized courts” to an institutionalized way of doing business in the Oklahoma criminal justice system. Drug courts represent the coordinated efforts of the judiciary, prosecution, defense bar, probation, law enforcement, treatment, mental health and social services to forcefully intervene and break the cycle of substance abuse, addiction and crime.
By focusing on intensive drug treatment, daily attorneys well in representing their clients, supervision and a demand for offender account- because a good understanding of the overall ability, drug courts offload non-violent felony drug court process is essential for attorneys to offenders from the traditional court system effectively and competently advise their clients and places them into a highly structured, ther- who may be appropriate candidates for the apeutic system designed to achieve total absti- program. Making use of the resources that nence, reduce recidivism and save taxpayer drug courts have to offer will benefit all Okla- money. homans by effectively and efficiently treating drug addicts, changing their behaviors and While drug courts have achieved a secure slowing the traditional revolving door of drug place in the Oklahoma criminal justice system, offenders into the criminal justice system. many lawyers are still unfamiliar with the overall scheme of drug courts. The purpose of WHAT IS A DRUG COURT? this article is to provide attorneys with a gen- Oklahoma’s drug court initiative grew with eral overview of the drug court system, includ- the passage of the Oklahoma Drug Court Act ing the identification of eligible offenders, an in 1997.1 This Act provided broad powers to the explanation of program requirements, and a district courts in administering the drug court clarification of graduation and termination cri- programs. Under Oklahoma law, a drug court teria. Following this overview, some recent is defined as an immediate and highly struc- developments in the law, as it pertains to drug tured judicial intervention process for sub- courts, will be discussed. This article will con- stance abuse treatment of eligible offenders, clude with some statistics highlighting the which expedites the criminal case and requires long-term outcomes attributable to drug courts. successful completion of the plea agreement in It is my hope that this information will serve lieu of incarceration.2 The typical “drug court
Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2807 To this end, ongoing judicial interaction with each drug court participant is imperative.
team” consists of a judge, prosecu- ecutor and defense counsel must tor, defense attorney, treatment shed their traditional adversarial provider, law enforcement repre- courtroom relationship and work sentative, probation officer and together as a team. In doing so, social worker. Each team member prosecution and defense counsel provides an essential ingredient to promote public safety as well as the overall program’s success. The protect participants’ due process drug court team typically meets rights. Once an offender is accept- weekly, assesses participants’ ed into the drug court program, progress and decides as a group the team’s focus is shifted to the on the next course of action for offender’s recovery and law- each participant. abiding behavior, not on the merits of the pending case.5 It is impor- Prior to entering drug court, tant for eligible offenders to be each participant must plead guilty identified early and placed into the to their underlying offense and drug court as efficiently as possi- execute a performance contract ble. Diligent placement of offend- with the drug court team. This ers into a drug court program is performance contract binds the necessary to circumvent the addic- participant to the program require- tive mindset giving rise to criminal ments, which include weekly court behavior. In addition, rapid and appearances, random drug testing effective judicial action provides and daily supervision. Sentencing protection to the public and is stayed pending completion or increases public confidence in the termination from the program. criminal justice system.6 Each participant’s sentence, in the event of graduation or termina- Frequent court-ordered alcohol tion, is expressly included in the and drug testing is essential to any plea agreement and will be strictly successful drug court. A regular, enforced by the sentencing judge. random drug-testing program is Those who do not graduate face a the most effective and efficient prison sentence for their original way of ensuring compliance and charges. Charges against those who success- gauging each participant’s progress. Drug fully complete the program often times are courts should reward cooperation as well as dismissed. Under no circumstances will a suc- respond swiftly to noncompliance. To this end, cessful graduate be sentenced to prison for ongoing judicial interaction with each drug their underlying offense.3 court participant is imperative. Most drug courts require participants to personally appear Each jurisdiction’s drug court program is in court each week. This structure allows for unique, yet all operate under the same guiding early and frequent judicial intervention. Thus, principles and framework. Each drug court compliant participants receive weekly encour- must adhere to certain components to be recog- agement and incentives while non-compliant nized as a credible drug court program.4 While participants receive swift and immediate not exhaustive, the following components are sanctions.7 the foundation of policies and procedures utilized by Oklahoma drug courts. IS MY CLIENT ELIGIBLE FOR DRUG COURT? The primary component in drug courts is the use of a non-adversarial approach. To facilitate By statute, drug court programs shall not a participant’s progress in treatment, the pros- apply to any violent criminal offenses.8 Most
2808 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 drug courts construe this as prohibiting admis- the drug court team while ensuring the protec- sion of any of the enumerated offenses in 57 tion of the offender’s constitutional rights. O.S. § 571 (2). Trafficking charges are also statu- WHAT WILL MY CLIENT HAVE TO DO torily non-eligible offenses. Some drug courts IN DRUG COURT? further restrict eligible offenses by prohibiting drug distribution or manufacturing charges. The fundamental goal and requirement of While not statutorily prohibited, felony domes- drug court participants is total abstinence of tic abuse charges should be screened with great illicit drugs and alcohol. However, as anyone caution and investigated thoroughly prior to with experience in counseling substance abus- acceptance in order to ensure safety to victims ers will attest, achieving sobriety takes time and the public. With these exceptions, any and patience. Drug courts recognize this fact other felony offense is drug court eligible. A and realize that relapse is an inherent compo- common misconception is that an offender nent of recovery. To facilitate the recovery pro- must be charged with a drug crime, such as cess drug courts have instilled a system of possession, in order for drug court to become phase requirements that must be met by each an option. In reality, an offender who is charged participant prior to progressing through the with an eligible offense must simply admit to program. Most drug courts employ a four- having a substance abuse addiction or phase tier, where each participant begins in have been diagnosed with one in order to phase one and progresses through phase four. participate in drug court. Each phase is normally a minimum of 10 weeks in duration and is often times extended depend- To properly identify appropriate drug court ing upon the individual participant’s progress. offenders, full and honest disclosure between The statewide average for drug court duration the offender and the drug court team is is 19 months.10 Each drug court sets its own imperative. However, the need phase requirements in order to for this sort of exchange of infor- meet its particular needs, but the mation raises fundamental con- following are some traditional cerns regarding offenders’ con- requirements of drug court stitutional rights, specifically participants. Fifth Amendment self-incrimina- tion protections. The Oklahoma Each participant prior to reach- Legislature recognized this ing a new phase must achieve a important issue by mandating predetermined number of days that any statement or informa- of continuous sobriety. Partici- tion regarding an offender that pants are required to attend both is made during the course of any group and individual substance drug court investigation shall abuse counseling each week. not be admissible in the under- Participants must meet with lying criminal case against the their individual probation offi- offender.9 Thus, if a particular cer in person at least once per offender undergoes a drug court week. In addition, a strict cur- investigation yet is denied few, normally 10 p.m., must be admission, he will be ensured adhered to. Participants must that the information obtained attend self-help (Alcoholics during the investigation will not Anonymous/Narcotics Anony- be used against him in the crimi- mous) meetings each week. Also, nal prosecution. This protection random drug testing is adminis- encourages a full and frank tered on a weekly basis. Partici- exchange of relevant informa- pants also must report in person tion between the offender and to court each week when the
Also, random drug testing is administered on a weekly basis.
Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2809 Prior to termination from drug court, notice must be provided to the offender and a hearing must be held.
drug court is in session. Participants may not felony case is normally dismissed and expunged be able to leave their county of residence with- pursuant to 22 O.S. 991(c), and the drug court out prior authorization from the drug court. file will be sealed. Each participant is required to maintain full- time employment or be attending school full- Though the drug court team must recognize time during their drug court participation. If relapse and restarts, which are considered to be part of the rehabilitation and recovery pro- not employed or attending school, the partici- 11 pant will be required to complete community cess, continued and consistent violations of a service each week until employed or attending performance contract will result in termination classes. from drug court. Prior to termination from drug court, notice must be provided to the Failure to abide by these phase requirements offender and a hearing must be held.12 The req- will result in swift sanctions. These sanctions uisite standard to warrant drug court termina- are imposed on a weekly basis and include the tion is simply that disciplinary sanctions have following: increased drug testing, increased been unsuccessful in gaining compliance with AA/NA meetings, house arrest, placement the performance contract.13 This intentionally into residential treatment, decreased curfew broad standard allows the sentencing judge to time, electronic monitoring, community ser- consider many factors in making a termination vice and incarceration of up to five days for decision. These factors include repeated viola- each violation. By identifying and addressing tion of the performance contract; failure to noncompliance issues in such a steadfast man- complete phase requirements in a timely man- ner, drug courts are more able to effectively ner; failure to complete residential treatment or intervene, thus facilitating recovery. continued drug use following completion of GRADUATION AND TERMINATION residential treatment; failure to appear at drug CRITERIA court proceedings; and new criminal charges. In the event of termination, the offender shall Upon successful completion of phase require- be revoked from the program and sentenced ments, a participant will become a candidate to immediately for the underlying offense as pro- graduate from drug court. Prior to graduation, vided in the original plea agreement.14 Thus, several criteria must be met, including an upon a judicial finding that continuing sanc- acceptable level of continuous sobriety as tions have been unsuccessful in gaining com- determined by the drug court team on an indi- pliance with the performance contract, the vidual basis. Each graduation candidate must sentencing judge has no discretion to modify have obtained gainful, consistent employment the original plea agreement and must sentence or be involved in a vocational or academic the offender accordingly. training program. Consistent attendance at all drug court proceedings and treatment appoint- When addressing a potential termination ments is also a graduation prerequisite. More- from drug court, both the defense and prosecu- over, prior to graduation, a participant must be tion must be certain that the specific violation maintaining a stable, sober living arrangement justifying the termination has not previously as determined by the drug court team. Upon been sanctioned. For terminating an offender graduating from drug court, the participant’s for a violation of the performance contract that
2810 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 had previously been sanctioned will give rise upon graduation from drug court. Thus, if a to a double jeopardy claim. The Court of Crim- participant has been granted a stay and is able inal Appeals addressed this very issue in Knoles to drive while being a drug court participant, v. State.15 In Knoles, the State filed a motion to upon graduation, the stay will be lifted and the revoke Knoles from drug court, alleging that graduate’s license will revert to being suspend- he had violated the terms of his performance ed until completion of the DPS requirements contract on four separate occasions.16 Knoles necessary to regain permanent driving privi- claimed that he was previously sanctioned for leges. This stay will not be construed to grant each of these violations and that terminating driving privileges to an offender who has not him from drug court based upon these viola- been issued a driver’s license by DPS or whose tions constituted double jeopardy.17 Oklahoma driver’s license has expired.22 Prior to the drug court judge ordering a stay of Citing Hagar v. State,18 the Court agreed with any driver license suspension or revocation, Knoles and treated drug court terminations as the participant must provide proof of similar to situations where a defendant’s sen- insurance for any vehicle to be driven by the tence is deferred pending completion of certain participant.23 terms of probation.19 The Court held that once a sanction is imposed for a probation violation LONG-TERM OUTCOMES in a drug court case, the State may no longer Each year the Oklahoma Department of Men- use that particular violation as the basis for a tal Health and Substance Abuse Services com- subsequent application for sanctions or to ter- piles data from each of the state’s drug court minate the defendant’s participation in drug programs and analyzes this data in order to court.20 evaluate the effectiveness of Oklahoma’s drug RECENT DEVELOPMENTS courts. The recent statistics on Oklahoma drug courts are strong indicators that these courts Most drug court participants have prior are making a positive impact. To assess out- criminal records, often times quite lengthy. As comes among drug court graduates, compari- such, a great number of participants have had sons were made between graduates’ charac- their driving privileges suspended or revoked. teristics at entry and graduation. The findings This fact has made it extremely challenging for reveal the following trends regarding drug participants to attend all of the treatment and court graduates: there was an 84.4 percent court appointments required of them in drug decrease in unemployment; a 59.7 percent court. Recognizing this serious impediment, increase in income; a 19.5 percent decrease in the Legislature recently responded by amend- the number of persons without a high school ing 22 O.S. § 471.6 to allow for a stay of suspen- diploma; a 20.5 percent increase in the num- sion or revocation of a drug court participant’s ber of participants who had their children liv- driving privileges under certain circumstances. ing with them.24 These figures clearly indicate This amendment provides that if the drug that successful drug court graduates are court judge is satisfied that no other means of applying the tools provided to them during transportation is available, the drug court judge the program with positive results. may enter a written order requiring the Depart- ment of Public Safety to stay any and all sus- Comparing recidivism rates, measured by re- pensions, revocations, or cancellations of the arrests, of drug court graduates to that of stan- participant’s driving privileges.21 This stay will dard probation offenders or released prison only remain in effect during the offender’s par- offenders revealed the following: drug court ticipation in drug court and may be rescinded graduates were 63 percent less likely to be re- by the drug court judge at any time. Moreover, arrested than standard probation offenders; any such stay of suspension will be removed and drug court graduates were more than two
The recent statistics on Oklahoma drug courts are strong indicators that these courts are making a positive impact.
Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2811 times (or 131 percent) less likely to be re-arrest- 11. 22 O.S. § 471.7 (E) 25 12. 22 O.S. § 471.7 (E) ed than released prison inmates. The yearly 13. 22 O.S. § 471.7 (E) cost to treat an offender in drug court is 14. 22 O.S. § 471.7 (E) 15. Knoles v. State, RE-2003-918 (Okl. Cr. August 23, 2004)(unpub- approximately $5,000, whereas the yearly cost lished) to house an inmate in the Department of Cor- 16. Knoles, slip op. at 2. 26 17. Knoles, slip op. at 3. rections is approximately $16,000. The four- 18. 1999 OK CR 35, 990 P.2d 894 year cost to DOC, if drug courts did not exist, 19. Knoles, slip op. at 3. is $87,123,725.27 These numbers illustrate the 20. Knoles, slip op. at 4. 21. 22 O.S. § 471.6 (I) long-term effectiveness of drug courts as well 22. 22 O.S. § 471.6 (I) as the huge tax-payer savings provided by 23. 22 O.S. § 471.6 (I) 24. Oklahoma Department of Mental Health and Substance Abuse drug courts. Services, Performance and Outcome Report on Drug Courts for FY’02- FY’05, p. iv. (2006). CONCLUSION 25. Oklahoma Department of Mental Health and Substance Abuse Services, Performance and Outcome Report on Drug Courts for FY’02- The statistics and results speak for them- FY’05, p. iv. (2006). 26. Oklahoma Department of Mental Health and Substance Abuse selves. This mounting evidence clearly indi- Services, Overview of the Oklahoma Drug Court Program, September cates that Oklahoma drug courts are working. 2006. Perhaps no other judicial intervention program 27. Oklahoma Department of Mental Health and Substance Abuse Services, Performance and Outcome Report on Drug Courts for FY’02- has been as effective in furthering two legiti- FY’05, p. v. (2006). mate goals of the criminal justice system: accountability and rehabilitation. In furthering these goals, Oklahoma drug courts are effec- ABOUT THE AUTHOR tively fighting addictions and changing behav- iors. The success of drug courts has provided a Michael Tupper has proudly model for other diversionary programs, such served as an Assistant District as mental health courts, DUI courts and truan- Attorney for the Cleveland cy courts. As drug courts continue to achieve County District Attorney’s their goals, these programs offer great hope in Office since September 2002. the fight for the long-term reduction in drug- He is currently assigned to the related crime in Oklahoma. major crimes unit, which han- dles all homicides, violent 1. 22 O.S. § 471 2. 22 O.S. § 471.1 offenses, and sexual abuse cases. 3. 22 O.S. § 471.2 In addition, Mr. Tupper is the prosecuting attorney for 4. 10 Key Components for Drug Court Operation, National Drug Court Institute (2004). the Cleveland County Drug Court, serving in this 5. Id. role since March 2004. In January 2007, the Cleve- 6. Id. 7. Id. land County Drug Court was honored with the 8. 22 O.S. § 471.1 SOAR Award, an annual award given by the Depart- 9. 22 O.S. § 471.5 mental of Mental Health recognizing the Outstand- 10. Oklahoma Department of Mental Health and Substance Abuse Services, Performance and Outcome Report on Drug Courts for FY’02- ing Drug Court of the Year. FY’05, p. v. (2006).
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2812 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2813 2814 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 Diversion Programs Family Drug Courts By Judge Edward J. Hicks
amily drug courts1 are specialized treatment court dockets designed to protect children who have been adjudicated to Fbe deprived due to their parents’ substance abuse and to expedite the movement of those children from foster care to per- manent homes by assisting their parents to choose a drug- and alcohol-free lifestyle through appropriate treatment, monitoring and therapeutic court interventions.
The concept of treatment courts is not new to onstrate a clean and sober lifestyle and must the juvenile justice system. Long before crimi- advance through a number of treatment phas- nal drug courts began to gain popularity in the es, with decreasing frequency of court appear- late ‘80s, judges with juvenile docket responsi- ances and drug screens in each phase. Court bilities were regularly working with social reviews generally occur at one to six week workers, psychologists and other professionals intervals and are structured to encourage as to create and implement statutorily mandated well as to assess each participant’s progress. treatment and probation plans designed to cor- In order to understand family drug courts rect conditions and behavior which had result- and how they differ from other drug courts ed in children being adjudicated deprived, and traditional deprived dockets, one must delinquent or in need of supervision. However, first have a basic understanding of how by incorporating many of the key components deprived cases are processed pursuant to the and strategies that have proved effective in Oklahoma Children’s Code.2 Unless the initial criminal drug courts into the court procedures petition requests an immediate termination of and treatment plans in certain deprived cases, parental rights, the parties are only entitled to family drug courts have significantly altered a non-jury trial to determine whether the child the traditional methods of processing those is deprived. If a child is adjudicated to be cases. deprived, the Department of Human Services Tulsa County and Canadian County cur- is required to propose a treatment plan for the rently operate the only family drug courts in parent describing the steps which should be Oklahoma. Both programs are similar, and to a taken to correct the conditions that caused the casual observer they may also resemble a typi- child’s adjudication. The treatment plan must cal criminal drug court. Admission is volun- be approved by the court with any modifica- tary for qualified cases and is accomplished by tions within 40 days after adjudication. The executing a drug court contract after one’s parent is permitted at least 90 days after the child has been adjudicated to be deprived. court formally approves the treatment plan to Continued participation in the program is con- correct the conditions that led to the child tingent upon the parent agreeing to submit to being adjudicated deprived. After that period court imposed sanctions for violations of pro- expires, the district attorney or the child’s gram rules or court orders. In order to gradu- attorney may file a petition3 to terminate the ate from the program, participants must dem- parental rights if they conclude that the parent
Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2815 is not making satisfactory progress on the plan. ance are less certain since the child’s interests Parents are entitled to a jury trial on the issue must also be considered. For example, even if a of whether their parental rights should be ter- parent fails to successfully complete the family minated. drug court program, the district attorney should decline to request termination of paren- Unlike criminal or juvenile tal rights and a jury should drug courts, there is no Okla- refuse to terminate parental homa statute which specifi- rights if they fail to con- cally authorizes or regulates When a criminal drug clude that termination is in family drug courts, or which the best interests of the excludes such courts from court contract is signed, the child. Conversely, even the statutory mandates of though a parent has com- the Oklahoma Children’s defendant knows with some plied with their family drug Code. Therefore, in family court contract, the district drug courts, as in other certainty the consequences of attorney or the child’s attor- deprived child proceedings, ney may exercise their right the paramount consideration complying or failing to comply to file a motion to terminate must be the health, safety parental rights and seek a and best interests of the with the contract. jury trial if they conclude child.4 The court must also that statutory grounds exist recognize that permanency for termination. In fact, the is in the best interests of the child’s attorney may be child.5 Finally, with some exceptions, the court obligated to file such a motion if that is the should assure that reasonable efforts are made expressed interests of the child.7 to eliminate the need for removing the child from the home, or to make it possible for the Even though Oklahoma family drug courts child to safely return to the family’s home.6 operate under the same statutory guidelines as other deprived dockets they function quite dif- The applicability of the Oklahoma Children’s ferently due to their use of certain key compo- Code results in at least two major differences nents common to other drug courts. These between family and criminal drug courts. The include: 1) a continuum of treatment services first difference is that participation in criminal integrated into the justice system; 2) early iden- drug court does not begin until after all of the tification and placement; 3) intensive monitor- factual issues in the case have been determined ing of compliance through drug screens; 4) a by the defendant entering a plea pursuant to a team approach with coordinated responses to plea agreement. Although participation in fam- compliance; 5) strategic use of incentives and ily drug court usually begins after the factual sanctions; and 6) a shared therapeutic court issue of the child’s deprived status has been experience. Although the first three compo- adjudicated, a trial on the issue of whether the nents have therapeutic consequences, they parental rights should be terminated remains a primarily represent a shift in the allocation of future possibility. Therefore, information rele- resources that could also be of benefit in tradi- vant to the safety or best interests of the child tional deprived dockets. The last three compo- discovered during the parent’s participation in nents represent a more fundamental change in family drug court may have a bearing on the culture of the courtroom and likely would whether the parental rights are ultimately require the creation of a specialized treatment terminated. court docket to be effective. As these six key A second difference between the two types of family drug court components are implement- drug courts is in the predictability of the out- ed, the authoritative role of the judge will be come. When a criminal drug court contract is perceived to be less like a referee and more like signed, the defendant knows with some cer- a coach who provides instruction, discipline tainty the consequences of complying or failing and encouragement. to comply with the contract. Depending upon A CONTINUUM OF TREATMENT the specific terms, successful compliance results SERVICES THAT ARE INTEGRATED in a suspended sentence or perhaps a dismissal WITH THE JUSTICE SYSTEM of the charge, and failure to comply results in incarceration for a specified term. However, in Regardless of how therapeutic the court pro- a deprived case the consequences of compli- cess may become, a drug court program cannot
2816 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 parents in resolving issues which may be impeding efforts to complete their treatment plans. EARLY IDENTIFICATION AND PLACEMENT A key component of family drug courts is the emphasis on early identification and placement of eligible participants. Although most family drug courts, includ- ing the two currently operating in Okla- homa, do not admit participants until their children have been adjudicated to be succeed unless the partici- deprived, attorneys, case pants are able to secure managers and judges with quality substance abuse traditional deprived dock- treatment on an appropri- A major consideration is ets seek to identify poten- ate level within a reason- tial drug court partici- able time. Some drug courts whether residential treatment pants at the earliest may provide a court-oper- opportunity. That oppor- ated treatment program for providers can facilitate early trial tunity is often the first all participants. However, “show cause” hearing in order to meet the diverse reunification by permitting that occurs only two judi- needs of the participants cial days following the and their families most younger children to live with removal of a child from courts will need to actively the home. Once identified partner with other public their mothers while they as a potential drug court agencies and community participant, the parent based organizations to complete treatment. and their attorney are facilitate the delivery of an referred to the family appropriate spectrum of drug court coordinator so treatment services. they can learn about the services that the program The Tulsa County Family Drug Court has has to offer and receive immediate referrals to chosen to work collaboratively with a variety appropriate treatment providers. of regional treatment providers to provide a continuum of services to its participants. The One reason that early identification and role of the drug court coordinator is vital to the placement is given such emphasis is the limited success of such a cooperative system. The coor- time a parent has to correct the conditions that dinator makes referrals to particular treatment led to the deprivation. Unless compelling rea- providers based upon the level of treatment sons are found to exist, the district attorney is that is needed, the convenience to the partici- required to seek termination of parental rights when a child has remained in foster care for 15 pant, and whether mental health treatment, 8 domestic violence counseling, or other services of the most recent 22 months, and may pursue termination as soon as 91 days following the which may be needed are available at the same 9 location. A major consideration is whether resi- imposition of a treatment plan. Since severely dential treatment providers can facilitate early addicted parents may require extended treat- trial reunification by permitting younger chil- ment before their children can be returned to dren to live with their mothers while they com- their homes, they must have the opportunity to plete treatment. The coordinator serves as a engage in treatment as early as possible to liaison to expedite communication between the maximize the probability of reuniting their treatment providers and the court and also families. helps monitor treatment programs to assure A second reason why early identification and that they remain appropriate for drug court placement is emphasized is that there appears clients. The coordinator also makes home visits to be a window of opportunity to engage a par- and provides wrap-around services to assist ent in treatment immediately after the child is
Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2817 removed from the home. This may be due to asset hearings or arbitrarily sanctioning indi- the “hitting bottom” experience that some viduals who may not have had the financial addicts describe as the beginning of their means to comply with the request. By eliminat- recovery, or it may simply be that the parent ing the financial excuse the judge is allowed to can no longer deny that their substance abuse address missed drug screens in a more is a problem once it results in the removal of therapeutic and unquestionably fair manner. their children from their home. However, if While free drug screening can be an incentive there is a delay in securing appropriate treat- for motivated parents to enter the drug court, ment the parent may begin to become accus- submitting to frequent drug screens is an tomed to the child being out of their care and embarrassing inconvenience. By structuring lose their sense of urgency to engage in the drug testing process to be fair and to elimi- treatment. nate excuses, the judge can help participants to INTENSIVE MONITORING OF view this necessary element of their treatment COMPLIANCE THROUGH DRUG plans as an opportunity to document their SCREENS progress rather than as a distrustful game of wits. Urinalysis is the most common and practical method used to monitor substance abuse. To be NON-ADVERSARIAL TEAM APPROACH effective urine drug tests must be frequent, WITH COORDINATED RESPONSES TO random and reliable. Because the use of most COMPLIANCE drugs may be detected only if a urine specimen The fourth distinguishing component of fam- is collected within a few days following their ily drug courts is the extensive use of a non- use, frequent testing is needed to have a rea- adversarial team approach to problem solving sonable probability of identifying the occa- with all members working together to provide sional user. If drug screens are requested on a coordinated responses to the parent’s compli- predictable schedule such as at the regular ance with the treatment plan. monthly meeting with a case worker or proba- tion officer, it is relatively easy to avoid detec- The Tulsa County Family Drug Court team, tion by merely abstaining for a period of time which is typical, consists of the judge, who prior to the anticipated screen. Therefore, drug serves as the team leader, the drug court coor- screens should be requested on a random basis dinator, a district attorney, a public defender and the specimen collected as soon as possible who represents deprived children, the child following the request. Strict protocols should welfare workers who are specially assigned to be implemented to assure that the specimen is drug court and representatives of the primary actually from the drug court participant. Labo- treatment providers serving drug court partici- ratory personnel should check a photo I.D., pants. Tribal representatives, court appointed observe the collection of the specimen, and special advocates and attorneys representing check the specimen for temperature and dilu- parents are encouraged, but not normally tion. All “quick tests” should required, to attend and partici- be confirmed with a laboratory pate in team meetings pertain- test so that the specific level of ing to their cases. each drug found in the urine By eliminating the can be compared with previ- The drug court team decides ous and subsequent tests. which cases are appropriate for financial excuse the judge admission to the family drug Finally, if possible, the col- court and which participants lection and testing of speci- is allowed to address should graduate or be unsuc- mens should not be contingent cessfully discharged from the upon advance payment by the missed drug screens in program. The team staffs each person submitting the speci- case prior to the court review to men. Such a “pay first” policy a more therapeutic and determine what the parent will ultimately be counter pro- needs to accomplish in order to ductive to the therapeutic unquestionably promote to the next phase or to goals of the court since it will graduate and to determine necessarily result in the court fair manner. whether parents are having either spending valuable court appropriate contact with their time conducting humiliating children. Talking points may
2818 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 also be suggested to the judge have often experienced to help personalize the review very little praise recently. hearing. Therefore, family drug court teams try to identify Each team member agrees every opportunity to rec- to consider the opinions of ognize and praise good other team members in an behavior and to celebrate effort to form a consensus on the achievements of par- the best therapeutic approach ents. This is why applause for the court to address issues, is frequently heard during and each agrees to present court reviews. Tangible clear and unified responses to rewards such as certifi- the participants when possi- cates, candy bars or movie ble. However, certain team passes are sometimes pro- members retain the right and vided to participants to responsibility to function help extend and reinforce independently of the team the reward experience. when it is necessary to fulfill Immediate sanctions can their statutory or professional also be effective to change obligations. For example, the behavior. Typical sanctions judge must conduct periodic may include writing thera- permanency hearings to peutic essays on assigned determine the appropriate topics, working communi- permanency plan for the child ty service hours, reimburs- and whether reasonable ing the court for the cost of efforts are being made to positive drug screens, accomplish that plan. Simi- demoting to a previous larly, the attorneys for the state treatment phase, and even and the child retain the ability serving short stays in the to petition for termination of county jail. This use of parental rights should they Most importantly, they immediate graduated sanc- determine that such action is tions and rewards consti- appropriate. see reunited families come tutes a major difference STRATEGIC USE OF to court, often with their between family drug courts INCENTIVES and more traditional AND SANCTIONS children in hand, and share deprived dockets. The statutory10 warning that Although a parent’s failure to comply with any how their lives have behavior may result in requirements of the court may increased or decreased con- ultimately result in the loss of improved since they became tact with their child, such custody of the child or the ter- contact should never be mination of parental rights to clean and sober. viewed or used as a sanc- the child would appear to be a tion or reward. Contact strong incentive for most par- between the parent and the ents to modify their behavior. child should always be However, the reality is that many addicts have determined on the basis of the child’s best a myopic view of the future which makes it dif- interests. ficult for them to focus on remote consequenc- A SHARED THERAPEUTIC COURT es. Fortunately, most people can be motivated EXPERIENCE by immediate and certain consequences, and that is why family drug courts make extensive Unlike traditional deprived dockets, which use of immediate sanctions and rewards to are usually held in a confidential setting, the help parents change their behavior. court usually exercises its discretion11 to permit family drug court reviews to be conducted Surprisingly, praise is usually the most pow- openly in the presence of other families on the erful motivator, especially for addicts who drug court docket. This allows the courtroom
Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2819 to serve as a demonstration classroom where by this desperate battle, continue to stream into participants can learn from each other’s experi- our court and foster care systems. Many of ences. Parents hear those promoting to a new these victims are infants and preschoolers who treatment phase describe what they have are good candidates for adoption and whose accomplished and learned in the previous well-being depends on having a home with a phase. They observe the imposition of sanc- protecting parent and a sense of permanency. tions on those who have failed to comply with By helping to remove the obstacles which the rules and listen as those parents are chal- impede genuinely motivated parents from lenged to explain how they will avoid such completing their treatment plans and by work- problems in the future. They also hear others ing to eliminate the excuses of less motivated applauded by peers and praised by the court parents, family drug courts are helping these for their progress. Most importantly, they see children to more quickly experience what reunited families come to court, often with should have been their birthright, the security their children in hand, and share how their of a safe and nurturing childhood home. lives have improved since they became clean and sober. These shared experiences build 1. These courts are also sometimes known as “family dependency treatment courts” or “family treatment drug courts.” hope and trust and help the parents to visual- 2. 10 O.S. §7001-1.1 et seq. ize the importance and achievability of their 3. Some district attorneys entitle such pleadings as a ‘Motion to Terminate” if the child has been previously adjudicated deprived. ultimate goal. 4. 10 O.S. §7001-1.2(B) 5. 10 O.S. §7001-1.2(B)(7) Frequent court reviews are a hallmark of 6. 10 O.S. §7001-1.2(B)(4) family drug courts. This frequent court contact 7. 10 O.S. §§7003-3.7(A)(2)(c), 7006-1.1(A)(15) 8. 10 O.S. §7003-4.7 allows the drug court team to quickly respond 9. 10 O.S.§7006-1.1(A)(5) with appropriate incentives, sanctions or 10. 10 O.S. §7003-5.5(D) 11. 10 O.S. §7003-4.1(A)(1) This statute both acknowledges and adjustments to the treatment plans. Team staff- limits the court’s discretion to conduct open hearings. ing prior to each docket helps the court to for- mulate and occasionally to script the review ABOUT THE AUTHOR for maximum therapeutic effect for all who are present at the review. Even the placement of Edward J. Hicks has been a the cases on the docket is intentionally ordered special judge for Tulsa County to make sure that the newer participants will since 1985. Since May 2000, he be able to observe and learn from those in has been assigned to the Juve- higher treatment phases. Drug court personnel nile Division where one of his and treatment providers are usually present responsibilities is to preside over during court reviews to help parents process the Tulsa County Family Drug their court experience at the end of the docket. Court. Prior to this assignment, These frequent, open and choreographed court he presided over the Tulsa contacts are a key characteristic of family drug County Adult Drug Court. courts. Previous long-term assignments include the Probate and Domestic Relations Divisions. He recently served More than 30 years after President Nixon on the Oklahoma Supreme Court’s Committee for began the War on Drugs, too many of our Uniform Jury Instructions in Juvenile Cases. nation’s children, displaced from their homes
2820 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2821 2822 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 Diversion Programs Mental Health Courts By Edward M. Blau
or many Oklahomans, the issue of mental illness is shrouded in ignorance and misunderstanding. Schizo- Fphrenia, bipolar disorder, dissociative identity disorder and major depression are words we often hear, but the real life effects of these disorders can seem distant unless you or someone you are close to has suffered from a mental illness. However, mental illness affects us all, either directly or indirectly.1 The state of Oklahoma has the highest rate of service capacity. [T]he state is now flounder- serious mental illness in the country, estimated ing to provide an adequate number of psy- to be at least 10.4 percent of the population. chiatric beds. Many Oklahomans who need Hawaii has the lowest rate at 5.1 percent, with psychiatric hospitalization face four to six the national average being 7.4 percent.2 Accord- hour trips to the nearest receiving ing to the National Alliance on Mental Illness’ hospital.”6 state by state report card, Oklahoma earned a “D” for its failure to make the mentally ill a As the treatment options for the seriously statewide priority.3 Oklahoma is ranked 46th mentally ill have waned, the number of mentally nationally in per capita funding for the treat- ill individuals in the criminal justice system has ment of mental illness, and that lack of support skyrocketed. In effect, jails and prisons have for the mentally ill translates into an overall eco- become the new “psychiatric hospitals.” The nomic impact of $1.8 billion annually. This Oklahoma County jail houses approximately impact stems from disability payments (SSI or 2,800 inmates, 500 of which are prescribed psy- Medicaid) to the seriously mentally ill, treat- chotropic medication, making it in effect the ment costs, loss of productivity, and the burden state’s largest mental institution. In addition, a on the criminal justice system.4 recent report by Human Rights Watch found that American prisons and jails contain three Beginning in the 1960s, there was a movement times more mentally ill people than do our psy- toward deinstitutionalization of the mentally ill. chiatric hospitals. This statistic becomes even Nationally, the number of mentally ill patients in more significant considering Oklahoma is in the long term in-patient facilities has fallen from top five states in per capita incarceration and is approximately 500,000 to fewer than 70,000 over the top state in female incarceration.7 the last 30 years.5 This trend was felt in Oklaho- ma as well, and that movement is still occurring. It is estimated that in Oklahoma’s prisons, According to NAMI’s report card narrative for one-third of inmates have some symptoms of the state of Oklahoma: mental illness, one-fifth have been diagnosed with a serious mental illness and one-sixth take “Since 2000, the state has closed one of two daily medication for their illness. Additionally, hospitals, attempting to redirect resources to of the inmates who have been diagnosed, nearly community-based services. The strategy’s 57 percent are incarcerated for non-violent implementation has proven chaotic and offenses. The numbers are staggering, especially exposed state disorganization and lack of in light of the fact the average yearly incarcera-
Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2823 tion cost for one inmate is approximately $20,000.8 Oklahoma. This growth started with the devel- According to the Governor’s and Attorney Gen- opment of the Oklahoma County mental health eral’s Blue Ribbon Task Force on Mental Health, court, the first in the state. Currently, Oklahoma Substance Abuse, and Domestic Violence, the has seven mental health courts. fiscal year 2003 cost attributed to mental health MENTAL HEALTH COURTS IN PRACTICE: conditions within the Oklahoma criminal justice OKLAHOMA COUNTY system was $214 million, which has undoubt- edly increased since that date. The cost included According to its mission statement, the Okla- expenditures related to judicial, corrections and homa County Mental Health Court is “a pro- law enforcement services required by individu- gram that integrates mental health care with the als with mental illnesses.9 criminal justice system for the promotion of public safety, individual responsibility, citizen- At present, the Oklahoma Department of Cor- ship, reduction of the recidivism rate and resto- rections is at capacity, meaning it cannot process ration of human dignity for those diagnosed an inmate into the system without with mental disorders.” It continues, “the MHC first processing an inmate out. As truth-in- program promotes public safety by bridging the sentencing laws remain in effect, there will be gap between persons with mental illness and fewer and fewer beds available in DOC for non- mental health services. The ultimate purpose of violent offenders or those violent offenders this program is the continued wellness of the whose sentences do not fall into the “85 percent participant and the reduction of the incidents of crime” category, meaning a full 85 percent of crime committed by persons with mental ill- their sentence must be served before they are ness.” On the most basic level, the MHC pro- eligible for parole. Given the limited resources gram offers a treatment-based alternative to available to corrections, lawmakers have begun incarceration, which greatly benefits both the to move toward alternatives to incarceration for participant and the Oklahoma taxpayer.13 non-violent or minimally violent offenders.10 In its current configuration, the MHC is a HISTORICAL CONTEXT “pre-sentence/post plea” program, meaning the The mental health court concept originated in defendant must plead guilty to the crimes with Broward County Florida in 1997, in the wake of which s/he is charged. Sentencing is postponed the national drug court movement. The pres- until the participant graduates from the pro- sures that led to the development of the mental gram, at which time the case is dismissed, or health court strategy included crises in commu- until the participant is revoked from the pro- nity mental health care (the long-term effects of gram, at which time the defendant is immedi- the aforementioned deinstitutionalization), the ately sentenced to a previously agreed number drug epidemic of the 1980s and 1990s, the dra- of years in DOC. matic increase in homelessness over the last two The eligibility criteria for participation are spe- decades, and widespread jail overcrowding. cific. The offender must have a diagnosed seri- Broward County’s goal was to “develop a sys- ous mental illness (SMI-Axis I) that factored into tem of care for the mentally ill defendants and to the crime the offender is charged with. The devise ways to integrate and more closely link offender must have pending felony or serious the community-based mental health care system misdemeanor charges. If the defendant is charged with the criminal justice system.” Shortly after with or has a prior conviction that is considered Broward County developed its program, Seattle, violent under 57 O.S. § 571, then s/he is not San Bernardino, Anchorage and Salt Lake City eligible for the program. Additionally, the followed suit.11 offender must be legally competent and capable In May 2002, the Oklahoma legislature passed of benefiting from the MHC program, which is and the Governor signed into law the “Anna limited to Oklahoma County residents only. All McBride Act,” allowing for the development of decisions on admittance are made by the MHC “team.” mental health courts in Oklahoma.12 Anna McBride was a tireless advocate for the mentally As it is configured in Oklahoma County, the ill in Oklahoma, and her leadership resulted in MHC team is made up of two separate groups; the legislation which bears her name. Unfortu- the MHC Core Team and the MHC Support nately, Ms. McBride passed away shortly after Team. The Core Team includes the (special) the legislation took effect and was unable to see judge, assistant district attorney, public defender the growth of the mental health court system in or defense attorney, probation officer, MHC
2824 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 The most frequent referrals come from either the individual’s defense attorney or the prosecutor originally assigned to the case. intensive case manager, duct a Level of Services and the mental health Inventory-Revised and for court liaison. The Support the team’s psychologist to Team includes the psy- conduct a full psychologi- chologist, crisis interven- cal report of the defendant. tion team officers of the Once all the steps are Oklahoma City Police completed, the team Department, and repre- reviews all the data that sentatives of the Oklaho- has been compiled in order ma Mental Health Con- to make a final decision on sumer Council. Any of the the candidate. If there are Core Team members can no objections based on the recommend an applicant previously compiled to be denied based on their reports, the candidate is priority and area of exper- then interviewed by the tise, but all team members MHC team. This interview should freely disclose all allows the team to observe relevant information on the applicant’s demeanor applicants and partici- and affect and to allow the pants to the team. The final team to ask any pertinent decision, however, is made questions. Assuming no by the judge. issues, the candidate is The applicant intake given a date on which to process starts when an plead into the MHC pro- individual is referred to the gram, usually within one to MHC, and that referral can come from any two weeks. It should be noted that at any time source. The most frequent referrals come from during the entire application process the defen- either the individual’s defense attorney or the dant may withdraw his application; additionally, prosecutor originally assigned to the case. Once the MHC team may deny the defendant’s appli- referral is made, the Liaison tracks the applicant cation for any reason deemed appropriate. and keeps the other team members advised of After the new participant has pled into the all issues affecting the applicant. However, program, s/he is then placed in one of two tiers before the individual can be fully processed he of treatment: the individual support track or the must first pass an initial eligibility assessment program support track. Participants in the indi- made by the MHC liaison and by the assistant vidual support track are those at highest risk for district attorney. Initially, the Liaison interviews decompensation and/or re-offending. IST par- the applicant and has the applicant consent to ticipants are generally moderate to low function- release all mental health records from the previ- ing, and it is the team’s goal that these partici- ous year. This is done to ensure the presence of pants can maintain a reasonable level of self- an Axis I diagnosis and to ensure the applicant care, independence and responsibility. Most IST truly wants to be a member of the MHC. Con- participants live in a residential setting where currently, the assistant district attorney reviews they can be monitored and offered any support the candidate’s current charges as well as the they may require. They must take all medica- candidate’s full criminal background, which is tions as prescribed, meet regularly with the supplied by the OCPD crisis intervention team MHC probation officer, meet individually with member. If there are no red flags, the liaison then the judge and team and abstain from all drugs arranges for the team’s probation officer to con- and alcohol. An IST participant may graduate
Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2825 The program support track is for the seriously mentally ill individual who can benefit from the guidance and encouragement of both the MHC team and the other participants.
the court an update on his/her progress. Partici- pants are encouraged to share any positive expe- riences they have had since their previous court date; however, they are also encouraged to self- report any violations of MHC rules. It is the judge’s responsibility to give both positive rein- forcement and issue sanctions where appropri- ate. Depending on the level of violation of MHC rules, the participant may be sanctioned to com- munity service, to write a paper, or in the most serious situations, a few days in the county jail. Once the requirements have been met, the par- ticipant must petition the court, stating their progress in order to be promoted to the next level. The criteria for promotion should be based on the participant’s progress, compliance with orders, length of sobriety, the meeting of treat- ment goals, attitude and any other relevant fac- tors. These levels are designed to be outcome from MHC after a minimum of one year con- based focusing on results as opposed to time secutive medication compliance and stability served. If the team denies a participant’s petition with no new offenses. for promotion, the team must state the reason The program support track is for the seriously and what is necessary for the participant to be mentally ill individual who can benefit from the eligible for promotion. On promotion to the next guidance and encouragement of both the MHC level, the participant receives an incentive and is team and the other participants. The PST is a lev- directed by the judge to move their “star” to the eled system where a participant moves through next level on the Honor Roll, which is a large four levels of treatment and supervision, depend- public chart indicating each participant’s prog- ing on their progress within the program. The ress. As a newly promoted participant is moving levels start with the most intensive supervision their star, the other participants and the MHC and, with each level promotion, the participant’s team are encouraged to applaud and otherwise level of supervision is decreased. Ultimately the give support and appreciation. goal is graduation and eventual independence As a participant moves through the MHC pro- of any court supervision. As the participant pro- gram, all aspects of their life are monitored by gresses through the levels, the treatment require- the team. If a participant suffers a relapse or if ments will be revised to meet the changing their mental health status changes, the team may needs of the participant. The participant must be elect to place the participant in an inpatient on each level a minimum of three months before treatment setting, which may be either short s/he’s eligible to move up. term or long term. Additionally, the team is in All MHC sessions, with the exception of those contact with the participant’s psychiatrist or pre- participants on the IST, are considered “open scribing physician to ensure that all aspects of court.” Due to privacy concerns, all participants their treatment are covered. Each participant’s are addressed with their first name only. At each living situation is closely monitored to make court session attended, the participant comes sure they have a healthy environment in which forward and sits in the witness stand and gives to live, and it is required that they continue to
2826 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 make restitution or pay their court costs if CONCLUSION ordered to do so by the court. Across the nation, mental health courts were Once a participant reaches Level 3, s/he begins developed as a therapeutic diversion program to the slow transition to life outside the MHC mandate and enforce appropriate mental health structures. Each participant is required to invest and substance abuse services for seriously men- a minimum of one hour per week on a selected tally ill offenders. By using this approach, the community giveback activity. This provides the community benefits by increased safety of men- participant a proactive means to strengthen con- tally ill offenders without the cost of incarcera- nections with and contribute to the general wel- tion, which generally is $13,000 per year more fare of his community. Also, each participant than mental health court and with reduced prob- must complete a Transition Plan, which is the ability of recidivism. The participants benefit by participant’s blueprint for independence from the provision of treatment opportunities to the court’s jurisdiction. The goal is for the par- increase personal skills, decrease debilitating ticipant to continue to live as a responsible and effects of mental illness and remain in the com- productive member of the community. munity as an active member of society.
A participant who has successfully progressed 1. Mental Health, Substance Abuse, and Domestic Violence. Source: through the four levels must submit a petition to Oklahoma Governor’s and Attorney General’s Blue Ribbon Task Force, Febru- ary 2005. the court for graduation from MHC. The partic- 2. 2001 State Estimates of Substance Use and Serious Mental Illness. ipant’s criminal charges are disposed of accord- Source: SAMHSA, Office of Applied Studies, National Household Sur- vey on Drug Abuse, 2001. ing to the plea agreement as long as all financial 3. NAMI: Grading the States 2006: Oklahoma – Narrative obligations are met. The participant’s family, 4. “Shoveling Up: The Impact of Substance Abuse on State Budgets”. friends, treatment providers and other guests The National Center on Addiction and Substance Abuse at Columbia University. January 2001. are invited to attend. The participant is given a 5. Adelson, Tom, “Spending on Prisons: Guns or Butter”, copy of his/her case dismissal and a certificate www.tomadelson.com/issues/prison.funding.php. 6. See footnote 3. of graduation. After graduation, the participant 7. Simpson, Susan, “Should Prisons Punish or Prevent?”, The Daily is encouraged to maintain a connection with the Oklahoman, November 11, 2005. 8. Ibid. MHC by being involved in the Court Alumni 9. See footnote 1. Club, which meets four times per year at the 10. Associated Press, “Oklahoma: Sentencing policies to add hun- direction of the MHC liaison. dreds of state prisoners,” The Joplin Globe, July 27, 2007. 11. U.S. Department of Justice, “Emerging Judicial Strategies for the Mentally Ill in the Criminal Caseload: Mental Health Courts”, April A participant may be revoked from the pro- 2000. gram for repeated non-compliance with his/her 12. 22 O.S. § 472. 13. All information contained in this section and Conclusion was court requirements and/or after available grad- derived from the Oklahoma County Mental Health Court operations uated sanctions have been exhausted without manual and from the personal knowledge of the author. correction of the identified problematic behavior(s). The team must give the participant notice that s/he is at risk for revocation in a time ABOUT THE AUTHOR frame that allows the participant to correct the identified problematic behavior. A new offense Ed Blau is an assistant dis- is immediate grounds for revocation. An appli- trict attorney for Oklahoma cation to revoke will be filed by the assistant County, and his primary duties district attorney in accordance with the negoti- include overseeing Oklahoma ated plea agreement. The participant has an County’s Drug Court and Men- absolute right to request a full hearing before tal Health Court. Prior to join- either the MHC judge or the original district ing the DA’s office, Mr. Blau judge to whom the case was originally assigned. served as an assistant public If the state’s application to revoke is sustained, defender for Oklahoma County. the participant is immediately sentenced to pre- Mr. Blau earned a B.A. in political science with a viously agreed upon number of years in the minor in business administration from the Oklahoma Department of Corrections. University of Oklahoma in 2001 and his J.D. from the University of Oklahoma College of Law in 2005.
Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2827 2828 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 Diversion Programs A Prosecutor’s Viewpoint on Community Sentencing: Public Safety Comes First By Deborrah Ludi Leitch primary purpose of the district attorney’s office is to pro- tect the public from criminal defendants by evaluating and A prosecuting crimes. More often than not, this goal has been accomplished by the conviction and incarceration of guilty defendants. Several years ago, a study showed that Oklahoma courts use probation as an alternative to incarceration about 40 percent less often than the national average, which in part might explain why our imprisonment rate remains the country’s fourth highest. In Oklahoma there has been a need to balance lic that their safety is vitally important to the public safety and the expenditures caused by district attorney’s office, and to explain how overcrowded prison populations.1 Alternative public safety is protected while following the court systems and diversionary programs are guidelines of the Community Sentencing Act. thought to simultaneously promote public Under the act, the district attorney has the safety and alleviate prison overcrowding. In authority to recommend a defendant to the 1999, the Oklahoma Legislature enacted the Accelerated Accountability Program (AAP) in Oklahoma Community Sentencing Act2 with Tulsa County. The district attorney is the only an eye toward diminishing inmate costs while person who can initially recommend a defen- addressing the social needs of low-risk offend- dant to community sentencing; however, the ers. The practical goal of the act is to handle sentencing judge has the discretion to accept or non-violent felony cases more rapidly and reject the proposed defendant for community provide more services for the offender that are sentencing. Therefore, statutory and internal structured to his specific offense. Recidivism is guidelines were established to diminish risk to expensive. From the standpoint of traditional the public and still effectuate the financial bal- prosecutorial philosophy, public safety once ance the Legislature sought when it created the again rose to the forefront of concern, mainly act. These guidelines operate as safeguards for because under community sentencing the the public. criminal defendant remains in the community while serving his sentence for the offense.3 As The first safeguard is the statutory exclusion the assistant district attorney assigned to the of violent crimes.4 The second safeguard is the community sentencing docket in Tulsa County, exclusion of defendants with more than two my purpose in this article is to assure the pub- prior felony convictions5 and a third safeguard
Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2829 is the ability of the district attorneys to exclude and functioning within the community, the other crimes in their own discretion.6 The defendant will have no further court appear- prosecutor also has the discretion to waive ances until the end of the sentence. However, if additional felonies if that defendant is deemed the defendant is not working the treatment to be a suitable candidate for community sen- program, the regular reports will trigger disci- tencing. First- and second-time offenders that plinary sanctions11 designed to get the defen- may be approved for the AAP docket are dant back on track and working on the treat- typically charged with non-violent offenses ment plan. For minor infractions of the treat- such as unauthorized use of a motor vehicle, ment plan, a motion to modify sentence can be possession of a stolen vehi- filed requesting imposition cle, larceny, embezzlement, of sanctions. A sanction may property related crimes and require a defendant to par- possession of controlled The statutory safeguards ticipate in additional group dangerous substances. meetings that focus on behavioral modification. Pursuant to the act, the provided by the act protect the More severe infractions defendant must enter a plea7 receive more severe sanc- and be referred to the public and also allow the tions. The idea of a “gradu- Department of Corrections ated response” —familiar to for an LSI-R. The LSI-R is a diversion of defendants from anyone who has studied the Level of Services Inventory law governing the use of — a diagnostic tool that rates high-cost jails and prisons into deadly force — applies. For the criminogenic needs of a example, if a community defendant and the risk of re- relatively low-cost programs sentencing defendant re- offending. The act allows offends while on community only defendants who test in that diminish recidivism of sentencing, an application to the moderate range (19 to accelerate or an application 28) to be placed on commu- non-violent offenders. to revoke will be filed imme- nity sentencing.8 Defendants diately with a warrant for the with low or high scores on arrest of the defendant. The the LSI-R are supervised in defendant is promptly arrested and brought the traditional manner by the Department of before the AAP judge at the next court setting. Corrections at the traditional expense. Those There is no delay in placing the defendant back defendants in the moderate range are eligible into custody. This ability to quickly modify, for community sentencing. If accepted, they accelerate or revoke the existing sentence acts are placed on a treatment plan for social ser- as a continuing and flexible safeguard for the vices specifically directed to intervene and re- public. direct their behavior from criminal conduct to law-abiding conduct. The cost of these services Public safety will always be of paramount is borne by the Department of Corrections. concern of the district attorney’s office in Tulsa Once a defendant has qualified for community County. More courts throughout the country sentencing, and a plan has been established for are beginning to use alternative programs to the treatment9 of the defendant, the judge has incarceration. Oklahoma is no exception. The the discretion to place the defendant on com- statutory safeguards provided by the act pro- munity sentencing. tect the public and also allow the diversion of defendants from high-cost jails and prisons In Tulsa County, once the judge has sen- into relatively low-cost programs that diminish tenced a defendant to community sentencing, recidivism of non-violent offenders. that defendant is “diverted” from the Depart- ment of Corrections and sent to Diversion Ser- 1. The funding for alternative courts needs to also include more vices.10 At Diversion Services, the treatment financial support for the district attorneys’ offices. The alternative courts require additional manpower for research on recidivism, effec- plan is implemented through case managers tiveness of programs and supervision of the caseload. and regular reports made to the district attor- 2. Title 22 O.S. 988.1 et seq. ney and the judge. The regular reports also 3. There are no definitive studies that indicate alternative courts have a great impact on recidivism. secure the public safety under the watchful eye 4. In particular, community sentencing is not available for any of the district attorney. If the defendant is defendant charged with a crime that requires a defendant to serve 85% of the sentence before becoming eligible for parole, see Title 21 O.S. working the established treatment program Section 13.1.
2830 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 5. Title 22 O.S. 991a-4.1(B)(3). Simply put, the career criminal will never be placed on community sentencing. ABOUT THE AUTHOR 6. For example, in Tulsa County, District Attorney Tim Harris will not recommend a felony DUI defendant for a community sentencing program because of the great risk to members of the public becoming Deborrah Ludi Leitch received innocent victims of drunk drivers. her undergraduate degree from 7. Title 22 O.S. 988.2(8). 8. Defendants with LSI-R scores in the low range are less likely to the University of New Mexico re-offend; conversely, defendants in the high range are at a greater risk and law degree from the Univer- of re-offending despite intervention services. Factors used to deter- mine recidivism include gender, age at the time of the most recent sity of Oklahoma College of Law arrest and age at the time of first arrest. in 1983. She is currently an 9. 22 O.S. Section 988.18(b) requires a treatment plan; the treatment assistant district attorney in plans require defendants to maintain full-time employment; require an educational element eg. GED; require payment of restitution, fines and Tulsa County, where she has held fees. positions as a gun court prosecu- 10. Diversion Services is a private agency with a contract with Department of Corrections to provide social services to community tor and deputy director to the sentencing defendants pursuant to the individual treatment plans juvenile bureau. She currently is the director for the developed through the LSI-R. Diversion Services provides the case managers and acts as an Aumbrella@ for other referral agencies and Accelerated Accountability Program and the newly service providers. formed mental health court. 11. In Tulsa County, a sanction matrix has been designed for pro- gressive treatment. The sanctions increase in severity depending on the area of non-compliance with the treatment plan. The ultimate sanc- tion is incarceration with the Department of Corrections.
ANNUAL OCU LAW ALUMNI LUNCHEON Oklahoma Bar Association Annual Meeting Does the Constitution Matter Anymore? Separation of Powers in the New Century Featuring Guest Speaker MICKEY EDWARDS Executive Director, Aspen Institute-Rodel Fellowships in Public Leadership Lecturer of Public and International Affairs, Woodrow Wilson School, Princeton University U.S. House of Representatives 1977-1993 1970 Graduate of OCU LAW Wednesday, November 7, 2007 Noon to 1:30 p.m. The Sheraton Oklahoma City 1 North Broadway; Oklahoma City, OK Reservations are required. Ticket price is $30. Phone Jackie Weekley at (405) 208-5197 or e-mail [email protected].
Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2831 2832 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 Diversion Programs AAP: Procedural View from a Defense Attorney By Jane Ann Cobb
have practiced law for the better part of 25 years, was one of two assigned assistant public defenders in Presiding Judge IJefferson D. Sellers’ court when community sentencing was enacted in Oklahoma and am the assistant public defender assigned to the Tulsa County Accelerated Accountability Pro- gram (AAP) docket in Tulsa County. In April 2004, I was asked what the procedural goals and commitments our office could afford to the AAP court. One of these was to interview, plead and set for sentencing or opt out all cases to which I was assigned within two weeks from the date of acceptance into AAP.
Some cases have been approved before arraign- community sentencing or on regular ment and are set directly on the AAP docket for probation. initial appearance and plea, or elect to opt out within two weeks. As eligible offender approv- The objective of pleading and being sen- al has increased and preliminary hearings are tenced within two weeks is to get offenders now set within three weeks of arraignment, started with any treatment they require. The many of the cases are approved after the initial side effect of the shortened time frame and the arraignment and must be set on AAP before initial commitment from pre-trial services is to the preliminary hearing date or come to AAP decrease the numbers of non-violent offenders from the preliminary docket. The procedural sitting in the jail population, preserving jobs commitment is still the same and sometime for those offenders who are employed and shortened to less than two weeks from arraign- decreasing the costs of Tulsa County without ment. Private attorneys are allowed more time endangering the citizens of Tulsa County. before pleading. The district attorney set forth a list of presumptively approved crimes. These After pleading, the client is sent to probation are the ones most often screened at the jail. and parole to have an LSI-R conducted. This With the commitment of the district attorney’s has to be done post-plea and pre-sentencing. If office regarding availability of discovery, and the LSI-R score is moderate (19-28), the client is court services screener the time frame is placed on community sentencing with supervi- usually met and the offender released to get sion by Diversion Services Inc., unless the cli- the Level of Services Inventory (LSI-R). With ent is living in another county. If that is the the commitment made by probation and parole case, we ask for community sentencing with for a two-week turnaround on LSI-R’s, the probation and parole. The client will usually be offender is sentenced and placed on either transferred to the other county and is eligible
Vol. 78 — No. 30 — 11/3/2007 The Oklahoma Bar Journal 2833 The monitoring of the client does not end with sentencing. for community sentencing services as provided counsel have executed a waiver of jurisdiction, by that county. If the LSI-R score is low or high, necessary as AAP is presided over by a special they are not eligible for community sentencing district judge, at the time of sentencing or are unless there is a mental health exception avail- willing to do so when brought to AAP court. In able. Because there is mini LSI-R that is 75 our office, I go with the client. percent predictive of the range into which the Community sentencing has made alternative client will fall, the majority of the offenders end sentencing available to many who by statute up being placed on community sentencing. are excluded from drug court. In our office we I have a close working relationship with the may determine which of the alternative court jail screener, pre-trial release and the case man- will most benefit our client in light of mental agers at Diversion Services. This helps in early health issues, statutory prohibitions and needs release and early treatment intervention. All of the client. In Tulsa County, we may have an defense council have this same opportunity offender in AAP court and, due to changes in should they elect to take advantage of it. The circumstances, apply them to drug court. Drug monitoring of the client does not end with sen- court may suggest an offender apply to AAP tencing. Diversion Services is very cooperative for various reasons. in working with the client and attorney, in Our office has always been committed and addition to the court and assistant district continues to be supportive of alternative courts attorney, in order to provide the best treatment designed for rehabilitation of eligible offenders plan for the offender. Motions to modify are in an environment that results in lower rates of filed quickly and set on the closest court date offender recidivism without sacrificing citizen with proper notice to the client. That client may security. Additionally, it is more cost effective appear pro se for the sanction. All of the public on the citizens of the county and state of Okla- defender clients, whether represented by me or homa with better results than incarceration of other assistants at the time they are placed on those eligible offenders without treatment or community sentencing, have legal council at an opportunity for help in cognitive behavior the time of the motion to modify. For shorter changes. We do have offenders which end up jail weekend sanctions, if the client waives his going to the penitentiary, but many more that right to notice, the sanction can be imposed have learned how to become productive mem- within the few hours it may take to get before bers of society. It is one of the greatest rewards the judge. It has been documented that the of a defense attorney. sooner the imposition of sanction after the vio- lation, the better the treatment results. The council set forth sanction grid as a guide to consistency between sanction imposed and the ABOUT THE AUTHOR violation which occurred. If the violation is severe enough the assistant district attorney Jane Ann Cobb was admitted will file an application to revoke or accelerate to the OBA in 1983 after gradu- upon the filing of a violation report by Diver- ating from TU. She was in sion Services. All documents filed by Diversion private practice with Boyd and Services are available to the client or attorney Parks, Cates and Cobb and in upon request. solo practice. She served as city prosecutor in Owasso and part- Some of the offenders which are eligible for time municipal judge in Broken community sentencing may not be approved Arrow until being appointed as initially to be sent directly to AAP. These municipal judge for the City of offenders, if placed on community sentencing Tulsa, serving from 1991 until 1995. Since 1999, she by the district court judge will still come to has worked as an assistant public defender in the Tulsa AAP on the filing of a motion to modify, appli- County Public Defender’s Office. cation to revoke or accelerate, but only stay on the docket if the state, defendant and defense
2834 The Oklahoma Bar Journal Vol. 78 — No. 30 — 11/3/2007 OBA/CLE Presents