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Spokane County Corrections Needs Assessment Master Plan Draft SPOKANE COUNTY CORRECTIONS NEEDS ASSESSMENT MASTER PLAN DRAFT Prepared For: Spokane County Sheriff’s Office Detention Services Project 1100 W. Mallon Spokane, WA. 99260 Prepared By: 10 S. Cedar Street Spokane, WA 99201 In association with: David Bennett Consulting 2940 American Saddler Drive Park City, UT 84060 and Donna Lattin Consulting 3124 Southwood Drive Philomath, OR 97370 February 14, 2008 Spokane County Corrections Master Plan Executive Summary Spokane County Corrections Master Plan Executive Summary ȱ ȱ Inȱ2007,ȱSpokaneȱCountyȱhiredȱIntegrusȱArchitectureȱtoȱplanȱforȱnewȱcorrectionalȱ facilities.ȱDavidȱBennettȱConsultingȱwasȱretainedȱtoȱconductȱaȱbroadȱassessmentȱ ofȱtheȱlocalȱcriminalȱjusticeȱsystemȱtoȱlayȱtheȱgroundworkȱforȱlongȬtermȱfacilityȱ andȱsystemȱplanning.ȱȱȱ ȱ Theȱapproachȱtakenȱwasȱbasedȱonȱtheȱphilosophyȱthatȱdetentionȱplanningȱshouldȱ beȱbasedȱonȱaȱsystemsȱapproach.ȱȱ ȱ Thisȱapproachȱacknowledgesȱthatȱnewȱbedsȱaloneȱcannotȱsolveȱaȱcountysȱ overcrowdingȱproblem.ȱAvailableȱbedsȱinȱanyȱcorrectionalȱfacilityȱhaveȱaȱ tendencyȱtoȱbecomeȱfilled.ȱȱBuildȱItȱandȱTheyȱWillȱCome.ȱȱHowever,ȱassessingȱtheȱ efficiencyȱofȱtheȱcriminalȱjusticeȱsystemȱfirst,ȱasȱpartȱofȱfacilityȱplanning,ȱcanȱ resultȱinȱmoreȱcomprehensiveȱandȱlastingȱsolutions.ȱȱ ȱ Theȱapproachȱtakenȱforȱthisȱstudyȱputsȱsystemȱdataȱcollectionȱupȱfront.ȱȱWeȱ collectedȱjailȱdata,ȱcaseȱprocessingȱdata,ȱreviewedȱtheȱavailabilityȱofȱalternativeȱ programs,ȱandȱproducedȱjailȱforecastȱscenarios.ȱȱInȱadditionȱtoȱtheȱdataȱcollection,ȱ weȱobservedȱlocalȱcriminalȱjusticeȱoperations,ȱmetȱwithȱkeyȱstakeholderȱandȱ practitioners,ȱreviewedȱlocalȱpoliciesȱandȱprocedures,ȱandȱinitiatedȱdiscussionsȱ regardingȱsomeȱfundamentalȱsystemȱchanges.ȱȱȱȱȱȱ ȱ ThisȱReportȱfindsȱthatȱSpokaneȱCountyȱhasȱtakenȱsomeȱimportantȱstepsȱinȱ developingȱinnovativeȱinitiatives.ȱȱWeȱcommendȱtheȱfollowing:ȱȱ ȱ DrugȱCourtȱ CourtȱMonitoringȱofȱDomesticȱViolenceȱcasesȱ TherapeuticȱMentalȱHealthȱCourtȱ SpecializedȱProbationȱCaseloadsȱ DUIȱIntensiveȱSupervisionȱProgramȱ JailȱDischargeȱPlanningȱ ȱȱ Onȱtheȱotherȱhandȱtheȱdataȱcollectedȱpointsȱtoȱsignificantȱsystemȱissuesȱthatȱmeritȱ attention.ȱȱ ȱ ȱ Executive Summary Page 2 Spokane County Corrections Master Plan FragmentedȱAdjudicationȱ ȱ Theȱlackȱofȱaȱconsolidatedȱadjudicationȱservicesȱcontributesȱtoȱsystemȱ inefficienciesȱandȱaddedȱcosts.ȱȱItȱcanȱbeȱseenȱinȱtheȱtimeȱtoȱcaseȱ dispositionȱandȱtheȱhighȱnumberȱofȱcourtȱappearances:ȱ ȱȱȱ Lackȱofȱstreamlinedȱprocessing:ȱ63%ȱofȱcasesȱinȱSuperiorȱCourtȱhaveȱ4ȱ+ȱ appearancesȱbetweenȱarraignmentȱandȱdispositionȱ ȱ Caseȱprocessingȱdelays:ȱȱTheȱaverageȱtimeȱfromȱbookingȱtoȱfilingȱofȱ chargesȱinȱSuperiorȱCourtȱforȱoutȬofȬcustodyȱcasesȱisȱ70ȱdays,ȱmoreȱthanȱ doubleȱtheȱtimeȱofȱthoseȱwhoȱremainȱinȱcustodyȱpendingȱfiling.ȱ ȱ SignificantȱcaseȱprocessingȱdelaysȱforȱoutȬofȬcustodyȱcases:ȱTheȱaverageȱ timeȱfromȱbookingȱtoȱsentencingȱinȱSuperiorȱCourtȱisȱ135ȱdaysȱforȱinȬ custodyȱcaseȱandȱ219ȱdaysȱforȱoutȱofȱcustodyȱ ȱ AȱhighȱpercentageȱofȱpostȬtrialȱinmatesȱexitȱtheȱjailȱtimeȱservedȱ(73%ȱofȱ misdemeanantsȱandȱ42%ȱofȱfelons)ȱ ȱ DelaysȱinȱTimeȱtoȱFilingȱ ȱ Theȱ averageȱ timeȱ fromȱ Bookingȱ toȱ Caseȱ Filingȱ inȱ Superiorȱ Courtȱ isȱ 57ȱ days.ȱȱȱ ȱ ForȱoutȬofȬcustodyȱcasesȱtheȱtimeȱtoȱfilingȱisȱmoreȱthanȱ70ȱdaysȱȱ ȱ HighȱratesȱofȱCaseȱAttritionȱ ȱ AȱhighȱpercentageȱofȱpreȬtrialȱinmatesȱexitȱtheȱjailȱwithȱnoȱchargesȱfiledȱ (27%ȱofȱfelonyȱinmates)ȱresultingȱinȱunnecessaryȱfailuresȬtoȬappearȱandȱ subsequentȱarrestsȱandȱbookingȱwhenȱchargesȱareȱfiledȱ ȱ Highȱattritionȱrates:ȱDistrictȱCourtȱhasȱaȱ32%ȱnotȱguiltyȱofȱwhichȱalmostȱallȱ (97%)ȱareȱcasesȱdismissed.ȱȱȱTheȱmajorityȱofȱdismissalsȱ(61%)ȱareȱdomesticȱ violenceȱcases.ȱȱȱ ȱ Highȱattritionȱrates:ȱFelonyȱfilingȱrateȱforȱSuperiorȱCourtȱisȱ69%;ȱ31%ȱcasesȱ notȱfiledȱ Executive Summary Page 3 Spokane County Corrections Master Plan ȱ HighȱPreȬTrialȱFailureȱRatesȱ ȱ Atȱ29ȱpercent,ȱtheȱfelonyȱreȬarrestȱrateȱinȱSuperiorȱCourtȱisȱ2ȱtimesȱtheȱ nationalȱaverageȱ ȱ RelationshipȱbetweenȱcaseȱprocessingȱdelaysȱandȱpreȬtrialȱfailure:ȱOfȱthoseȱ defendantsȱwithȱaȱFTAȱoutȱofȱSuperiorȱCourtȱ35%ȱhadȱ2+ȱfailuresȱtoȱ appearȱ ȱ LackȱofȱValidatedȱRiskȱAssessmentȱtoȱGuideȱDecisionsȱ ȱ NoȱapparentȱrelationshipȱbetweenȱdefendantȱriskȱandȱtypeȱofȱpreȬtrialȱ release:ȱLittleȱdifferenceȱinȱpriorȱbookingsȱandȱreleaseȱtoȱownȱ recognizanceȱorȱsuretyȱȱ ȱȱ JailȱImpactedȱbyȱNarcoticȱOffensesȱȱ ȱ LargeȱimpactȱfromȱNarcoticsȱoffenses:ȱAtȱbooking,ȱtheȱgreatestȱpercentageȱ ofȱfelonyȱchargesȱwereȱforȱNarcoticsȱ(43%);ȱtheȱgreatestȱpercentageȱofȱ misdemeanorȱchargesȱwereȱDomesticȱViolenceȱchargesȱ(37%)ȱ ȱ JailȱhasȱaȱLargeȱNumberȱofȱInmatesȱinȱHoldȱstatusȱ ȱ InȱtheȱSpokaneȱCountyȱJail,ȱ38ȱpercentȱofȱinmatesȱareȱinȱholdȱstatusȱ (federalȱholds,ȱDOC,ȱbenchȱwarrants,ȱetc.).ȱȱ39ȱpercentȱofȱtheseȱcasesȱalsoȱ haveȱlocalȱchargesȱpendingȱ ȱ HeavyȱRelianceȱonȱJailȱasȱaȱSentencingȱOptionȱ ȱ 77ȱpercentȱofȱDistrictȱCourtȱcasesȱandȱ71ȱpercentȱofȱSuperiorȱCourtȱcasesȱ wereȱsentencedȱtoȱjailȱ ȱ UnderutilizationȱofȱJailȱStepȬDownȱAlternativesȱ ȱ Thereȱwereȱonlyȱ26ȱinmatesȱonȱworkȱreleaseȱatȱlastȱcountȱȱ ȱ Executive Summary Page 4 Spokane County Corrections Master Plan IssuesȱofȱTreatmentȱAccessȱandȱQualityȱ ȱ Thereȱareȱissuesȱofȱprogramȱunderutilization,ȱlackȱofȱsubsidizedȱ treatment,ȱandȱconcernȱwithȱprogramȱqualityȱȱ ȱ RedundantȱSupervisionȱServicesȱ ȱ Theȱbifurcationȱofȱmisdemeanorȱprobationȱservicesȱrepresentsȱsystemȱ inefficiencyȱandȱunnecessaryȱcost.ȱȱ ȱ Heavyȱrelianceȱonȱjailȱasȱaȱsentenceȱoption:ȱ77%ȱofȱDistrictȱCourtȱandȱ71%ȱ ofȱSuperiorȱCourtȱsentencesȱareȱtoȱjailȱ ȱ ImplementingȱtheȱkeyȱconceptsȱadvancedȱinȱtheȱMasterȱPlanȱisȱcentralȱtoȱtheȱ longȬtermȱmanagementȱofȱtheȱjailȱpopulationȱandȱshouldȱbeȱtheȱcornerstoneȱofȱ theȱjailȱfacilityȱplanningȱeffort.ȱȱȱ ȱ TheȱkeyȱtoȱtheȱlongȬtermȱmanagementȱofȱaȱjailȱisȱtheȱimplementationȱofȱaȱSystemȱ MasterȱPlan:ȱanȱapproachȱthatȱallowsȱaȱcountyȱtoȱnotȱjustȱreactȱtoȱchange,ȱbutȱtoȱ shapeȱthatȱchange.ȱȱKeyȱareasȱrecommendedȱforȱSpokaneȱCountyȱtoȱaddressȱinȱaȱ MasterȱPlanȱinclude:ȱȱ ȱ ¾ EstablishȱaȱfullȬserviceȱPreȬTrialȱServicesȱProgramȱ ¾ Fileȱtheȱmajorityȱofȱfelonyȱcasesȱwithinȱ72ȱhoursȱ ¾ ReduceȱhighȱNoȱFileȱratesȱ ¾ ImplementȱanȱExpeditedȱCaseȱResolutionȱprogramȱ ¾ Developȱaȱcaseȱmanagementȱplanȱ ¾ Consolidateȱprosecutionȱasȱwellȱasȱdefenseȱservicesȱatȱtheȱ district/municipalȱcourtȱlevelȱ ¾ ShiftȱGeigerȱtoȱaȱprogramȬbasedȱReȬentryȱmodelȱ ¾ BuildȱcontinuumȱofȱprogramsȱfromȱJailȱtoȱCommunityȱ ¾ StrengthenȱMentalȱHealthȱservicesȱ ¾ ConsolidateȱMisdemeanorȱProbationȱservicesȱ ¾ Improveȱsupervisionȱandȱprogramȱqualityȱ ¾ Adoptȱandȱvalidateȱobjectiveȱriskȱandȱneedȱtoolsȱ ¾ Subsidizeȱtreatmentȱforȱhigherȱriskȱoffendersȱ ¾ Formalizeȱsystemȱdataȱcollectionȱ&ȱanalysisȱȱȱ ȱ Executive Summary Page 5 Spokane County Corrections Master Plan ȱ KeyȱStepsȱinȱtheȱAnalysisȱ ȱ DataȱcollectedȱforȱtheȱSpokaneȱCountyȱprojectȱincludedȱtheȱfollowing:ȱȱ ȱ JailȱSnapshotȱ AȱJailȱsnapshotȱwasȱdevelopedȱtoȱprovideȱaȱdetailedȱprofileȱofȱtheȱinȬcustodyȱ population.ȱȱTheȱsnapshotȱmethodologyȱthatȱwasȱdevelopedȱwillȱallowȱtheȱ countyȱtoȱmonitorȱchangesȱinȱtheȱinmateȱpopulationȱoverȱtime.ȱȱȱ ȱ CaseȱProcessingȱAnalysisȱ A sample of defendants booked into the Spokane County Jail was identified and tracked through the criminal justice system. The sample included the first 143 misdemeanor bookings and the first 140 felony bookings from each of the 2007 dates identified below. Each booking that was identified for the sample was new, fresh, local arrests. They did not include any bench warrants, out of county cases, or probation violations only arrests. The sample dates, over 2007, were: x 3 January x 10 April x 23 July x 16 October ȱ JailȱAlternativeȱProgramȱAnalysisȱ Theȱanalysisȱalsoȱincludedȱaȱreviewȱofȱalternativeȱtoȱjailȱprograms.ȱȱWeȱreviewedȱ availableȱdata,ȱmetȱwithȱproviders,ȱandȱobservedȱoperations.ȱȱ ȱ JailȱForecastȱScenariosȱ LongȬtermȱjailȱforecastsȱwereȱdevelopedȱbasedȱonȱanȱanalysisȱofȱhistoricalȱdataȱ forȱtheȱJailȱandȱGeigerȱandȱaȱstudyȱofȱcountyȱpopulationȱtrends.ȱȱȱ ȱ GeneralȱSystemȱAssessmentȱ Finally,ȱoverȱtheȱcourseȱofȱmultipleȱvisitsȱtoȱtheȱcounty,ȱtimeȱwasȱspentȱmeetingȱ withȱkeyȱofficials,ȱreviewingȱsystemȱpolicies,ȱandȱobservingȱtheȱoperationsȱofȱtheȱ system.ȱȱAllȱthisȱhasȱresultedȱinȱthisȱReport,ȱwhichȱprovidesȱtheȱreaderȱwithȱjailȱ andȱsystemȱdate,ȱandȱconcludesȱwithȱrecommendationsȱforȱsystemȱchange.ȱȱ Executive Summary Page 6 Spokane County Corrections Master Plan SummaryȱofȱFindingsȱ ȱ I.ȱCriminalȱJusticeȱSystemȱCaseȱProcessingȱ ȱ TheȱsystemȱisȱimpactedȱbyȱhighȱpreȬtrialȱfailureȱratesȱ FelonyȱpreȬtrialȱreȬarrestȱratesȱ(29%)ȱareȱsignificantlyȱhigherȱthanȱtheȱnationalȱ average.ȱȱȱ ȱ PreȬTrialȱfailureȱratesȱreflectȱtheȱlackȱofȱaȱcomprehensiveȱPreȬTrialȱprogramȱthatȱ screensȱallȱdefendants,ȱtheȱabsenceȱofȱobjectiveȱriskȱscreening,ȱanȱoverȬrelianceȱonȱ suretyȱrelease,ȱandȱtheȱlackȱofȱaȱpreȬtrialȱsupervision,ȱmonitoringȱandȱtrackingȱ services.ȱȱ TheȱfailureȬtoȬappearȱrateȱforȱdefendantsȱreleasedȱoutȱofȱDistrictȱCourtȱwasȱ23ȱ percent;ȱtheȱFTAȱrateȱoutȱofȱSuperiorȱCourtȱwasȱ32ȱpercent.ȱȱȱ ȱ Systemȱcaseȱprocessingȱtimesȱandȱfailureȱratesȱareȱrelatedȱȱȱ Theȱtimeȱfromȱbookingȱtoȱdispositionȱisȱmoreȱthanȱtwoȱtimesȱasȱlongȱforȱ misdemeanorȱdefendantsȱwhoȱfailȱtoȱappearȱforȱaȱcourtȱhearingȱthanȱforȱthoseȱ whoȱmakeȱtheirȱappearances.ȱȱ ȱ TheȱJailȱisȱimpactedȱbyȱcaseȱprocessingȱtimesȱȱ Theȱlackȱofȱtimelyȱdispositionȱofȱcasesȱresultsȱinȱhigherȱfailureȱrates.ȱForȱ felonyȱcases,ȱtheȱaverageȱtimeȱfromȱjailȱreleaseȱtoȱaȱfailureȬtoȬappearȱwasȱ174ȱ days;ȱ55%ȱofȱallȱFTAsȱoccurredȱ4ȱmonthsȱorȱmoreȱafterȱrelease.ȱ
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