SALT LAKE COUNTY CRIMINAL JUSTICE SYSTEM A

SALT LAKE COUNTY

CRIMINAL JUSTICE

SYSTEM ASSESSMENT

Prepared for the

SALT LAKE COUNTY

CRIMINAL JUSTICE ADVISORY COUNCIL

SALT LAKE CITY, UTAH

April 28, 2004

INSTITUTE FOR LAW AND POLICY PLANNING

2613 Hillegass Avenue, Berkeley, CA 94704

(510) 486-8352

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April 22, 2004

INSTITUTE FOR LAW AND POLICY PLANNING

Dear County Mayor Workman and CJAC Members:

BOARD OF DIRECTORS

Alan Kalmanoff, JD, MSW, Ph.D.

Board President

Executive Director

Linda Guyden, CPA

Board Treasurer

Vice President, Prudential Insurance

Shelley Bergum

Board Secretary

Director, Deaf and Disabled

Telecommunications, Inc.

Robert Funk

Retired General Counsel

Equal Employment

Opportunity Commission

Dr. Blanche Pearlman

Research Psychologist

Candice Wong, M.D., M.P.H., Ph.D.

Epidemiology/Health Services Research

UCSF Medical School

University of California, San Francisco

ADVISORY BOARD MEMBERS

Brian Taugher

Deputy Attorney General

California Department of Justice

Allen Breed

Retired Director

National Institute of Corrections

I. Michael Heyman

Secretary, Smithsonian Institution

Sheldon Messinger

Professor of Law and Society

University of California, Berkeley

Ruth Rushen

Retired Director

California Department of Corrections

Dr. Mimi Silbert

President

Delancey Street Foundation

Dr. Bayard Catron

Professor of Public Administration

George Washington University

Judith Heumann

Assistant Secretary

Office of Special Education

Rehabilitation Services

Nancy Isaac

Transportation/Community Planning

P.O. BOX 5137

BERKELEY CA 94705

(510) 486-8352

FAX (510) 841-3710

WWW.

PLANNERS@

Salt Lake County experienced severe jail crowding at the

former Metro Jail, then built an expensive new facility that

quickly became crowded itself. The consequence has been a

serious budget crisis that has policy makers debating the next

best course of action to deal with diminishing resources and

rising jail costs. It has come to a point where the County

Mayor and the Sheriff, in particular, have seen the need to

step back and examine the underlying problems in order to

consider possible solutions.

The jail is crowded because of one primary reason: the

average length of stay for inmates has doubled since 1997.

This is a system problem that is rooted in a variety of leverage

points where changes are needed to reduce delay and

congestion.

This report is driven by the County¡¯s RFP for a population

and system study, as well as the insights and values of the

leaders in all the justice system agencies who provided data

and extensive interviews with the ILPP team. During the

course of the study, ILPP found that Salt Lake County has

capable and committed criminal justice officials and a justice

system with some terrific aspects. The aim of ILPP¡¯s work

was to focus on ways to improve the system while making it

more cost efficient.

The final report has been revised and edited based on the

feedback and comments from the draft report. It is now

complete and contains many new aspects, including an

Executive Summary and Action Plan. ILPP invites you to

read the document in its entirety, without moving directly to

your own agency¡¯s section. This approach to reading will

enable you to see how the practices of each agency impact the

others, and in what overall direction ILPP believes the system

must migrate.

ILPP wants this study to be of great use by the County¡¯s

policy makers. Please call upon us with questions regarding

the implementation of the recommendations.

Sincerely,

Alan Kalmanoff, PhD, JD, MSW

Executive Director

Salt Lake County Criminal Justice System Assessment

FINAL REPORT

TABLE OF CONTENTS

EXECUTIVE SUMMARY ............................................................................ ES 1

1. INTRODUCTION ..................................................................................... 1.1

2. POPULATION TRACKING AND PROFILE STUDIES ................ 2.1

Tracking Analysis................................................................................ 2.1

Profile/Snapshot Analysis ................................................................. 2.11

3. SYSTEM ASSESSMENT.......................................................................... 3.1

4. MANAGING THE RESOURCES ........................................................ 4.1

County Government .......................................................................... 4.1

Finances & Budgets............................................................................ 4.1

Justice Information Systems.............................................................. 4.3

Findings ......................................................................................... 4.13

Recommendations ....................................................................... 4.14

5. MANAGING THE FLOW...................................................................... 5.1

Law Enforcement Operational Practices ........................................ 5.2

Salt Lake City Police Department .................................................... 5.4

Sheriff's Office .................................................................................... 5.8

Findings ......................................................................................... 5.10

Recommendations ....................................................................... 5.10

6. MANAGING THE CASE ....................................................................... 6.1

The Courts ........................................................................................... 6.1

Third Judicial District Court....................................................... 6.2

Salt Lake County Justice Court .................................................. 6.3

Findings ......................................................................................... 6.4

Recommendations ....................................................................... 6.7

Municipal Justice Courts.................................................................... 6.9

Findings ......................................................................................... 6.10

Recommendations ....................................................................... 6.12

Prosecution .......................................................................................... 6.13

State Prosecution.......................................................................... 6.13

Findings ................................................................................... 6.14

Recommendations.................................................................. 6.15

Municipal Prosecution................................................................. 6.15

Findings ................................................................................... 6.19

Recommendations.................................................................. 6.20

Institute for Law & Policy Planning

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Salt Lake County Criminal Justice System Assessment

FINAL REPORT

Legal Defenders Association............................................................. 6.20

Findings ......................................................................................... 6.21

Recommendations ....................................................................... 6.26

7. MANAGING THE OFFENDER.......................................................... 7.1

Pre-Trial Services ................................................................................ 7.1

Findings ......................................................................................... 7.3

Recommendations ....................................................................... 7.4

Detention ............................................................................................. 7.5

Findings ......................................................................................... 7.8

Recommendations ....................................................................... 7.11

Alternatives to Incarceration............................................................. 7.13

Findings ......................................................................................... 7.16

Recommendations ....................................................................... 7.17

Substance Abuse and Mental Health Services................................ 7.19

Findings ......................................................................................... 7.23

Recommendations ....................................................................... 7.24

Adult Probation and Parole (AP&P) - Region III ......................... 7.25

Findings ......................................................................................... 7.27

Recommendations ....................................................................... 7.28

8. ACTION PLAN ......................................................................................... 8.1

Methodology for Costs and Savings ................................................ 8.2

Primary Recommendations ............................................................... 8.2

Action Plan for Primary Recommendations................................... 8.4

Additional Recommendations........................................................... 8.16

APPENDICES

Appendix A: Criminal Justice Information Systems for Salt

Lake County

Appendix B: Model Patrol Procedures and Citations for

Adult Misdemeanors

Appendix C: Historic Crime Trends

Appendix D: Resource Websites

Appendix E: Jail Statistics

Appendix F: Utah Court Structure

Resources

Interviews

Institute for Law & Policy Planning

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