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2025 Official Report: Clackamas County Grand Jury
Conditions and Management of Clackamas County Correctional Facilities
October 17th, 2025
Introduction
Per Oregon Revised Statute ORS 132.440 "once yearly a Grand Jury shall inquire into the condition and management of every correctional facility and youth correctional facility in the county." A five-member Grand Jury addressing this issue in Clackamas County was empaneled on October 7, 2025, and convened October 13, 2025, through October 17, 2025. The Grand Jury, comprised of Clackamas County citizens of varying backgrounds and experiences, was tasked with reviewing the operations, conditions, and management of correctional facilities in Clackamas County.
The Grand Jurors inspected the County's following Correctional Facilities:
- Clackamas County Jail Facilities
- Clackamas County Courthouse
- Courthouse Correctional Holding Cells
- Clackamas Substance Abuse Program (CSAP-residential services)
- Clackamas County Transition Center
- Parrott Creek Youth Treatment Center
Witness testimony was received from:
- John Wentworth, Clackamas County District Attorney (CCDA)
- Captain Jennifer Freeman, Clackamas County Sheriff’s Office (CCSO) Jail
- Melanie Menear, Jail Health Care Administrative Manager, CCSO Jail
- Chief Deputy District Attorney Chris Owen, CCDA
- Lt. Brian Imdieke, Clackamas Substance Abuse Program (CSAP) Supervisor, CCSO
- The Honorable Michael Wetzel, Clackamas County Presiding Judge
- Sheriff Angela Brandenburg, CCSO
- Captain Christopher Chandler, CCSO – Parole & Probation Supervisor
- Gary Schmidt, Clackamas County Administrator
- Simon Fulford, Parrott Creek Executive Director
- Christina McMahan, Clackamas County Juvenile Department Director
Additional Presenters include:
- Captain Kevin Thies, CCSO – Civil Division
- Deputy Trevor Overton, Electronic Home Detention, CCSO Jail
- Deputy Eliseo Ramos and Abbie,K-9, CCSO
- Brent Taylor – Transition Center, Supervisor
- Eric Anderson – CSAP Supervisor
- Leah Lamb – Residential Program Director, Parrott Creek
- Kate Stover – Residential Clinical Director, Parrott Creek
Opening Statement
In speaking to the witnesses, it was clear to the Grand Jury that this County is served by many dedicated and hardworking, well-trained public servants and contractors who provide a high level of service and are well-versed in their roles. In particular, the Clackamas County Jail leadership and staff strive to create a collaborative, supportive, and relationship-based environment for deputies, contractors, and adults in custody (AICs). Additionally, Clackamas County Jail leadership and staff create a rehabilitative environment for AICs to access various activities, education, transitional, and wrap around services, in an effort to reduce recidivism. AICs also have consistent and reliable access to technology for communication with medical staff, deputies, and activities.
The following are the 2025 Clackamas County Corrections Grand Jury observations and recommendations regarding the Clackamas County Correctional Facilities:
Clackamas County Jail
Based on information provided by the Clackamas County Sheriff's Office, the Clackamas County Jail is a funded 483-bed facility that in the previous three years was operating at 398-bed capacity. Renovations have been completed on outdated plumbing which opened a new women's block. Bed replacements throughout the Jail impacted the safety of AICs but reduced the bed capacity from 491 to 483. It was apparent that the facility as a whole needs replacement because of the concern for the health and safety of AICs and staff and an increase in operational efficiencies.
The AICs and staff have a largely positive stream of communication. AICs are given electronic tablets they can use to send communications (kites) to staff if they have a request. This is a reliable and efficient method to provide immediate complaints, questions, medical needs, and join addiction programs, etc. It should be noted that the AICs are extremely respectful of the tablets and their ability to use them.
The Clackamas County Jail offers several programs not offered in other counties; these include the General Educational Development (GED) program, Medical Assisted Treatment program (MAT), National Alliance on Mental Illness program (NAMI), Alcoholics Anonymous (AA), Narcotics Anonymous (NA), Church Services, and the Jail Substance Abuse Program (JSAP). Clackamas Community College has also continued to provide GED education in person. The Jail graduated more people through the GED program in 2024 (16) than Clackamas Community College did.
The JSAP program has proven to be very beneficial as there is currently a waitlist for admission to the program. After speaking with JSAP AICs, it is clear they are learning valuable tools to work on the substance abuse issues related to their previous criminal conduct while currently in jail. The Grand Jury recognizes the importance of these programs and would like to see an effort to secure long-term, sustainable funding for the JSAP program. We want to commend the efforts made to open and begin services within the female JSAP program. The JSAP program is one of a kind in Oregon and one of very few of its kind nationwide.
It is evident to this Grand Jury that a new Jail is necessary for Clackamas County. The current facility is aging with high maintenance costs, can no longer be updated, is undersized for the population, and has an outdated design impeding efficient operations. After interviewing jail and support staff we believe there is a need for a newer, larger facility of approximately 900 beds to meet the growing population and needs of the County in the future. Unfortunately, as of this year, there is currently no money in the budget to provide a replacement for the current Jail. As part of the Corrections Grand Jury's tour, it was evident that the control room monitors, control boards and cameras need updating for the safety of the staff and AICs.
The County is in year four of a stated 10-year plan for the development of a new Jail with a goal for construction to commence by 2030. This plan has twice been postponed due to other priorities such as the new courthouse. The Board of Commissioners is prioritizing the planning and funding for a new Jail.
Forced Releases
An ongoing concern of previous Corrections Grand Jury Panels is the issue of forced releases. A forced release occurs when the number of AICs to be lodged exceeds the number of available jail beds, so the jail must release those individuals that pose the least risk to the public. There is a work group in place that includes multiple agencies to continue work on the issue of forced releases. Possible contributing factors to improve forced release metrics are Pretrial Release, Early Resolution processes, alternative sentencing options, the opening of a Mental Health Stabilization Center, and a new facility with higher bed capacity.
The classification team often referred to as the matrix unit used by the CCSO Jail for forced releases has community safety as their primary focus. All arrests are scored using criminal history, behavior (mental health issues and substance abuse) and the severity of the crime. The total number of forced releases in 2024 was 3,688. This panel recognizes forced releases will also be less of an issue with the completion of a new Jail.
Medical Services
Everhealth contracted medical services, which came on board in 2023, are in use at the jail. The goal of the Clackamas County Jail medical team is to provide a level of care at or above what the AICs would receive on an outpatient basis when not in custody. The Jail Healthcare Administrative Services Manager is still seeking improvements to access AICs healthcare medical records. The medical staff's goal is to meet with every individual coming into jail and try to create an individual care pathway. The medical staff are not always able to access a patient's medical and mental health records outside the jail system or communicate with their primary care provider through the current system. Additionally, jail medical staff should work together to provide the same level of care off hours as during business hours. Alongside the registered nurses they also have dental evaluations and an on-site pharmacy. The jail can house 16 people in their medical clinic, which includes space for 12 isolated mental health individuals.
Recommendations for the continuation of patient care for Clackamas County AICs should include improved health care communication systems for medical referrals, prescription information, and increased coordination with the Mental Health Care Coordinator. Additionally, it is recommended there be an expansion of single-occupancy medical cell facilities for severe mental health AICs. This would help serve the unique needs of these individuals. This communication has improved with some health systems but needs to be an ongoing project. This Grand Jury would like to commend the medical staff for demonstrating a high level of care given the resource and logistical constraints on their department.
The Rapid Forensic Evaluation Assessment Program has reduced the time to evaluate AICs mental health needs. The rapid forensic evaluations are for individuals who are in custody and their fitness to proceed in a criminal prosecution is in question due to mental health issues. This program targets defendants who are often involved with law enforcement due to mental health reasons and seeks to reduce recidivism through the availability of alternative community-based services, programs, or treatments. The Rapid Assessment evaluations have reduced the visits to Oregon State Hospital by 80%. This assessment has also eliminated the lengthy 60-90 day waiting period down to just 14 days for those in need of an evaluation after submitting a request.
The Clackamas County Jail holds multiple accreditations from the National Commission on Correctional Health Care {NCCHC). That accreditation process involved a detailed external peer review, including a site survey, to ensure that the Clackamas County Jail meets national standards for the provision of health services, as set by the health, legal and corrections professions. In 2025, the Clackamas County Jail is to receive the Pinnacle Award for earning three NCCHC accreditations which include the Opioid Treatment Program and the Standards for Health Services in Jails and Mental Health Services. Clackamas County Jail is the only Jail to currently have an Opioid Treatment Program, with plans to expand to a Methadone Treatment Program soon. These types of programs are at the forefront of a modern approach to corrections. Each year as mental health needs increase, additional resources are also needed. The Corrections Grand Jury wants to acknowledge the hard work of Melanie Menear and her team for their efforts in leading these efforts.
Transition Center
Clackamas County offers services at the Transition Center which is located on the Clackamas County Jail campus to provide easy and immediate access for individuals upon release. This resource provides necessary personal items, basic needs, and informational resources for AICs re-entering society.
It is not only an important asset to the community to help released AICs reduce recidivism, but also for Clackamas County citizens who need these services as well. Transition Center workers can initiate contact with individuals while they are still incarcerated to set up successful plans before they are released. The Grand Jury recognizes the proximity of the Transition Center significantly contributes to its success. As a result, the Grand Jury recommends moving the CSAP program next to the Transition Center sometime in the future as an opportunity to utilize dual staff expertise for both programs.
Clackamas Substance Abuse Program (CSAP)
The Grand Jury took an extensive tour of CSAP and found the program to be very valuable to the participants, the community, and overall public safety. CSAP is an 80-bed residential program that houses 60 men and 20 women. It is the only high-risk residential facility in Oregon. The program was developed to access AICs for level of care to change behavior and belief structure. The employees work together to provide a safe, secure, and therapeutic environment designed to offer clients the necessary tools to obtain an organized and successful transition back into the community. In the last 12 months they have had 307 clients move through the program, and 62% that did not return to the CCJ within one year of release.
CSAP incorporates a holistic treatment plan that addresses Alcohol and Drug treatment as well as Medically Assisted Treatment (MAT). This program is less costly than incarceration for Clackamas County taxpayers. AIC are informed about this voluntary program while incarcerated. CSAP includes intensive rehabilitation that lasts approximately 18 months after being released from jail.
The facility upgraded their pharmacy system to include secure individually accessed medication which allows CSAP clients to practice skills needed for their self-care upon release.
CSAP is still a single facility and operating as a co-ed program. However, the CSAP staff would like to return to a separate facility for men and women based on the original design of the program. The lease for the building where CSAP is located is expiring soon and the county is in negotiations with OLCC to take over the property ownership. This Grand Jury recommends permanent funding for the CSAP program and expansion of the alumni program. Given the high success rate of the program, we recommend this model be adopted by other jurisdictions across the state and develop a method to spread awareness about the positive impact this effort has had.
Parole and Probation
The Parole and Probation division provides community supervision for convicted individuals in Clackamas County. In 2022, the Parole and Probation department merged with the Clackamas County Sheriff's Office. This reorganization has created new efficiencies in operations and collaboration across many of the public safety partners in the Clackamas County Criminal Justice System. The Parole and Probation division receives funding and oversight from the Clackamas County Sheriff's Office and the Oregon Department of Corrections.
Approximately 2,000 Adults on Supervision (AOS) are on parole and probation at a time. The division includes 43 employees with 23 people serving as case managers. Captain Chandler's goal would be to reduce the number of AOS to less than 50 individuals per Parole and Probation Officer (PPO) by increasing the number of PPO's. Captain Chandler also mentioned a need for safe and appropriate housing and contracted mentors. This would positively benefit the AOS as well. Different levels of risk are assessed when the AOS enters the program and based on the risk assessment, the program can be adjusted to achieve the desired response and result for each individual. All case plans are created based on risk assessment to reduce recidivism.
Juvenile Intake and Assessment Center Program
Clackamas County does not have a correctional facility for juveniles. The Juvenile Intake and Assessment Center (JIAC) provide a 24-hour, 365 day a year resource to support youth and community safety. It is the only 24-hour temporary holding facility for youth in the state, working with runaways, curfew violations and minors in possession of alcohol and marijuana, etc. Currently, the Juvenile Intake and Assessment Center in Clackamas County provides assessments, screening, and other processes of youth who are referred for an offense. JIAC resources include: Intake assessments and screenings, Release Determinations and Planning, Oregon Department of Human Services partnerships, Clackamas County Behavioral Health, Safety Compass, and Screening, Brief Intervention and Referral to Treatment. All the previously mentioned resources lead to lower than the statewide recidivism rates annually.
If it is determined the situation requires detention to a correctional facility, then Clackamas County Juveniles are currently sent to Marion County to be housed. In partnership with Marion County and Washington County, Clackamas County is creating a savings of almost a million dollars annually by using a shared detention facility in this manner.
Parrott Creek Youth Treatment Center
Parrott Creek was founded in 1968 through a citizen-approved ballot measure. In 2020, Parrott Creek purchased the facility and land from the County for $1. It has grown throughout the years and served over 30,000 children, youth, adults and families. Their program and services include; youth residential treatment, independent and transitional living, housing and rental assistance, outreach and peer mentoring, recovery homes, outpatient treatment for addiction and mental health and cultural ecology and indigenous land stewardship. Their mission is to offer person-centered and culturally responsive programs and services to address social determinants of health in our community. Their goal is for all people to experience social, emotional, and physical well-being with justice and hope. They approach their work through the values of unconditional positive regard, mindfulness, being trauma-informed, and using restorative and social justice models.
We were honored to be the first Corrections Grand Jury to visit the Parrott Creek Youth Treatment Center. Their newly rebuilt youth treatment center includes three programs f o r servicing: adjudicated youth, children in foster care, and a co-occurring treatment program for substance abuse and mental health. Once all three treatment programs are open, they have availability to serve up to 40 youth (ages 13-18), where the old facility only had 20 beds. The thoughtful efforts of the design team allow for a trauma-informed space that is welcoming for the youth to work through the program in a safe and welcoming environment.
Oregon has one of the nation's highest youth incarceration rates and is also among the worst states for youth mental health outcomes. Executive Director Simon Fulford incorporates the mantra, "Believe in Better" and puts that mantra into practice daily among his staff and youth at the facility. Fulford recommends the need for better coordination and funding of youth programs to improve service models throughout the State of Oregon. Parrott Creek's recidivism rate is half that of the statewide average. 100% of the youth at Parrott Creek engage in substance abuse treatment and skills groups as well as their Family Engagement Program. In addition, 100% of their youth develop a safety plan for their return to family and the community.
Clackamas County Courthouse
The new Clackamas County Courthouse was completed and took occupancy in May of 2025. The new Courthouse is a 250,000 square foot, seven story building, equipped with 14 courtrooms. This new design is more efficient for the approximately 300 employees and 12,000 visitors each month. The Courthouse includes: the Law Library, a space for Public Defense Lawyers, 14 judges and staff, District Attorney's Office, the Sheriff's Office and the Oregon Judicial Department - Clackamas County.
The Grand Jury commends the Clackamas County Sheriff's Office on the safe and efficient running of the Courthouse holding facility and efficient transportation of AICs into the Courthouse. The Vehicle Sallyport, main holding area, and two security elevators assist with the efficiency of transport and logistics involving the AICs. By contracting with DPI in the main screening area, it relieves duties from the Sheriff's Office to focus on the remainder of the building. There are two security desks to monitor cameras and doors which allow for a smooth, safe, and efficient running of the building. The additional upgrade of more cameras, doors, and software in the near future will increase the security throughout the building. The Sheriff's Office may also need additional staff to adequately staff their assigned posts and daily tasks.
Summary
The Grand Jury went on comprehensive tours of the Clackamas County Jail, including the JSAP block, the Clackamas County Courthouse, including the holding cells, the Transition Center, the CSAP residential facility and Parrott Creek. Additionally, testimony was given by Christina McMahan, Clackamas County Juvenile Director about the Juvenile Intake and Assessment Center. The Grand Jury found this experience to be extremely educational and enlightening. We recognize the passion and efforts of the Sheriff's Office, the Clackamas County Circuit Court, the County Administrator and the District Attorney's Office to continually improve services. There is clearly a strong system of collaboration between agencies to enhance the delivery of services for the improvement of the County as a whole.
This Grand Jury also recognizes the benefits of the various programs within the Clackamas County Jail for the community at large. We believe these programs should be prioritized and expanded as an investment for the future.
This Grand Jury recommends that the County focus on the planning and development of a new Jail. This includes educating the community on the benefits and need for the construction of a new Jail. These benefits include fewer forced releases, increasedpublic safety, increased operational efficiency, safety within the jail, and greater opportunities for AICs to reform while incarcerated and after release.
It cannot be understated the dedication and passion of the personnel this Corrections Grand Jury witnessed while touring facilities and receiving testimonies across the Clackamas County departments. This Corrections Grand Jury has been impressed with the strong desire to change behaviors and belief systems to treat the cause of the crime throughout all departments and personnel. There is a noticeable passion to treat and rehabilitate the person and not just punish for the crime. These continuous efforts to lower the recidivism rate and provide greater public safety for Clackamas County make us proud to be a part of this community.
The Grand Jury of 2025 respectfully submits this report.
Foreperson (on behalf of the Corrections Grand Jury)
Date
*The Clackamas County District Attorney’s Office would like to acknowledge that shortly after the 2025 Corrections Grand Jury completed their evaluation process, issued their report, and were released, there was an inmate death at the Clackamas County Jail. As a result, there is now an ongoing investigation and pending criminal homicide case because of this incident. This process will take an extended period of time to complete. Once that has occurred, the next Clackamas County Corrections Grand Jury will inquire about the surrounding circumstances involving this inmate death.