District Attorney

Conditions and Management of Clackamas County Correctional Facilities

October 29, 2026

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 seven-member Grand Jury addressing this issue in Clackamas County was empaneled on October 05, 2026, and convened October 12, 2026, through October 16, 2026. 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:

• 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 Ann Lininger, Clackamas County Presiding Judge 
• Sheriff James Rhodes, CCSO 
• Captain Christopher Chandler, CCSO – Parole & Probation Supervisor 
• Gary Schmidt, Clackamas County Administrator 
• Simon Fulford, Parrott Creek Executive Director 
• Katie Anderson, Clackamas County Juvenile Department Director

Overview

In speaking to the witnesses and visiting the facilities, it was clear to this Grand Jury that this county is served by many dedicated and hardworking, well-trained public servants who provide a high level of service and are well versed in their roles.  It stands out that despite the budget, facilities, and other challenges they face daily, all of these individuals do an amazing job in their efforts to reduce crime and help the people in their care.

Clackamas County Jail 

Building

Based on information provided by the Clackamas County Sheriff's Office, the Clackamas County Jail is a funded 483-bed facility averages a daily population of 348 Adults In Custody (AIC). The number of beds available needs to consider gender, type of criminal activity, and physical and mental health. The jail population continues to change. According to City Administrator Gary Schmidt, the city commissioners plan to have a new jail design and options for how to fund it by 2028.   

As reported by previous Grand Juries, it was apparent that the facility as a whole needs replacement because of the concern for the health and safety of AICs and staff, as well as increased operational efficiencies. Captain Jennifer Freeman reported that she spends much of her time and budget on planning for maintenance for the current aging facility. Yet, much of the facility can no longer be updated, is undersized for the population, and has an outdated design impeding efficient operations. 

On 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 current camera project is scheduled to be completed by 2027 and replaces cameras in common areas that are 15 years old.  However, there is not a plan, money or ability (because of the age of the building) of putting cameras in each cell, as is common in newer facilities. 

Both Chief Deputy DA Chris Owen and Captain Freeman discussed the 2 deaths that took place in custody over the last year.  One of them was a result of a fight in a cell, meaning there was no film evidence of what happened. The other took place during intake, and while some footage is available, it was on old cameras which had blind spots. The lack of footage illustrates the safety concerns, additional time and money for investigations, and additional stress on the department of corrections staff. More significantly, Captain Freeman noted that a change in procedure was made after review of the incident.

The Clackamas County Jail offers several programs. The General Educational Development (GED) program is offered in collaboration with Clackamas Community College. Alcoholics Anonymous (AA), Narcotics Anonymous (NA), Church Services, Yoga and others are staffed by volunteers. These programs have limited access because of lack of space as well as lack of staff. We suggest the there be investment in these programs so that their access matches the needs and desires of the AICs.

The Grand Jury recommends that the county build a Correctional Campus that includes not only a traditional jail, but houses the space and buildings for the transitional programs championed by those throughout the correctional system, from the judges to the deputies. These transitional programs will be addressed in detail later in the report.

In stark contrast to the difficulties presented by the facilities and changing population, it was clear to this Grand Jury that everyone works as a team, likes each other and their work, and cares deeply about those in their charge.

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 2025 was 3,547. 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. As stated in the 2025 report, the Jail Healthcare Administrative Services Manager is still seeking improvements to access AICs healthcare medical records. While medical staff's goal is to meet with every individual coming into jail and try to create an individual care pathway, they 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. 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. While on the jail tour, the Grand Jury notes that all 12 spaces for mental health individuals were occupied.  Some of these isolated units are negative airflow pressurized in order to contain AICs with oxygen issues or contagious diseases and other health concerns.  They are out of commission when they are occupied by an AIC having a mental health crisis. Currently, 46% of AICs are diagnosed mental health cases.  There is a need for additional beds in the medical facilities to address those who need healthcare.

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 AICs with significant mental health crisis. This would help serve the unique needs and safety 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. 

As mentioned earlier, the AICs have increasing drug and alcohol abuse issues which then complicate the mental health problems. These two factors lead to additional health issues in an aging population.  Melaine Menear, the Jail Health Care Administrative Manager, reports that CCSO are focused on being a “forward thinking facility.” 

One program that illustrates this thinking is The Rapid Forensic Evaluation Assessment Program which 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.

Another important program is the Medications for Opioid Use Disorder (MOUD), which provides the same care an opioid user would be able to receive outside of the correctional system, including the use of methadone, buprenorphine, and naltrexone.  The jail medical team has partnered with CODA in Portland in order to have methadone available for treatment of these individuals.  Melaine Mainer has worked to achieve the approval of the DEA to have methadone and other drugs to sustain this program available and housed in the jail pharmacy. At this time, she is simply awaiting DEA approval.

In 2025, the Clackamas County Jail received 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. 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. 

Transitional Services

H Block (JSAP)

The JSAP program has proven to be very beneficial as there is currently a waitlist for admission to the program. This program uses cognitive-behavioral therapy to help AICs understand the basis of their behavior and develop means of taking control of their lives. 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 current JSAP program as well as the funds to expand it. 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.

Transition Center

The Transition Center offers services both inside and outside of the jail.  Inside, they work with AICs to develop a plan to implement upon their release.  This includes the services they will need to access and where they will go.  The Transition Center is located on the Clackamas County Jail campus to provide easy and immediate access for individuals upon release and aids with the implementation of the plan.  In addition, 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. 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.

Residential Center (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. According to Lt. Imdieke, the program “teaches AICs to recognize for themselves that their offending behavior is a product of their own thinking, and that this thinking is within their control.” The program was developed in order to help AICs 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. 

CSAP addresses clients with high criminality and drug abuse issues, meaning that these are the clients who result in the highest level of recidivism.  This program is less costly than incarceration for Clackamas County taxpayers. AICs are informed about this voluntary program while incarcerated. CSAP includes intensive rehabilitation that lasts approximately 18 months. The average length of stay in-house is 363 days, but the average length of time to complete the program is 605 days.  According to CSAP data on those who have completed the program

• Not arrested for a new crime at 1 year: 100%
• Not arrested for a new crime at 3 years: 93%

This is a program that all components of the correctional system would like to see expanded to address more of the AICs.  The program was referred to as “the crown jewel” of Clackamas County Correctional System by both the sheriff and the presiding judge.

Parole and Probation 

The Parole and Probation division of the sheriff’s office provides community supervision for Adults on Supervision (AOS) in Clackamas County, both those released and those sentenced to probation. The Parole and Probation division receives funding and oversight from the Clackamas County Sheriff's Office and the Oregon Department of Corrections with additional funding from two grants.

From October 2024 to October 2026, the number of case managers has been reduced from 30 to 23. Yet, from October 2025 to September 2026, those case managers supervised 5,525 adults resulting in 28,978 direct contacts.  Approximately 2,000 adults are on supervision at one time. This creates a ratio of 80:1. The division is in need of three additional case managers to reach the recommended ratio of 50:1.

In addition to connecting AOS to services, the division provides some specialized services including Embedded Post-Conviction Victim Services, Grant Funded Behavioral Health Program, Mobile Stabilization Outreach Unit, and Grant Funded Downward Departure Probation Program.

Juvenile Intake and Assessment Center Program

Clackamas County does not have a correctional facility for juveniles. The Juvenile Intake and Assessment Center (JIAC) provides 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. In 2024, while the statewide recidivism rate was 27%, the Clackamas County rate was 21.4%.

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 $83,385.00 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. 

Their newly rebuilt youth treatment center, which opened in August of 2025, includes three programs for 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 enables 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. Parrott Creek's recidivism rate is half that of the statewide average (12% vs. 24.7%). 100% of the youth at Parrott Creek engage in substance abuse treatment and skills groups, and 75% participate in a 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. A 15th courtroom is currently being finished. 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 35-40 AICs per day 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 Katie Anderson, Juvenile Department Division Manager. 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 evidence-based 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. A new facility will allow the physical restructuring of these programs, placing the residential CSAP program in the vicinity of the jail allowing cost savings by sharing staff and services.  In addition, it will reduce transportation costs (both time and staff).  We identified the necessity to educate the community on not only the need for a new facility, but also on benefits it would provide to the community at large. These benefits include fewer forced releases, increased public safety, increased operational efficiency, safety within the jail, and greater opportunities for AICs to reform while incarcerated and after release. 

The dedication and passion of the personnel this Corrections Grand Jury witnessed while touring facilities and receiving testimonies across the Clackamas County departments cannot be emphasized enough. Throughout all departments and personnel, this Corrections Grand Jury has been impressed with the strong desire to utilize evidence-based therapies and interventions to change behaviors and belief systems to treat the cause of the crime. There is a noticeable passion to treat and rehabilitate the person and not just punishment 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 2026 respectfully submits this report.