2018 Clark County District Attorney Platform

Local prosecutors hold extraordinary power in the criminal justice system. How they exercise discretion at each stage of criminal proceedings—from initial charging decisions to the sentences they seek to impose—determines whether the local justice system is fair and just. They also wield significant influence as policymakers and civic leaders, and can work with legislators, judges, public defenders, law enforcement, and other community stakeholders to advance justice through policy reforms.

Prosecutors can and should use this power to end the scourge of mass incarceration in America. The United States has the largest prison population in the world, and 87 percent of those imprisoned are held in state or local prisons and jails. Clark County’s daily jail population has risen over the last four years, with the majority of that population being defendants held pre-trial. Clark County’s over-reliance on incarceration and harsh punishment is both costly and ineffective; it exacts enormous financial, emotional, and social costs on communities across the country while exacerbating recidivism and leading to more crime.

This platform outlines specifically how the Clark County District Attorney—through a combination of prosecutorial discretion and policy reforms—can address key drivers of mass incarceration. It relies on five basic principles:

  1. End Wealth-Based Disparities.

  2. End the War on Drugs.

  3. Eliminate Excessive Punishments.

  4. Increase Transparency and Accountability.

  5. Promote Policies that Aid Undocumented Communities.

 

Principle #1: End Wealth-Based Disparities

1. End the Use of Money Bail

The continued use of unjust money bail policies contributes to the overall incarceration of poor people and disproportionately harms people of color by keeping them incarcerated simply because they cannot afford to pay bail. The Clark County District Attorney should adopt the following policies or engage in the following actions to reduce the use of cash bail.

  • Issue public statements in support of statewide legislation, local ordinances, and/or litigation aimed at ending unjust money bail policies.  

  • Until money bail is eliminated, advocate for individualized, adversarial bail hearings, at which the defendant is represented by counsel.

  • Advocate against the use of bail schedules that only consider the crime charged.

  • Presume and affirmatively recommend release on recognizance, on the record, for all defendants unless there is a clearly articulated substantial risk of harm to the community or high likelihood of flight.

  • Train all prosecutors on the presumption of release and consent to release on recognizance.

  • Publicly support the expansion of cash-free pretrial bonds.

  • Collect and share data on detention and release outcomes with the public.

 

2.  Make Diversion Programs Accessible to All

Pretrial diversion creates opportunities for people charged with an offense to get the support and education necessary for rehabilitation and allows successful individuals to avoid the collateral consequences of a conviction, which can be detrimental to future employment, housing, and education. Pretrial diversion should be available to anyone eligible to participate in the program, irrespective of an individual’s ability to pay a fine or fee.

  • Publicly advocate for the elimination of all fees, court costs, and fines associated with diversion programs.  If fees cannot be eliminated for all defendants, create a robust fee waiver program.

  • Publicly advocate for the repeal of legislation that requires fines or fees to be paid in order to participate in diversion programs.

  • Do not make admission to diversion programs contingent on ability to pay restitution.

  • Dismiss or reduce charges for defendants who complete a diversion program.

  • Refrain from conditioning admittance to programs upon a guilty plea or admission of guilt.

  • Divert those with mental health issues away from jails and prisons and into community-based treatment.

  • Support pre-charge diversion programs for offenses that do not pose a public safety risk, such as theft, vandalism, and criminal mischief.

 

3. Adopt Policies to Avoid the Criminalization of Poverty & End Debtor’s Prison

Local criminal justice systems disproportionately harm people living in poverty. Whether through the imposition of fines and fees as a condition to resolving cases, or through laws that effectively criminalize homelessness, local actors have imposed a poverty penalty on many people within our communities. Clark County prosecutors should adopt the following policies to reduce the number of people who remain in jails or have criminal convictions simply because they are poor.

  • Publicly support legislation to outlaw drivers’ license suspensions for non-payment of fines or fees.

  • Publicly advocate amnesty for fines and fees that result in driver’s license suspensions.

  • Oppose incarceration based upon the failure to pay fines, fees, court costs, or restitution unless there is uncontroverted proof the individual is able but willfully refusing to pay.

  • Dismiss charges when possible to allow individuals to reinstate their driver’s license.

  • Agree to not oppose waiving fines and fees unless the person has the ability to pay.

  • Publicly oppose the issuance of bench warrants issued solely on the basis of the failure to pay fines and fees.

  • Oppose incarceration based upon the failure to pay fines, fees, court costs, or restitution unless there is uncontroverted proof the individual is able but willfully refusing to pay.

  • Refuse to prosecute sit-sleep-lie laws, public urination violations, and other quality-of-life conduct that is a byproduct of an individual’s homelessness or poverty.

 

4.  End Civil Asset Forfeiture

In many states, law enforcement can seize money, personal belongings, and property from people without even charging them with a crime or obtaining a conviction. Although Nevada requires a conviction before law enforcement can make a seizure, there is the perverse incentive to over-police. Often, the money seized is used to pad law enforcement budgets. There is no place for this practice, which has received criticism from across the ideological spectrum. The Clark County District Attorney must resolve to put an end to asset forfeiture in their counties.

  • Support statewide legislation to end the use of civil asset forfeiture, and work with local officials to end the practice in your county.

  • Prior to the elimination of asset forfeiture, advocate for the redistribution of seized asset into the state and local general fund.

 

Principle #2: End the War on Drugs.

1. Keep People Out of Jail for Drug-Related Offenses

Years of experience with ineffective drug laws and the latest medical research on addiction suggest that treating drug use as a public health issue, as opposed to a criminal justice issue, is a more effective approach to reducing harm. The Clark County District Attorney should adopt the following policies or engage in the following actions to reduce the number of people in jails and prisons for drug-related offenses.

  • Never ask for incarceration sentences for defendants charged with simple possession of a controlled substance.

  • Where dismissal is not possible, create and expand cite-and-release and diversion programs for drug offenses, including drug possession, possession of drug paraphernalia, and distribution of small amounts of drugs.

  • Refrain from charging possession of narcotics based solely on constructive possession in a residence or vehicle, without any other evidence of use or possession of the narcotics.

  • Refrain from charging defendants with possession with the intent to distribute a controlled substance based solely on quantity or packaging.  

  • Adopt a policy prohibiting the prosecution of individuals as “habitual criminals” whenever one or more of the underlying charges is for simple possession of a controlled substance.

  • Publicly support legislation that reclassifies all drug possession offenses as misdemeanors.

  • Publicly support legislation that removes or reduces mandatory minimums for drug offenses.

  • Consent to the expungement of records for people who have convictions for marijuana possession as a result of marijuana arrests occurring before June 2017.

 

2.  Treat Opioid Addiction as a Public Health Problem

The opioid crisis claims tens of thousands of lives every year and has shown few signs of abating. Each year since 2008, more Clark County resident have died from opioid overdoses than from firearms and motor vehicle traffic accidents. In 2012-2014, the mortality rate from opioid overdoses in Clark County was almost 70% higher than the national rate. Prohibitionist policies did not win the war on drugs, and they will not end this crisis. The Clark County District Attorney can play an important role in ending the crisis, but only if they treat addiction as a public health crisis, rather than a criminal justice concern.

  • Adopt an office-wide policy stating that drug overdoses will not be prosecuted as homicides cases except when there is sufficient evidence of intent to cause death.

  • Publicly support the creation of supervised injection facilities.

  • Ensure that Nevada’s “Good Samaritan Drug Overdose Act” is being enforced throughout the office.

 

Principle #3: Eliminate Excessive Punishments.

1. Treat Kids Like Kids.

Children’s brains continue developing until around the age of 25 and research supports their enhanced capacity for rehabilitation. As a result, children should not be prosecuted in adult court, nor should they be given punishments that preclude the opportunity for redemption. Locally-elected prosecutors should adopt the following policies to ensure that children are treated like children in the criminal justice system.

  • In line with the recent elimination of juvenile life without parole in Nevada, adopt an office-wide policy stating that your office will never seek any practically equivalent sentence, for any person under the age of 18.

  • Refrain from requesting certification for any child to be transferred to adult court unless required by law. In the extremely rare circumstances when a juvenile is sent to adult court, their youthful status and unique circumstances should be considered mitigating factors at each stage of the process, from charging decisions through final disposition.

  • Do not prosecute school suspension or expulsion cases where there is no use or threat of force resulting in serious physical harm.

  • Advocate for increased services for incarcerated juveniles.

  • Publicly support changing any and all laws that require children to be prosecuted as adults, including through legislation that raises the age of adult criminal responsibility for all crimes to 18, or preferably 21.

  • Publicly advocate for developmentally-appropriate Miranda protections for all defendants under the age of 18

 

2. Do Not Seek the Death Penalty

The use of the death penalty has become increasingly isolated to a handful of jurisdictions within the United States. Clark County is an outlier in the nation: in 2017 the County sentenced four defendants to death which is the second highest total of any county in the United States for last year. There is mounting evidence that the death penalty is fraught with error, provides no additional public safety benefit over other available sentences, and is routinely used against individuals with diminished culpability, including persons with intellectual disabilities and severe mental illness, youthful offenders under the age of 21, and those who have experienced extreme childhood trauma. Locally-elected prosecutors should use their discretion not to seek the death penalty.

  • Refuse to seek death in all capital prosecutions.

  • Publicly support repeal of the death penalty.

  • Examine previously-imposed death sentences within your county and seek negotiated resolutions for sentences less than death, particularly when there is substantial evidence that the death-sentenced individual suffers from an intellectual disability or serious mental illness, or was under the age of 21 at the time of the offense, or experienced childhood trauma.

  • Publicly acknowledge the racial disparity present in Clark County’s implementation of the death penalty.

 

3. Promote Proportionate Sentencing and Pathways to Second Chances

People are more than their worst acts, and even people who commit the most serious offenses often change their lives profoundly over time. To recognize the worth and potential for growth in all people, it is important for local prosecutors to provide individualized consideration to the character and background of each person and to the circumstances surrounding the commission of the offense. It also is critical for elected prosecutors to promote opportunities for release, through parole or clemency, and to help remove barriers to reentering society for those who are released from incarceration.

  • Establish an office-wide presumption that the least severe applicable charges apply, and that the lowest sentencing outcome is the correct recommendation. Require prosecutors to justify departures to their supervisors, and require that the Assistant District Attorney approve all maximum sentences sought.

  • Establish an office policy against increasing or threatening to increase the number or severity of charges in order to secure more favorable plea dispositions or waivers of rights.

  • Publicly oppose any proposed legislation that would create new mandatory minimum sentences or lengthen existing minimum sentences and support legislation aiming to eliminate such sentences.

  • Support second chances, even for those who commit serious offenses, by both limiting parole opposition to those cases in which there is a demonstrable and serious risk of future violence and committing to affirmatively advocate for parole on behalf of those who demonstrate growth and maturity during their incarceration.  

 

4. Eliminate Unnecessary Punishments

Criminal punishments for certain crimes, including quality-of-life offenses, are by definition excessive.  They saddle people with criminal records, and therefore lifelong barriers to economic success, who pose no public safety risk.  

  • Stop prosecutions for broken-windows offenses like criminal trespass, public urination, and disturbing the peace.

  • Establish pre-prosecution programs for offenses where those charged pose no public safety risk, such as low-level theft and criminal mischief.

  • Advocate for and establish true diversion that takes place pre-charge, keeping individuals from unnecessarily entering the criminal justice system.

 

Principle # 4: Promote Transparency and Accountability to the Community

1. Engage with the Community You Represent

Enhancing transparency and accountability within the district attorney’s office is critical to ending the win-at-any-cost pursuit of high conviction rates that fails communities and to ensuring community accountability.  Providing the community with information about arrest rates, charging decisions, and sentencing policies will help build and maintain trust between the office and the community it serves.

  • Maintain and publish an electronic case management system to measure the overall effectiveness of the office—including the number of misdemeanor and felony cases filed each month, disposition statistics, pretrial incarceration rates and length of stay by offense category, and average bond for each class of offense—so that the community can determine the effectiveness of policies aimed at reform.

  • Track racial information at all steps of the prosecution process, and publicly report any significant racial disparities arising at any stage of the process.

  • Implement office protocols for disciplining assistant district attorneys who engage in racially biased behavior (racial profiling, hate speech, Batson violations, etc.).

  • Mandate regular implicit bias training for all prosecutors.

  • Build a staff that reflects the diversity of the community the office serves.

  • Conduct open sessions with the community at least once every month, and create other public channels for community members and organizations to engage with the office about issues including police-community relationships and allegations of police brutality.

 

2.  Create an Independent Public Integrity Unit

The district attorney must be committed to rigorously and independently investigating and prosecuting police and other official misconduct. An independent Public Integrity Unit tasked with investigating and prosecuting alleged instances of public corruption, fraud, police shootings, or other abuses of power will help avoid concerns about bias in cases involving police misconduct.

  • Develop clear procedures and staff responsibilities whenever an officer-involved shooting occurs, including a robust investigatory protocol and an independent investigatory team that has no regular contact with the law enforcement agency in question.

  • Release body-cam recordings and audio or video surveillance related to police-involved shootings within 30 days of any incident.

  • Commit to a full investigation of any allegation involving police corruption, including presentation to the grand jury.

  • Provide defense counsel with a list of all officers under investigation.

 

3. Develop Policies that Ensure the Integrity of Convictions

Law enforcement officials and prosecutors will inevitably make mistakes. The consequences of wrongful convictions are manifold; the innocent person spends years in prison for a crime he did not commit, and justice continues to elude the victim’s family. Prosecutors must be vigorous in re-examining prior cases whenever there is credible evidence of innocence, and must develop policies that limit the possibility of future wrongful convictions.

  • Acknowledge that there have been wrongful convictions due, in part, to prosecutorial misconduct in Clark County.

  • Ensure that the existing Conviction Integrity Unit (CIU) is fully staffed and examines post-conviction cases to identify and correct wrongful prosecutions, including charging decisions, plea bargains, and convictions

  • Keep the CIU separate from the office’s appellate division.

  • Collaborate with the Clark County Public Defender’s Office and the Rocky Mountain Innocence Center.

  • Regularly update the public on the work done by the CIU through annual reporting on individual cases taken, personnel involved, and reforms implemented.

  • Create a review process for all discretionary decisions, from charging through disposition, where senior staff examine whether there is sufficient evidence to support the charges and whether the decision is consistent with the office’s policy of seeking the least severe acceptable charges.

  • Create an office policy recognizing the flaws in informant testimony, and develop clear guidelines regarding its acceptable use.

  • Prohibit staff from relying on discredited scientific techniques, such as bite mark analysis or hair strand matching.

  • Develop clear office guidelines regarding the use of forensic evidence and instill respect for scientific methodology, evidence, and analysis.

  • Install a complete open-file policy that provides defense counsel with access to all non-privileged information from the moment the charges are filed.

  • Conduct regular Brady training, require prosecutors to turn over all evidence that arguably falls within the Brady rule, and discipline prosecutors who fail to comply with their Brady obligations.

  • Develop and publish clear guidelines to ensure that persons of color are not being struck for racially discriminatory reasons in violation of Batson, and discipline prosecutors who are found to be in violation.

 

Principle #5: Promote Policies that Aid Undocumented Communities

In the last year, undocumented communities have come under increasing attack because of increasingly vicious federal immigration laws. These policies not only allow for deportation because of minor allegations like possession of drugs, but they also make communities less safe, as undocumented victims fear going to court or speaking to law enforcement. Clark County is home to an estimated 170,000 undocumented immigrant. These policies will help the District Attorney protect our most vulnerable individuals.

  • Publicly support local ordinances and statewide legislation that affirmatively limits law enforcement’s cooperation with ICE, and oppose any effort to enlist local law enforcement as federal immigration agents.

  • Implement an office-wide policy requiring prosecutors to consider immigration consequences in the charging, plea, and sentencing decisions.

  • Expand pre-plea diversion programs that allow individuals to obtain dismissals of their charges without entering a guilty plea or making an admission of guilt.

  • Affirmatively support post-conviction litigation from non-citizens who pled guilty without being advised of the potential immigration consequences of their plea.

  • Confer with local law enforcement regarding their discretion to not charge or cite an individual who is only accused of a minor crime/violation and encourage such a practice.