The bail-setting decision
is crucial to a defendant, of course, because it can determine whether a person
will be held in jail or will go home until the case ends. More than that, bail
affects the outcome of the case, especially for what are often considered
“minor” cases.
For example, if a woman
had been arrested for shoplifting but was released from jail on bail, she was
unlikely to take a later plea offer that would send her to jail for sixty days.
In the normal course of the court business, she would not come to trial for
months and months. If she stayed out of trouble for that time, she would tend
to look reformed, and almost always, she would be offered some sort of no-jail
plea. Indeed, what would be the point to the expensive process of locking her
up if she is already reformed?
If, however, that same
person was not bailed out, after several weeks in jail, having come to grips
with a jail life and knowing the important fact that her incarceration would
end in the not-too-distant future she was likely to take a plea offer of sixty
days. Similarly, the minor drug offender out of jail might enter a treatment
program, and if he appeared to be succeeding in it, sending him back to jail
was senseless. This opportunity, of course, would not be available for the
defendant who did not make bail.
Serious charges are
affected in other ways. It is easier for a defense attorney to prepare a case
when the defendant is out of jail. The best person to find witnesses and get
them to cooperate with a defense attorney is often the defendant himself. For
example, when there was a barroom fight, if an investigator or I went to that
bar, few, if any, would talk with us. If the investigator or I went with the
defendant to the bar, the likelihood that someone would tell us about what happened
would increase tremendously.
When the defendant is
out of jail, communication between attorney and client is easier. There might
be frequent discussions in my office when the accused was bailed, and an hour
interview took an hour of my time. When the defendant was in jail, the
situation was much more complicated. I would have to travel to the jail at a
time when I was permitted to talk with someone held there, and often in New
York the defendant was incarcerated an hour or more from my office. After
getting there, it could take from fifteen minutes to an hour to have the
defendant produced in an interview room, and after the discussion was over,
there was travel time back to the office. An hour interview could easily take
four hours, and that meant less communication between attorney and client.
In addition, most
attorneys feel that a jailed defendant is less likely to succeed at trial than
one at liberty. Jurors, consciously or unconsciously, will think that if a
defendant is already in jail, there must be a reason, and he should stay there.
Many efforts were made
to prevent jurors from learning that a defendant was being held in detention. The
accused at trial does not have to wear prison garb, and he was always brought
into the courtroom and handcuffs removed before the jury would be allowed into
the room. Even so, most of us felt that either through slipups or because the
demeanor in some ineffable way is different between a jailed and a released
defendant, the jury would somehow learn or sense that a defendant was not at
liberty. On the other hand, if a defendant was out on bail, I would try to have
conversations outside the courtroom or outside the courthouse at times when
jurors might see us to try to send the subliminal message that maybe this guy
really wasn’t guilty, or why wouldn’t he be in jail now?
While the setting of
bail was hugely important, it was usually initially a quick, slapdash affair. The
prosecutor could suggest what it should be; the defense attorney had the same
opportunity; and the judge would make a decision. Various pieces of information
were considered in the bail setting. The seriousness of the charges weighed
heavily. As a general proposition, the more serious the charges, the higher the
bail. It was not unreasonable to assume that a person who might be sentenced to
fifteen years in prison was more likely to flee than one facing only a year.
Not surprisingly, most people charged with murder were not granted any kind of
bail and instead were simply remanded to pretrial detention. But don’t assume
the accused murderer who is granted bail and released will not come to the
scheduled court appearances if they are granted bail and released. I
represented a person who had twice been convicted of the same murder but both
times the convictions were reversed for errors at the trial. He was released
from detention while he waited for his next murder trial. He diligently
appeared for each court appearance. And he was found not guilty at his final,
error-free trial.
A defendant’s prior
record was also considered in bail-setting. Among the court papers was a “rap
sheet,” which in my early days was often called a “yellow sheet” because it was
printed on yellow paper. This, in theory, contained the prior record, but it
seldom did. Generally, only the arrest charges leveled by the police were
listed without the result of the case. Those arrest charges often made that
prior case seem much more serious than it was. For example, as in one of my
cases, a person had been initially charged with robbery when he was really
accused of pushing a clerk as he tried to leave a store without paying for a
bag of Doritos. In court the case was not treated as a robbery, and he pleaded
guilty to a minor misdemeanor. Since the disposition was not entered on to the
rap sheet, the prior criminal record would contain a robbery offense when it
was a low-level larceny. Because his prior record looked worse than it was,
higher bail than necessary might be set. The Legal Aid Society fought for more
accurate records, and rap sheets did improve over time, but incomplete
information was still frequent. (My favorite listed disposition was on the rap
sheet of the defendant from one of my first trials. The defendant was about
sixty years old, and he had been arrested dozens of times around the country
for minor offenses. About two decades before I met him, he had been arrested in
Terre Haute, Indiana, for vagrancy, a charge that is unconstitutional today.
This arrest did have the disposition: “Put on the bus to Chicago.”)
The prior record was
considered important for bail for two reasons. The lengthier the record the
more it could be concluded that the defendant had a disregard for the law. The
higher the disregard for the law, the less likely it was that the person would
follow the law and come back to court for scheduled appearances. In addition, a
person who was a recidivist was more likely to get a longer sentence if
convicted than one without a record, and, facing more jail time, he had a
greater incentive to flee.
Ties to the community was
the third consideration for bail. Someone who was firmly embedded in New York was
considered a better bail risk than someone else. Possible factors here were the
length of time living in the City and at a particular location; a job and its
duration; family; and so on. The first source for this information was an
interview conducted after the arrest and before the initial arraignment. The
interviewer filled out a form, which became part of the court record. A defense
attorney, however, could help in establishing ties to the community. The form
indicated whether information, say, a job, had been corroborated. Often it was
not confirmed because the interviewer could not reach the employer. The
interviewer could only call and may have failed to reach the boss because of
the hour when the call was made, which could have been after working hours. Since
the arraignment might occur twelve hours after the ties-to-the-community
interview and corroboration might then be available, I or an assistant might be
able to corroborate information that had not been confirmed before. It could
make a great deal of difference in the bail decision if I could tell the judge
that I had talked to the defendant’s employer, and, yes, he did work there, and
he would have a job if released. In this and other ways, a defense attorney
could affect the bail-setting decision.
Financial resources
also came into play in the bail setting. The theory has been that a loss of the
posted amount would be such a blow that those posting it would make sure that
the defendant would show up in court. The impact of the forfeiture of, say,
$1,000, of course, varies. To the wealthy it may mean little, but it could mean
the world to someone just above the poverty level. Logic, then, suggests that
bail should be set higher on a well-to-do defendant than on the less affluent. But
that conclusion, however, is often counterbalanced since defendants with money
probably have a good job or a home with equity that they wish to keep—in other
words, they often have solid ties to the community.
The possible future
dangerousness of the defendant, while it was not supposed to matter, also
affected the setting of bail. In some jurisdictions, including federal court, a
defendant can be jailed in advance of trial based on a prediction that he will
commit violent acts before the trial—what is called “preventive detention.” New
York’s statutes, however, said the only consideration for bail was to assure
the defendant’s presence in court. New York had no legal preventive detention.
Even so, we knew the judge was going to set higher bail on someone who looked
as if he might commit violent acts before trial than someone who did not seem
as dangerous. This seemed at least in part a normal human impulse even though
it was against the law.
(continued
September 16)