Analysis of a Specialized Regional Jail Facility
Preliminary Report Joint Legislative Audit and Review Committee January 4, 2006
Presented by John Woolley, JLARC Staff
What We’ll Cover Today
FIRST: Directive and Summary of Lessons Learned
SECOND: Background and Context THIRD: Lessons We Learned FINISH: Conclusions/Recommendations
2
D i r e c t i v e / S u m m a r y
Jail for Offenders with Mental Health/Chemical Abuse Challenges
JLARC assess whether existing facilities
could be converted to a specialized, regional jail (E2SSB 5763, 2005)
Specialized: offenders with mental health
and co-occurring mental or chemical dependency disorders that need specialized treatment
Regional jail: offenders from many
counties and cities
3
D i r e c t i v e / S u m m a r y
Three Key Questions: Size? Basic Features? Costs?
SIZE of such a jail? Need answers to how many, the pool of offenders: demand
FEATURES or attributes? Need answers to what these offenders require
COSTS to convert? Need answers to number of offenders, offender requirements, and building rehab
JLARC's Specialized Regional Jail Analysis 4
D i r e c t i v e / S u m m a r y
And Also Important: Benefits?
Do benefits or efficiencies reduce
or defray costs or help avoid future costs?
Need
answers to whether specialized services make a difference: efficiencies and reduced re-offending?
JLARC's Specialized Regional Jail Analysis 5
D i r e c t i v e / S u m m a r y
Many Lessons Learned in Finding Answers: Summary
SIZE
pool of offenders: about 500 But depends: local choice and who pays?
FEATURES
Secure
Potential
and provide for stabilization and transition
construction likely least expensive
JLARC's Specialized Regional Jail Analysis 6
COST
New
D i r e c t i v e / S u m m a r y
Lessons on Benefits?
Washington State Institute for
Public Policy reviewing jail-based programs to determine benefits
Analysis
to be completed by Fall
2006 JLARC models constructed to incorporate benefits information
JLARC's Specialized Regional Jail Analysis 7
B a c k g r o u n d
a n d C o n t e x t
Jails Differ in Many Ways From Prisons
In General:
58
jails, more compact and smaller When entering jail, offenders may be under influence of alcohol or drugs Less time in jail: average of 15 days vs. 20 months in prison
Prisons are run by one state agency:
Department of Corrections Many different county/city agencies run jails
JLARC's Specialized Regional Jail Analysis 8
B a c k g r o u n d
a n d C o n t e x t
JLARC's Specialized Regional Jail Analysis
9
B a c k g r o u n d
a n d C o n t e x t
Past Reviews of Regional Jails Give Us Insights
Washington Association of Sheriffs and
Police Chiefs looked in 2001 and 2005 Sentencing Guidelines Commission looked in 2003 Insights into issues of multiple jurisdiction jail
JLARC's Specialized Regional Jail Analysis
10
B a c k g r o u n d
a n d C o n t e x t
Past Reviews of Regional Jails Gives Us Insights
ISSUE DISCUSSED Economies of scale? Answer?
Improve conditions/security? Work also for special populations? A good idea? Require high degree of cooperation? State funding desired?
JLARC's Specialized Regional Jail Analysis 11
B a c k g r o u n d
a n d C o n t e x t
Why Specialized Services? There is a Legal Requirement
U.S. Supreme Court requires jails to provide
care for serious medical needs, such as mental health care. State law: jails to provide necessary medical care. Also standards: American Correctional Association jail standards for mental health: Screening, crisis intervention, stabilization, referral
JLARC's Specialized Regional Jail Analysis 12
B a c k g r o u n d
a n d C o n t e x t
Three Mental Illnesses of Primary Concern
Illness
Serious Depression
Prozac: $1.83 day
Characteristics
Profound hopelessness
Concerns
Factor in suicidal and self-harming behavior Suicide risk or disruptive (manic)
Severe mood swings, possible Lithium: 73 cents day delusions SchizoRandom, illogical, Violence to staff phrenia and other inmates irrelevant Zyprexa: $19.76 day thoughts
JLARC's Specialized Regional Jail Analysis 13
Bipolar disorder
L e s s o n s
Size: Potential Pool of Offenders is About 500
Demand assumptions model constructed Math:
L e a r n e d
Jail Average Daily Population Percent with MH issue Percent with MH issue requiring specialized services 430 men and 67 women Equates to about 5% of jail population
JLARC's Specialized Regional Jail Analysis 14
10,036 x 16% x 31%
L e s s o n s
Actual Demand Depends on Price, Proximity, and Program
Local jurisdictions will choose: factors?
L e a r n e d
Price and who pays? Proximity: how close to existing jail— transportation, courts, defenders, family, local services? Program: intensity and focus of services—stabilization, treatment, transition
15
L e s s o n s
Features: Three Key Attributes
1. It’s a jail: security must be kept in mind
2. Withstand the rigors of an institution:
L e a r n e d
“hardened” for a confined population 3. Recognize specialized requirements of population including program space: emphasis on safety, stabilization, and transition services
JLARC's Specialized Regional Jail Analysis 16
L e s s o n s
Cost to Convert and Operate: Life-Cycle Cost Analysis Used
Detailed life-cycle cost analysis on three
L e a r n e d
existing buildings and on a new building as a comparison Life-cycle analysis takes all costs, such as capital and operating, for life of building into consideration Compares buildings of different sizes and useful life in a rigorous way
JLARC's Specialized Regional Jail Analysis 17
L e s s o n s
Building Alternatives: Different Size, Location, Cost
Annex to existing Chelan-Douglas jail:
Small
L e a r n e d
alternative with 20 beds
Converted nursing home in Spokane
Medium
alternative with 75 beds
Juvenile Rehab facility in Chehalis
Large
alternative with 256 beds
JLARC's Specialized Regional Jail Analysis
18
JLARC's Specialized Regional Jail Analysis
19
18b
JLARC's Specialized Regional Jail Analysis
20
18c
JLARC's Specialized Regional Jail Analysis
21
18d
JLARC's Specialized Regional Jail Analysis
22
18e
JLARC's Specialized Regional Jail Analysis
23
18f
JLARC's Specialized Regional Jail Analysis
24
18g
L e s s o n s
Building Alternatives: Different Size, Location, Cost
BUILDING
Chelan-Douglas Annex 20 beds Juvenile Rehab Facility 256 beds Nursing Home
75 beds
L e a r n e d
30 YEAR LIFE-CYCLE COST
$987,000 per bed $1,010,000 per bed $1,052,000 per bed $951,000 per bed
New Facility
128 beds
JLARC's Specialized Regional Jail Analysis
19
L e s s o n s
Lesson: Each Alternative Has Advantages and Disadvantages
CHELAN/DOUGLAS JAIL ANNEX
L e a r n e d
ADVANTAGES Make use of main jail’s infrastructure Small facility (20 beds) may serve needs of smaller, more rural counties DISADVANTAGES Small facility less efficient Small limits treatment options Can accommodate only one gender
20
L e s s o n s
Lesson: Each Alternative Has Advantages and Disadvantages
SPOKANE CONVERTED NURSING HOME
L e a r n e d
ADVANTAGES Accommodates men and women Wheelchair access and low acquisition cost May be sized ( 75 beds) to demand DISADVANTAGES Extensive retro-fitting required: not “hard” Not built with suicide prevention in mind Location (residential) may be difficult
21
L e s s o n s
Lesson: Each Alternative Has Advantages and Disadvantages
JUVENILE REHAB CENTER
L e a r n e d
ADVANTAGES Located on I-5 Constructed for confined population Existing units efficient; men and women DISADVANTAGES “Campus” style too open for jail population Some existing buildings not needed Sharing facility difficult: “sight and sound”
22
L e s s o n s
Lesson: Each Alternative Has Advantages and Disadvantages
BRAND NEW FACILITY (PROTOTYPE)
L e a r n e d
ADVANTAGES Units scaled for staffing efficiency Designed for specific program needs New building has longer useful life Men and women DISADVANTAGES Siting new jail likely difficult
23
L e s s o n s
Many Other Options Exist
Focus on alternatives to jail: “continuum”
Specialized
L e a r n e d
jail only after other alternatives
explored MH Court, crisis triage, expanded services
Develop as specialized wing in planning for
new or expanded jail
use of jail infrastructure If it doesn’t work, fold back into “regular” jail
JLARC's Specialized Regional Jail Analysis
Make
24
C o n c l u s i o n s &
Lessons on Size, Features, Costs
R e c o m m e n d a t i o n s
SIZE
Estimate
of about
5% of jail population BUT each jurisdiction will make their own decision—demand based on price, proximity, and program
Recommendation 1: As it evaluates the establishment of a regional jail, the Legislature should consider specific local requirements as it estimates demand.
25
C o n c l u s i o n s &
Lessons on Size, Features, Costs
R e c o m m e n d a t i o n s
FEATURES
Secure
facility, withstand rigors of this population, programming area, mix of cell types, suicide prevention in mind construction likely least expensive: staffing efficiency and specific needs accommodated
COST
New
Recommendation 2: As it considers the specifics of converting an existing facility to a specialized regional jail, the Legislature should consider basic custody staffing efficiencies as a key cost factor.
26
C o n c l u s i o n s &
Lessons on Size, Features, Costs
R e c o m m e n d a t i o n s
SIZE, FEATURES,
Recommendation 3:
The Legislature should consider incorporating a specialized regional wing into the planning for a new county jail. Consideration can be given to efficient design, funding mechanisms, and management structures.
27
AND COSTS
no specialized regional jail, so, many unknowns Question: Best way to establish a new option?
Currently
JLARC Staff To Contact For Further Information
John Woolley Phone: 360.786.5184 E-Mail: woolley.john@leg.wa.gov
JLARC's Specialized Regional Jail Analysis
28