Analysis of a Specialized Regional Jail Facility Preliminary Report Joint Legislative Audit and...

Analysis of a Specialized Regional Jail Facility

Preliminary Report

Joint Legislative Audit and Review Committee

January 4, 2006

Presented by John Woolley, JLARC Staff

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What We’ll Cover TodayFIRST:

Directive and Summary of Lessons LearnedSECOND:

Background and ContextTHIRD:

Lessons We LearnedFINISH:

Conclusions/Recommendations

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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

Directive/Summary

JLARC's Specialized Regional Jail Analysis 4

Three Key Questions: Size? Basic Features? Costs?

SIZE of such a jail?Need answers to how many, the pool of

offenders: demandFEATURES or attributes?

Need answers to what these offenders require

COSTS to convert?Need answers to number of offenders,

offender requirements, and building rehab

Directive/Summary


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?

Directive/Summary


Many Lessons Learned in Finding Answers: Summary

SIZEPotential pool of offenders: about 500But depends: local choice and who pays?

FEATURESSecure and provide for stabilization and

transitionCOST

New construction likely least expensive

Directive/Summary


Lessons on Benefits?

Washington State Institute for Public Policy reviewing jail-based programs to determine benefitsAnalysis to be completed by Fall

2006JLARC models constructed to

incorporate benefits information

Directive/Summary


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 prisonPrisons are run by one state agency: Department of Corrections

Many different county/city agencies run jails

Background and Context


Past Reviews of Regional Jails Give Us InsightsWashington Association of Sheriffs and

Police Chiefs looked in 2001 and 2005Sentencing Guidelines Commission

looked in 2003Insights into issues of multiple

jurisdiction jail



Past Reviews of Regional Jails Gives Us Insights

State funding desired?

Require high degree of cooperation?

A good idea?

Work also for special populations?

Improve conditions/security?

Economies of scale?

ISSUE DISCUSSED Answer?



Why Specialized Services? There is a Legal RequirementU.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



Three Mental Illnesses of Primary Concern

Violence to staff and other inmates

Random, illogical, irrelevant thoughts

Schizo-phrenia

Suicide risk or disruptive (manic)

Severe mood swings, possible

delusions

Bipolar disorder

Factor in suicidal and self-harming

behavior

Profound hopelessness

Serious Depression

ConcernsCharacteristicsIllness

Prozac: $1.83 day

Lithium: 73 cents day

Zyprexa: $19.76 day



Size: Potential Pool of Offenders is About 500Demand assumptions model constructedMath:

10,036 Jail Average Daily Population

x 16% Percent with MH issue

x 31% Percent with MH issue requiring specialized services

430 men and 67 women Equates to about 5% of jail population

Lessons Learned

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Actual Demand Depends on Price, Proximity, and Program

Local jurisdictions will choose: factors?

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

Lessons Learned


Features: Three Key Attributes

1. It’s a jail: security must be kept in mind

2. Withstand the rigors of an institution: “hardened” for a confined population

3. Recognize specialized requirements of population including program space: emphasis on safety, stabilization, and transition services

Lessons Learned


Cost to Convert and Operate: Life-Cycle Cost Analysis Used

Detailed life-cycle cost analysis on three 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

Lessons Learned


Building Alternatives: Different Size, Location, Cost

Annex to existing Chelan-Douglas jail:Small alternative with 20 beds

Converted nursing home in SpokaneMedium alternative with 75 beds

Juvenile Rehab facility in ChehalisLarge alternative with 256 beds

Lessons Learned

Lessons Learned


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18c


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18g

JLARC's Specialized Regional Jail Analysis

Building Alternatives: Different Size, Location, Cost

Lessons Learned

Lessons Learned

$951,000 per bedNew Facility128 beds

$1,052,000 per bedNursing Home 75 beds

$1,010,000 per bedJuvenile Rehab Facility256 beds

$987,000 per bedChelan-Douglas Annex20 beds

30 YEAR LIFE-CYCLE COST

BUILDING

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Lesson: Each Alternative Has Advantages and Disadvantages

CHELAN/DOUGLAS JAIL ANNEXADVANTAGESMake use of main jail’s infrastructureSmall facility (20 beds) may serve needs of

smaller, more rural counties

DISADVANTAGESSmall facility less efficientSmall limits treatment optionsCan accommodate only one gender

Lessons Learned

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SPOKANE CONVERTED NURSING HOMEADVANTAGESAccommodates men and womenWheelchair access and low acquisition costMay be sized ( 75 beds) to demand

DISADVANTAGESExtensive retro-fitting required: not “hard”Not built with suicide prevention in mindLocation (residential) may be difficult

Lessons Learned

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JUVENILE REHAB CENTERADVANTAGESLocated on I-5Constructed for confined populationExisting units efficient; men and women

DISADVANTAGES“Campus” style too open for jail populationSome existing buildings not neededSharing facility difficult: “sight and sound”

Lessons Learned

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Lesson: Each Alternative Has Advantages and DisadvantagesBRAND NEW FACILITY (PROTOTYPE)

ADVANTAGESUnits scaled for staffing efficiencyDesigned for specific program needs New building has longer useful lifeMen and women

DISADVANTAGESSiting new jail likely difficult

Lessons Learned

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Many Other Options ExistFocus on alternatives to jail: “continuum”

Specialized jail only after other alternatives explored

MH Court, crisis triage, expanded servicesDevelop as specialized wing in planning for

new or expanded jailMake use of jail infrastructureIf it doesn’t work, fold back into “regular” jail

Lessons Learned

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Lessons on Size, Features, Costs

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.

Conclusions&

Recommendations

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FEATURES Secure facility, withstand

rigors of this population, programming area, mix of cell types, suicide prevention in mind

COSTNew construction likely

least expensive: staffing efficiency and specific needs accommodated

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.

Conclusions&

Recommendations

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SIZE, FEATURES, AND COSTSCurrently no specialized regional jail, so, many unknowns

Question: Best way to establish a new option?

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.

Conclusions&

Recommendations

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JLARC Staff To Contact For Further Information

John Woolley

Phone: 360.786.5184

E-Mail: [email protected]

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Analysis of a Specialized Regional Jail Facility Preliminary Report Joint Legislative Audit and...

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