Analysis of a Specialized Regional Jail Facility Preliminary Report Joint Legislative Audit and Review Committee January 4, 2006 Presented by John Woolley, JLARC Staff

2 What We’ll Cover Today  FIRST:  Directive and Summary of Lessons Learned  SECOND:  Background and Context  THIRD:  Lessons We Learned  FINISH:  Conclusions/Recommendations

3 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/SummaryDirective/Summary

JLARC's Specialized Regional Jail Analysis4 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 Directive/SummaryDirective/Summary

JLARC's Specialized Regional Jail Analysis5 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/SummaryDirective/Summary

JLARC's Specialized Regional Jail Analysis6 Many Lessons Learned in Finding Answers: Summary  SIZE  Potential pool of offenders: about 500  But depends: local choice and who pays?  FEATURES  Secure and provide for stabilization and transition  COST  New construction likely least expensive Directive/SummaryDirective/Summary

JLARC's Specialized Regional Jail Analysis7 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 Directive/SummaryDirective/Summary

JLARC's Specialized Regional Jail Analysis8 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 Background and ContextBackground and Context

JLARC's Specialized Regional Jail Analysis9 Background and ContextBackground and Context

10 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 Background and ContextBackground and Context

JLARC's Specialized Regional Jail Analysis11 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 DISCUSSEDAnswer? Background and ContextBackground and Context

JLARC's Specialized Regional Jail Analysis12 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 Background and ContextBackground and Context

JLARC's Specialized Regional Jail Analysis13 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 Background and ContextBackground and Context

JLARC's Specialized Regional Jail Analysis14 Size: Potential Pool of Offenders is About 500  Demand assumptions model constructed  Math: 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 LearnedLessons Learned

15 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 LearnedLessons Learned

JLARC's Specialized Regional Jail Analysis16 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 LearnedLessons Learned

JLARC's Specialized Regional Jail Analysis17 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 LearnedLessons Learned

JLARC's Specialized Regional Jail Analysis18 Building Alternatives: Different Size, Location, Cost  Annex to existing Chelan-Douglas jail: Small alternative with 20 beds  Converted nursing home in Spokane Medium alternative with 75 beds  Juvenile Rehab facility in Chehalis Large alternative with 256 beds Lessons LearnedLessons Learned Lessons LearnedLessons Learned

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JLARC's Specialized Regional Jail Analysis21 18d

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JLARC's Specialized Regional Jail Analysis24 18g

JLARC's Specialized Regional Jail Analysis Building Alternatives: Different Size, Location, Cost Lessons LearnedLessons Learned Lessons LearnedLessons Learned $951,000 per bed New Facility 128 beds $1,052,000 per bed Nursing Home 75 beds $1,010,000 per bed Juvenile Rehab Facility 256 beds $987,000 per bed Chelan-Douglas Annex 20 beds 30 YEAR LIFE-CYCLE COST BUILDING 19

Lesson: Each Alternative Has Advantages and Disadvantages  CHELAN/DOUGLAS JAIL ANNEX 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 Lessons LearnedLessons Learned 20

Lesson: Each Alternative Has Advantages and Disadvantages  SPOKANE CONVERTED NURSING HOME 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 Lessons LearnedLessons Learned 21

Lesson: Each Alternative Has Advantages and Disadvantages  JUVENILE REHAB CENTER 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” Lessons LearnedLessons Learned 22

Lesson: Each Alternative Has Advantages and Disadvantages  BRAND NEW FACILITY (PROTOTYPE) 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 Lessons LearnedLessons Learned 23

JLARC's Specialized Regional Jail Analysis Many Other Options Exist  Focus on alternatives to jail: “continuum”  Specialized jail only after other alternatives explored  MH Court, crisis triage, expanded services  Develop as specialized wing in planning for new or expanded jail  Make use of jail infrastructure  If it doesn’t work, fold back into “regular” jail Lessons LearnedLessons Learned 24

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&Conclusions& RecommendationsRecommendations 25

Lessons on Size, Features, Costs  FEATURES  Secure facility, withstand rigors of this population, programming area, mix of cell types, suicide prevention in mind  COST  New 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&Conclusions& RecommendationsRecommendations 26

Lessons on Size, Features, Costs  SIZE, FEATURES, AND COSTS  Currently 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&Conclusions& RecommendationsRecommendations 27

JLARC's Specialized Regional Jail Analysis JLARC Staff To Contact For Further Information John Woolley Phone: