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2006-1025-Minutes for Meeting January 24,2006 Recorded 11/21/2006COUNTY NANCYUBLANKENSHIP,F000NTY CLERKS 1~d ~006'j0~~ COMMISSIONERS' JOURNAL 110110111 1 1 11/21/2006 03;5;17 PM 2906-1025 Do not remove this page from original document. Deschutes County Clerk Certificate Page If this instrument is being re-recorded, please complete the following statement, in accordance with ORS 205.244: Re-recorded to correct [give reason] previously recorded in Book or as Fee Number and Page Deschutes County Board of Commissioners 1300 NW Wall St., Bend, OR 97701-1960 (541) 388-6570 - Fax (541) 385-3202 - www.deschutes.org MINUTES OF PUBLIC HEARING DESCHUTES COUNTY BOARD OF COMMISSIONERS TUESDAY, JANUARY 24, 2006 Commissioners' Hearing Room - Administration Building - 1300 NW Wall St..., Bend Public Presentation - Community Corrections Needs Assessment Present were Commissioners Dennis R. Luke and Bev Clarno; Commissioner Michael M. Daly was out of the office. Also present were Sheriff Les Stiles, Undersheriff Larry Blanton, and Sue Brewster, Sheriff's Office; Captain Ruth Jenkin, Jail; Mike Dugan, District Attorney, Judge Michael Sullivan; Scott Johnson, Mental Health Department; Ernie Mazorol, Court Administrator; Tammy Baney, Commission on Children & Families Advisory Board; Susan Ross and Anna Johnson, Commissioners' Office; Cindy Powers of The Bulletin and a representative of News Channel 21; and approximately forty other citizens. Chair Dennis R. Luke opened the meeting at 5:30 p.m. Sheriff Les Stiles gave an overivew of the history and reasons for the needs assessment study that has been done over the past two years. He said that after having to lay off Sheriff's Office employees and closing the work center, the matrix system for releasing inmates also was instituted. The results of these necessary actions are predictable, and the impact is preventable. At that time, he asked Undersheriff Larry Blanton to research how to address these issues. A year ago, the County signed an agreement with OMNI-Group, a consulting firm that has had a very long relationship with the County and produces reliable work. A volunteer citizen advisory committee was selected and they worked on addressing the corrections space need issue for the past year. Public Presentation - Community Corrections Needs Assessment Page 1 of 13 Pages Tuesday, January 24, 2006 He then introduced Judge Michael Sullivan, Presiding Judge of Deschutes County Circuit Court and the chair of the advisory committee. Judge Sullivan asked the committee members present to introduce themselves: Tom Anderson, Sue Brewster, Scott Johnson, Ernie Mazorol, Ruth Jenkin, Jacques DeKalb, Mike Dugan, Loren Irving, and Susan Ross. The Commissioners also sat in on many of the meetings. The other individuals involved in this work were Paul Hathaway, Lane Roberts, Kevin Sawyer, Becky Wanless, Charity Hobold, Bob LaCombe, Gabrielle Taylor, Jim Ross, Scott Shelton, Trish Clark, Neil Bryant, Vic Russell and Ted Scholer. Judge Sullivan thanked the participants, and said that he was honored to be asked to chair the committee. He stated it was a large task and he did a small fraction of the work that Larry Blanton did. He noted that adequate jail space is critical to the effectiveness of the criminal justice system. Nearly 1,000 inmates were released early last year. Many who should have been incarcerated were instead cited and released. A recent editorial in the Oregonian stated that Oregon has a hollow justice system that is utterly failing to address rampant property crime. Deschutes County is not there yet, but will be if this serious issue is not addressed. He learned during this research that it takes four years or longer to get a jail up and running. The County needs this space, for public safety and for those who need an incentive to complete the necessary treatment programs. The assignment was to determine how much jail space would be needed; however, this does not mean they are not committed to alternative sanctions and treatment. The solution is not cheap, nor is it easy. If it is not addressed, it will impair the quality of life in Deschutes County. The committee was comprised of a wide range of people, including the general public, professionals, technicians and others. OMNI-Group, who does a lot of this type of work, was very impressed with the commitment of those who volunteered. It was felt that a private citizen should present the findings as a representative of the community. Loren Irving is a businessman who is dedicated to the community; he is founder of the Bend Resource Center and 1995 Chamber of Commerce Citizen of the Year. He will make the formal presentation. Public Presentation - Community Corrections Needs Assessment Page 2 of 13 Pages Tuesday, January 24, 2006 Mr. Irving stated that he has lived in Bend since 1969. He was pleased to work with the committee and help with the report. He added he is encouraged to see them address solid planning for the future. Mr. Irving then did a PowerPoint presentation, a copy of which is attached as Exhibit E. A representative of OMNI-Group then gave an overview of the space needs, the facilities plan, security issues, access, and other details, and said they are starting to look at architectural character and defining each space. (A copy of the OMNI- Group's draft corrections needs assessment is attached as Exhibit D) Sheriff Stiles explained that this is a serious, community problem, and will take the community to solve. His responsibility as Sheriff is to bring forward these issues to help maintain a safe environment, but he can only provide information. He said he knew that the outcome of the process would come with a price tag. However, the bottom line is very simple: he will not participate in a solution that is a hollow shell. There is an excellent facility in Multnomah County that cost millions to build that is now sitting empty. If the problem is going to be addressed, it can only be accomplished with concurrent commitments. He said that the Commissioners have discussed selling County-owned land to fund the facility, but they have not made a decision in that regard. The facility can only be opened and sustained if there is stable funding. The three-year levy will not allow for this. The cost of the facility will continue to climb the longer it is put off. Commissioner Luke opened the meeting for public testimony. Mike Dugan, District Attorney, said he participated in some of the planning sessions. He stated that from his standpoint, what the Judge said is correct. They encourage alternative incarceration programs, mental health court and getting treatment for those who do not belong in jail. However, there needs to be a jail bed available for that person so they know they have to go back if they do not comply. The Parole & Probation Department works hard and helps people move through treatment, but it is important for them to know that a jail bed is available for those persons who do not comply. Public Presentation - Community Corrections Needs Assessment Page 3 of 13 Pages Tuesday, January 24, 2006 Finally, emphasizing the public safety problem, the officers arrest individuals and they are released before they go to court, but they often do not show up and this means a warrant is issued. This increases the workload of the police, but because of inadequate funding, those who endanger the public just flaunt the law. There can be all kinds of incentives to help them become better people, but there has to be a carrot and a stick. Right now it is an open door. He encouraged the Board to move forward with funding for this project to protect the community. Karen Lundgren, a taxpayer, said that her concern is the amount of money to be spent is huge to the taxpayer. She will have to examine how much of her property tax dollars would go to this. She said she wonders if funding has been thought about for treatment programs. She understands there is no treatment available in Bend, and talked with BestCare who told her they have no funding to put a treatment program in place. She is wondering if the goal is to warehouse people or rehabilitate them to make them useful, with jobs and paying taxes, rather than soaking up a free bed at $80 a day. She asked if we are approaching treatment, as much as possible, with all of the resources Deschutes County now has to work with. With all of the people coming in and the development, and huge commercial projects, the tax dollar base should be increased tremendously. She didn't want to overlook the fact that the previous Sheriff, Greg Brown, created a lot of this shortfall himself. Chair Luke stated that the County got all of the money back that could be proven. Ms. Lundgren said that some taxpayers are not aware of this. She is hopeful that treatment will not be overlooked, as treating people rather than storing them is better. Chair Luke said that the Sheriff will answer after everyone else testifies, but that this is one major concern of the committee, and Judge Sullivan also addressed that at the beginning of the meeting. Vicki Grant, the Executive Director of NAMI of Central Oregon, said that she is happy to see this in the works and to see a theme developing. She is interested in knowing whether a mental health unit is being considered for the jail. She agreed that people who are mentally ill who are not an immediate threat would be better served in the mental health facility. Public Presentation - Community Corrections Needs Assessment Page 4 of 13 Pages Tuesday, January 24, 2006 She noted that many services for the mentally ill have been drastically cut back. If you try to find resources for someone who is mentally ill and in jail, it is extremely expensive. Until that side of the equation gets solved, it is going to continue to put a huge demand on the Sheriff's Department, on the jai staff, the District Attorney and the Court system. She hopes it will be considered that, given the lack of resources and services for the mentally ill, that there would be some designated area that could serve the mentally ill in jail as a separate population that usually needs some serious medication, monitoring and oversight, and assistance in other ways. Chair Luke stated that both he and Commissioner Clarno were in the Legislature previously, and heard a lot about how the jails were becoming warehouses. He said it was indicated that BestCare and other drug and alcohol treatment programs aren't available, but they are here. Scott Johnson explained that there are several treatment providers in the area providing services for substance abuse and mental health issues. The County plays a role in providing alcohol and drug treatment, as does BestCare, Serenity Lane, Pfeifer and Associates, and Rimrock Trails for kids. It is a system that is challenged by very limited resources and increasing community needs - this is a fact. There are providers, but the capacity of the providers is really the issue. Chair Luke asked the Sheriff if he would like to reply to questions brought up by the two citizens. Sheriff Stiles replied that with respect to costs and treatment, he concurs. One of the saddest days of his life was laying off employees and shutting down the work center, because with it went the core drug and alcohol treatment program, the mental health treatment program and all of the components that we had dialed in. This is one of the only jails now in the state with a full-time psychologist and a psychiatric nurse practitioner; mental health issues are taken very seriously. One of the issues and problems for treatment right now is that the only wing available to isolate people, the 300 pod, has very limited bed space. Yet, statistics are showing that they are averaging around 15% of the population with mental health issues. He applauds the Judges and the County for moving forward with the Mental Health Court, but more is needed. Therein lies the crux of the problem. Public Presentation - Community Corrections Needs Assessment Page 5 of 13 Pages Tuesday, January 24, 2006 Part of what has been presented gives some solution to that, because how many beds and the environment for mental health issues will be taken into account. Just to give an example right now, medications are costing $7,000 to $9,000 per month, 75%-85% of that are psychotropic medications. That gives an idea of what is happening. It is anticipated that the need in that area will increase with population growth. Vicki Grant asked if the Sheriff's Office has to pay for medications for the prisoners. Sheriff Stiles replied yes, for all medical treatment given while the person is in custody. Chair Luke observed that no one wants to warehouse people if they would be best treated somewhere else - it's not a good use of resources or facilities. Sheriff Stiles explained that his department would like to partner with Mental Health a lot more, but the Mental Health Department is financially strapped, and is one of the lowest funded in the state. As long as state support remains that low, their ability to come in and assist the Sheriff Office is going to be very limited. The hard reality is that not enough general fund dollars are available to boost it up to where it needs to be. That said, the concept of whether alternative programs are used was a very heavy part of the planning process in terms of what's available, how can it be maximized, how sustainable is it, and what is coming down the road. In the end, the number came in at 4.8 % or so, doing everything possible. With the numbers of the population with demand for hard beds, using all the alternative programs you can dial up will impact less than 5% of the prisoners. What are you going to do with the other 95%? That's where this came from. So we've taken that into account. Mental health - about 15% - has been taken to a different level and watched carefully. Larry Blanton, Undersheriff, said that one of the things about the programs is they don't just talk. When the work center was up and running, there was a work crew person with some automotive abilities. While he was incarcerated and serving his time in the work center, he was working in the automotive shop. When his time was served, he was hired. Public Presentation - Community Corrections Needs Assessment Page 6 of 13 Pages Tuesday, January 24, 2006 Chair Luke stated that Ms. Lundgren had a question about how this affects property taxes. Selling ground has been discussed, but there hasn't been any proposal to go to the voters for a bond issue for the jail. The proposal has been to sell County-owned property, either on a land sale contract or for cash. If you sell it on a land sale contract you can go out for bonds; the payments on the land sale contract would reduce the debt service on the bonds. Again, as was said at the beginning, this has not been finalized. That is one of the proposals. One of the reasons he would support that is that it trades a County asset - ground - for another County asset - a jail. To go out for a bond issue for $80 million probably won't pass. If an asset that the County isn't using can be traded, and the City of Redmond helped at the same time with developing some industrial and commercial property and master planning, there should be a good shot at being able to build a jail and not ask the voters for tax money. Other County buildings were built without a tax increase to voters because of the way we sold property and rented out part of the buildings. It is possible to do, but just takes a little bit of work. Sheriff Stiles said that it is also important to point out the common fallacy that the $1.25 per thousand will be assessed. That is not true. When Jim Ross and Larry Blanton and others sat down in 2002 to start the strategic planning process, there was no assumption that land or any other mechanism would come along to deal with the problem. What was known in 2002 through 2004 is that there was a problem that needed to be addressed. The cost was dialed into the permanent funding rate long before the idea of selling land came up, under the assumption that if there was a solution, the money would be there. Bottom line, $1.25 won't be assessed if this passes. $1.25 will never be hit if the jail isn't built. Even if you do build it, they won't start scaling up in terms of staffing until 2011. So, they'll be considerably under the $1.25, and this is the deceptive part of the numbers. You see $1.25 for district one, $1.55 for the other, and the automatic assumption is that is what will be taxed. That's not true. The whole purpose behind the permanent tax district is to set the cap you need tomorrow, not today. Chair Luke stated that what the Sheriff means is that he is not going to recommend to the budget committee that the $1.25 amount be used. The Budget Committee makes that decision. Three of the members are Commissioners and three are citizen members. If you ask, most of them agree with the Sheriff on that point. Public Presentation - Community Corrections Needs Assessment Page 7 of 13 Pages Tuesday, January 24, 2006 Sheriff Stiles replied that he thinks so, but has never seen a budget committee ever give his Department more than he asks for. Commissioner Clarno said that one of the most difficult tasks before him is to make sure the voters understand that they are not immediately going to be assessed those figures. She wished him the best on that. Chair Luke asked the OMNI representative to talk about why the jail would be built where the other one is instead of looking off-site where it might be cheaper. Ron Taylor explained that the fundamental reason is that if the project were to go off-site, in addition to the land acquisition, it would require replacing all of the existing facilities. So it would compound an already significant requirement for funding to complete the project. At the very beginning, one of the objectives was to establish to maximize the appropriate use of the existing facilities. In the course of the process, the committee did look at options of developing a new facility off-site, and the advantages and disadvantages of those options were taken into consideration. But in the end the facility that now exists, while it has limitations, if it is put within the context of a properly planned facility, the investment that is there can have its use maximized to avoid having to recreate it at another location. Chair Luke asked if there were questions from the audience. Andrea Blum asked the Sheriff why a new work release center would be built rather than using the existing facility that had been closed. Sheriff Stiles replied that his plan is to reopen the existing work center on January 2007 if stable funding is passed. It is anticipated that it would cost no more than $1.5 million to retrofit it. When the work center closed it was left empty, then the Bethlehem Inn went into one part and transitional housing went into the other. That regional work center was never built to the security specifications it should have been when it was originally done. The bricks and mortar are there, but some tweaking needs to be done. They may or may not end up with ninety beds, but it could be opened and made operational. Public Presentation - Community Corrections Needs Assessment Page 8 of 13 Pages Tuesday, January 24, 2006 Long-term operational costs would be reduced by including the 150 beds in the 468 bed addition, and then convert that floor space into either expanding Parole & Probation or some other entity, and end up doing a better job because they will all be confined. For example, feeding. In the current work release center they have to transport out of the current kitchen, across an open area through several gates and then into the building. The same is true for prisoners. At that moment, it is a security problem. Long-term operational costs can be reduced once this is done and the valuable square footage can be converted into another County function. Right now it is a band-aid. Chair Luke asked if the work center is a wood frame structure. Sheriff Stiles replied that is it burnable, not very secure and easy for prisoners to manipulate. Todd Taylor had a few questions. In regard to the percentages, in 1995 when the jail was built, what was the projected longevity of the space compared to where it is today. Sheriff Stiles replied that one reason OMNI was selected was because of their extraordinary prediction. They were on the money. They came in 1988 and predicted by 2002 a 228 bed facility would be needed. No one could forecast Ballot Measure 11, when the voters in the mid-1990's chose to bring in mandatory sentencing and take the discretionary sentencing away from the judges. As soon as that happened, public safety realized, and no one told the citizens when they voted on this that there would be aging prisoners, in prison longer, and a need for more prison beds. The fact is that with it came Senate Bill 1145, which had the State decide to use county jails to lockup state prisoners. So when judges sentence an offender to twelve months or less, they will serve that time in county jails instead of going to the state penitentiary system. On any given day, there will be 45 state prisoners in the 228 bed facility. The state is not paying the freight on that bill. That is a whole different issue. OMNI was right on the mark. We wouldn't be matrixing or forced releasing today had Ballot Measure 11 and Senate Bill 1145 been passed. We'd be close to matrixing, though. There was no way to predict that. Who knows what initiative petition is coming down the pike next that may have an impact. Right now, the projections are based on data as best as it can be predicted. Public Presentation - Community Corrections Needs Assessment Page 9 of 13 Pages Tuesday, January 24, 2006 Todd Taylor then asked that at year 2025, at 975 beds, if that is still a good number, since it appears that it will still be shy. Sheriff Stiles replied that OMNI works with historical data. They do a good job of averaging and there is some really good relevant historical data. What you can't take into account, and the biggest fear is, although you can trust the prediction and the data, the City of Bend is down about 20 to 25 police officers and don't have the general fund or money to fix that problem. So the response has been for the police chief to cut calls for service. The Sheriff's Office has been in pretty good balance and isn't doing that. Redmond is one of the best staffed agencies in the state. What can't be predicted is that sooner or later the City of Bend will hit a wall and they will add 25 officers, to get them up to speed. Then if they start adding the 1.8 per thousand population increase they should add to stay current, the arrest rate will go up, impacting the jail. Mr. Taylor asked if there is not adequate space, can they go vertically in the future to accommodate more than 975. Sheriff Stiles said yes, even if those officers come on, one thing that OMNI and KMD and the committee came up with was that starting about 2011, what the City is doing should be known and some of the data will change. The planning process for Stage 2 starts in 2011 or 2012, about the time the new addition would open. As this is monitored, the impact should be known within 24 to 36 months, still giving enough lead time to adjust. Chair Luke stated that without the work center there is no alternative for prisoners who want to be good. When this is all said and done, work camps and forest camps can be examined. This is a lot cheaper than building hard beds. But you can't put people out there who need to be in hard beds. There have to be sanctions and programs. There are other options to extend the life of the jail, but not much can be done until the jail and work center are back up. Mr. Taylor said that they are in fully support of what is being done, but just want to make sure that the plan maximizes the facility since land is not getting cheaper. Chair Luke indicated that this is one of the reasons they considered moving Search and Rescue out. There is a piece of ground that the County owns near the State Police office that can be maximized. Another piece of property was purchased out there that may include a facility for the State Police, and Search and Rescue could be moved then. There are a lot of things in the works that haven't yet come together. Some may not, but attempts are being made. Public Presentation - Community Corrections Needs Assessment Page 10 of 13 Pages Tuesday, January 24, 2006 Sheriff Stiles said that he took it personally as a very positive question. Commissioner Clarno stated that coming on, as new as she is to the position, she appreciates the work of all of the committee members and the Sheriff's Office. Judge Sullivan said there was a comment made about warehousing people, and he's glad it was asked. When you look at felony court sentencing guidelines, about 15% go to prison and 85% get probation; this is very close to state averages. At least 80% of those that he sees have a substance abuse, mental health or a battering or anger management problem. Typically most are ordered, as a condition of probation, to participate in those programs. When people are given a sanction, they also mandate that they get into appropriate treatment programs; and, if they don't do that, they come back by way of a probation violation. There is no desire to just warehouse these people; instead, they need to address the underlying cause of why they came before the court. He said that just before he came to the hearing, because he gets a copy of the names of the folks who are in jail every day, he noted that there are basically three types of people in the system. One, very serious person to person crimes; and District Attorney Dugan is adamantly opposed to those people getting out because he believes they are a risk to the community. The second group are those who fail to appear; they have decided they are not going to abide by court orders. If they won't appear, they have to be incarcerated to assure their compliance. The third group is probation violations; those people have chosen not to comply. There is also a supervisory release authority that falls within the jail. This is not talked about a lot, but one of the tings they do is to examine whether there are appropriate programs that these folks can go into. So even though the courts may sentence someone to six months, it is not unusual for the supervisory release authority to release the person to a substance abuse program or some kind of treatment that is needed. And, when appropriate, it is not unusual for the Sheriff's Office, the District Attorney's Office, or a representative of public indigent defense to advise the court that the person can get into a mental health program, and ask that the sentence be reduced. This is a very typical process where everyone agrees there could be a better option than keeping them in jail. Public Presentation - Community Corrections Needs Assessment Page 11 of 13 Pages Tuesday, January 24, 2006 Judge Sullivan said he'd be the first to say that more resources for treatment are needed. That wasn't the assignment here today, however. He is pleased to be part of a criminal justice system where not only the District Attorney but the Sheriff and the providers of indigent defense, and the people who work for the County, are committed to making those programs available. The question about just warehousing people is a good one, but the answer is no; however, there are some people who need to be kept in jail for the safety of the public. It's a minority. This issue is being addressed. It is a very significant concern of Scott Johnson. When a meeting was held regarding how people with mental health issues need to be treated, it became apparent this is a burden that was thrust on the County and everyone is trying to do the best they can. The task today is what the recommendation is regarding jail space. The group did the best it could. A lot of people worked very hard on this, and he thanked them. He had no idea of how much time and energy would be required when he started the process. Sheriff Stiles thanked Larry Blanton for an extraordinary job on a long, complex project. He did a very professional, competent work over the past two years, with the help of Captain Jenkin and others. Commissioner Luke emphasized that on Thursday, January 26 at 7 a.m., at the Redmond Fire Hall, the County Commissioners will meet with the Redmond City Council. One of the items to be discussed would be the master planning of the 1,800 acres, all or part of it. Members of the Council individually and the City Administrator have expressed support for selling property to help fund a jail, but it is not decided. They all will be working through the process. Being no further testimony or comments offered, the meeting adjourned at 6:45 p. m. Public Presentation - Community Corrections Needs Assessment Page 12 of 13 Pages Tuesday, January 24, 2006 DATED this 24th Day of January 2006 for the Dese of Commissioners. DENNIS R. L County Board 4LLABBEVVadaA RNO, Commissioner ATTEST: 11fflww.'X' T0&kkA_ Recording Secretary Attachments Exhibit A: Sign-in sheet Exhibit B: Public notice Exhibit C: Copy of the OMNI-Group draft corrections needs assessment Exhibit D: Powerpoint presentation Public Presentation - Community Corrections Needs Assessment Page 13 of 13 Pages Tuesday, January 24, 2006 `U) r H t c CO N N L N 16 N m # = x li Cp C L ' 0 5 a - d N L a N C r AY U w ~9 L N C O N CL o L a J ~ r ~ Z x W (13 v ` A - o U N U) D1 C a O U N C N CD d Deschutes County 1300 NW Wall Street, Ste. 200 Bend, OR 97701-1960 Phone (541) 388-6570 - Fax (541) 385-3202 - www.deschutes.org NEWS RELEASE CONTACT: Les Stiles, 383-4393 Larry Blanton, 317-3118 Bend, Oregon January 19, 2006 Jail Expansion Information Meeting to be Held Tuesday, January 24 The Deschutes County Sheriff's Office Corrections Needs Assessment Committee will formally present a Jail expansion recommendation to the Deschutes County Commissioners and hold a Jail expansion information meeting for the public on Tuesday, January 24, 2006. The meeting will be held in the hearing room at 5:30 p.m. on the first floor of the Deschutes Services Center, 1300 NW Wall Street in Bend. The purpose of the meeting is to allow for public questions and comments on the proposed master plan. A presentation by Deschutes County Sheriff Les Stiles, Undersheriff Larry Blanton and consultants from the Omni Group, (who helped create the master plan) will be given to the Commissioners and the public. The Jail needs assessment master plan, issues relating to funding options for construction and staffing, on-site expansion options, and other estimated Jail needs through the year 2025, will be discussed at the meeting. A notice of the meeting and the proposed expansion plan will be sent to surrounding neighbors of the existing Jail prior to the January 24 meeting. Most Corrections Needs Assessment Committee members will attend the meeting to answer questions about the plan. No decision to move forward with the master plan is expected to occur at the January 24 meeting. A decision may be made the following week or later, depending on how much research is needed after receiving public comments. On Monday, December 12, 2005 the Committee recommended master plan adoption to the Board of County Commissioners. For more information about the Jail expansion meeting, please call the Deschutes County Sheriffs Office at 388-6659. Deschutes County Government provides for the safety, security and health of Deschutes County's 135,000 citizens through public safety, human services, adult and juvenile corrections and many other valuable public services. For more information, please go to www.deschutes.org . 8 I Corrections Needs Assessment Deschutes County VOLUME ONE The Master Plan I I DRAFT OMNI-GROUP, INC. KMDJUSTICE December 5, 2005 ~c u Volume One The Master Plan Preface Preface This document presents a summary of the Adult Corrections Needs Assessment, as well as the recommended Master Plan Development Concept for the renovation and expansion of the Deschutes County Jail to accommodate projected corrections needs at year 2015, with further on-site expansion capability to address estimated needs through the year 2025. The results of an analysis of capital cost and scheduling implications are provided relative to the initial year 2015 development phase. A second document, accompanying this report, presents a series of Technical Appendices prepared in support of the needs assessment and the identification and evaluation of alternative approaches to future facility development. Correctional Needs Assessment - Deschutes County Omni-Group, Inc. • KMD Justice J Acknowledgements ACKNOWLEDGEMENTS The Corrections Needs Assessment Master Plan was completed under the direction and guidance of the Corrections Needs Assessment, including: Mike Sullivan, Presiding Judge, Circuit Court (Chair) Mike Daly, Deschutes County Board of Commissioners Dennis Luke, Deschutes County Board of Commissioners Les Stiles, Deschutes County Sheriff Michael Dugan, Deschutes County District Attorney Larry Blanton, Undersheriff, Deschutes County Sheriff's Office Paul Hathaway, Councilmember, City of Redmond Mike Maier, Deschutes County Administration Ernie Mazarole, Circuit Court Administration Lane Roberts, Chief, City of Redmond Police Department Kevin Sawyer, Captain, City of Bend Police Department Susan Ross, Deschutes County Administration Becky Wanless, Deschutes County Parole & Probation Charity Hobold, Deschutes County Parole and Probation Bob La Combe, Deschutes County Juvenile Department Scott Johnson, Deschutes County Mental Health Gabrielle Taylor, Deschutes County Information Technology Tom Anderson, Deschutes County Building Department Ruth Jenkin, Corrections Captain, Deschutes County Sheriff's Office Sue Brewster, Legal Counsel, Deschutes County Sheriff's Office Jim Ross, Deschutes County Sheriffs Office Scott Shelton, Detective, Deschutes County Sheriff's Office Trish Clark, Deschutes County Sheriff's Office Neil Bryant, Citizen Jacques De Kalb, Citizen Loren Irving, Citizen Vic Russell, Citizen Ted Scholer, Sheriffs Advisory Council, Citizen This project is also indebted to the cooperation, assistance and insight of the many county staff and contract service providers who participated in this study. Correctional Needs Assessment - Deschutes County Omni-Group, Inc. • KMD Justice S Table of Contents Page No. Executive Summary Section One - Introduction Background and Purpose 1.1 The Needs Assessment Process 1.1 Organization of the Material 1.2 Section Two - Basis for Master Planning Introduction 2.1 Projection of Corrections Capacity Requirements 2.1 Projection of Corrections Space Requirements 2.10 Existing Site Resources 2.12 Existing Facility Resources 2.12 Master Planning Objectives 2.13 Section Three - The Recommended Master Plan Introduction 3.1 The Recommended Master Plan 3.1 Initial Increment of Construction 3.2 Further Jail Expansion 3.2 Section Pour - Facility Development Concept Introduction 4.1 Approach to Facility Development 4.1 Year 2015 Land Use and Facility Development Concept 4.4 Year 2025 Land Use and Facility Development Concept 4.6 Section Five - Project Implementation Introduction 5.1 Initial Project Construction Sequencing 5.1 Implementation Schedule 5.2 Section Six - Capital Cost Estimate Introduction 6.1 Basis for Cost Estimation 6.1 Owner's Soft Costs 6.2 Project Costs for the Initial Increment of Construction 6.2 Project Costs for Further Jail Expansion 6.2 Executive Summary ® Executive Summary Executive Summary Overview The Corrections Needs Assessment provides an update of the twenty year strategic master plan for the provision of corrections facilities, including a determination of the appropriate capacity which reflects both an end to the current "matrixing" process and an assessment of the potential opportunities for new or expanded alternatives to incarceration programs. The Master Plan provides for phased facility development and defines an appropriate first increment of construction, including the nature and scale of development, and preliminary capital cost requirements of the jail expansion project. The following provides an overview of the significant findings of the Corrections Needs Assessment. Current Overcrowding The rated capacity of the Deschutes County Jail is 228. As of April 2005, the jail was operating at an average daily population (ADP) of 243, 6.6% over capacity. If the emergency release Matrix program had not been in effect, the ADP would have been 270 in April 2005, 18.4% over capacity. At the current rate of increase it is projected that the adjusted ADP (i.e., without the Matrix program) would be approximately 284 by the end of 2005, 24.6% over capacity. The deficiencies in rated bed capacity are compounded by the disparity between inmate segregation requirements and housing availability. The current available housing capacity does not support classification objectives nor provide contingency for peak needs. These limitations jeopardize the safety of inmates and staff and are a significant impediment to the ability of staff to manage the jail population. Facility Limitations The Deschutes County Jail was constructed in 1993 under the Uniform Building Code as amended by the State of Oregon at that time. The facility appears to comply with major building code requirements and has been well maintained with respect to its interior environment and its basic building systems. The existing jail, nonetheless, presents a variety of spatial and functional deficiencies beyond the status of its basic physical condition. A number of these deficiencies are directly related to the present lack of bed capacity to meet current demand. Beyond a quantitative shortfall in available beds, an inappropriate balance exists among the type of beds available (celled vs. dormitory), which compromises the ability of jail management to fully achieve essential housing classification and segregation objectives. A variety of other functional deficiencies exist within the jail as a result of its inherent architectural design. A decentralized mode of program and service delivery is not fully supported by the interior configuration of the jail, necessitating staff intensive movement of Correctional Needs Assessment - Deschutes County Omni-Group, Inc. • KIVID Justice i Executive Summary inmates from the housing units to centralized service delivery locations (i.e., visiting, recreation, program spaces, etc.). Inmate Population Projections The assessment of major criminal justice trends in the county, including crime, arrest and court criminal case filing trends, determined that Deschutes County is not a high crime county relative to many "urban" locations. However, felony filings are increasing and the percentage of felons being sentenced to the county jail is also increasing. These criminal justice trends are reflected in jail population trends. Since 1995, the average daily population (ADP) in the Deschutes County Jail has increased from 89 to 243 through April of 2005, an increase of 173%. Adjustment of the 2005 ADP, to represent discontinuation of the Matrix release program, results in an adjusted ADP of 270, or 230% over the 1995 experience. Since 1995, the resident population of Deschutes County has increased by approximately 46%. County population levels play a significant role as a basic component in the projection of jail average daily population levels. Between the year 2000 and the year 2025, total county population is projected to increase by 106.5%, from 116,600 to 240,811. Applying projected county population levels to historically based trends in the booking rate per 1,000 population and the average length of stay of an inmate in the jail provided a basis for the application of three basic average daily jail population projection methodologies, each with one to three variations. This resulted in a total of ten potential ADP outcomes. Four of the projection outcomes were discounted for methodological reasons and the remaining six produced average daily population projections for the year 2025 that ranged from 513 to 1,213. In light of the range of potential outcomes, a mean of the ADP projections is recommended for facility planning purposes. Applying this recommended approach results in a projected ADP of 578 at the year 2015, increasing to 818 at 2025. Alternatives to Incarceration A system wide and long term approach to addressing inadequate jail capacity has been recommended at the national level for the past several decades. Judges, prosecutors, probation officers, field law enforcement officers and others find that inadequate jail capacity acts as a severe constraint in dealing with individual cases in which jailing appears necessary, but space is unavailable. Either the defendant/offender is not jailed or they are booked/sentenced/ remanded to jail. In Deschutes County it is likely the latter option will currently result in the application of the "matrixing" program. This program results in the early release of pre-trial inmates and sentenced offenders prior to completion of sentence, in order to open beds for new inmates requiring housing. The "matrix" program in Deschutes County is an emergency program, utilized to address the current inadequate jail capacity. Most jurisdictions, including Deschutes County, typically utilize non-emergency alternatives to incarceration programs to better achieve the proper Correctional Needs Assessment - Deschutes County Omni-Group, Inc. - KMD Justice E Executive Summary administration of justice, and to appropriately reduce jail capacity demand and the requirements for increased jail space. The objective of non-emergency alternatives to incarceration is to divert persons, under certain circumstances, from jail and shorten the custody period of those who remain, through substitution of programs and services more appropriate to the proper administration of justice. In applying alternatives it is paramount that neither premature nor inappropriate releases occur that could endanger public safety. A four step process was employed in the review of current uses of alternatives to incarceration in Deschutes County to determine if expanded and/or new alternatives may be appropriate that could result in further reducing capacity demand. This process included: the formulation and specification of goals and objectives for the use of corrections resources, including alternatives to incarceration; the inventory and assessment of alternatives to incarceration programs and resources currently in place in Deschutes County; the profiling of the characteristics of the current jail population; and based upon the previously developed information, the assessment of the potential for constructive changes to current alternatives to incarceration. The formulation of goals and objectives for the use of corrections resources was initiated with literature research to establish "best practices" at a national level. Based on the review of these documents and significant discussion, the Needs Assessment Committee recommends the following Mission Statement be adopted by the County for the utilization of county adult corrections resources: Mission Statement The mission for the use of correctional resources is to provide facility based services for pre-trial adult defendants and facility and community based services for sentenced adult offenders, committed by the courts, so as to promote public safety. The goals of the Deschutes County adult corrections system include the following: To assure public safety using the least restrictive control measures feasible. 2. To assure the health, safety and rights of individuals committed to its care. 3. To provide for flexibility to meet jail population fluctuations. 4. To comply with minimum state and national standards, e.g., Oregon Jail Standards and American Correctional Association Standards. 5. To provide adequate capacity to house the detention population within facility design capacities, through maximum appropriate use of alternatives to incarceration and expanded facilities as required. 6. To assure the sentence, where feasible, results in the return of the offender to the community as a contributing member, and at a minimum, assures the offender returns no worse than when arrested. Correctional Needs Assessment - Deschutes County iii Omni-Group, Inc. • KiVID Justice M Executive Summary 7. To assure the provision of the physical segregation of inmates consistent with state law and sound management of the facility. 8. To assure the provision for equal access to correctional programs and services for men and women. 9. To facilitate offenders' access to relevant community resources and services where supportive to improving the likelihood of independent and productive community integration, thus mitigating the human costs to families and the community. 10. To monitor and evaluate detention/correctional programs for general effectiveness and achievement of specified results. 11. To strive for public understanding, support and involvement in sound correctional planning and practices directed toward achievement of stated goals. 12. To manage resources in the most efficient, effective, practical manner consistent with the attainment of stated goals. Based on the results of the inmate profile information, the characteristics of the pre-trial detainees and sentenced offenders who remained housed in the jail were further examined to determine if there were realistic opportunities to substantively expand alternative to incarceration programs. This was accomplished by establishing a range of criteria that reflected more restrictive to more liberal utilization of alternatives to incarceration. The results of the application of this criteria determined that less than 4% of the inmates would qualify. Thus, it was concluded that while there may be some opportunity for expanded alternatives to incarceration, that unless more liberal criteria is applied, there is not likely to be a significant impact to the overall ADP that would be cause for an adjustment to the baseline jail average daily population projections. Projected Corrections Capacity Requirements The projection of ADP, by definition, reflects averages in correctional capacity needs in contrast to periodically fluctuating demand for jail beds which regularly exceeds the average on a daily, weekly and monthly basis. Furthermore, ADP projections, even when carefully distributed. by housing classification, can not fully account for reoccurring variations in the need to appropriately segregate incompatible types of inmates, particularly in the case of quantitatively small classification categories. In light of these factors, it is essential to apply peaking factors to projected ADP levels to avoid reoccurring jail overcrowding in total, and within individual housing classifications. Based on a survey of the degree of fluctuation in bed demand experienced, a need for a general peaking factor approximating 20% was established. Application of this peaking factor to the previously determined baseline ADP projections of 578 by the year 2015 and 818 by 2025, result in corresponding projected bed requirement of 690 by the year 2015 and 975 by 2025. Correctional Needs Assessment - Deschutes County iv Omni-Group, Inc. v KRAD Justice ® Executive Summary Master Plan Options and Committee Recommendations Of the three master plan alternatives and respective sub-alternatives that were considered, the Corrections Needs Assessment Committee recommends "Alternative 1A - Renovate and Expand Existing Facility Meeting All Needs on Existing Site" be adopted by Deschutes County as the Recommended Master Plan. In support of the recommendation of the overall Corrections Facility Master Plan, the Corrections Needs Assessment Committee made three additional recommendations to the Board of County Commissioners. First, that site planning and construction begin for the jail project to provide a total of 690 beds, consistent with projected year 2015 corrections needs. The committee recommendation also calls for strategic site planning to allow further facility expansion, consistent with projected year 2025 corrections needs.. It is also recommended, prior to initiating construction of the year 2025 expansion plan, that the currently projected bed capacity requirements be re-evaluated to assure that today's projected need remains an appropriate construction target and that any structure that is built at that time is compatible with what has been previously built. Finally, the committee recommends that the County Board of Commissioners consider interim options, such as utilization, with necessary renovation, of the existing Work Center as a low security custody facility until permanent jail capacity expansion is completed. The Recommended Master Plan The Recommended Master Plan for the expansion of jail facilities in Deschutes County calls for the continued consolidation of all adult corrections operations on the Public Safety Site. The accommodation of future jail capacity requirements is to be sequenced in two stages. The first phase of development will address projected corrections needs through year 2015 at 690 beds, with occupancy of expanded facilities assumed to occur, subject to funding availability, in the year 2010. A second phase of development will then address projected corrections needs through the year 2025 at 975 beds,.with facility occupancy assumed to occur in the year 2020. The principal facility actions in support of the implementation of the Recommended Master Plan include the following: Renovate the existing jail facility to correct current deficiencies and to reallocate select functions and space in order to enhance operational efficiency and support jail expansion. Develop a new jail addition, in two phases, to accommodate inmate housing expansion requirements and to supplement jail support space needs. Correctional Needs Assessment - Deschutes County v Omni-Group, Inc. • KDAD Justice ■ Executive Summary Develop a replacement work center facility, as an adjunct to the expanded jail, to accommodate work release and work program housing needs. Develop a court facility, as an adjunct to the jail, to facilitate the efficient judicial processing of incustody pre-trial detainees. Reconfigure on-site vehicular circulation patterns and supplement available parking resources to meet expanded needs. Make allowances for the replacement, at another location, of the present Vehicle Maintenance facility, the Emergency Services facility, and (possibly in the second phase), the existing Work Center due to their displacement by jail expansion. Initial Increment of Construction The Recommended Master Plan identifies the need for jail expansion under the first phase of development to accommodate projected adult corrections needs through the year 2015. This will constitute the initial increment of construction of the "jail renovation and expansion project", and will result in the provision of a total capacity of 690 beds. To achieve this projected capacity level, the following renovation and construction activities at the Public Safety Site will occur. The renovation of approximately 50 percent, or 20,000 NSF, of the usable interior area within the existing jail facility to allow for the growth of inmate processing functions and the possible conversion of dormitory housing space to meet expanded jail support needs. Under this assumption, 86 beds in a (celled) housing configuration will continue in use. The construction of a jail addition, contiguous to the existing jail, to accommodate expanded housing and jail support needs. This initial jail expansion facility will provide 454 beds, with an estimated usable space requirement of approximately 97,000 NSF. The construction of a new work center facility to accommodate an initial need for 150 beds in a (dormitory) configuration, with an estimated usable space requirement of approximately 22,000 NSF. The construction of an on-site court facility to initially accommodate a single courtroom and direct court support functions, with an estimated usable space requirement of 6,500 NSF. The augmentation of existing on-site parking resources to accommodate an estimated year 2015 need for 360 stalls. Correctional Needs Assessment - Deschutes County vi Omni-Group, Inc. • KMD Justice M Executive Summary Project Implementation Subject to funding availability, the initial increment of construction of the jail renovation project should entail the occupancy of expanded jail facilities by the year 2010 based upon the accommodation of projected year 2015 corrections needs. If occupancy extends beyond this date, assuming that the bed requirement projections are realized, the jail would be at maximum capacity soon after completion. It is anticipated that the construction process, based on the size and complexity of the project and the requirement for construction phasing to allow continuous jail operation, will take approximately 30-36 months from authorization to final completion. This is based on the use of a qualified contractor under a normal public low bid construction delivery method. The architectural and engineering design of the project will require approximately 12-14 months, and the bid phase another two months. In order to achieve an occupancy target in the year 2010, architectural design services for the project should be authorized to begin in 2006, upon completion of the architectural program. Estimate of Capital Costs Capital project costs associated with the initial increment of the jail renovation and expansion project (to meet projected year 2015 needs) are estimated, on the basis of a pre-design assessment, to be approximately 71 million dollars. This estimate is inclusive of owner's soft costs and reflects the impact of escalation to an assumed construction start date of Spring, 2007. The further expansion of adult corrections facilities, beyond the initial increment of construction, are estimated to require an additional cost of approximately 64 million dollars. This second phase capital cost includes significant escalation to an assumed construction start date in year 2020 (to meet projected year 2025 needs). Although subject to refinement and validation as part of the more detailed project planning and design process, the estimate capital costs provided at this time are felt to be of sufficient accuracy to support capital planning purposes. Correctional Needs Assessment - Deschutes County vii Omni-Group, Inc. • KMD Justice Section One Introduction ■ Introduction Section One Introduction Background and Purpose In 2003, Deschutes County completed the County-wide Facility Master Plan. The projected capacity and facility needs of county adult corrections comprised one element of the master plan. As was the case for most county functions, the most recent historical data utilized in the projection of future requirements was from 2001. Since then, due to insufficient jail bed capacity for appropriate security housing segregation and the closure of the Work Release Center due to budgetary constraints, a "matrixing" program has been initiated. This program results in the early release of pre-trial offenders and sentenced inmates prior to completion of sentence, in order to open beds for new inmates requiring housing. Also in 2004, the resident population projections for Deschutes County were updated, resulting in a projected county population, at the year 2020, that is 12% higher than that projected at the time the County-wide Facilities Master Plan was completed. These factors, and possibly others, have resulted in recent jail population levels to deviate from those previously projected. In concert with the current preparation and evaluation of master planning alternatives for jail expansion, is therefore prudent to determine the principal factors affecting these changes and to update corrections capacity projections to reflect most recent experience. The significant costs of construction, maintenance and operation of detention/correctional facilities requires careful consideration of their purpose and assurance that updated projections reflect capacities proportionate to appropriate use of detention and corrections in Deschutes County. The Needs Assessment Process The Corrections Needs Assessment provides an update of the twenty year strategic master plan for the provision of adult correctional facilities, including a determination of the appropriate capacity which reflects both an end to the current "matrixing" process and an assessment of the potential opportunities for new or expanded alternatives to incarceration programs. The updated Master Plan provides for a phased facility development approach including the definition of the first increment of construction, the nature and scale of development, and preliminary capital cost requirements of the proposed jail expansion project. The needs assessment process was completed within three sequential project elements. Correctional Needs Assessment - Deschutes County 1.1 Omni-Group, Inc. • KIVID Justice ■ Element I - Requirements Analysis Update: Introduction The initial stage of work served to update, and further detail in quantitative terms, the scope and nature of correctional programs, services and physical resources currently in place in Deschutes County, as well as projected future jail bed capacity requirements over the next twenty years. This element of the project also included the assessment of the utilization of appropriate alternatives to incarceration, the results of which were incorporated within the updated forecast of future jail capacity requirements. Element 2 - Analysis of Master Plan Development Alternatives: The second stage of work served to identify and evaluate basic master plan development alternatives for meeting future adult corrections needs. Information on future space requirements, available sites and existing facilities was assessed and synthesized into the feasible options open to the County. The long range strategy for the development of expanded correctional facilities was updated and refined. From this process the scope of the initial increment of jail renovation and construction was defined, with capital cost and scheduling implications identified. Element 3 - Corrections Needs Assessment Report: The final stage of work has served to document the findings of the needs assessment and master planning process. Subsequent to the acceptance by Deschutes County of these findings, and the recommendations of the Corrections Needs Assessment Committee, the project will move into the detailed architectural programming phase. The architectural program will detail the specific information the architect requires to initiate the design of the initial increment of the jail expansion project Organization of the Material Beyond this Introduction, the Volume One Report of the Corrections Needs Assessment is structured within the following five sections. Section Two - Basis for Master Planning, provides a summary of the needs assessment findings which serve as the foundation for future jail expansion. Also presented in this section is a description of existing facility and site resources, as well as a set of master planning objectives adopted by the Corrections Needs Assessment Committee. Section Three - The Recommended Master Plan, provides a narrative description of the selected master planning approach to jail facility renovation and expansion, as well as the key operational assumptions upon which the plan is based. Section Four - Facility Development Concept, presents a physical description of the recommended Master Plan, inclusive of a graphic illustration of a land use and facility development concept to support both projected year 2015 and year 2025 corrections needs. Correctional Needs Assessment - Deschutes County 1.2 Omni-Group, Inc. • KMD Justice ■ Introduction Section Five - Project Implementation, provides a preliminary schedule, subject to funding availability, for the design, construction and occupancy of the initial increment of the jail expansion project. Section Six - Capital Cost Estimate, presents the results of a master plan level assessment of estimated capital costs associated with the implementation of the initial increment of the jail expansion project. Correctional (deeds Assessment - Deschutes County 1.3 Omni-Group, Inc. • KMD Justice Section Two Basis for Master Planning ■ Section Two Basis for Master Planning Introduction Basis for Master Planning This section summarizes the results of the analysis and projection of future corrections capacity requirements and resulting space needs. It also describes the development opportunities and constraints of the existing Deschutes County Jail and the Public Safety Site and documents the functional, physical, strategic and economic objectives established to provide the foundation for the physical master planning of county corrections facilities. Projection of Corrections Capacity Requirements Requirements for jail facilities under the jurisdiction of the Deschutes County Sheriff's Office continue to be dependent on the number of expected inmates and the amount of time they will be housed in the county jail. The assessment of these factors and the subsequent update of projection methodologies through the year 2025 followed a similar process as the one employed in the 2003 Master Plan. Crime, arrest and court criminal case filing trends and outcomes were reviewed to establish a context for current and future jail capacity requirements. Actual trends in the average daily population (ADP), the annual number of bookings, and the average length of stay (ALS) of the jail population were updated to reflect the most recent experience. Next the impact of the "Matrix" release program was assessed as to its impact on the overall average daily population and the actual ADP was adjusted to reflect what the ADP would have been had this emergency release program not been in effect. The detailed analyses of those factors may be referenced in "Appendix B - Analysis and Projection of Adult Corrections Average Daily Population" of the Technical Appendices (under separate cover). The following provides an overview of findings and conclusions. Historical Trends The assessment of major criminal justice trends in the county, including crime, arrest and court criminal case filing trends, determined that Deschutes County is not a high crime county relative to many "urban" locations. However, felony filings are increasing and the percentage of felons being sentenced to the county jail is also increasing. These criminal justice trends are reflected in jail population trends. Since 1995, the average daily population (ADP) in the Deschutes County Jail has increased from 89 to 243 through April of 2005, an increase of 173%. Adjustment of the 2005 ADP, to represent discontinuation of the Matrix release program, results in an adjusted ADP of 270, or 230% over the 1995 experience. Since 1995 the County resident population has increased by approximately 46%. Correctional Needs Assessment - Deschutes County 2.1 Omni-Group, Inc. - ICMD Justice ■ Current Overcrowding Basis for Master Planning The rated capacity of the Deschutes County Jail is 228. As of April 2005, the jail was operating at an average daily population of 243, or 6.6% over capacity. If the emergency release Matrix program had not been in effect, the ADP would have been 270 in April 2005, or 18.4% over capacity. At the current rate of increase it is projected that the adjusted ADP (i.e., without the Matrix program) would be approximately 284 by the end of 2005, at 24.6% over capacity. The deficiencies in rated bed capacity are compounded by the disparity between inmate segregation requirements and housing availability. The current available housing capacity does not support classification objectives nor provide contingency for peak needs. These limitations jeopardize the safety of inmates and staff and are a significant impediment to the ability of staff to manage the jail population. Projected Average Daily Population County population levels play a significant role as a basic component in the projection of jail average daily population levels. Between the year 2000 and the year 2025, the total resident population within Deschutes County is projected to increase by 106.5%, from 116,600 to 240,811. Applying projected county population levels to historically based trends in the booking rate per 1,000 population and the average length of stay of an inmate in the jail provided a basis for the application of three basic average daily jail population projection methodologies, each with one to three variations. This resulted in a total of ten potential ADP outcomes. Four of the projection outcomes were discounted for methodological reasons and the remaining six produced average daily population projections for the year 2025 that ranged from 513 to 1,213. The range of results obtained reflects the different bases for the individual methodologies. Some of the methodologies emphasized the long term trends, while others reflected more recent trends. The more recent trends allowed for individual projections to be developed for male and female inmate populations, while the longer term trends could not be disaggregated between male and female. Other methodologies applied the historical and projected trends in 18-54 age group of the county population to forecast ADP (this age group represents 97% of all men and 100% of all females in the jail), while the remainder applied the total county population. In light of the range of potential outcomes, a mean of the ADP projections is recommended for facility planning purposes. Applying this recommended approach results in a projected ADP of 578 at the year 2015, increasing to 818 at 2025, Alternatives to Incarceration A system wide and long term approach to addressing inadequate jail capacity has been recommended at the national level for the past several decades. Judges, prosecutors, probation officers, field law enforcement officers and others find that inadequate jail capacity acts as a severe constraint in dealing with individual cases in which jailing appears necessary, Correctional Needs Assessment - Deschutes County 2.2 Omni-Group, Inc. • KIVID Justice ■ Basis for Master Planning but space is unavailable. Either the defendant/offender is not jailed or they are booked/ sentenced/remanded to jail. In Deschutes County it is likely the latter option will currently result in the application of the "matrixing" program. This program results in the early release of pre- trial inmates and sentenced offenders prior to completion of sentence, in order to open beds for new inmates requiring housing. The "matrix" program in Deschutes County is an emergency program, utilized to address the current inadequate jail capacity. Most jurisdictions, including Deschutes County, typically utilize non-emergency alternatives to incarceration programs to better achieve the proper administration of justice, and to appropriately reduce jail capacity demand and the requirements for increased jail space. The objective of non-emergency alternatives to incarceration is to divert persons, under certain circumstances, from jail and shorten the custody period of those who remain, through substitution of programs and services more appropriate to the proper administration of justice. In applying alternatives it is paramount that neither premature nor inappropriate releases occur that could endanger public safety. The safety of the community and the significant cost of construction, maintenance and operation of jail facilities require careful consideration of their purpose and assurance that new or expanded facilities are sized proportionate to their appropriate use. A four step process was employed in the review of current uses of alternatives to incarceration in Deschutes County to determine if expanded and/or new alternatives may be appropriate that could result in further reducing capacity demand. This process included: the formulation and specification of goals and objectives for the use of corrections resources, including alternatives to incarceration; the inventory and assessment of alternatives to incarceration programs and resources currently in place in Deschutes County; the profiling of the characteristics of the current jail population; and based upon the previously developed information, the assessment of the potential for constructive changes to current alternatives to incarceration. The formulation of goals and objectives for the use of corrections resources was initiated with literature research to establish "best practices" at a national level. This resulted in the documentation of "National Standards for Alternatives to Incarceration" and the preparation of a "Compendium of Alternatives to Incarcerations Programs". Both of these documents may be referenced in, "Appendix A - Supportive Elements to the Assessment of Alternatives to Incarceration", of the Technical Appendices (under separate cover). Based on the review of these documents and significant discussion, the Needs Assessment Committee adopted the following Mission Statement for the utilization of county corrections resources. Mission Statement: In order to develop a long range Corrections Needs Assessment, it is important to first identify the goals and objectives to be supported by the county's corrections facilities. As such, the following corrections mission statement has been adopted by the Corrections Needs Assessment Committee for use of adult correctional resources in Deschutes County. Correctional Needs Assessment - Deschutes County 2.3 Omni-Group, Inc. • KMD Justice U Basis for Master Planning "The mission of detention and correctional facilities is to provide facility based services for pre- trial adult defendants and facility and community based services for sentenced adult offenders, committed by the courts, so as to promote public safety." The goals of adult detention/correctional systems include the following: 1. To assure public safety using the least restrictive control measures feasible. 2. To assure the health, safety and rights of individuals committed to its care. 3. To provide for flexibility to meet jail population fluctuations. 4. To comply with minimum state and national standards, e.g., Oregon Jail Standards and American Correctional Association Standards. 5. To provide adequate capacity to house the detention population within facility design capacities, through maximum appropriate use of alternatives to incarceration and expanded facilities as required. 6. To assure the sentence, where feasible, results in the return of the offender to the community as a contributing member, and at a minimum, assures the offender returns no worse than when arrested. 7. To assure the provision of the physical segregation of inmates consistent with state law and sound management of the facility. 8. To assure the provision for equal access to correctional programs and services for men and women. 9. To facilitate offenders' access to relevant community resources and services where supportive to improving the likelihood of independent and productive community integration, thus mitigating the human costs to families and the community. 10. To monitor and evaluate detention/correctional programs for general effectiveness and achievement of specified results. 11. To strive for public understanding, support and involvement in sound correctional planning and practices directed toward achievement of stated goals. 12. To manage resources in the most efficient, effective, practical manner consistent with the attainment of stated goals. To support the Mission Statement the Needs Assessment Committee adopted a set of further goals and objectives related to the utilization of alternatives to incarceration throughout the criminal justice process. These goals and objectives are as follows: Correctional (deeds Assessment - Deschutes County 2.4 Omni-Group, Inc. • KMD Justice ■ Basis for Master Planning Arrest and Booking Goals and Objectives: The criminal justice system in Deschutes County should provide protection and maintain public safety utilizing the least restrictive control measures necessary given the nature of the specific situation and individual involved. Use of the county jail for pre-trial incarceration should be utilized only for those individuals who represent a threat to others or if there is evidence to indicate the individual's probable failure to appear in court. This should be accomplished through the establishment of a range of alternatives to incarceration available to the law enforcement officer. Objectives contributing toward accomplishment of this goal include: Guidelines for the uniform and consistent use of warnings and field citations among law enforcement agencies and departments within the County, subject to arrest policies mandated by the State of Oregon. Guidelines for the issuance of summons to appear for the taking of booking information when such information is desirable but actual incarceration is not necessary. Utilization of family crisis centers in family dispute matters, when appropriate. Such centers should provide professional counseling and, when necessary, a temporary place to stay for one or more family members during a "cooling off' period. Detoxification and mental health centers staffed by trained counselors and medical personnel. Alternatives to Pre-trial Detention Goals and Objectives: The criminal justice system should provide guidelines to make possible the implementation of those policies and procedures which will provide, whenever possible and proper, for the elimination of lengthy pre-trial incarceration. Objectives contributing toward the accomplishment of this goal include: An around-the-clock detention release program, including a full range of pre-trial release options within state law. A program which permits the release of detainees to a responsible third person, when appropriate. Maximum use of appropriate voluntary diversion programs. Expedited in-custody adjudication. Video arraignment. Extended hours for arraignment when jail population or special circumstances warrant. Correctional Needs Assessment - Deschutes County 2.5 Omni-Group, Inc. • IGMD Justice ■ Basis for Master Planning Prompt review of the facts surrounding the detention/arrest directed toward the immediate screening out of the criminal justice system of an accused, if there is not a reasonable likelihood that the evidence admissible would be sufficient to obtain a conviction and sustain it on appeal. Pre-trial Detention Goals and Objectives: In pre-trial detention, the public safety, the interest of justice, and the rights of the detainee must be balanced. As such, policies and procedures should be provided to assure that the rights for those individuals detained while awaiting trial are observed. Objectives contributing toward the accomplishment of these goals include: Access to the courts and legal services in conformance with statutory and constitutional guidelines. Protection against physical abuse and inhumane treatment. Healthful living conditions. Procedural protection against arbitrary administrative action. Individuals awaiting trial in jail should not be required to participate in any program of treatment or rehabilitation. Educational, vocational and recreational activities should be available on a voluntary basis. Diversion Goals and Objectives: The criminal justice system should provide guidelines to facilitate diversion decisions being made as soon as adequate information is available. Objectives contributing toward the accomplishment of this goal include: Diversion should be made when there is a substantial likelihood of a conviction and when the benefits to society of diversion are expected to outweigh the potential dangers of non-prosecution. Precise decision guidelines should be established and made public by the deciding agency - law enforcement or prosecutor. Sentencing/Corrections Goals and Objectives: The criminal justice system should provide a range of viable sentencing alternatives, consistent with Oregon State Statutes and the needs of the community. Objectives contributing toward the accomplishment of this goal include: Correctional Needs Assessment - Deschutes County 2.6 Omni-Group, Inc. • KMD Justice ■ Basis for Waster Planning Utilization of a range of alternatives which include separation from the general community and restitution, as well as less restrictive program options. To the extent possible, sentences should be individualized to particular offenses and respective crimes. Sentences should utilize, to the extent possible, work programs which benefit the community, instill the habit of working a full day and, where feasible, reinforce or teach work skills. Correctional programs should facilitate the range of correctional purposes appropriate to the crime including: short and long term public safety, punishment, deterrence, restraint, restitution (to either or both the individual victim and the general public) and where practical and beneficial, rehabilitation. Correctional services should be supplemented by existing private and public resources. Work and furlough programs should permit appropriate offenders to retain their job, provide for their family, and offset the cost of incarceration. Utilization of programs wherein appropriate offenders may be sentenced to provide labor for public work projects which do not entail incarceration. Utilization of programs wherein appropriate offenders pay or settle their penalty via fines and/or donated services to acceptable community projects or organizations. Utilization of sentencing alternatives which provide for appropriate fines and restitution to the victim rather than formal incarceration. Correctional programs, including counseling and vocational/academic education, should be available to sentenced and pre-trial defendants with sufficient length of stay, in their non-working hours. Enlistment of existing public and private entities to provide programs explaining community services available to those incarcerated and their dependents. Utilization of facilities and programs to accommodate the recalcitrant and/or dangerous individual and those offenders not eligible for alternative community services having special problems such as alcohol and/or drug addiction and mental illness. Practical Considerations: Though selective use of alternatives make logical and fiscal sense, programs which have presented themselves as alternatives in the past, in numerous jurisdictions, have often been disappointing. This has been partly due to the fact that the court sees a disproportionate amount of the failures who return to court and does not see the successes that no longer have contact with the criminal justice system. It has more to do, however, with the failure of programs to meet some important principles for success and acceptance. Correctional Needs Assessment - Deschutes County 2.7 Omni-Group, Inc. • KIVID Justice ■ Basis for Master Planning A number of such principals felt to lead to program success and acceptance are identified below. The program must be responsible and accountable to the court. This is a point most often emphasized as the key to a program's acceptance within the criminal justice system as a legitimate alternative. The program should keep close track of its clients while they are in the program and provide follow-up after they leave it. It must provide adequate safeguards for the public, and not attempt to deal with clients who cannot be adequately managed. Most importantly, programs should keep the court well informed of the offenders' behavior and be honest in the assessment of their progress. The program must be credible and stable. A program must be professionally managed if it is to be considered seriously. It must have a well trained staff, responsible management, and a good "track record". These qualities of credibility and stability engender the necessary confidence that the program can be trusted as an alternative placement. Also, on-going evaluation research on programs is an important component. This allows the program to demonstrate its effectiveness objectively. Programs should, to the widest extent possible, be fiscally self-sufficient. It is generally felt that any program which can "earn its way" is far ahead of programs which must be supported with county funds. Programs in which the offender paid wholly or partly for the service, where work was done to bring in income to cover program costs, or where Federal or State grants were solicited, are in a better position to become a well accepted alternative. Up to 25% of the programs should be innovative and involve deliberate, experience based growth. This factor is second only to accountability in importance. With the concern for public safety, new programs should begin small, grow slowly and be constantly tested for effectiveness. If the program is found to be effective, is reliable and meets many of the characteristics listed above, it can be accepted and presented publicly, as a workable alternative. Consequences to Failure There is a fundamental need for sufficient jail bed capacity to accommodate re-incarcerated individuals failing to maintain acceptable participation in the alternative to incarceration program. Correctional (deeds Assessment - Deschutes County 2.8 Omni-Group, Inc. • 6(MD Justice ■ Basis for Master Planning Profile of Inmate Characteristics: In the review of current alternatives to incarceration it is essential to have information regarding the characteristics males and females detained or sentenced in the county jail including: who goes to jail; how long they stay; and what factors may affect their admission and length of confinement. Two types of profiles were conducted. The first profile included all inmates released from the county jail during 2003. This profile provided information individuals that are released quickly and as a result may not be included in a "snapshot" profile (see below) and provided information on length of stay that otherwise would not have been available. The second profile provided a "snapshot" of all inmates incarcerated each day at 6:00 a. m. during the month of February, 2005. This profile provided information regarding individuals in- custody and captured information on long term inmates that might not have been included in the release profile. The results of these profiles provided a fundamental basis for the assessment of opportunities for expanded and/or new alternative to incarceration programs in Deschutes County. Both profiles may be reviewed in "Appendix A - Supportive Elements to the Assessment of Alternatives to Incarceration" of the Technical Appendices (under separate cover). Inventory of Current Alternatives to Incarceration: Also essential to the assessment of opportunities for expanded and/or new alternatives to incarceration programs is an understanding of the programs currently in place. To obtain this information an inventory was conducted which reflects a broad range of programs are currently available for use by the arresting officer, Sheriffs Office jail staff and the court that provide for alternatives to incarceration. The results of the inventory are documented in "Appendix A - Supportive Elements to the Assessment of Alternatives to Incarceration"' of the Technical Appendices (under separate cover). Assessment of Alternatives to Incarceration Findings: Based on the results of the inmate profile information, the characteristics of the pre-trial detainees and sentenced offenders who remained housed in the jail were further examined to determine if there were realistic opportunities to substantively expand release programs. This was accomplished by establishing a range of criteria that reflected more restrictive to more liberal utilization of alternatives to incarceration. The most restrictive criteria included: No Current ViolenceMeapons Arrests; No Current Felony DUII/BUII Arrests or Multiple Misdemeanor DUII/BUII Arrests; No Current Felony Drug Use Arrests; No Outside Agency Holds; No Failures to Appear; and No Priors. Correctional Needs Assessment - Deschutes County 2.9 Omni-Group, Inc. • KMD Justice ■ Basis for Master Planning The most liberal criteria included: No Current Violence/Weapons Arrests; No Current Felony DUII/BUII Arrests; Includes Current Felony Drug Use Arrests; No Outside Agency Holds; No Failures to Appear; and up to Five to Six Priors not Involving Violence, Weapons or Drug Sales. The results of the application of this criteria determined that less than 4% of the inmates would qualify. Thus, it was concluded that while there may be some opportunity for expanded alternatives to incarceration, that unless more liberal criteria is applied, there is not likely to be a significant impact to the overall ADP that would be cause for an adjustment to the baseline jail average daily population projections. Projected Corrections Capacity Requirements The projection of ADP, by definition, reflects averages in correctional capacity needs in contrast to periodically fluctuating demand for jail beds which regularly exceeds the average on a daily, weekly and monthly basis. Furthermore, ADP projections, even when carefully distributed by housing classification, can not fully account for reoccurring variations in the need to appropriately segregate incompatible types of inmates, particularly in the case of quantitatively small classification categories. In light of these factors, it is essential to apply peaking factors to projected ADP levels to avoid reoccurring jail overcrowding in total, and within individual housing classifications. Based on a survey of the degree of fluctuation in bed demand experienced, a need for a general peaking factor approximating 20% was established. Application of this peaking factor to the previously determined baseline ADP projections of 578 by the year 2015 and 818 by 2025, result in corresponding projected bed requirement of 690 by the year 2015 and 975 by 2025. The detailed determination of bed capacity requirements by male/female, by adjudication status and housing segregation category may be referenced within Section Three of "Appendix D - Basis for the Evaluation of Master Plan Alternatives" in the Technical Appendices (under separate cover). Projection of Corrections Space Requirements For master planning purposes, usable area requirements associated with the expansion of Deschutes County corrections facilities were estimated on the basis of the application of net usable square footage (NSF) per bed factors to projected bed capacity levels at the year 2015 and 2025. In the case of inmate housing requirements, a range of space per bed factors were utilized, varying in accordance with security level and the type of housing space involved (i.e., single or double occupancy cell, versus multiple occupancy cell, versus dormitory types). For inmate processing and jail support functions, other space per bed factors were utilized, consistent with comparable industry standard space allocations for detention/corrections facilities of similar scale and functional complexity. Reference can be made to specific planning assumptions pertaining to the derivation of housing and non-housing space needs within Sections Six and Correctional Needs Assessment - Deschutes County 2.10 Omni-Group, Inc. • KNflD Justice ■ Basis for Master Planning Seven of "Appendix D - Basis for the Evaluation of Master Plan Alternatives" of the Technical Appendices (under separate cover). In addition to corrections space needs, a usable area requirement was estimated for the development of an on-site court facility adjacent to the expanded jail. This space need, developed in conjunction with court administrative staff, assumes the initial development of a single courtroom, augmented by space to accommodate direct court support functions. On the basis of the above methodology, overall projections of usable space requirements were prepared with regard to each of the set of master plan facility development alternatives under study. The following usable area requirements, expressed in terms of net square feet (NSF), were derived for the Recommended Master Plan approach to jail renovation and expansion (Alternative I-A, "Renovate and Expand Existing Facility Meeting All Needs on Existing Site"), Year 2015 Year 2025 (Beds) (NSF (Beds) (NSF) Inmate Housing Space Maximum Security 84 18,900 119 26,775 Medium Security 413 72,955 584 101,170 Minimum Security 43 6,450 59 8,850 Work Center 150 19,500 213 27,690 Subtotal 690 117,805 975 164,485 Non-housing Space Inmate Processing 10,000 11,800 Jail Support 31,000 39,200 Subtotal 41,000 51,000 Total (Corrections) 158,805 215,985 Non-jail Space Court Facility 6,500 6,500 Total Project 165,305 221,985 The existing Deschutes County Jail, in its current configuration, provides approximately 40,000 NSF of usable area. Deducting this space from the above requirements results in a year 2015 expansion need for approximately 125,000 NSF. The year 2025 expansion need would entail a further supplement of 57,000 NSF, resulting in a total of approximately 182,000 NSF. Correctional Needs Assessment - Deschutes County 2.11 Omni-Group, Inc. • KMD Justice ® Basis for Master Planning Existing Site Resources The existing Deschutes County Jail is located on the Public Safety Site, situated at the northern periphery of the developed area of the City of Bend. The site, approximately 18.8 acres in size, maintains primary access from the east from U.S. Highway 20 and from and adjacent frontage road (Jamison Street). It may also be accessed from the west and from the south by means of Britta Street and Poe Sholes Drive. The current jail facility is configured in the center of the Public Safety Site, toward its northern perimeter. Adult corrections operations share the site with the following other facilities. Sheriff's Office Building Sheriffs Vehicle Maintenance Facility Sheriffs Emergency Service Facility Sheriff's Helipad Juvenile Justice Facility (Accommodating Office and Detention functions) Existing Work Center (Accommodating Parole and Probation and Bethlehem Inn functions) The Public Safety Site was originally developed under a Light Industrial zoning designation, currently being amended to allow government facility development to occur as a conforming land use. It maintains access to all major utility services, and with minor variances, the site presents a relatively level topographic profile suitable for further building construction. The physical expansion of jail facilities on the Public Safety Site is practically excluded to the north of the existing facility, and limited to the east, given the location of the Sheriffs Office building and essential public parking at the entry to the site. The greatest potential for physical expansion exists to the south of the existing jail on site area presently utilized for parking and storage. Opportunities also exist for jail expansion to the west of the present facility, although such expansion will likely require the displacement of the existing Helipad, Vehicle Maintenance and Emergency Services buildings. Existing Facility Resources The existing Deschutes County Jail was constructed in 1993, and presently provides an inmate housing capacity of 228 beds. Of this capacity, 86 beds are configured in a series of (celled) housing units at the north perimeter of the facility. The remaining 142 beds, at the south perimeter of the facility, are configured in a number of (dormitory) housing units. Space is allocated within the center of the jail to accommodate inmate processing and jail support functions. Public access to the County Jail occurs along the east perimeter of the facility, adjacent to visitor parking. Secure access, by means of an enclosed vehicle sallyport, occurs on the west perimeter of the facility. It is here that arrestees are moved into the booking area of the jail, and inmates are transported from the jail for court appearances and to other jurisdictions. Correctional Needs Assessment - Deschutes County 2.12 Omni-Group, Inc. • KMD Justice ■ Basis for Master Planning The Deschutes County Jail currently provides approximately 40,000 net square feet (NSF) of usable interior area in support of present corrections operations. Of this available usable space, approximately 50%, or 19,000 NSF, is assigned to (celled) housing and direct housing support; 20%, or 7,500 NSF, to (dormitory) housing; and 30%, or 13,500 NSF, to inmate processing and jail support functions. The existing County Jail was constructed under the 1991 Uniform Building Code as amended by the State of Oregon. The facility appears to comply with major building code requirements and has been well maintained with respect to its interior environment and its basic building systems. The existing jail, nonetheless, presents a variety of spatial and functional deficiencies beyond the status of its basic physical condition. A number of these deficiencies are directly related to the present lack of bed capacity to meet current demand. Beyond a quantitative shortfall in available beds, an inappropriate balance exists among the type of beds available (celled vs. dormitory), which compromises the ability of jail management to fully achieve essential housing classification and segregation objectives. A variety of other functional deficiencies exist within the jail as a result of its inherent architectural design. A decentralized mode of program and service delivery is not fully supported by the interior configuration of the jail, necessitating staff intensive movement of inmates from the housing units to centralized service delivery locations (i.e., visiting, recreation, program spaces, etc.). Further reference can be made relative to the above deficiencies, and others, within "Appendix C - Current Jail Spatial and Functional Deficiencies" of the Technical Appendices (under separate cover). Master Planning Objectives The following functional, physical, strategic and economic objectives were established to serve as the foundation for physical master planning of county corrections facilities. These objectives also serve as a basis for the comparative evaluation of physical master plan alternatives. Functional Objectives: Provide sufficient bed capacity to properly accommodate demand within all housing classifications. Provide appropriate security for the community and the staff and inmates within the jail facilities. Provide for the delivery of appropriate programs and services to all inmate categories. Provide for staff productivity and operational efficiencies within all facilities and system- wide. Correctional Needs Assessment - Deschutes County 2.13 Omni-Group, Inc. • KMD Justice F Basis for Master Planning Provide for the full incorporation of future technology applications and supportive infrastructure. Physical Objectives: Provide proper functional space to meet projected short, mid and long-term facility requirements. Provide opportunities to address immediate needs within the long-term master planning framework. Maximize the use of the existing facilities, as functionally and financially feasible. Maximize the use of the existing site within the context of agreed upon site use assumptions relative to non-detention functions. Provide for adequate and properly located parking for visitors, staff and secure parking needs. Maintain compatibility with land-use planning and facility development opportunities and constraints criteria. Strategic Objectives: Maintain facility development flexibility to adapt to possible changes in correctional demand. Provide a development program that minimizes relocations of functions and redundant renovation. Maintain expansion potential to accommodate future requirements beyond the planning horizon. Economic Objectives: Minimize total long-term capital development costs. Minimum operational costs. Correctional Needs Assessment - Deschutes County 2.14 Omni-Group, Inc. • KMD Justice Section Three The Recommended Master Plan ■ The Recommended Master Plan Section Three The Recommended Master Plan Introduction The Corrections Needs Assessment Committee identified and evaluated a set of six master plan alternatives and sub-alternatives which explored varying approaches to the future expansion of jail facilities. These ranged from options entailing the location of all facility development on the Public Safety Site, to options which involved the use of an independent (unspecified) site to accommodate all, or a portion, of adult corrections needs. Reference can be made to a detailed description and evaluation of these alternatives within "Appendix D - Basis for the Evaluation of Master Plan Alternatives" of the Technical Appendices (under separate cover). On the basis of a comparative evaluation of the alternatives, the Corrections Needs Assessment Committee selected Alternative I-A, "Renovate and Expand the Existing Facility Meeting All Needs on the Existing Site", to serve as the Recommended Master Plan for the expansion of adult corrections facilities. The scope and nature of the Recommended Master Plan is described in this section, with further detail regarding its physical configuration, implementation schedule and associated capital costs provided within the following three sections of the report. The Recommended Master Plan The Recommended Master Plan for the expansion of jail facilities in Deschutes County calls for the continued consolidation of all adult corrections operations on the Public Safety Site. The accommodation of future jail capacity requirements is to be sequenced in two stages. The first phase of development will address projected corrections needs through year 2015, with occupancy of expanded facilities assumed to occur, subject to funding availability, in the year 2010. A second phase of development will then address projected corrections needs through the year 2025, with facility occupancy assumed to occur in the year 2020. The principal facility actions in support of the implementation of the Recommended Master Plan include the following: Renovate the existing jail facility to correct current deficiencies and to reallocate select functions and space in order to enhance operational efficiency and support jail expansion. Develop a new jail addition, in two phases, to accommodate inmate housing expansion requirements and to supplement jail support space needs. Develop a replacement work center facility, as an adjunct to the expanded jail, to accommodate work release and work program housing needs. Develop a court facility, as an adjunct to the jail, to facilitate the efficient judicial processing of incustody pre-trial detainees. Correctional Needs Assessment - Deschutes County 3.1 Omni-Group, Inc. • KMD Justice ■ The Recommended Master Plan Reconfigure on-site vehicular circulation patterns and supplement available parking resources to meet expanded needs. Make allowances for the replacement, at another location, of the present Vehicle Maintenance facility, the Emergency Services facility, and (possibly in the second phase), the existing Work Center due to their displacement by jail expansion. Initial Increment of Construction The Recommended Master Plan identifies the need for jail expansion under the first phase of development to accommodate projected adult corrections needs through the year 2015. This will constitute the initial increment of construction of the "jail renovation and expansion project", and will result in the provision of a total capacity of 690 beds. To achieve this projected capacity level, the following renovation and construction activities at the Public Safety Site will occur. The renovation of approximately 50 percent, or 20,000 NSF, of the usable interior area within the existing jail facility to allow for the growth of inmate processing functions and the possible conversion of dormitory housing space to meet expanded jail support needs. Under this assumption, 86 beds in a (celled) housing configuration will continue in use. The construction of a jail addition, contiguous to the existing jail, to accommodate expanded housing and jail support needs. This initial jail expansion facility will provide 454 beds, with an estimated usable space requirement of approximately 97,000 NSF. The construction of a new work center facility to accommodate an initial need for 150 beds in a (dormitory) configuration, with an estimated usable space requirement of approximately 22,000 NSF. The construction of an on-site court facility to initially accommodate a single courtroom and direct court support functions, with an estimated usable space requirement of 6,500 NSF. The augmentation of existing on-site parking resources to accommodate an estimated year 2015 need for 360 stalls. Further Jail Expansion The second phase of development of the Recommended Master Plan will address further jail expansion to accommodate projected adult corrections needs through the year 2025. Upon its completion, a total capacity of 975 beds will be made available. Correctional Needs Assessment - Deschutes County 3.2 Omni-Group, Inc. • KMD Justice ■ The Recommended Master Plan To achieve this projected capacity level, the following construction activities at the Public Safety Site will occur. The construction of an expanded jail addition to provide for a supplement of 222 beds and augmented jail support functions, with an estimated usable space requirement of approximately 48,000 NSF. The construction of an addition to the new work center facility to provide for a supplement of 63 beds, with an estimated usable space requirement of approximately 9,000 NSF. The further augmentation of on-site parking resources to accommodate an estimated year 2025 need for 425 stalls. Correctional Needs Assessment - Deschutes County 3.3 Omni-Group, Inc. • KIVID Justice Section Four Facility Development Concept ■ Section Four Facility Development Concept Introduction Facility Development Concept The Recommended Master Plan defines the facility development approach that will provide Deschutes County the best solution for accommodating future adult corrections needs by means of the renovation ad expansion of the existing jail on the Public Safety Site. The facility development concepts presented in this section are drawn to scale at the master planning level and are intended to graphically illustrate the overall relationships of the project site and building components. The facility development concept associated with the Recommended Master Plan, as approved by the Corrections Needs Assessment Committee, is felt to represent the highest and best use for the site and jail based on the existing conditions, expansion opportunities, and economic considerations. Approach to Facility Development The expansion of adult corrections facilities on the Public Safety Site has been approached on the basis of a range of important considerations. Site Development: The following site use, security and operational considerations were incorporated within the recommended facility development concept: Site security zones will be established to facilitate efficient circulation of public, staff, police and services on the site and provide clear definition of secure and non-secure components. Physical clearances between the adult jail and other buildings on the site will need to be maintained to provide the necessary physical buffer and establish the secure area of refuge required for inmates during a fire emergency. The Juvenile Justice Facility located on the existing site will require sight and sound separation from all activities associated with the secure adult facilities and programs. Dedicated, secure staff parking will be identified and located in areas that are separate from public parking. The existing work center is to remain as part of the year 2015 expansion project. Further expansion, through year 2025, indicates the need for this facility to be demolished. This issue will be reviewed during the architectural programming phase regarding options that may allow the work center to remain for other county uses. Correctional Needs Assessment - Deschutes County 4.1 Omni-Group, Inc. • KMD Justice 0 Facility Development Concept Jail Renovation and Addition: The recommended facility development concept, with respect to the existing jail, balances the potential for renovated reuse with both overall operational objectives and economic considerations. In the evaluation of the jail and the development of the expansion opportunities, it was determined that there are significant limitations associated with adapting the heavily reinforced construction designed specifically for the security requirements of the (celled) inmate housing areas into other building uses. Many of the walls are structural bearing and support the roof. The ability to adapt this construction to accommodate other needs would be cost prohibitive. The decision was made to retain the current (celled) inmate housing in the project as it exists with minor security improvements. The spatial organization assumed for the jail renovation and expansion project provides for the appropriate functional relationships among internal elements necessary for effective jail operation. Usable space requirements for the new building additions are augmented to provide for overall building circulation, mechanical and electrical spaces, and other service related spaces. Security design principles support the concept of simplicity of building organization and clarity of circulation paths for staff, inmates and service that are separated from the public. The facility development concept retains the major north-south circulation and service corridor of the current jail facility. The new addition is located to the south of the current jail facility with the circulation system extended to serve the addition. As presently conceived, the majority of the Inmate Processing and Jail Support' functions will be located within the existing jail. Central Control, located to provide unobstructed views into the main circulation corridor, will be responsible for regulating all staff and inmate movement into and throughout the facility(s) using closed circuit television monitoring and electronic lock controls. It will also have the ability to monitor activities site-wide. Other design and security considerations incorporated into the facility development concept include: The facility will comply with American Correctional Association (ACA) Standards for building space and operational requirements. The current jail building systems will be upgraded or replaced to provide a contemporary project meeting functional and operational objectives. Security zoning of the facility(s) will support movement control and provide separation of public, staff and inmate activities. ' The following components are included in Inmate Processing and Jail Support: Inmate processing includes Intake/Release, Transportation and Vehicle Sallyport. Jail Support includes Lobby/Waiting, Central Visitation, Administration, Administration Support, Medical, Inmate Programs and Operations (food service, laundry, maintenance, etc.). Correctional Needs Assessment - Deschutes County 4.2 Omni-Group, Inc. • KMD Justice ■ Facility Development Concept The facility(s) exterior walls will be the primary security perimeter with security fencing providing the area of refuge for inmates during an emergency. Recreational activity areas will be within the secure perimeter of the facility(s) and adjacent to housing, thus minimizing inmate movement. The existing jail was not designed to accommodate a second story level, and therefore, any renovation associated with the jail will be limited to the ground floor level. The facility development concept has designated the new addition as a two-story building to accommodate the physical size of the building within the limitations of the site. The two-story building will provide a compact and economical configuration necessary for the projected number of inmate beds for year 2015. It will also allow expansion to meet the projected need for year 2025. Facility expansion on the Public Safety site, as envisioned, will integrate the Sheriff Office, Court and Jail functions into a unified and contiguous complex, allowing the opportunity to improve the architectural image at the complex's primary public facade. The specific configuration of facility development concept will be adjusted to respond to the more refined information provided in the programming phase. Court Facility: The court addition is depicted on the facility development concept between the existing jail and Sheriffs Office facility to provide a physical and programmatic connection between the buildings. This provides a direct link to the jail and permits secure inmate movement to the courtroom. In addition, the location of the court facility reinforces security by creating a physical barrier between the public parking and staff parking located behind the Sheriffs Office. Secure judicial parking would be located on the north side of the building and separated from the public. It is felt important that the court be located such that it is easily identified and provides efficient and understandable access by the public. Visitors associated with court activities will require a public lobby with security screening and waiting areas. The court design should be dignified in character, responding to the importance of the judicial system. Work Center: The new work center component of the jail expansion project will be a secure two-story building that will be operated primarily as an independent program. The building, however, will have a secure connection to the jail allowing for incident security response by jail correctional staff and the ability to share support services (food service, maintenance, etc.). The facility development concept, as presently defined, provides a connection to the jail through the vehicle sallyport so that it can be used for transport and access to intake if needed. Correctional Needs Assessment - Deschutes County ' 4.3 Omni-Group, Inc. • KMD Justice 0 Facility Development Concept Site and Building Expansion Considerations: Site design will be organized to provide separation of circulation between staff, police, services and the public. Security zones will provide definition between secure and non-secure access to the site. Jail expansion is configured as a two-story addition located on the south side of the existing jail on the available property in the center of the site. The addition will have a secure connection to the jail. Physical clearances for providing security buffers will be provided. Secure areas of refuge for inmates during fire emergency are required. The Fire Department will require an access road for fire trucks to service the jail and other buildings on the site. The Oregon Department of Transportation (ODOT) forty-foot easement along the east property line will limit the expansion in this direction. On-site parking will accommodate a total of approximately 360 stalls. Parking will be located adjacent to the buildings with separation between staff and the public. The court addition will be located between the existing jail and Sheriffs Office and establish a physical connection between the buildings. The existing Vehicle Maintenance Facility, Emergency Services Building, and Helipad will be located on another site to accommodate jail expansion. The existing work center will be retained for corrections or other uses. Correctional Needs Assessment - Deschutes County 4.5 Omni-Group, Inc. • ICMD Justice ■ Facility Development Concept Land Use and Facility Development Concept Further Long Term Expansion To Meet 2025 Requirements sa.E ' ~ ~ OiFKF I, `e~ MOM( tEl.'ICR All0.IKR1 DDXk l WORK CDM SENRNI' FENCE - TMAL PARKWC: 1 9U \ (425 RE7JFED) i' a I MIIAIiC (n SMIW IEGEm ' ~ '1 ❑03lIRG BUIiMICS I 1•_`. ®Pxavasm Pnno¢ PMIPOSED ONE I ' smMr FXPANSKRI ~ PROPM IMO I ` P'AVRii . SIM WAMM ~ i PRT= OEI10OM I . L J ~PROPOSEO PAtWtA ' y ANO ROIOS ~ {t_ 1 PARNNC -PR'PER,Y POE 910.6 UL Principal Facility Actions: \ Expand the initial jail renovation and expansion project to increase pretrial and sentenced maximum/medium/minimum security housing and support to accommodate a total of 762 beds (existing and new). Expand the Work Center to accommodate a total of 213 work program beds and support operations. Expand the parking to accommodate a total of approximately 425 stalls. \ AODM RRW (2-gym KG- oom \ MOM OF \ MAY LYE 1 E 57AE /0 F01104 \ ~ \ \ Pmm INRV1Cf \ \ \ Correctional Needs Assessment - Deschutes County 4.6 Omni-Group, Inc. • KMD Justice 0 Facility Development Concept Site and Building Expansion Considerations: The two-story jail addition will expand toward the west to accommodate additional bed requirements. Jail support functions will expand into a new addition and infill the yard located between inmate processing and new inmate housing. The new Work Center will expand toward the south. Physical clearances for security buffers will be limited to available property. Secure areas of refuge for inmates during fire emergency will be required and located within the property constraints. The existing work center, as currently conceived, will be demolished. Opportunities to retain the Work Center will be studied during the architectural programming phase. Sheriffs Office functions will expand into a new office addition toward the south and east of the current building. The addition of a second on-site courtroom, if required, will be studied as a part of the Sheriffs Office expansion. Site area will continue to be reserved to accommodate long term expansion needs of juvenile detention functions. Building expansion opportunities on the Public Safety Site, beyond 2025 requirements, will necessitate structured parking, purchasing adjacent property and/or demolition of existing buildings on site. Correctional Needs Assessment - Deschutes County 4.7 Omni-Group, Inc. • KMD Justice. Section Five Project Implementation ■ Project Implementation Section Five Project Implementation Introduction Presented in this section is a description of the sequence of facility actions and an illustrative schedule associated with the implementation of the initial construction increment of the jail renovation and expansion project. Initial Project Construction Sequencing The sequence of renovation and construction activities associated with the expansion of the Deschutes County Jail will be of critical importance due to the essential need to maintain corrections operations in a fully secure setting. While more detailed analyses of construction phasing will occur as part of the architectural design stage of the facility development process, the following provides a general approach to the sequence of required facility actions. Secure the site and develop the necessary site infrastructure to support construction. Complete construction of the new jail addition, providing secure accommodations for the existing inmate population. Construct new kitchen/laundry components independent of their existing location, allowing for continued operations. Construct a temporary inmate processing component in the lower level of the new jail addition with an adjacent fenced vehicle sallyport. Relocate administrative functions to another building, such as the existing Work Center, and provide temporary inmate support services in the existing (non-celled) housing area of the jail (unless support space in the new addition can be identified). Initiate renovation associated with the existing jail building, including the construction of the new court addition. Upon completion, relocate the temporary inmate support to the newly renovated area and complete renovation. Move relocated functions into the renovated jail facility. Complete all remaining site and building construction activities. Note: The Work Center component, because it is somewhat independent of the main jail construction, can be sequenced early in the construction process, or alternatively, be deferred to a later point in the sequence of actions. This work is also dependent on the relocation of the Vehicle Maintenance and the Emergency Services buildings located on the site. Correctional Needs Assessment - Deschutes County 5.1 Omni-Group, Inc. • KIVID Justice ■ project Implementation Implementation Schedule The following project implementation schedule was developed consistent with the need to accommodate year 2015 projected bed requirements in the initial increment of construction. Subject to funding availability, this should entail the occupancy of expanded jail facilities by the year 2010. If occupancy extends beyond this date, assuming that the bed requirement projections are realized, the jail would be at maximum capacity soon after completion. It is anticipated that the construction process, based on the size and complexity of the project and the requirement for construction phasing to allow continuous jail operation, will take approximately 30-36 months from authorization to final completion. This is based on the use of a qualified contractor under a normal public low bid construction delivery method. The architectural and engineering design of the project will require approximately 12-14 months, and the bid phase another two months. In order to achieve an occupancy target in the year 2010, architectural design services for the project should be authorized to begin in 2006, upon completion of the architectural program. Implementation Schedule 2007 Program 2008 3idding/Contract (2.5 months) 0 Construction (30-36 m 2009 12010 2011 Commissioning Transition/Move-In Correctional Needs Assessment - Deschutes County 5.2 Omni-Group, Inc. • KMD Justice Section Six Capital Cost Estimate ■ Capital Cost Estimate Section Six Capital Cost Estimate Introduction The Recommended Master Plan for the expansion of adult corrections facilities has, as previously referenced, been based upon Alternative I-A of the range of facility development concepts under study. It calls for two phases of development; the first assumed to be completed in the year 2010 (meeting year 2015 needs), and the second completed in the year 2020 (meeting year 2025 needs). Presented in this section are the results at a master plan level assessment of capital costs associated with the implementation of the initial increment of construction of the jail renovation and expansion project. Such capital costs address the renovation of the existing jail to correct current deficiencies and to affect select reallocations of space. Costs are estimated for jail expansion, related site development, and for the construction of an on-site court facility. Cost allowances are also made for the replacement of existing on-site facilities to be displaced by jail expansion. Although subject to refinement and validation as part of the more detailed project planning and design process, the estimate capital costs provided at this time are felt to be of sufficient accuracy to support capital planning purposes. Basis for Cost Estimation The methodology used to develop the estimated magnitude of cost for the initial construction increment of the jail renovation and expansion project have included the following. Establishing the projected architectural space requirements for each component of the project, whether renovation or new construction. Retaining a professional cost estimator to apply their expertise in similar criminal justice projects to assign an average cost per square foot of floor area adjusted for the Deschutes County location. Estimating site costs assuming suitable soil conditions for building foundations, adequate available utility infrastructure supporting the expansion, and site security appropriate for the jail. Applying an escalation factor that adjusts the estimated construction cost to the projected bid date of the project (an annual rate of 5.0%, reflecting the current construction market trend). Estimating those project related soft costs the owner may incur that are beyond the contractor construction cost for site development and renovation/construction of the buildings. Correctional Needs Assessment - Deschutes County 6.1 Omni-Group, Inc. • KMD Justice ■ Capital Cost Estimate Owner's Soft Costs Owner's soft costs, as a supplement to direct renovation/construction and site development costs, include but are not limited to: architectural fees, owner's project management, construction contingencies, testing, inspection, surveys, off-site utilities development, geotechnical analysis, furnishings, telecommunication/data systems, equipment, system development charges, legal fees, etc. Owner's soft costs vary significantly with each project depending on the project's location, local conditions, and other factors specific to the project. For purposes of this master plan these costs are estimated at 30% of the renovation, construction and site development costs. This is representative of the average range of owner's soft costs for county level jail projects constructed within developed areas. In addition, this assumes that land costs, off-site roadway construction, and off-site utility development beyond normal connections are not a project requirement. Project Costs for the Initial Increment of Construction The project cost estimate for the initial construction increment of the jail renovation and expansion project is summarized below and shown in detail in Table 6.1. Jail/Court Construction (Renovation and Addition) Work Center Construction Site Development Sheriff Vehicle Maintenance Facility (Replacement) Sheriff Emergency Services Building (Replacement) Project Related Costs (Owner's Soft Costs) TOTAL ESTIMATED CAPITAL COST $ 42,887,271 6,763,900 1,686,241 1,996,060 1,274,096 16,382,271 $70,989,839 Construction costs are prorated to include contingency and escalation to an assumed construction start date of Spring, 2007. Project Costs for Further Jail Expansion The expansion of adult corrections facilities, beyond the initial increment of construction, are estimated to require an additional cost of approximately 54 million dollars. This second Phase capital cost includes significant escalation to an assumed construction start date in year 2020 (to meet projected year 2025 needs). Further reference regarding estimated master plan capital costs for both Phase One and Phase Two facility development can be made within Section Eleven of "Appendix D - Basis for the Evaluation of Master Plan Alternatives" of the Technical Appendices (under separate cover). Correctional Needs Assessment - Deschutes County 6.2 Omni-Group, Inc. • KMD Justice ■ Capital Cost Estimate Table 6.1 Conceptual Cost Analysis, Initial Increment of Construction Department SF Cost/SF Cost Total Inmate Processing (8,500 SF) Intake/Release Transportation Sallyport Jail Support (30,000 SF) Lobby/Waiting Central Visitation Admin/Support Medical/Mental Health Clinic Inmate Programs Operations Court Operations 6,500 SF) Court Set Court Support Building Grossing (30%) (Major circulation, elevators, etc.; factor includes mech, elect, low voltage) 4,250 $140 $595,000 1,275 $100 $127,500 2,975 $90 $267,750 $990,250 900 $100 $90,000 13,500 $100 $1,350,000 3,600 $120 $432,000 12,000 $120 $1,440,000 $3,312,000 3,900 $200 $780,000 2,600 $100 $260,000 $1,040,000 42,991 $150 $6,448,650 $6,448,650 Inmate Housing Maximum Security (New) 18,900 $180 $3,402,000 Medium Security (Existing) 19,000 $60 $1,140,000 Medium Security (New) 53,955 $140 $7,553,700 Minimum Security 6,450 $120 $774,000 $12,869,700 Mechanical 103,305 $47 $4,855,335 Mechanical (Existing Building) 40,000 $30 $1,200,000 Electrical 103,305 $22 $2,272,710 Electrical (Existing Building) 40,000 $14 $560,000 Low Voltage (New/Existing Building) 143,305 $12 $1,719,660 Kitchen Equipment (Allowance) - - $500,000 $11,107,705 SUBTOTAL 186,296 $35,768,305 Site Development & Demolition $1,425,997 Phasing Allowance $500,000 Replacement Work Center (28,600 SF) $5,720,000 Relocated Sheriff Vehicle Maintenance Facility $1,688,000 Relocated Sheriff Emergency Special Services Building $1,077,460 $10,411,457 SUBTOTAL $46,179,762 Contingency @ 10% $4,617,976 SUBTOTAL $50,797,738 Escalation 5% per annum (start Spring 2007, 7.5%) $3,809,830 SUBTOTAL $54,607,569 Owner's Soft Costs @ 30% $16,382,271 TOTAL ESTIMATED CAPITAL COST $70,989,839 Correctional Needs Assessment - Deschutes County 6.3 Omni-Group, Inc. • KMD Justice OMNI-GROUP, INC. KMDJUSTICE 2550 Via Tejon, Suite IA 421 SW Sixth Avenue, Suite 1300 Palos Verdes Estates, CA 90274 Portland, OR 97204 TEL 310.791.2230 TEL 503.221.1474 FAX 310.791.2261 FAX 503.227.0762 o ~ N ~ U p.~ ~ N O a~ N ~ Q ~ 6x"~t3 O ~ U O U o O U ~ VJ~ U N U Q v~ N 00 N N c U c~3 O H N ~~6 0 04 N c~ U U c 4 4~ 4 O p N c/1 CO ct CJ N 4 U O c 0 O r 4H O n , -ice ' p..~ rMWAM4 O c cu , ~ N O U N . O O l--~ ( ct 4 0 CJ O a c~ O d N N O ct O 4-4 0 ~ o d a a U o ~ C=+ c N c r TT CC3 VJ ~ O ~ O o O r 4-4 r, c c O a~ O a~ a~ b,A ~O b;A O ct (Ij N 0 w CIS rc~ (Ij 0 N U ~ ~ O m0 j ~ O O ~ O O o • N r~--4 0 ct 4JJ N rc~ cc3 V O ~ 3 cli 0 N (A 4-j 4;w4 cn ct v a~~n CCU u c U o Con CA 0 Ct c ~ N U O Q ~ 't3 O U O t4'~ 0 c O U v 4 4 N 171 o tin c~ E C/~ N n = 00 U ~A con 4~ p 4 O H H a M 0 a U O O O bq _ O. O U c Q 7:~ N 74 ~ O ccS ~ o ~ a ■ c7i 0 U 4 bfJ 4 C/1 03 ELI v~ 4 O U a c N C!~ 0 ~--1 0 `V r. 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