Sacramento County Grand Jury Role

Recommendations 25

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  Extend drug-testing to all inmates on a random and unan- nounced basis.
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  Given signs of a Sacramento County budget surplus, earmark funding for increases to rehabilitation programs and the number of caseworkers. Implement or expand rehabilitation training as part of academy training of Sheriff’s Department cadets.
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  Given RCCC’s remote location and inaccessibility to public transportation, the Sheriff’s Department could arrange trans- portation assistance for visiting families.
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  The pharmacy is in an insecure location, outside the main facility, close to the welding shop and accessible to inmates. Move the pharmacy to a more secure location.
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  Develop a wage-earning program for work-detail inmates, consistent with Cognitive Behavioral Therapy and Employ- ability Skills models. This would provide indigent inmates the means to make canteen purchases and a sense of accom- plishment and responsibility. SACRAMENTO COUNTY JUVENILE HALL Grand Jury On-Site Visit — October 2013 All youths who have been arrested, booked, and assessed as a risk to the community are detained at Sacramento County Juvenile Hall under the oversight of the Sacramento County Probation Department. Detention lasts an average of 31 days; however, some stay for longer periods. Designed for a maxi- mum capacity of 444 residents, Juvenile Hall is budgeted for an operational capacity of 225. There is a ratio of one staff member per 10 residents. As with all correctional facilities, the Hall’s primary responsibil- ity is to ensure public safety. The staff is also concerned with the rehabilitation of these youths and the prevention of recidivism. Meeting these responsibilities is challenging in light of budget constraints that have led to program cuts and lack of new pro- gram implementation. The Sacramento County Boys’ Ranch, which closed in 2010, was the only facility available for boys in long-term programs. Those boys now reside at Juvenile Hall as well. Staff is attempting to mitigate these program cuts by using outside programs as well as outside volunteers. Among the more problematic areas is the lack of a formal drug and alcohol program. Outside volunteers provide some sub- stance abuse assessment, but there needs to be a formal pro- gram. Another area of concern is the housing of suicidal resi- Juvenile Hall’s pri- dents with the general population. Currently, a suicidal resident mary responsibility is shares a room with a non-suicidal resident, in order to have to ensure public safety. someone in the room who could respond in case of an emer- The staff is also con- gency involving the suicidal resident. Grand jury members cerned with the reha- found that practice troublesome because it puts an undue bur- bilitation of these den on an untrained and unqualified fellow juvenile to respond youths and the preven- in a life or death emergency. tion of recidivism. Meeting these Juvenile Hall is also using the practice of non-detention. Instead responsibilities is of residing in the Hall, the juvenile is released to the custody of challenging. a parent or guardian. Some minors are released to home deten- tion, some are released with an electronic monitor, and some are released with no restrictions. When released to non-deten- tion, the minor must appear in court at regular intervals to monitor his or her progress. Juvenile Hall Units: Juvenile Hall comprises several units, each designed to meet the specific needs of the residents. There are two female units, and all other units are all-male. The exception is the Special Needs Unit, which occasionally houses a female with careful restrictions in place. Each unit has a drop box where the juveniles can deposit written grievances and requests 45 for medical attention, library books, etc. Staff check these boxes daily and handle all grievances timely. Orientation Unit: All youths entering the Hall must go through an orientation where they are carefully assessed for appropriate placement. The assessment includes a medical evaluation and questions regarding home life, gang involvement, etc. The juve- nile may make two phone calls at this time: one call to a parent or legal guardian and one to an attorney. Maximum Security Unit: Residents deemed a high security risk because of gang affiliation or disciplinary problems are placed in this unit. At the time of our visit, 14 juveniles were in this unit, each living in an individual cell. Three staff members are as- signed to this unit. Staff told us, and we observed, that residents assigned to this unit are normally cooperative with staff and other residents. Special Needs Unit: With a maximum capacity of 30, only 11 residents occupied the Special Needs Unit on the day of our visit: nine special needs residents and two residents serving as mentors. Youths with special needs reside in cells while the mentors have access to the open bay of the unit. This mentoring program began as a result of an incident when a resident was in crisis and members of the staff were unable to calm the situa- tion. Another juvenile resident requested permission to intervene and was able to calm the agitated resident. Staff saw this as an opportunity to use peer intervention beneficially and to provide residents an incentive to reach positive goals while incarcerated, as mentor status must be earned. Grand jury members have concerns about using juvenile resi- dents in this role due to the potential for abuse by the mentoring juvenile. Staff is not necessarily present when the mentor inter- venes with the juvenile in crisis, so the intervention might be threatening and staff may be unaware. The program needs to be carefully monitored with rigid guidelines in place. Medical Unit: Six infirmary rooms are available and treatment is provided 24 hours per day. Emergency care is provided off- site at the nearest medical facility. Education: El Centro Junior and Senior High School provides a full range of educational courses. All residents attend school during the week and can earn high school credits and qualify to take the California High School Proficiency Exam or General Education Development exam. A special class is offered for residents interested in attending college. Library: A large collection of books is housed in what was 46 primarily a special needs unit. Books are an important and welcome resource for incarcerated youths and donations from the public are welcome and needed. Recreation: Physical education and recreation are part of the daily schedule, with organized sports and activities available. There is a gymnasium and swimming pool available for resi- dents, as well as outside courtyards in several units. Programs: Juvenile Hall offers two programs to benefit youth: the Leadership Education and Athletic Program (LEAP) and the Skills Training Enrichment Program (STEP). LEAP empha- sizes teamwork and challenges residents both physically and mentally. STEP is a multidisciplinary youth program encom- passing education, mental health, recreational therapy and physical fitness to build the residents’ skills and improve their behavior. Visiting: Staff actively encourage visitations because they believe that strong family and community ties increase the likelihood of a successful release from Juvenile Hall. Visiting is allowed seven days a week; hours vary daily. A spacious and clean open area is available for visits, with private rooms avail- able for non-contact and attorney-client visits. A specially decorated room is enclosed in the visiting area for visits be- tween in-custody mothers and their babies. Decorated by the residents, the room is colorful and cheerful, with painted mu- rals on the wall, toys, and a comfy rocking chair. Babies are not allowed to live at the Hall, but mothers are given the opportu- nity to bond with their children through regular visits. Conclusion Juvenile Hall appears very well-maintained and brightly lit. All staff members seem to be enthusiastic, knowledgeable, dedi- cated, and very professional. The numerous programs for juvenile residents have been carefully honed for maximum participation and accountability and appear to meet the needs of the population. SACRAMENTO COUNTY MAIN JAIL Grand Jury On-Site Visit — August 2013 Sacramento County’s Main Jail at 651 I Street in downtown Sacramento opened in 1989 after five years of construction and an $80 million price tag. With a maximum capacity of 2,432 inmates, its daily population averages 2,400 inmates, approxi- mately 220 of them female. Nine out of 10 inmates are in cus- tody awaiting trial for felonies, with the average length of incarceration being 31 days. Besides pre-trial inmates, the jail houses up to 425 federal in- mates for the U.S. Marshals Office and 129 for Immigration and Customs Enforcement (ICE), while others are held for state prison extradition or new state prison commitments. A portion of the Main Jail includes the Lorenzo E. Patino Hall of Justice, which has four courtrooms that handle an average 6,800 court cases per month. Most defendants are in custody at the Main Jail. The Main Jail’s The Main Jail handles approximately 135 bookings per day — Mission Statement: 49,000 bookings annually — each of which includes a criminal “To ensure public
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  Food safety and cleanliness must be addressed and im- proved.
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  There are 336 surveillance cameras throughout the facility, but jail staff acknowledged there is need for more because some areas are remote or out of view of any camera. This could be a serious safety matter for staff and inmates and should be addressed. 51
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  The Main Jail is reimbursed by outside agencies at $77.17 per day per inmate, but that doesn’t cover all the costs. Grants are available, but many come with requirements that the Sheriff’s Department cannot meet, such as matching the grant dollar- for-dollar or extending the program(s) after the grant expires. Additional dollars could make a substantial difference in some existing programs or make new programs available.
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  The pharmacy is well-organized, efficient and replete with safety checks to ensure proper distribution. A licensed phar- macist is on duty 10 hours a day. Annual cost of medications: $2.7 million for the Main Jail alone. If there is a way to com- bine pharmaceutical needs with other Sacramento County facilities, thereby lowering overall costs, it should be pursued. CALIFORNIA STATE PRISON, SACRAMENTO Grand Jury On-Site Visit — September 2013 Public safety is the number one goal of California State Prison, Sacramento (SAC), according to prison officials. A highly de- tailed response is in place to prevent inmate escapes, and grand jurors twice had occasion to see this in action. Before beginning the on-site inspection of the facility, grand jurors were given a warning: Follow directions in the event of an alert. Prison officials told us candidly that while our safety was important, prevention of an escape would come first, and the prison does not negotiate for hostages. About 30 minutes into the tour (and again several hours later), a shrill alarm sounded, blue lights flashed, and we were ordered to back tightly against the wall. Officers came rushing from several directions with backup officers following. On both occasions, after a thorough search of the area, the “all clear” was given and we were again able to breathe. It was hard to imagine how an inmate could escape, and, in fact, no one has done so suc- cessfully at this institution. Statistics: SAC received its first offender on October 1, 1986. Originally built to house 3,319 inmates, during our visit there were only 2,095 inmates, down Maximum-security inmates from 2,577 inmates in 2012, and 2,900 in serving long sentences or 2008. (Prison officials explained that the inmates who have proven to population decline is due to re-alignment of prisoners pursuant to enactment of be management problems at Assembly Bill 109). SAC’s current budget other institutions make up is $155,062,000 with an additional the bulk of the population at $59,884,000 for medical including dental and mental health. There are 967 peace this facility. officer personnel, 13 executive staff, 170 support staff, 59 trades staff, 27 educa- tion and vocation staff and 485 medical personnel. Function: Maximum-security inmates serving long sentences or inmates who have proven to be management problems at other institutions make up the bulk of the population at this facility. SAC’s most significant function is medical and psychiatric services for inmates from throughout Northern California. SAC provides three levels of mental health care. First level of care affords case management for those inmates who are able to function in the general population; the second level of care is enhanced outpatient care for those inmates who need to be 53 clustered; and the third level of care is for those inmates with suicidal or homicidal ideation who need to be segregated either for their own protection or the protection of others. There have been three suicides in the past year with approximately 10 to 15 self-injuries monthly. About 50 inmates weekly have to be transported to outside hospitals for medical treatment. Again, public safety is the number-one priority and detailed planning and caution have thus far resulted in safe transports. During the recent hunger strike, a number of inmates from Pelican Bay were transferred to SAC, both for security and medical reasons. Education: Any inmate who lacks a high school diploma or GED (general equivalency diploma) must attend classes, with educational opportunity immediately available to all. There are two volunteer teachers, under the direction of a staff principal, on one yard every day with inmates serving as teacher’s aides. There is one three-hour academic class in the morning, and another three-hour academic class in the afternoon. Vocational classes last all day. Independent studies are available every day online. An inmate with a court deadline will be given two addi- tional hours a week outside his cell for research in the library. In addition to high school education, college classes are also offered in conjunction with several community colleges. So far, only three Associate of Arts degrees have been awarded, but currently there are about 150 inmates involved in college-level classwork. Transcripts reflecting units earned toward these degrees indicate that the units were earned from the community college, and not at the prison. Infrastructure: SAC functions as its own city. It has its own water system, and a generator keeps electricity going in an emergency. Heating and cooling are big issues and are handled by a massive steam system. All cells have controlled air. All laundry services for both SAC and Old Folsom, as well as a few hospitals in the area, are handled by inmates. Personal clothing is marked with an identification number and each inmate is allowed to have laundry service once a week. Twenty-two SAC inmates, under the supervision of a profession- ally trained chef, do all of the cooking for both facilities, serving 5,500 meals a day. Meals for several days are prepared at one time and cooking occurs only on certain days. Kosher, vegetar- ian and Halal meals are offered. Inmates are provided an 1800- calorie-a day diet with one or two soy products weekly. Food is 54 flash frozen and delivered to cell blocks at SAC as well as to Old Folsom, where it is reheated. Unfortunately, the kitchen was not operational on the day the grand jury visited, but the area appeared clean and orderly. There are 14 towers on the grounds, only two of which are staffed. Throughout the facility there are many entry check- points with security apparent at most. The grounds are well supervised and those areas that need visual supervision have the capability. New, nearly completed construction will house inmates with medical needs coming from other high-security institutions, primarily Pelican Bay. A few inmates were observed working with the construction crew and we were told they were paid $150 monthly. There are other paying jobs like laundry and cooking, but these construction positions appeared to be the plum. Conclusions The facility appears to be well-maintained and it was obvious all staff (custody and non-custody) put a high emphasis on safety and security. Although many of these inmates will never step freely outside these walls, the care and services, and the opportunities to reconnect to society, are there for the taking. According to staff, there are 85 activities or services provided monthly. We did not see these activities in progress and would recommend that future tours be scheduled to coincide with classes, cooking, laundry, and other endeavors. SAC is to be commended on their recent accreditation from the American Correctional Association, the first correctional institu- tion in California to receive its accreditation. FOLSOM STATE PRISON Grand Jury On-Site Visit — October 2013 Folsom State Prison (FSP) primarily houses medium security general population Level II male inmates. Folsom also houses minimum security Level I male inmates within a minimum security facility located just outside of the main security perimeter. FSP also administrates the adjacent Folsom Women’s Facility (FWF), and coordi- nates with the Prison Industry Au- thority (PIA) on the grounds to provide work assignments for in- mates. Opened in 1880, FSP is California’s second oldest prison, one of the nation’s first maximum security prisons, and the first in the world to have electricity. Beginning construc- tion in 1878, inmates used granite blocks from a nearby quarry to build the prison, and then spent most of their free time in the dark behind solid doors in 4-by-8-foot stone cells with 6-inch eye slots. Not until the 1940s were air holes drilled into those cell doors. Even today, Unit IV, the prison’s first cell block, remains operational with the same doors and cells that house one or two men. From 1895 to 1937, 98 prisoners were executed by hanging at “Old” Folsom State Prison. Folsom State Prison’s impressive Folsom Women’s Facility: Under the administration of FSP, the East Gate En- FWF opened in January 2013 as a Level I, II and III institution. trance. FSP photo This 403-bed stand-alone facility currently houses 284 female inmates. FWF provides housing, rehabilitative and re-entry programming, substance abuse treatment, and job training to the medium and minimum security female population. These women transferred to FWF from more southerly Valley State Prison in Chowchilla and the California Institute for Women in Corona in order to allow the female offenders to maintain closer ties to family and relatives in the area. Female inmates chosen to transfer to FWF from another institu- tion must meet strict criteria: have five years or less to serve and be discipline-free for at least one year, among other require- 56 ments. The FWF has two main structures, each with its own courtyard. Each building contains 200 beds within three dormitories, each of which has an open area where inmates can watch television, use exercise equipment or sit at tables to visit, read or play games. Each dorm also contains a washer and dryer so the women can do their own laundry. Female inmates are allowed free access between the outside courtyard and their dormitory. Inmates are tested upon arrival to determine their literacy level and appropriate grade. FWF offers classes in the morning and evening. Jurors visited several classrooms – each holds 27 stu- dents – where the women appeared to be fully participating in the discussions. A Voluntary Education Program teacher works with the female inmates in selecting college courses as well as classes in occupational and behavior skills that assist inmates in a successful re-entry into society. FSP and FWF are located approximately one-half mile apart. No contact is allowed between male and female inmates. Programs and Functions at FSP and FWF: The current inmate population at FSP is 2,945, which includes 168 inmates housed in a minimum security (Level I) facility. Staffing includes 750 to 800 personnel and another 175 employees in the prison health care system. Five housing units are located within the secure perimeter at FSP. Level I prisoners live in an open dormitory setting while Level II inmates are housed in individual cells. All cells include one toilet, one sink and two bunks with small storage lockers for personal possessions. Grand jurors toured Unit V, Cell Block B, which housed the first prisoners in 1880, the canteen, the large outdoor yard, and one of two dining areas. Jurors also observed the second floor of the segregation unit that houses newly arrived inmates, who receive orientation and are assigned to the appropriate housing unit. The facility, although old, was well-maintained and clean. The large dining hall (one of two) is filled with tables each seating four. Inmates are fed on a rotational basis. Staff said funding for inmate education and rehabilitation pro- grams has increased in the past few years, which correlates with the current management’s program rehabilitation philosophy. There are many self-help programs available for inmates at FSP and FWF, such as anger management, Alcoholics Anonymous, substance abuse, family reunification, and church or religious- based programs. A coach also works with those inmates in- 57 volved in various sports activities. Numerous vocational certification programs are available for inmates in masonry, building maintenance, welding and auto mechanics. The automotive program, purportedly state-of-the- art, teaches inmates to repair hybrid automobiles, manufacture bio fuel, and repair equipment on the prison grounds. Before release, the certified inmate meets with a union representative who provides contacts in the local area to assist in securing a job. Both FSP and FWF offer work assignments only for inmates who have earned at least a GED. Many inmates have minimal formal schooling and need basic academic programs. The prison provides programs in adult basic education, General Education Development (GED) and adult high school through Folsom’s Greystone Adult School. Basic computer literacy is also taught on-site and is one of the most sought-after courses. Inmates who have not earned a high school diploma or GED are required to attend classes and cannot work at the PIA. Level I inmates are often used to fight wildfires in California. They also provide grounds landscaping and building upkeep or work in the income-producing PIA, located on prison grounds. FSP and FWF offer inmates college-level courses through Lassen College, Feather River Community College or Coastline Com- munity College. Career Technical Education classes include business computer skills, business management and basic office skills. Female inmates can take accounting, business services, customer service, marketing, facility support, land and building maintenance, and warehousing. The inmates are transported to their jobs away from the facility and may earn $19 to $120 month. Some inmates work at the PIA; there is a waiting list to get into these classes and jobs. FWF is beginning a new partner- ship program with the SPCA in which the female inmates will work one-on-one to train and socialize puppies and dogs to make them adoptable. FSP and FWF share many services with California State Prison, Sacramento (SAC) (also referred to as “New” Folsom Prison), such as warehouse operations, laundry facilities, firehouse, meals prepared at SAC and delivered to each facility, adminis- tration segregation as needed due to overflow, crisis situations, additional staff as needed, groundskeeping and the firing range. FSP inmate ages range from 18 to 80 years old; most are senior citizens. Half of all the inmates are serving life sentences. In contrast, FWF inmates are 18 to 65, but the population is much smaller and the average age much lower. Staff reports show the number of violent incidents at FSP has 58 declined dramatically due to the aging population, changes in level classification, and reduction of the population, which is partly due to prison realignment. Escape attempts are minimal and, according to staff, the escapee is always found. Gang mem- bers segregate themselves from others and each gang’s particu- lar “space” is generally respected by other gangs. Health care is a growing challenge generally due to the aging inmate population. Both FSP and FWF see their health care population as outpatient only because there is no on-site infir- mary or mental health facility. Health care consists of basic care for ambulatory inmates with physical injuries or common or chronic illnesses, oncology, cardio or diabetes. There are no known HIV inmates currently at FSP, but common diseases are Hepati- tis B and Hepatitis C, which can be easily transmitted. An inmate at FSP can make an appointment through the medical clinic for routine care; a telemedicine robot is used to make a diagnosis. A doctor is on call five days a week and on-site two days a week; a nurse practitioner is available three days a week. Medication is In the Prison Indus- distributed through a small pharmacy and is not computerized. try Authority’s metal fabrication shop, Inmates are offered AIDS testing, but they can refuse testing various metal sheets unless court-ordered. Health care contracts are with local com- were being cut, munity facilities; therefore, when an inmate needs hospitaliza- stamped, drilled, tion, mental health confinement or whose diagnosis calls for a sanded, cleaned, specialist, the inmate is transported to the appropriate off-site painted, bent and facility. Staff trains annually to recognize and make referrals for assembled on their mental health issues, focusing on an inmate’s daily ability to way to becoming function. If enhanced outpatient mental health treatment is lockers. FSP photo needed, inmates are transported to a regional correctional facil- ity or to the new inmate mental health facility in Stockton. If a long-term mental hospital commitment is required, the inmate can be sent to a state hospital. Grand jurors met with the FSP’s Men’s Advisory Council and the FWF’s Women's Advisory Council, inmate groups that act as liaison between the inmates and administration and identify issues of concern to the population as a whole. Both committees, who are elected by the inmates themselves, stated there were positive accomplishments and open communication between the 59 prisoners and the current administration. Elected council mem- bers hold regular meetings with the warden and top staff members. Prison Industry Authority: The California Prison Industry Authority is a state-operated organization created in 1982 to provide productive work assignments for inmates in the state’s adult correctional institutions. The PIA is self-supporting from the sale of its products and services. Inmates receive hourly wages of 30 cents to 95 cents, with up to 50 percent of an inmate’s wages deducted for court-ordered restitution or fines. Since 1992-93, $6.5 million has been deposited into this fund. Incidentally, the California Penal Code prohibits the PIA from selling its products or services to the general public. All inmates are required to work, attend school or participate in a vocational program. Prisoners are generally eager to partici- pate and waiting lists are common for many work assignments, which can help inmates learn work skills and habits that help them become productive members of society. Currently, 300-350 FSP inmates are employed in the PIA pro- gram and they work 10 hours a day four days a week. In every industrial area jury members visited, inmates displayed great pride in their product or service. Each area was clean and orga- nized, with obvious good rapport between inmates and staff. In the metal fabrication shop, various metal sheets were being cut, stamped, drilled, sanded, cleaned, painted, bent and as- sembled on their way to becoming lockers for inmates’ personal items, computer housing cases, individual holding cells, and safety equipment for the California Highway Patrol. Strict inventories and checks are in place at each step from beginning to end. Each workday, 45,000 license plates for all California vehicles are made in this full-service shop. Non-inmate supervi- sors agreed they could easily modernize this plate-making process, but that would eliminate most of the jobs, which are meant to keep the inmates in a meaningful time-consuming routine. One new PIA industry that has proven very successful finan- cially is refurbishing toner cartridges. Inmates recycle or rebuild toner cartridges for all California state offices or tax-based entities. Inmates clean and replace all parts for 16 different basic cartridges. After the cartridge is reassembled, it is tested and certified before being shipped to the customer. The print shop uses offset presses, a web press and small presses to produce pamphlets and forms for various state entities. There is also a high-volume duplication area where 60 approximately 35 employee inmates handle up to 5 million items a month. Classes in graphic arts and pre-certification for pre-press, offset and bindery are readily transferable to the outside job market. Inmates in the sign shop use advanced computer programs to create impressive custom work for posters, banners, plaques, nametags and nameplates, decals for the DMV and CHP, off-highway stickers, metal state park signs, and much more. Some inmates working in the advanced digital services section perform Braille transcriptions for numerous entities including the Department of Education. Projects from computer codes to foreign languages to chemicals are being transcribed. Two new machines have increased the amount of transcriptions so that 1,000 two-sided pages can be dot-embossed in under an hour. In the optical department, inmates clean and repair used pre- scription and reading glasses that are brought in through a partnership with the local Lions Club. Inmates determine reader prescription strength before sorting and packing the spectacles for Lions Club members, who ship and deliver them to areas of need. Observations
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  Folsom State Prison and Folsom Women's Facility were clean, bright and orderly.
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  Level I and II inmates are responsible for a large portion of the inmate labor force. If paroled, they would need to be replaced or there would be a shortage of inmates to provide the necessary day-to-day labor to keep FSP operational from a plant operations perspective.
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  Staff at every level appears to embrace changes due to realignment. They are continually looking for ways to de- velop rehabilitation programs in education, vocational training and certification in the PIA job offerings.
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  Overall budget concerns continue to be a major factor.
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  Grand jury members were impressed with the well-orga- nized MAC and WAC committees and apparent transpar- ency between staff and inmates. All were allowed to speak freely, making suggestions and recommendations for im- provement.
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  Staff was knowledgeable about how the prison system operated and readily answered all questions and provided information that was requested. Recommendations
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  Continue looking for ways to develop and enhance rehabilita- tion in areas of education, vocational training, self-help pro- grams and creating new industries, and therefore jobs, through the PIA.
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  FWF should continue to look for ways to deliver gender- specific programs.
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  Continue to explore any and all functions that can be a shared venture with California State Prison, Sacramento. This would keep costs down.
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  College classes could be arranged through local junior and state colleges.
• R20
  Install security cameras in blind areas at FSP. 62
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  Continue looking for ways to develop and enhance rehabilita- tion in areas of education, vocational training, self-help pro- grams and creating new industries, and therefore jobs, through the PIA.
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  FWF should continue to look for ways to deliver gender- specific programs.
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  Continue to explore any and all functions that can be a shared venture with California State Prison, Sacramento. This would keep costs down.
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  College classes could be arranged through local junior and state colleges.
• R25
  Install security cameras in blind areas at FSP. 62