To: Sonoma County Board of Supervisors
Department or Agency Name(s): General Services, Sheriff’s Office
Staff Name and Phone Number: John Brencic: 707-565-2847; Lt. Bryan Cleek: 707-565-1434
Vote Requirement: Majority
Supervisorial District(s): Countywide
Title:
Title
Sheriff’s Adult Detention Behavioral Health Housing Unit: Acceptance of 30 Year Life Cycle Operational and Staffing Costs
End
Recommended Action:
Recommended action
Accept report on estimated 30 Year Life Cycle Operational and Staffing Costs for the Sheriff’s Adult Detention Behavioral Health Housing Unit.
end
Executive Summary:
In recognition of the increased need for inmate behavioral health services, the County received $40 million in State of California justice facility construction funding (SB-863) for a new adult detention behavioral health housing unit in 2015. The project, submitted as the Behavioral Health Housing Unit (BHHU) will be a 32,000 square foot, 72-bed mental health detention facility attached to the Sheriff’s Office Main Adult Detention Facility (MADF). The BHHU addresses the growing need for and improves the system of behavioral health treatment and care within the County’s detention program.
In 2016 and 2017, bridging design documents for the project were prepared by the County’s construction and architectural consultant Kitchell. Following State guidelines, a competitive Request for Qualifications process was performed and in July 2017, the Board of Supervisors approved a shortlist of three Design Build Entity (DBE) candidates. However, after the approval the State made changes to the Department of Finance and Public Works Board approval processes. Since the project is State bond-financed, the County must meet these new conditions and undertake certain additional State approval processes prior to proceeding with further project design and construction.
One of the requirements of the State approval process is the Board of Supervisors review and approval of an informational report on the anticipated 30 year life-cycle costs of the new facility. Evidence of your Board’s consideration is required as a part of the submittal package to the State Department of Finance and Public Works Board for their approval. The Board’s published agenda, this item, and approval action will be provided to the State Department of Finance and Public Works Board, however this action does not constitute an appropriation of funds for the life-cycle operating expenses. As such, this item presents the anticipated operating expenses for the new facility including Sheriff’s staffing, behavioral health contract expenses, General Services staffing, maintenance, utilities, and capital expenses for the 30 year period totaling $427,705,081.
Once the State approves the County’s submittal package, the County will be authorized to complete the next steps of the solicitation process. The three short-listed DBE candidates will engage in a competitive process where each will submit a design-build proposal based upon the County’s project criteria, including the stipulated sum contract price of not to exceed $36,627,823. As a stipulated sum contract, the County is guaranteed delivery of the new facility within budget and not exposed to cost increases due to change orders, unless these are generated by the County changing the scope of the project.
Project reimbursement from the State will begin once the State Department of Finance has issued a notice to proceed and confirmed County compliance with the required State-financing approval processes. The State financing covers the design and construction costs of the new facility on a reimbursement basis. Once construction is complete the County is responsible for the operating costs including staffing, services, utilities, and maintenance as described more fully below.
Funding for operations of the new facility covering the staffing, utilities, and maintenance expenses is from the General Fund and Proposition 172.
Discussion:
Opening in 1991 the MADF was originally designed to hold close to 500 inmates with only 1 module (Mod) for Mental Health. The Mod designated for mental health services consists of 2 safety cells, 4 observation cells and 28 regular mental health cells. The facility quickly reached its housing capacity and an expansion opened in 1997 to provide additional beds. Currently the Main Adult Detention Facility has a total of 633 cells with 910 beds. Many cells have 2 beds but some inmates cannot share cells. Due to inmate classification and medical and MH needs, the actual capacity of the facility is closer to 812. The total capacity is dependent on the mix of inmates at any given time. When open, the North County Detention Facility (NCDF) has a maximum capacity of 493 inmates.
The California Public Safety Realignment initiative in 2011 shifted approximately 15% of the state prison population to county jails in response to shortfalls in medical and mental health care for the state's prison population. County jails throughout the State that were originally designed for short-term stays then received thousands of new non-violent, non-sexual offenders, many of whom were serving longer sentences and requiring robust rehabilitative services that county facilities did not have the capacity to provide. In response to this need, funding to counties was made available by AB 900, SB1120, SB 863, and SB 844 to expand programs serving the needs of the offender population.
For Sonoma County, realignment has significantly increased the number of inmates requiring mental health services who are housed in several units that were originally designed for General Population inmates (Mods C, D, FG, FA, and FP). Inmates are also housed in I-Mod which was designed for offenders with medical needs. Pre-pandemic population numbers from January 2019 are listed in the table below along with the percentage acute mental health inmates. Inmates with acute mental illness may have severe psychiatric disorders (such as schizophrenia, schizoaffective disorder, bipolar disorder, major depression or other psychotic disorders), and may not be considered competent under judicial sentencing guidelines.
|
Month |
Total Population |
MH Population |
Acute MH Inmates |
Percentage Mental Health Population |
|
Jan-19 |
1107 |
527 |
230 |
48% |
|
Apr-19 |
1112 |
522 |
244 |
46% |
|
Jul-19 |
1092 |
475 |
211 |
43% |
|
Oct-19 <x-apple-data-detectors://3>113249821543% |
|
|
|
|
|
Jan-20 |
993 |
439 |
209 |
44% |
The pre-COVID average mental health population was 492 inmates, which is 45% of the total inmate population. Of the 492 inmates with mental health issues 45%, or an average of 222, are acutely mentally ill. The total inmate population as of 5/13/21 is 680. Of those 680 inmates 324 are mental health inmates (47.65%). Of those 324 mental health inmates 174 are acute mental health inmates (53.70%) and 63 are seriously mentally ill inmates (19.44%). Mental health conditions are also highly prevalent in homeless populations. The current homeless inmate population is 233 inmates (34.26% of total population). While state funding has provided for management of this increased in population the county is challenged to deliver an optimal level of mental health treatment within a facility designed solely for detention.
Construction of a new facility will increase the County’s ability to provide quality mental health treatment for our incarcerated population, within a dedicated therapeutic environment. It provides the County with a secure, purpose-built mental health facility, rather than utilizing standard detention-only facilities. This allows for more comprehensive competency restoration programs. The new facility and programs represent a step toward reducing recidivism without any net-gain in the inmate population.
The need for behavioral health services has not decreased since the grant was written, if anything they have become more complex. The need for appropriate mental health beds is more acute as the County does not have appropriate or adequate alternatives in the community to use as resource alternatives for our most acute inmates. Detention services are a component of the overall system of mental health care in the community, and should augment community services.
State Funding
In 2015, the County of Sonoma received $40 million in conditional State funding to construct a new Adult Detention Behavioral Health Housing facility. As part of the 2014-15 State Budget Package, $500 million in lease revenue bonds were authorized state-wide through Senate Bill 863 to address local jail construction and programming space needs. The Sheriff’s Adult Detention Behavioral Health Housing Unit (SADBHHU) will constitute a 32,000 square foot, 72-bed mental health detention facility attached to the Main Adult Detention Facility. Scheduled for occupancy in spring of 2024, this groundbreaking facility will enable the County to provide quality mental health treatment for our incarcerated population with no net-gain in inmate bed space/capacity. Anticipating the new Behavioral Health facility, the North County Detention Facility closed 72 beds in 2016, therefore, the total number of detention beds will not increase with the new facility. With features such as a comprehensive competency restoration program, the SADBHHU will provide improved mental health treatment for existing inmates within the County’s care and is intended to reduce recidivism.
Project Milestones
The County Design Team, which includes Kitchell and representatives from the Sheriff’s Office and General Services, is looking forward to achieving significant project milestones for 2021. The Department of Health Services Behavioral Health team advised the design team in early phases of the conceptual design work. The team continues to work with the Board of State and Community Corrections to schedule a Ground Lease Meeting with the State Department of Finance which, upon successful completion in 2021, will enable the County to release a formal Request for Proposals to the short-listed Design Build Entities, formally initiating the project design competition. This will culminate in selection of a winning design and project approach to be brought to the Board for approval, which is planned to be by December, 2021. Upon Board approval of the winning proposal, the project will move into the construction phase, likely in spring 2022, with anticipated construction completion at the end of December 2023 followed by commissioning and occupancy within 90 days of completion.
Requirements for Ground Lease Meeting
One of the requirements for the State Department of Finance Ground Lease meeting is the submittal of a 30 year operations plan and evidence of the Board of Supervisor’s adoption of said plan. The County Design Team has estimated the operating expenses based upon the bridging design and as originally stated in the County’s grant request. Given that the final design will be completed after the RFP process and selection of the Design Build Entity, operating expenses may vary from the current projections.
Additional Staffing Required
Additional staffing will be necessary to operate the new Sheriff’s Adult Detention Behavioral Health Housing Unit (SADBHHU) facility. The grant documents anticipated that operations would require 30 new staff. With more refined design and programming, it is clear that additional correctional and support staff will need to be added to the Sheriff’s Office existing personnel resources as well as additional Janitorial, and Building Maintenance staff in General Services. Additional staff are needed to:
• Monitor entryways and to provide access to secure doors (Central Control staff)
• Escort inmates in and out of the SADBHHU (Movement staff)
• Assist with clothing, supply, commissary, and meal delivery (Detention Assistants)
• Maintain the cleanliness of the facility (Janitors)
• Manage the ongoing maintenance building and fire/life/safety systems in the facility (Fac Ops)
Staffing and Operational Estimates
The County’s Design Team has conducted an extensive analysis of the staffing and operational cost estimates for the new facility. The aggregate 30 year Life Cycle Operational and Staffing costs of the SADBHHU will be $427,705,081. The revised estimates for staffing (35 total FTE) represent a slight change (5 FTE) from the original grant submittal as they now fully account for all aspects of operations.
The Sheriff’s Office estimated staff expenses based on early design schematics include the total salaries and benefits for 35 additional positions is estimated to be $7,902,676 annually. The positions include 5 Correctional Sergeants, 25 Correctional Deputies, 3 Detention Assistants and 2 Janitors. The transitional planning team that is currently working on the design and construction team will also be involved in the project close out and training process for the facility. The one time staffing cost for this team is $405,015.
Mental health contract staff currently working in the Main Adult Detention Facility will move to the SADBHHU. Programs at the MADF that will move to the SADBHHU include the Jail Based Competency Treatment (JBCT) program State funded program to restore competency to PC 1370 felony inmates: and the PC 1370 Misdemeanor Restoration to Competency Program, funded with the County’s AB 109 Realignment funds. Staff currently working in both the felony and misdemeanor JBCT Unit will move to SADBHHU. The new facility provides the potential for 20 felony and 20 misdemeanor participants. The possibility exists that if the competency restoration programs are fully utilized at that capacity, additional clinical staff may need to be hired. A new contract with the Department of State Hospitals would need to be executed to secure funding to cover the cost of the additional clinical staff.
General Services-Facilities Operations will require an additional Building Mechanic to complete daily maintenance. The annual cost to the County for this position is $96,390.
Computer, email and County network infrastructure support from ISD is $2,973 annually.
Kitchell, County’s Construction Manager, provided an Energy Model Analysis which estimates the 30 year Life Cycle Cost for the new SADBHHU. The Schematic Design Energy Models simulates the operating condition for the proposed SADBHHU over a 30 year period. The results of the Energy Model indicate that the estimated total annual utility cost will be $336,299.
The total major maintenance annual cost for the building is estimated at $112,123. The cost of replacement of major equipment is $4,874,935 and is broken down in the table below.
|
Maintenance Item |
Replacement Year |
Replacement Cost |
|
HVAC Equipment |
15-30 |
$799,061 |
|
Roofing |
15-30 |
$1,259,409 |
|
Plumbing Boilers |
15-30 |
$61,308 |
|
Plumbing Fixtures |
15-30 |
$433,584 |
|
Water Management System |
15-30 |
$51,770 |
|
Transformers |
15-30 |
$16,042 |
|
Panelboards |
15-30 |
$45,314 |
|
Switchboards |
15-30 |
$78,912 |
|
Lights |
15-30 |
$514,219 |
|
Fire Alarm Control Panel |
15-30 |
$156,725 |
|
Security & Communication |
15-30 |
$1,422,128 |
|
Temporary Power & Lighting |
15-30 |
$36,463 |
|
|
Total |
$4,874,935 |
Facilities Operations annual cost of materials associated with daily maintenance is $41,310.
Sheriff’s Office expenses (interfund, new hire supplies, body worn camera, radio, taser, Academy and FTO, Personnel Unit, and pre-employment) will have an initial cost of $1,318,508 in FY 23-24 and costs estimated at $334,768 per year subsequent to the initial year.
Initial purchase, replacement and leasing of information technology equipment (computers, copier, printers, cameras, servers and networking) over the 30 year life cycle will be $1,402,000.
Assuming 3% yearly inflation the aggregate 30 year Life Cycle Operational and Staffing costs of the SADBHHU will be $427,705,081. The table below sums up the overall Staffing and Operating Expenses for the SADBHHU.
|
Staffing |
|
|
Sheriff’s Office |
$376,378,111 |
|
Facilities Operations |
$4,585,769 |
|
ISD |
$3,677,041 |
|
Subtotal |
$384,640,921 |
|
|
|
|
Operating Expenses |
|
|
Utilities |
$13,773,454 |
|
Major Maintenance |
$4,592,110 |
|
Major Replacement |
$4,874,935 |
|
Daily Maintenance |
$1,965,330 |
|
Sheriff’s Office Expenses |
$16,456,331 |
|
ISD Expenses |
$1,402,000 |
|
Subtotal |
$43,064,160 |
|
|
|
|
Total 30 Year Cost |
$427,705,081 |
Next Steps
Following Board consideration and approval, staff will submit the required information packet to the State. Once approval is granted, the County will be able to move forward with the selection of the Design Build Team.
The transition planning team has representatives from County Administration, County Counsel, Sheriff’s Office, Behavioral Health and General Services who will be involved throughout the design and construction of the facility to ensure occupancy within 90 days of completion of construction. The transition team is already active in the schematic design, design development, and the creation of the line items for furniture, fixtures and equipment (FF&E) within the project budget. The team is working in conjunction with the General Services Department, DLR Group, and Kitchell.
During construction, the team will create policy and procedures specific to the programs in the SADBHHU, will be involved in all construction meetings, order the items in the FF&E budget, and begin the reclassification plan. Executive managers will be involved in the transition by providing necessary resources and direction to ensure the transition is successful.
During construction close out, the team will be involved in the punch list process, ensuring the building is clear of tools, building materials, and anything with potential use as contraband or weapon, and begin the training process for all staff who will work in the new building.
Prior Board Actions:
January 26, 2021: Approval of Design-Build Entity Shortlist
July 10th, 2017: Adult Detention Behavioral Health Unit: Approval of Design-Build Entity Shortlist, Construction Bridging Documents, Project Labor Agreement and Request for Proposals.
January 10, 2017: Board authorization of Schematic Design Package and Design Build Request for Qualifications.
June 21, 2016: Board authorization of County application to the Board of State and Community Corrections formally establishing project.
March 15, 2016: Authorize Agreement for Bridging Architect and Construction Management Services for Behavioral Health Housing Project.
December 8, 2015: Adopt the Sonoma County Criminal Justice Master Plan, 2015 update.
August 18, 2015: Behavioral Health Housing Unit- Adopt Resolution authorizing SB-863 funding application.
July 22, 2015: Approve project for filing of California Environmental Quality Act Notice of Exemption.
Fiscal Summary
|
Expenditures |
FY 20-21 Adopted |
FY 21-22 Projected |
FY 22-23 Projected |
|
Budgeted Expenses |
7,800,000 |
40,500,000 |
500,000 |
|
Additional Appropriation Requested |
|
|
|
|
Total Expenditures |
7,800,000 |
40,500,000 |
500,000 |
|
Funding Sources |
|
|
|
|
General Fund/WA GF |
600,000 |
|
|
|
State/Federal |
|
40,500,000 |
|
|
Fees/Other |
1,000,000 |
|
|
|
Use of Fund Balance |
6,200,000 |
|
|
|
Contingencies |
|
|
|
|
Total Sources |
7,800,000 |
40,500,000 |
500,000 |
Narrative Explanation of Fiscal Impacts:
There is no fiscal impact associated with this item. The Board’s approval does not appropriate the expenses for the thirty year term. Prior Board actions approved the capital budget funds required for the current phase of the project, and accepted the award of the SB 863 funds.
|
Staffing Impacts: |
|
|
|
|
Position Title (Payroll Classification) |
Monthly Salary Range (A-I Step) |
Additions (Number) |
Deletions (Number) |
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
Narrative Explanation of Staffing Impacts (If Required):
Attachments:
Attachment 1 - Revised Sonoma SB 863 Operational Program Statement
Attachment 2 - Sonoma SB 863 30 Year Life Cycle Cost Report
Related Items “On File” with the Clerk of the Board:
None