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Study of Operations of the Florida Department of Corrections

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Study of Operations of the Florida Department of Corrections STUDY OF OPERATIONS OF THE FLORIDA DEPARTMENT OF CORRECTIONS NOVEMBER 2015 Florida Legislature Office of Program Policy Analysis and Government Accountability 111 West Madison Street, Room 874 Tallahassee, Florida 32399-1400 Prepared by: CGL 2485 Natomas Park Drive, Suite 300 Sacramento, CA 95833 STUDY OF OPERATIONS OF THE FLORIDA DEPARTMENT OF CORRECTIONS November 2015 TABLE OF CONTENTS REPORT SECTION PAGE BACKGROUND AND INTRODUCTION .......................................................................... 1 1. CORRECTIONAL OFFICER STAFFING .................................................................... 10 2. SECURITY OPERATIONS ........................................................................................ 45 3. POPULATION MANAGEMENT AND INMATE RISK AND NEEDS ASSESSMENT ........... 79 4. INMATE PROGRAMS ........................................................................................... 100 5. OVERALL CONCLUSIONS ................................................................................... 122 APPENDICES A: Florida Documents Tracking B: Listing of Inmate Programs Offered C: Demographics and Success Measures for Substance Abuse Programming D: Florida Program Services Inventory STUDY OF OPERATIONS OF THE FLORIDA DEPARTMENT OF CORRECTIONS November 2015 BACKGROUND AND INTRODUCTION The Office of Program Policy Analysis and Government Accountability (OPPAGA), a joint entity of the Florida Legislature (Legislature), solicited competitive bids in order to award a contract with an independent consultant for a Study of Operations of the Florida Department of Corrections (FDC). The goal of the solicitation process was to fulfill the requirements of Chapter 2015-232, Laws of Florida (also known as Senate Bill 2500-A) passed during a special 2015 session of the Legislature. The bill states: “From the funds in Specific Appropriations 2667 and 2668, $300,000 in nonrecurring general revenue funds is appropriated for the Office of Program Policy Analysis and Government Accountability to contract with an independent consultant to study the operations of the Department of Corrections with regard to the incarceration of inmates. The contractor shall identify both positive and negative aspects of the department's operations and shall prepare a report of its findings, including recommendations for improvements. The report shall be submitted to the Governor, the President of the Senate, and the Speaker of the House of Representatives no later than December 1, 2015.” The solicitation sought a consultant to conduct an immediate, thorough, and detailed study of the operations of the FDC with reference to applicable best management practices in the corrections industry. Consistent with the time requirements contained in Senate Bill 2500-A, the final report for this study was required to be submitted no later than November 30, 2015. The following specific operational areas were designated for review: Correctional Officer Staffing • Use of best practices identified for the corrections industry, especially those related to correctional officer screening and recruitment, training, retention, turnover, compensation, officer/inmate interaction, minimum staffing levels, and the use of double shifts and overtime • Content and implementation of FDC policies and practices for correctional officer screening and recruitment • Content and implementation of FDC policies and practices for training new correctional officers • Content and implementation of FDC policies and practices related to correctional officer retention • FDC correctional officer turnover rates and reasons for turnover by FDC region 1 STUDY OF OPERATIONS OF THE FLORIDA DEPARTMENT OF CORRECTIONS November 2015 • Comparison of FDC correctional officer compensation as compared to compensation for county jail correctional officers in Florida • Content and implementation of FDC policies and procedures for correctional officer/inmate interactions, including the use of force and incident reporting • Content and implementation of training provided to experienced correctional officers, including training on officer/inmate interactions and the use of force and incident reporting • Content and implementation of FDC policies and practices related to the use of minimum staffing levels, including frequency of occurrence by institution • Content and implementation of FDC policies and practices related to the use of overtime and double shifts, including the amount of overtime paid annually by the FDC for Fiscal Years (FY) 2010/11 through 2014/15 • Any other issues identified as meeting or failing to meet best practices identified for the corrections industry related to correctional officer staffing, with notations of positive and negative findings and recommendations for improvement in needed areas across all correctional officer staffing components Security Operations • Use of best practices identified for the corrections industry, especially those related to security operations • Organization and structure of security at the institutional level at FDC facilities • Content and implementation of FDC policies and practices that are designed to ensure correctional officer safety • Content and implementation of FDC policies and practices that are designed to ensure inmate safety • Content and implementation of FDC policies and practices related to correctional officer-to-inmate ratios, both in terms of overall ratios and in terms of supervision standards • Content and implementation of FDC policies and practices related to correctional officer assignments within the FDC institutions • Any other issues identified as meeting or failing to meet best practices identified for the corrections industry related to security operations, with notations of positive and negative findings and recommendations for improvement in needed areas across all security operations components 2 STUDY OF OPERATIONS OF THE FLORIDA DEPARTMENT OF CORRECTIONS November 2015 Risk and Needs Assessment • Use of best practices identified for the corrections industry, especially those related to risk and needs assessment • Content and implementation of FDC policies and practices related to the use of the risk and needs assessment for inmate security classification during the reception process • Content and implementation of FDC policies and practices related to the use of the risk and needs assessment for institutional placement decisions • Content and implementation of FDC policies and practices related to the use of the risk and needs assessment for developing a re-entry plan and making program placement decisions • Any other issues identified as meeting or failing to meet best practices identified for the corrections industry related to risk and needs assessment, with notations of positive and negative findings and recommendations for improvement in needed areas across all risk and needs assessment components Inmate Programs • Use of best practices identified for the corrections industry, especially those related to inmate programming • Content and implementation of FDC policies and practices related to the provision of inmate programming • Inventory and descriptions of all inmate programs addressing inmate rehabilitation (including substance abuse treatment), academic and vocational education, and re- entry, including for each location the program capacity, inmate participation rates, and demographic characteristics of participating inmates • Program performance information, including completion rates by location and an evaluation of the impacts program participation has on recidivism • Description of current inmate program funding sources and alternatives • Any other issues identified as meeting or failing to meet best practices identified for the corrections industry related to inmate programs, with notations of positive and negative findings and recommendations for improvement in needed areas across all inmate program components 3 STUDY OF OPERATIONS OF THE FLORIDA DEPARTMENT OF CORRECTIONS November 2015 On August 20, 2015, a contract was executed between the Florida Legislature, through the Office of Program Policy Analysis and Government Accountability (OPPAGA), and Carter Goble Associates, LLC (CGL) to complete the scope of work as specified in the ITN (intent to negotiate), the addendums to the ITN, and the clarifications reached through the subsequent negotiations. Consistent with the requirements of Senate Bill 2500-A, the draft final report was required to be delivered not later than November 9, 2015, with the final report delivered not later than November 30, 2015. This compressed time schedule for this review determined to a great degree the scope of work and approach that CGL developed to achieve the project objectives. CGL Project Approach Project Team The members of the CGL team assigned to complete the scope of work for this review included six former administrators of major state correctional systems. Their experience includes directing a number of other comparable engagements—including operational analysis for state correctional systems such as Alaska, Ohio, Montana, Maryland, Florida, Virginia, Oklahoma, Colorado, North Dakota, and Massachusetts. To assist in completion of the tasks required to achieve the objectives of this project, CGL teamed with MGT of America (MGT) of Tallahassee, Florida, and the JFA Institute of Washington, D.C. (JFA). Selection of Site Visits As specified in the ITN, the project team conducted site visits at a representative sample of the FDC’s facilities. Due to the short
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