JCMH Bench Book

Texas Mental Health and Intellectual and Developmental Disabilities Law Bench Book Judicial Commission on Mental Health Second Edition 2019-2020 This Bench Book is intended for educational and informational purposes only. It should not be construed as legal advice from the JCMH, or as an advisory opinion or ruling by the Texas Court of Criminal Appeals or the Supreme Court of Texas on specific cases or legal issues. Readers are responsible for consulting the statutes, rules, and cases pertinent to their issue or proceeding. Acknowledgements The Judicial Commission on Mental Health (JCMH) would like to recognize the leadership and support of Justice Jane Bland and Judge Barbara Hervey, Chairs of the JCMH; Justice Eva Guzman; Justice Jeff Brown; Bill Boyce, Vice-Chair of the JCMH; John Specia, JCMH Jurist in Residence; the Supreme Court of Texas; and the Texas Court of Criminal Appeals. The JCMH extends special thanks to the Supreme Court Children’s Commission, the Texas Municipal Courts Education Center, the Texas Association of Counties, the Texas Justice Court Training Center, and the Texas Center for the Judiciary. The JCMH would also like to recognize the following contributing authors and editors of this Bench Book: Hon. Camile DuBose, Chair Nelson Jarrin, J.D. Andrea Richardson 38th Judicial District Court Meadows Mental Health Policy Bluebonnet Trails Community Institute Services Bill Boyce, J.D. Alexander Dubose & Jefferson, Floyd Jennings, J.D., Ph.D. Sian Schilhab, J.D. LLP Harris County Public Texas Court of Criminal Defender’s Office Appeals Melinda Brents (Ret.) Harris County Attorney’s Office Lee Johnson, M.P.A. Brian Shannon, J.D. Texas Council of Community Texas Tech School of Law Hon. Nelda Cacciotti Centers, Inc. Tim Curry Criminal Justice David Slayton, M.P.A. Center Louise Joy, J.D. Office of Court Administration Joy & Young, LLP Leah Davies, L.M.S.W. Hon. Polly Jackson Spencer Strategic Health Alliance Adrienne Kennedy (Ret.) National Alliance on Mental Bexar County Probate Court Hon. Rex Davis Illness Tenth Court of Appeals Haley Turner, M.S.W. Beth Lawson, M.B.A. Texas Health and Human Alyse Ferguson, J.D. StarCare Specialty Health Services Commission Collin County Mental Health System Managed Counsel Hon. Ryan Turner Hon. Pamela H. Liston Texas Municipal Courts Courtney Harvey, Ph.D. Rowlett Municipal Court Education Center Texas Health and Human Services Commission Veronica S. Longoria, Will Turner L.B.S.W. Texas Commission on Jail Hon. Guy Herman Texas Health and Human Standards Travis County Probate Court Services Commission Amanda Vasquez Hon. Nancy Hohengarten Chris Lopez, J.D. TDCJ Reentry & Integration County Court at Law #5, Travis Texas Health and Human Division County Services Commission Steve Wohleb, J.D. Colleen Horton, M.P.A. Beth Mitchell, J.D. Texas Hospital Association Hogg Foundation for Mental Disability Rights of Texas Health JCMH Staff: Hon. Roxanne Nelson Kristi Taylor, J.D. Trina Ita, L.P.C. Burnet County Precinct 1 Regan Metteauer, J.D. Texas Health and Human Emily Miller, J.D. Services Commission Hon. Charles P. Reynolds Belinda Beltran Swan Tim Curry Criminal Justice Hon. David Jahn Center Denton County Probate Court Contents Introduction .................................................................................................................................... 2 Definitions ....................................................................................................................................... 4 Using This Bench Book ................................................................................................................. 10 Early Identification and Diversion Procedures ............................................................................ 12 Public Health ................................................................................................................................. 14 Intercept 0: Community Services ................................................................................................. 16 1. Community‐based Mental Health Services ............................................................................................... 16 2. Community‐based IDD Services ................................................................................................................. 23 3. Civil Mental Health Law: The Texas Mental Health Code ....................................................................... 26 Intercept 1: Initial Contact with Law Enforcement ..................................................................... 74 1. Law Enforcement Must Divert When Appropriate .................................................................................. 74 2. Emergency Detention and Protective Custody of Persons with MI ........................................................ 75 3. Arrest ............................................................................................................................................................. 82 Intercept 2: Initial Detention and Court Hearings ...................................................................... 83 Part I: Jail ....................................................................................................................................... 84 1. A 16.22 Report ............................................................................................................................................... 84 2. Who May Perform a 16.22 Interview and Collection of Information ......................................................90 3. The Standard for Ordering a 16.22 Interview ............................................................................................ 92 4. Who Pays for an Interview and Collection of Information ...................................................................... 93 5. Types of Information that Can Prompt a Magistrate to Order a 16.22 Interview ..................................94 6. When a Defendant Refuses to Submit to an Interview ............................................................................98 7. What to Do with the Written Report .........................................................................................................98 8. Information Sharing Is Mandatory ........................................................................................................... 100 Part II: Bail ................................................................................................................................... 106 1. Personal Bond Under Article 17.032 of the Texas Code of Criminal Procedure ................................... 106 2. Setting and Enforcing Bond Conditions .................................................................................................. 108 Intercept 3: Courts ....................................................................................................................... 114 1. Court-ordered Mental Health Services When a Criminal Case Is Pending........................................... 114 2. Specialty Courts ........................................................................................................................................... 116 3. Pretrial Intervention Programs .................................................................................................................. 117 4. Deferred Adjudication and Deferred Disposition .................................................................................... 118 5. Determination of Undue Hardship for Discharge of a Fine.................................................................... 119 6. TCOOMMI Programs and Services ........................................................................................................... 119 7. Incompetency to Stand Trial ......................................................................................................................120 1 Introduction People with mental illness, intellectual disabilities, and developmental disabilities are greatly overrepresented in the criminal justice system compared to their prevalence in the general population.1 These individuals often cycle in and out of our justice system with little, if any, treatment. These Texans and the communities in which they live must navigate the challenges of mental health issues in jails, hospital emergency departments, adult criminal and juvenile justice agencies, schools, and child protective services. The challenges are as big as Texas itself. Of the 27 million people who live in Texas, approximately 1 million adults experience serious mental illness; roughly half of these adults have serious and persistent mental illnesses including schizophrenia, bipolar disorder, major depression, and post-traumatic stress disorder.2 Approximately 500,000 children aged 17 or younger have severe emotional disturbance.3 An estimated 1.6 million adult Texans and 181,000 children aged 12 to 17 have substance use disorders, which frequently accompany mental illness and further complicate management of mental health issues in the justice systems.4 Nearly 25 percent of the inmate population in Texas has a mental health need; adults with untreated mental health conditions are eight times more likely to be incarcerated than the general population.5 These issues are most acutely felt at the local level. In Houston, approximately 2,200 inmates received psychotropic medications and mental health services at the Harris County jail in 2013 at a cost of $26 million.6 Total

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