Lucas County Final Jail Feasibility Report 10-14-2014

New Jail Feasibility StudyLucas County, Ohio

Final ReportOctober 14, 2014

New Jail Feasibility Study Lucas County, Ohio Final Report October 14, 2014 TABLE OF CONTENTS

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Executive Summary ES-1

Section 1: Introduction page

Project Background 1-01 Problem Statement 1-01 Opportunity Statement 1-02 Scope of Work 1-02 Acknowledgements 1-03

Section 2: Needs Assessment page

Introduction 2-01 Current Jail Situation 2-01 Jail Population Trends in Lucas County 2-02 Pretrial System Analysis 2-02 Average Daily Population 2-03 Demographic Trends 2-05 Crime and Arrest Rates Impact on ADP 2-06 Inmate Population Projections 2-07 Current Bed Need 2-07 Mathematical Models 2-08 Recommended Baseline for Planning 2-10

Section 3: Pre-Architectural Program page

Introduction 3-01 Best Practices 3-02 Bed Capacity Distribution 3-07 Project Space Requirements 3-09 Adjacency Diagram 3-10 Component Information 3-11 Facility Common 3=11 Sheriff’s Office 3-17 Detention Center 3-27

Section 4: Site Investigation page

Introduction 4-01 Sites Considered 4-01 Evaluation Criteria/Comments 4-02 Site Evaluations 4-08 Feasible Sites 4-09

New Jail Feasibility Study Lucas County, Ohio Final Report October 14, 2014 TABLE OF CONTENTS

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Section 5: Findings and Recommendations page

Introduction 5-01

Key Findings 5-01 Existing Facility Conditions 5-01 Population Projections 5-02 Space Requirements 5-03 Site Investigation 5-04 Operational Improvements 5-05 Project Development 5-07 Implementation Schedule 5-07 New Facility Construction Cost 5-07 Renovation Cost 5-10 Existing Staffing Analysis 5-12 Existing Facility Housing Staffing 5-12 Existing Facility Non-Housing Staffing 5-14 Supervision Management Positions 5-16 Existing Staffing Ratio 5-16 Proposed Staffing 5-17 Proposed Facility Housing Staffing 5-17 Other Required Staffing Adjustments 5-18 Summary of Staffing Differentials 5-18 Proposed Staffing Ratio 5-19 Project Feasibility Analysis 5-20 Option 1: Existing Facility Continued 5-20 Option 2: Continued Use with Boarding Out 5-22 Option 3: Reuse of Existing plus 236 Bed Addition 5-23 Option 4: Continued Use plus 2nd Pretrial Facility 5-28 Option 5: New 620-Bed Replacement Facility 5-32 Option 6: New 572-Bed Replacement Facility 5-34 Implementation Options 5-38 Summary of Findings 5-40 Recommendations 5-45 APPENDICES

Appendix A: Population Projections Analysis A-01

Appendix B: Space Requirements B-01

Appendix C: Alternative Project Delivery Approaches Pros and Cons C-01

New Jail Feasibility Study Lucas County, Ohio Final Report October 14, 2014 EXECUTIVE SUMMARY

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As an Executive Summary of the New Jail Feasibility Study of Lucas County, the most common questions regarding the feasibility of replacing the Lucas County Corrections Center located at 1622 Spielbusch Avenue in Toledo are addressed below. These questions and their associated answers provide a high level summary of the issues analyzed in the New Jail Feasibility Study; however, the body of the report should be referred to for detailed support for the answers provided.

Question 1: Why should the Lucas County Corrections Center be Replaced?

The existing facility is now 37 years old, and has been subject to a Federal District Court Order since the day it opened for overcrowding and a failure to meet appropriate conditions of confinement. Issues at the Corrections Center include:

The facility has a rated capacity of 342 beds; however it frequently holds 425 or more inmates, which results in overcrowding. Every day, temporary cots have to be used to accommodate the overflow, making it difficult to achieve appropriate conditions of confinement.

The facility is inefficient in terms of staffing, requiring more staff to operate than other facilities of its size and scope in the upper Midwest region. This is significant as typically, staff wages and benefits represent 60% of the total expenditures of a detention facility;

The facility lacks sufficient capacity to accommodate the current in-custody pretrial population and only faces growing capacity challenges as the in-custody population has been increasing over the last several years and is expected to continue to grow over the next 20 years; and

The physical condition of the building is deteriorating, and will require significant capital reinvestment to keep it going another 20 years.

Question 2: Who is held in the Lucas County Corrections Center?

When the facility was designed and opened, it accommodated both pretrial and locally sentenced male and female inmates with sentences of less than one year. Longer term sentenced inmates are conveyed to facilities operated by the Ohio Department of Rehabilitation and Corrections to serve their sentences.

Today, due to a lack of capacity, the facility holds pretrial inmates only; sentenced inmates from Lucas County and the City of Toledo are accommodated in the Correctional Center of Northwest Ohio [CCNO] in Stryker, Ohio. Between the City and the County, 438 bed spaces are contracted for at CCNO.

Staffing Cost 60% Utilities and

Maintenance 20%

Miscellaneous 2%

Food and Inmate

Services 9%

Construction 7%

A&E Fees .5%

F&E 1.5%


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Question 3: How many people does a replacement facility need to hold?

Based upon a comprehensive criminal justice system analysis, Lucas County needs 526 pretrial beds today, and is projected to need 725 to 765 beds in 2025 – if there are no changes in the system.

Population management initiatives may reduce the total bedspace required in 2025 to a range of 550 to 624 beds. The County has already started a major effort for population management initiatives to reduce the number of beds required now and in the future. These efforts include:

A risk-based Pretrial Assessment Tool and Release Matrix, set to be implemented in January, 2015;

Mechanisms to ensure court appearance;

Proper mental health diversions;

Expedited court case processing and follow-up;

Expanded domestic violence programming;

Expanded programming for the homeless;

Expanded pretrial non-custodial alternatives to include pretrial supervision and electronic monitoring; and

A focus on re-entry and community sentencing to reduce incidents of re-incarceration.

Taken together, such initiatives may reduce the projected needs.

Question 4: How big would a replacement facility need to be and what will it provide?

The Sheriff’s Administrative Offices and the Pretrial Detention Facility share the existing building at 1622 Spielbusch Avenue; both need to be replaced.

The project will provide a new Sheriff’s Administrative Office area and shared staff services (locker rooms, etc.) for both detention and administrative employees;

The consensus target design capacity for the Detention Facility is 572 pretrial beds;

Twelve direct supervision housing units, not exceeding 48 beds each, will be provided in a range of security levels. Purpose built areas will be provided for special needs inmates for medical, mental health, and segregation populations;

Administration, program, support, and housing space will be provided consistent with Ohio Department of Rehabilitation and Corrections requirements and American Correctional Association Standards;


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Research across the country has identified a series of national best practices that will be incorporated in the project, including:

Decentralized Services - Provision of dining, recreation, programming, video visitation, inmate sick call/exam, laundry exchange, commissary, and the like in the housing unit to minimize inmate movement in the facility.

Direct Supervision – Increased staff presence and inmate behavior management.

Cadre Housing Unit – incorporation of a 48-bed sentenced inmate housing unit to provide a cadre of workers for the pretrial facility.

Two courtrooms adjacent the Booking/Release area will be provided for use in arraignment and other court appearances, reducing inmate movement to and from the Courts; and

The total projected building area is 266,772 gross square feet. In comparison, the existing facility is approximately 216,000 gross square feet.

Question 5: How large does a new site have to be for the project and are there feasible sites available in the County?

Based on the building size and the intent to have a single level facility vs. a tower, a site of 12 acres or more is required. The New Jail Feasibility Study scope was to determine whether or not feasible sites for the project exist in the County. This effort included:

Development of site evaluation criteria specifically for Lucas County, as listed below:

Acquisition Cost Site Size Site Ownership Capability to Support Correctional Design Community Context (Buffers) Public Benefit (Zoning/Deed Restrictions) Public Transportation Accessibility Law Enforcement Accessibility Court Transportation Accessibility Transportation Infrastructure (Size, Condition of Roads) Existing Utility Services/ Capability Accessibility to Medical Facilities Environmental and Historic Preservation Soil, Drainage and Terrain Conditions Ease of Development Sustainable Design Initiatives

Site ID Region Size

Ow

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hip

Cor

rect

iona

l

Buf

fers

Zoni

ng

TAR

TA

LE A

cces

s

Cou

rt

Roa

ds

Util

ity

Med

ical

EHP

Terr

ain

Dev

elop

men

t

Ener

gy

1 North

2 Central

3 North

4 North

5 North

6 East

7 Central

8 North

9 South

10 South

11 South

12 Central

13 East

14 East

15 East

16 West

17 West

18 East


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Defining a feasible site as one that would support development of the project without “fatal flaws” or major detrimental costs involved;

Sites were identified for investigation in every area of the County – North, South, East, West, and Central;

A total of 18 sites in 17 locations were investigated and evaluated;

It does not appear that a feasible site exists in immediate proximity to the downtown Courts.

The County, Courts, and legal community will need to embrace the change to include satellite courtrooms, video court appearance, and remote video visitation capability in the project; and

Multiple feasible sites were documented and presented to the County Commissioners.

Question 6: What Options were considered to deal with projected needs?

Six options were considered in the Study:

Option 1: Existing Facility Continued (with capital improvements) Option 2: Continued Use with Boarding Out Option 3: Reuse of Existing plus 236 Bed Addition Option 4: Continued Use plus 2nd Freestanding Pretrial Facility Option 5: 620-Bed (572 pretrial + 48 sentenced) Replacement Facility Option 6: 572-Bed Replacement Facility

Option 5 is the recommended option as the most cost-effective.

Question 7: How much will it cost to build a replacement facility?

Based on local conditions, the estimated construction cost for the recommended 620-Bed Replacement Facility is $102.7 million.

Project soft costs (A/E fees; Construction Management fees; permits; contingencies; Allowances for furniture, fixtures, and equipment; Information Technology, and County Management) are conservatively estimated at 30% of construction cost. This adds $30.8 million to the construction cost, bringing the Project Cost up to $133.6 million;

Based on a schedule to start design in the first quarter of 2015, start construction in November, 2015, and complete construction two years later in November, 2017, escalation at 3.0% per year has to be added to the mid-point of construction in November, 2016. This adds 6.35% to the construction cost - $8.5 million;

The total estimated escalated project cost is $142.0 million.


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Question 8: How much will it cost to operate a replacement facility?

Financial analysis of the total system (all pretrial and sentenced inmates) was performed comparing the total operating cost of each option against the “baseline” of current expenditures for the existing facilities (plus capital renovation costs). Total operational costs were compiled in the following categories:

Annual Bond payment cost for capital improvements (renovation and/or new construction) computed at a 25-Yead Bond, 3.8% interest rate;

Personnel Costs (Housing and Non-Housing areas);

Non-Personnel Costs; and

Plant Operation/Utility Costs.

Total cost of operation for recommended Option 5: 620-Bed Replacement Facility is summarized as follows:

In Option 5, efficiencies/changes from current operations are:

More efficient housing staffing with better housing unit design and capacity. Net decrease of 50.5 Full Time Equivalents (FTE’s) in housing staff;

Increase in Non-Housing staff of 15.0 FTE’s ,due to larger capacity (620 vs. 342 currently);

5: New 620-Bed Replacment Facility cost

Existing Baseline

Annual Personnel Cost Baseline $22,777,569

Annual Non-Personnel Costs Baseline $3,085,387

Annual Plant Operations/Utility Costs Baseline $614,000

subtotal $26,476,955

New Construction $142,047,119

Annual New Bond Payment Cost** $8,922,556

Operational Costs

Personnel Cost Adjustment (-35.5 FTEs) ($2,303,219)

Additional Cost/Inmate (195 x $4817.92) $939,494

Plant Operations/Utility Cost Adjustment ($122,800)

subtotal $7,436,031

Sentenced Inmates

CCNO Contract Cost: 390 beds (48 bed reduction) $9,449,151

Total Annual System Cost $43,362,138

** Bond 25 Years at 3.8%


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Net decrease in Personnel Costs of 35.5 FTE’s equating to $2,303,219 in savings1;

Added costs per inmate for food, laundry, insurance, medical, and the like estimated at $4,817.92 annually per inmate, adding $939,494;

Reduced costs estimated at $122,800 for utilities due to sustainable design initiatives and energy efficient engineering; and

Savings of $1,115,849 by reducing the cost at CCNO by 48 beds. [$66.09 per day per inmate]

Question 9: What is the difference in total annual cost of operation between the existing system today and the proposed 620-Bed Replacement Facility?

The current 2014 authorized budget for the operations at the Correctional Center is . . . . . . . . . . . . . . . . $26,476,955

The “system cost” to include the contracted bedspace at CCNO adds . . . . . . . . . . . . . . . . . . . . . . . . $10, 565,000

Total Annual Cost (pretrial &sentenced) presently is . . $ 37,041,955 (ignores cost of needed capital improvements)

Total Annual Operational Cost for Option 5 is . . . . . $ 43,362,138

Cost Differential . . . . . . . . . . . . $ 6,320,182

Cost Differential after 25 years ($2,602,374)

From an overall perspective, the rated capacity of the new Replacement Facility would be 143% higher than the current facility (432 vs. 620), with a 10.1% reduction in personnel costs ($21.3 million vs. $22.78 million) while providing a contemporary facility with adequate space for projected capacity requirements that incorporates national best practices for improved safety, security, and operational efficiency.

1 It is important to note that the budgetary savings in personnel will be absorbed through attrition, since the annual average attrition rate in the Sheriff’s Correction Division from 2004 to 2013 is 27.2 uniformed staff/officers.

New Jail Feasibility Study Lucas County, Ohio Final Report October 14, 2014 SECTION 1: INTRODUCTION

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BACKGROUND: The basic situation in Lucas County in terms of its in-custody pretrial inmate population is well stated in the RFP issued for the New Jail Feasibility Study as quoted below:

“The current Lucas County Correctional Center is operationally obsolete and does not provide an efficient environment for inmates nor corrections officers. The facility consistently exceeds its intended population and its current use as a booking, pre-trial holding facility does not match the original intended design as a booking, pre-trial holding facility and post-adjudication correctional facility. The facility has been under Federal consent decree since it opened in 1977 for its inability to provide appropriate conditions of confinement. Operationally, the building does not meet modern jail efficiency standards and requires more personnel than other facilities of its size ……….Additionally, the physical plant has reached its useful life. There are numerous capital projects (e.g. new roof, elevator, and security system) which will require attention in the short term to maintain the facility. For these reasons, it is incumbent that the feasibility of a new correctional facility be considered.2

Lucas County and the Sheriff’s Office have been dealing with shortfalls in

the existing Corrections Center since the day it opened. The facility was originally intended to accommodate all pretrial, locally sentenced, work release and weekender individuals. Over time the weekenders, work release, and locally sentenced individuals have been relocated to other facilities – most notably a separate Work Release Facility of 90 beds, and the Correctional Center of Northwest Ohio (CCNO) with a total of 438 beds for the City of Toledo and Lucas County sentenced inmates. What remains today is the pretrial population, and the existing facility capacity is insufficient to accommodate those individuals within its rated capacity.

PROBLEM STATEMENT: It is clear that key stakeholders believe that the existing correctional center

should be replaced and a comprehensive evaluation of current operational and physical conditions support this perspective. The key issue for the New Jail Feasibility Study then is “What will it take to provide a contemporary, efficient, and standards-compliant facility, and how much will it cost to achieve?” Collateral issues to address include: What is the optimum operational structure and approach to provide

better effectiveness in delivery of appropriate conditions of confinement?

What national best practices can be incorporated that improve operational efficacy?

How can public, staff, and inmate safety and security be improved?

Looking at least 10 years out, what pretrial in-custody capacity will be needed?

What can be done to minimize inmate population growth?

2 Request for Proposal – New Jail Feasibility Study, Lucas County Support Services, Purchasing Division, May 2013.


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Are there adequate sites available to build a new replacement facility and to provide future expansion capability?

What will the impact be on court movement if the new facility is not located adjacent to the existing Courts in downtown Toledo?

What is the annual cost difference between what is spent currently and what the cost of operating a new replacement facility would be?

OPPORTUNITY STATMENT: If the feasibility of a new replacement facility for pretrial inmates can be

demonstrated, opportunities are created for improving operational effectiveness and conditions of confinement, including:

Utilization of direct supervision and open booking to create a more effective and inter-active correctional environment for staff and inmates;

The ability to design and construct a physical environment responsive to the contemporary operational intent of the Sheriff’s Office, including:

o Purpose built housing units for special needs inmates;

o Housing unit security provisions aligned with anticipated classifications of inmates;

o Provision of essential services (dining, video visitation, medical triage/ pill call, programs and the like) in each housing unit to minimize movement off housing units; and

o Improved staff services (lockers, work out facilities) and training areas.

Compliance with Ohio Department of Corrections and Rehabilitation requirements for correctional facilities, and American Correctional Association Standards for Adult Local Detention Facilities;

Incorporation of sustainable design practices that improve the quality of the environment with respect to air quality and energy efficiency; and

Achieving appropriate conditions of confinement which will allow the County to supersede the need for Federal District Court supervision.

SCOPE OF WORK: The scope of work for the New Jail Feasibility Study involves the following elements: Documentation of Existing Conditions

Familiarization with and documentation of current operational and physical conditions at the existing facility, including staffing requirements and long term operational and capital expenditure needs for continued use of the existing facility; and documentation of current budgeted staffing and other operational costs to establish a current annual cost baseline;


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Needs Assessment Collection and analysis of 10 years of criminal justice system data to understand policies and practices that impact the projected in-custody population; utilization of mathematical modeling to generate a range of inmate population projections, leading to a consensus target planning capacity; and projected needs by classification, gender, and general/special needs components;

Pre-Architectural Program Through working sessions with Sheriff’s Office staff and key stakeholders, identification of national best practices to be incorporated; generation of space requirements to replace the functions currently at 1622 Spielbusch (Sheriff’s Office and Pretrial Detention); and compilation of a conceptual organizational diagram and cost estimate for the project;

Site Investigation Development of site evaluation criteria, identification of potential sites; compilation of site specific information, and evaluation of sites to determine whether or not feasible sites exist within the county for the project.

Financial Analysis Documentation of current system expenditures (pretrial and sentenced) in terms of personnel costs, other annual costs, and plant operations costs; generation of options for consideration and estimated capital construction costs for each option; financial analysis of the various options to estimate annual total cost of operation, including amortization of capital construction costs; and exploration of potential implementation strategies.

Recommendations Summarization of key findings and the recommendations in terms of what the consultant team believes are the best option for the County.

ACKNOWLEDGEMENTS: During the course of the New Jail Feasibility Study, the County Commissioners and staff have fostered an open and collaborative process. Many individuals have contributed time and effort to the effort, including: Board of County Commissioners

Commissioner Carol Contrada, President Commissioner Tina Skeldon Wozniak Commissioner Pete Gerken Laura Lloyd Jenkins, County Administrator Megan Vahey Casiere Steven Spitler Josh Thurston Brittany Ford Peter Ujvagi Matthew S. Heyrman


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Sheriff’s Office Sheriff John Tharp Major Milan Voska Captain John Sylvester Lt. James Williams Lt. Dave Friddell Lt. Todd Reed Sgt. Julie Moesenthin Aaron Nolan Kevin Helminski Patrick Mangold

Local Law Enforcement Deputy Chief George Kral Chief John Wenzlick Chief Jim Macdonald Chief Rob Boehme Deputy Chief Paul Magdich Chief William Rhodus Chief Dave Lagrange

Court Administration/ Pretrial/ Probation/ Alternative Programs Don Colby Lisa Falgiano Michael Zenk Kim Oates Stacy Jarchow Bud Hite Deb Gasser

Judicial Officers Judge Gene Zmuda Judge Tim Kuhlman Judge Jim Bates Judge James Carr Judge Gary Byers Judge William Connelly Judge Scott Ramey Judge Jeff Keller

Mental Health Services Scott Sylak Lois Ventura Kim Skinner Gary Incorvaia

Defense Bar Jerry Phillips Paul Accetolla


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NORIS (Northwest Ohio Regional Information System Shane McCracken, for tremendous support in data collection.

Public Participants Many interested citizens attended open presentations and meetings.

Special thanks and a tip of the hat to Matt Heyrman, who in his assignment as the project manager for the County, was totally immersed in the process and relaying direction on the project.

New Jail Feasibility Study Lucas County, Ohio Final Report October 14, 2014 SECTION 2: NEEDS ASSESSMENT

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INTRODUCTION: The key factor in assessing what is needed to accommodate in-custody inmates in Lucas County is determining what the projected bedspace capacity needs to be over time. A step-by-step process was used for the needs assessment, and is documented in this section of the report. The needs assessment process addressed the following questions:

What is the current situation?

Who is in the Lucas County Jail?

What are the historic and current Jail population trends?

What factors affect the need for jail beds?

How were forecasts of future need developed?

What is the range of probable future needs? and

What is the recommended target capacity for planning over time?

CURRENT JAIL SITUATION: When the current Correctional Center at 1622 Spielbusch Avenue was

opened in 1977, it was a fully function jail – for Booking, Pretrial, and low security locally Sentenced Inmates. Today, it only provides for booking and pretrial detainees. Increased need over time for pretrial inmate capacity has resulted in sending all locally sentenced inmates to the Corrections Center of Northwest Ohio (CCNO) in Stryker. One impact is that some higher security inmates are now being housed in the Lucas County Correction Center in space designed for minimum security sentenced individuals.

Continuing Overcrowding The current rated capacity of 342 general population + 24 medical beds is routinely exceeded, with a more typical actual in-house population of 425 inmates or more. As a result, the facility is routinely at 125% or more of rated capacity.

Court Oversight Litigation going back to the 1970’s in Federal District Court on conditions of confinement are currently reflected in operational requirements imposed on the facility. Currently, there is a court-appointed Special Master that monitors conditions at LCCC.

Court oversight currently requires mandatory releases of misdemeanants and non-violent felons within specified time frames. In 2013, this resulted in 6,604 releases, approximately one third of all releases from the Lucas County Correction Center. Fully 60% of the failure to appear events came from the mandatory releases.

Other aspects of the current oversight requirements are mandatory classification separations and prohibition of double celling in the existing single cell housing units.


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JAIL POPULATION TRENDS IN LUCAS COUNTY: Based upon a January 9, 2014 profile of the in-custody jail population, the

following characteristics were noted:

Approximately 89% of the offenders were male, and 11% female;

Approximately 57% of the offenders are Black, 41% are White, and 1.4% Hispanic;

The majority of offenders are between ages 21 and 39 (64.7%);

A total of 71% of the in-custody population on this date were in on felony offenses, with 38.5% of these cases being violent felony offenses; and

Many individuals being booked into the jail exhibit mental health issues. Those individuals are screened, finding that almost 70% of them are actively or previously clients in community mental health programs. This is simply indicative of a high level of mental health issues in the in-custody population.

Pretrial System Analysis

Lucas County took a valuable step forward in what needs to be done to improve the system by soliciting technical assistance from the National Institute of Corrections (NIC) to examine the pretrial system elements in detail. The resulting Pretrial System Analysis Report outlined a series of changes that would support more effective pretrial release decisions, and potentially lower in-custody bedspace requirements at the Lucas County Corrections Center.

One of the significant findings in the Pretrial System Analysis was related to chronic offenders – defined as individuals being booked into the Corrections Center an average of 3.77 times a year. The finding was that while such individuals represented approximately 8.5% of all individuals admitted, these chronic offenders represented fully 23% of all bookings during the year.

Note: The County is addressing the pretrial system through a focus on a risk-based pretrial assessment tool and release matrix. The County is also addressing the mental health issues through a Behavioral Health in Criminal Justice Committee to identify resources to focus service delivery and potentially reduce repeat admissions.

The fact that the County undertook this Pretrial System Analysis represented a logical area to review in order to investigate what needs to be done in the criminal justice system to improve performance. It also provided a valuable basis upon which to extend that system analysis for the purpose of inmate population projections.


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Average Daily Population A key indicator of system requirements is the historic data on Average Daily Population (ADP) which records the average number of people held in the Lucas County Corrections Center over time. Average Daily Population numbers exclude peaking which can account an additional 10% -20% for high daily population counts. As shown in the Figures 1 & 2 below:

After decreasing by an average of 4.7% from 2004 to 2009, the ADP has increased an average of 3.8 % over the past four years – even with a population cap on the jail.

The primary increase in terms of absolute numbers is in the male in-custody population; and

The female in-custody population has also increased recently, which will require more female housing capacity.

Average Daily Population is directly related to two factors: Admissions and Average Length of Stay (ALOS).

Admission trends are similar to ADP in Lucas County, as shown in Figures 3 & 4 following:

The total percentage decrease in average monthly admissions during the 10-year period was 565 bookings or 24.4%.

After a decline in admissions between 2004 and 2011, average monthly admissions increased between 2011 and 2013.

Male average monthly admissions peaked at 1,806 in 2004, then fell to a low of 1,184 in 2010, and then increased to 1,359 in 2013;


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Female average monthly admissions peaked at 506 in 2004 and steadily declined thru 2011 to 295, and only recently evidenced an increase; and

Recent growth in Admissions for both males and females is driving current capacity requirements upward.

Average Length of Stay (ALOS) is the other variable in ADP and is evidencing a recent increase as shown in Figures 5 & 6:

Average length of stay remained stable from 2004 – 2010 and then increased thru 2013;

Increase in ALOS over the 10-year period was 1 day or 20%;

Female average length of stay remained stable over the past ten years at 2.5 to 3.5 days;


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Male average length of stay remained stable at 7 to 8 days until 2012, by 2013 it was almost 9 days, resulting in the increase in overall ALOS; and

1 to 2 Months was the most frequent length of stay at 25.3%, but Average Length of Stay (ALOS) is artificially reduced through Court Ordered Mandatory Releases, including:

o Mandatory immediate release for non-violent misdemeanants; o Individuals charged with violent misdemeanors to be released

within 21 days of booking; o Individuals charged with non-violent felonies to be released within

40 days of booking, and within 14 days of adjudication if not sentenced within that time period; and

o Technical Parole Violators are to be released in 30 days unless an order for revocation issued.

Demographic Trends In terms of ADP, there is no direct mathematical correlation between general population size, trends and ADP. However, the incarceration rate can be a valid indicator – decreasing through 2009, as ADP dropped, but has steadily increased through 2013 as Admissions, ALOS, and the resultant ADP has increased.

Total County population decreased by 4.4% from 1990 to 2010 (a total decrease of 20,546), and is projected to decrease by 5.4% from 2010 to 2030 (a total decrease of 23,945);


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The following graphic illustrates the relationship between Population, Admissions, and ADP.

Crime and Arrest Rates Impact on ADP As with population trends, there is limited direct correlation between reported crime, arrests, admissions, and ADP.


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INMATE POPULATION PROJECTIONS: In developing a basis for projecting future in-custody bedspace

requirements, the best predictors are the historic trends in ADP, Admissions, and ALOS.

Historic monthly inmate population data was used to develop inmate forecasting models, using differing periods of time to develop alternative projections of future need including:

Historic percentage increase or decrease models;

Historic actual numeric increase or decrease models;

Historic Incarceration Rate (inmates/general population) models; and

Policy change/assumption model based on systemic factors and trends.

In looking at historic data, the long term trends show decreasing need, but in the shorter, recent term increased growth is occurring.

Current Bed Need The first step in developing projected needs for the future is understanding and documenting what the current needs are. In order to be able to maintain mandatory classification separations, the Corrections Center can NOT operate at 100% capacity or higher. Similarly, the inmate population is not static and varies from day-to-day and seasonally so a “peaking factor” also needs to be factored in.


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Mathematical Models: A series of mathematical models were generated to investigate a range of projections, based upon historic monthly inmate population data. These fell into three different categories –

Long Term Trend Models Short Term Trend Models; and Policy Driven Models.

Note that all mathematical projection models incorporated an additional 20% capacity to account for the peaking and classification factors.

Long Term Trend Models

Forecast 1: Average Annual Decrease Using the data from 2004-2013, the actual numerical decrease in the in-custody population over that time period resulted in a projection of 6.4 fewer beds/year.

Forecast 2: Average Percentage Decrease Using the data from 2004-2013, the percentage decrease in the number of beds over that time period resulted in a projection of 1.3% fewer beds/year.

Forecast 3: Current Incarceration Rate Using the decrease in the incarceration rate during 2013, the projected needs were for a ratio of .995/1000 to be applied to declining general population.

The result of the long term trend models is illustrated below:


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The longer term models all projected a decrease in future need, assuming that the system will return to the trends from 2004 to 2013. However, this is counter to what has been occurring in the last few years.

Short Term Trend Models

Forecast 4: Average Actual Increase 2009-2013 Using the data from 2009-2013, the actual numerical increase in the in-custody population over that time period resulted in a projection of 14.5 more beds/year.

Forecast 5: Average Percentage Increase 2009-2013 Using the data from 2009-2013, the percentage increase in the number of beds over that time period resulted in a projection of 3.8% more beds/year.

Forecast 6: Increase in Incarceration Rate 2009-2013 Using the increase in the incarceration rate during 2009-2013, the projected needs were for a ratio of +.03595/year to be applied beginning at .995/1000 to the declining projection of general population.

The shorter term models using trends from 2009 to 2013 show an entirely different picture, with each of the models projecting an increase in future need. This is alarming in the sense that with limited early releases, the in-custody population could grow to twice what it is today in the next 20 years if the recent trends are not changed.

Policy Driven Model

Forecast 7: Average Actual Increase 2009-2013 + Diversion In this mathematical model, the actual numerical increase from 2009-2013 is used (+14.5 beds/year) as a basis in conjunction with planned diversion of 15% of the population through increased focus on inmate population management..

This translates into a projection of 624 beds required for 2025, as shown in the following graphic.


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Forecast 7 incorporates a policy intervention in the criminal justice system as an overarching focus by all stakeholders in the criminal justice system to provide population management at the Jail.

As illustrated in the graphic above, there can be a significant change in in-custody population by undertaking a focus on population management initiatives. These could include:

Risk-Based Pretrial Assessment Tool and Release Matrix (NIC Recommendation);

Follow-thru mechanisms to assure court appearance;

Expansion of Mental Health diversions and placements;

Expedited Case Processing in the Courts;

Expansion of Domestic Violence Programs;

Expansion of Homelessness Programs;

Expansion of other Non-custodial Alternatives; and

A focus on Re-entry and Community Sentencing to reduce incidence of re-incarceration.

RECOMMENDED BASELINE FOR PLANNING The investigation and analysis of criminal justice system data and trends has

provided a good perspective on future needs, with the results varying depending upon which factors are going to have the most relevance.

The primary conclusion that can be drawn from the consultant team

analysis is that the system has had a lower in-custody level in the past,

but that current trends are driving that higher and higher. Intervention

is required to prevent a continuation of the most recent trends driving

the in-custody requirements higher than it may need to be.


Page 2- 11

Recommended Initial planning Capacity for 2025: 624 Beds

This represents:

An 18% increase in capacity over current need;

A 78% increase in current rated capacity; and

A 15% decrease in capacity needed relative to current trends prevailing for the planning horizon.

Bottom Line:

The consensus target project capacity (for 2025) is to initiate planning for construction of a 575 – 624 bed jail with a concurrent focus on inmate population management initiatives across the entire criminal justice system.

New Jail Feasibility Study Lucas County, Ohio Final Report October 14, 2014 SECTION 3: PRE-ARCHITECTURAL PROGRAM

Page 3-1

INTRODUCTION: The opportunity to develop a new contemporary pretrial detention facility brings with it the ability to craft an operational environment reflecting national best practices for improved safety, security, and operational efficacy. The Pre-Architectural Program provides a written description of the intended way the proposed facility will “work”. The program is presented by functional component area (e.g. housing units, administration, and food service). In interactive work sessions, Lucas County Sheriff’s Office (LCSO) staff and key stakeholders discussed the following overall operational parameters and design concepts:

Operational Parameters

Encouraging population management initiatives on the front end across the criminal justice system to carefully screen who needs to be in the jail, and not over-building;

Ensuring that the facility complies with Ohio statutory requirements and American Correctional Association Standards;

Minimizing inmate movement within the facility by providing for inmate program and service delivery at the housing areas;

Targeting programs and services for pretrial inmates with specific needs and requirements;

Providing sufficient housing units and sub-divided areas to maintain required separations based on inmate custody levels and classification decisions; and

Providing adequate conditions of confinement to mitigate and eliminate current court oversight of facility conditions and operation.

Design Concepts

Replacing all the functional components in the existing physical facility at 1622 Spielbusch Avenue - which results in a new facility for a combination of the Sheriff’s Office and Pretrial Detention Facility;

Accommodating a target capacity of 575 pretrial bedspaces to meet low end projected 2025 needs, that can be expanded as required to a high end 2025 projection of 700 beds;

Providing a core support capacity for 750 total beds for component areas that are problematic to expand in the future (e.g. food service, receiving/release, medical);

Providing in-custody bed capacity geared to maximum/ medium security custody levels in anticipation of the likely in-custody inmate population in a safe and secure manner;

Designing general population housing units for direct supervision in pretrial inmate housing units of no more than 48 inmates;

Incorporating a working environment that promotes positive morale, increases efficiency and minimizes staff turnover;


Page 3-2

Providing a facility that provides a proper design for the housing, program and security requirements of special management inmates, a category that includes those with special mental health needs;

Designing for the appropriate use of tried and true modern technology and national best practices as a means of improving staff performance and efficiency, not as a staff substitute; and

Incorporating sustainable building design concepts and materials to reduce the environmental impact of the facility and to foster conservation of resources.

APPLICABLE STANDARDS: Lucas County is committed to having a physical plant and operation that

conforms to all applicable State and local building and fire codes and that meets the standards noted in the Ohio Department of Rehabilitation and Correction’s Standards for Jails in Ohio (Full Service and Minimum Security Jails) May, 2014 . The County is also committed to complying with the Standards for Adult Local Jail Facilities of the American Correctional Association (ACA), latest edition.

BEST PRACTICES: The proposed facility operation will be in support of “best practices,” resulting in efficient and effective operations. Some of the best practice concepts to be incorporated in the project include:

Content Management: Improved internal jail management information systems that also have improved interconnectivity with other essential criminal justice system elements.

Minimizing the time arresting officers have to remain on site prior to returning to their jurisdiction assignments; and

Improved inmate classification systems (already in progress).

Housing Unit Management: Using a direct supervision management model that delegates to a staff team - at the Housing Pod level- authority to make decisions about some forms of inmate discipline, work programs, and educational programming.

Moreover, in special needs housing units teams of correctional officers and service providers will collaborate on actions required within the housing units. This concept offers many operational advantages including:

Dividing large groups of inmates into smaller well-defined clusters, and better reflecting classification separation requirements;

Placing decision-making personnel in close proximity to the inmates being supervised; and

Providing better observation of inmate activities.


Page 3-3

Decentralized Services: The ability to offer a wide range of services is enhanced by locating as many programs and services as close to the inmate as possible, thereby minimizing inmate movement within the pretrial facility. This includes:

Video visitation, and potentially video court connection;

Video counseling/ mental health services, and other personal social services;

Decentralized programming, through incorporation of a program area in every housing unit;

Commissary/ Medical kiosk to order commissary goods and make sick call requests/ appointments;

Food service, delivery of meals to each housing unit; and

Attached recreation yards eliminating movement to one central recreation area and significantly improved the amount of recreation time provided to inmates.

Improved Special Needs Housing: Development of purpose designed housing units for special needs populations, including:

Reception Housing, where incoming individuals will stay until completing full medical and classification work ups;

Acute Mental Health Housing, with combined security and treatment staff management;

Suicide Watch and Safety Cells, for individuals when required; and

Medical Infirmary beds, including isolation units.

Providing Inmate Programs: Programming will be directed toward giving inmates the opportunity to take part in alcohol and drug addiction issues, education, treatment and life skills programming consistent with their individual needs and State requirements.

As noted above, program delivery will occur either within the housing pods or in housing support areas nearby. A media center will be incorporated with the capability of broadcasting information to each housing unit and program space in the facility.

Medical and Dental Services: The medical services program will be provided to inmates in accordance with best practices.

Initial medical screening will typically be performed in the Booking/ Release area;

A full medical exam will be performed within 7 days of admittance to the facility by a nurse and within 14 days by a doctor;


Page 3-4

Medication delivery and triage services will take place at the housing units or Housing Pod level;

The centralized clinic will provide initial diagnostic and treatment services requiring levels of service not available on the housing floors. Individuals requiring longer term attention or having special needs will be moved to a local hospital;

The facility will provide basic dental services;

Physical space for dialysis, physical therapy, and basic radiology service providers to come to the facility as needed will be provided to minimize costly outside medical runs; and

The infirmary will provide rooms for inmates who require isolation and/or continuous recuperative care and supervision within the limits of the facility’s medical care capability.

Mental Health Services: The mental health program will provide inmates with a continuum of services so that their mental health care needs are met in a timely and efficient manner. This is a major initiative to be undertaken with other community resources.

Inmates identified as requiring mental health services may be housed apart from other members of the general population, but would have access to the same range of program services; and

A designated housing unit will be provided for inmates who require continuous care and supervision within the limits of the facility’s mental health program.

Booking/ Release Operations: The Booking/Release area will occupy its own security zone. Spaces within the area will permit the timely completion of inmate processing, transfer and release from custody operations, particularly in terms of:

Minimizing the time arresting officers have to remain on site prior to returning to their jurisdiction assignments;

Providing open seating for individuals that are not high security risks and behave themselves, with hard cells for those that don’t;

Within the limits of Ohio Jail Standards, individuals expected to bond out quickly will remain in Booking/Release unless that does not occur. An ATM will be provided so individuals that can bond themselves out can do so;

Identifying chronic offenders/inmates coming into the system to address root causes and reduce returns to custody;

Providing two flow lines – one for intake, the other for temporary release (e.g. court appearance); and

Providing counseling prior to release.


Page 3-5

Inmate Property: Digital recording of inmate personal property and signatures as part of improved storage capacity, security, and accountability for handling inmate property.

Video Visitation: The visiting program (public and attorney) is being designed to continue and extend the current video visiting; attorneys and probation and parole agents will also have the ability to have face-to-face visits. Major advantages of video visiting include:

Reduced Staffing. While staff is still needed to oversee the process, staff is no longer needed as much for security escorts, visiting room contraband checks, and other staff intensive operations that increase staff requirements.

Reduced Construction Costs. Visitor elevators and secure visitor corridors to numerous “inside areas” will not be required. The video visitation area is located outside the secure perimeter so commercial or institutional grade materials, as opposed to more costly security grade materials, can be utilized in the construction.

Increased Visiting Hours. As the inmates visit from within their housing units, the facility will have the opportunity to permit visitation over a greater number of days and time periods.

Integrated Security Systems: Improved integration of communication, monitoring, and control systems including:

Programmable logic security controls with touchscreens;

Smart interfaces on zone movement control doors;

Man Down System; and

Staff zone access via key cards or other local device.

Borrowed Light (Inside Cells): Design of housing units to provide inside cells (no cell window) while significantly increasing daylighting to the common dayroom area. This also permits use of rear chases, allowing maintenance work to be performed without coming into the housing unit.

Improved Staff Facilities: Provision of improved working conditions supporting employee health and safety, including:

Designated lockers for staff, providing convenient, safe storage of personal items, while minimizing what is taken into the secure part of the facility;

Improved training space and capabilities;


Page 3-6

Physical training space to encourage physical fitness; and

Provision of break rooms throughout staff work areas.

Cadre Housing Unit: Potential incorporation of a minimum security (cadre) housing unit for inmate workers assigned to the facility. Note that individuals in pretrial status can only volunteer to accept work assignments in food service, laundry, general housekeeping tasks, while sentenced inmate can be assigned duties.

Sustainable Design Initiatives: New facilities are able to incorporate “green building” and other sustainable design initiatives to minimize environmental impacts and provide a better, more cost effective physical environment, including:

Improved air quality for everyone;

More efficient primary utility systems which also reduce annual operational costs;

Increased use of daylighting;

Water recovery systems in the food service/laundry areas; and

Recycling of waste materials.


Page 3-7

BED CAPACITY DISTRIBUTION: An essential project element is the number and type of housing units to be

provided. From Section 2, it was determined that the projected low end pretrial bed capacity required for 2025 is 575 to 624 beds. With the operational intent to limit housing units to 48 beds, a total of 12 housing units of 48 beds would theoretically generate 576 pretrial beds.

Based upon analysis of current in-custody inmate population for the system and their classification requirements, the proposed bed capacity distribution is shown below for the projected low end of 575 pretrial beds. As part of recommended best practices, an additional 48 beds is incorporated for a sentenced inmate cadre (work) unit. The bed capacity distribution below houses those individuals in another 8-Person Mini-Dorm Unit, which may or may not be needed for additional pretrial bedspace in the future.

For the option of 572 pretrial beds only (no sentenced inmate cadre), Housing Unit 13 would be deleted.

Proposed Cell/Bed DistributionNote: Numerical Distribution Constant ‐ Actual Distribution by Unit Designation may change based on Design

Target Capacity of 620 beds (572 pretrial, 48 sentenced)236 high security beds 38.06%

336 medium security 54.19%

48 minimum security 7.74%

Male Female

Cells Beds Cells Beds Beds Beds

Unit 1A Seg/ Max Security 24 24 Single Cells, Single Level 24

Unit 1B Acute MH 12 1010 Rated Beds + Shared 3 Suicide Watch & 1

Safety Cell ‐ Capacity included Below10

Unit 1C Acute MH 12 1010 Rated Beds + Shared 3 Suicide Watch & 1

Safety Cell ‐ Capacity included Below10

Unit 2 Classification/ High 48 48 Single Cells‐ Explore Potential for Sub Units 48

Unit 3 Female/Hybrid 48 48 Explore Potential for Sub Units 48

Unit 4 General/High 48 48 Single Cells‐ Explore Potential for Sub Units 48

Unit 5 General/High 48 48 Single Cells‐ Explore Potential for Sub Units 48

Unit 6 General/ Medium 12 48 4‐Person Cells 48




Unit 10 General/ Medium 6 48 8‐person mini‐dorms 48



Unit 13 Cadre/Minimum 6 48 8‐person mini‐dorms 48

Subtotal 312 620 572 pretrial rated beds, 48 cadre beds 562 58

Medical Infirmary1 24 24

Suicide Watch Cells2

Housing Unit 1B/1C 3 3 plus Infimrary (7) 10 10

Safety Cells2

Housing Unit 1B/1C 1 0 plus Booking (1), Infimrary (1) 3

Subtotal 4 3 37 34

TOTAL Cells/Beds 316 623 37 34

2. The Safety Cell and the 3 Suicide Watch cells in Housing Unit 1B are short‐term placements and not counted in rated capacity. Simlarly,

the 1 Safety Cell in Booking and the 7 Suicide Watch cells in the Infirmary area are not counted as rated beds.

Housing Unit Capacities Med/Infirmary

1. Medical Infirmary beds are considered short‐term and not part of the rated capacity. Distribution is 14 single rooms, two 4‐bed wards,

two medical isolation cells.


Page 3-8

As shown above, with 4 beds in housing Unit 1B/1C used for non-rated special needs purposes, the resultant rated capacity of this option is 620 beds.

Housing Unit Types: Based upon working sessions with the Sheriff’s Office and key stakeholders, there was a determination made to utilize direct supervision in housing units of 24 beds for the highest security inmates, and 48-bed housing units for all other pretrial inmate housing units.

Three basic types of housing units are utilized:

Single Cell Housing Units This type of housing unit provides one person per cell for high security or special needs inmates. These housing units may also be subdivided into sub-units of 8 beds, depending upon intended utilization.

Multi-Occupancy Cell Housing Units For medium security general population inmates, the typical housing unit will consist of 12 (twelve) 4-person wet cells (toilet/lavatory in each) making up a 48-bed direct supervision housing unit.

Mini-Dorm Housing Units For lower medium security pretrial inmates and minimum security sentenced cadre inmates, the proposed housing units will consist of 6 (six) 8-person “mini-dorms” each with toilet, lavatory, and shower facilities.

What is Necessary: Throughout the working sessions with the Sheriff’s Office and key stakeholders, a conscious effort has been made to define space requirements only for what is necessary for the intended operational intent, rather than adding what would be nice to have.

Expansion Strategy: If higher inmate population projections prevail, especially in the longer term, additional housing units will be added to a core administration and support space sized to accommodate future growth.


Page 3-9

PROJECT SPACE Based upon operational intent and best practices, project space REQUIREMENTS: requirements for the total 620 bed (572 pretrial + 48 sentenced) project is

summarized in the following table:

Lucas County Jail Feasibility Study 57 2 Pretrial + 48 Sentenced = 620 Beds

SITE DEVELOPMENT

SF Comments

00. Demolish Existing Buildings00. Site Acquistion To Be Determined

00. Site Improvements - 14 Acres 610,000Includes Public and Staff Parking - 64,200 SF

subtotal Total Site SF - Not Building Area

A: FACILITY COMMON01 Entry Area 1,77502 Staff Services & Training 8,308

Staff Locker Areas 4,650

Staff Training Areas 3,658

subtotal 18,391 Total CGSF

Building Gross Area Factor 1.15 2,759Facility Common 21,150 Total BGSF

B: SHERIFF'S OFFICE03 Executive Administration 3,02604 General Administration Area 3,26305 CCW/ Registration/ Records 2,19206 Task Force Area 2,04107 Internal Affairs 1,18308 Detective Bureau 1,66409 Resource Center 1,09210 Evidence Storage 2,424

subtotal 16,885 Total CGSF

Building Gross Area Factor 1.15 2,533Sheriff's Office Total 19,418 Total BGSF

DETENTION CENTER11 Custody Administration 2,652 Inside v s. Outside Security Env elope

12 Central Control 5,408 Includes Armory , Mobile Com mand

13 Booking/ Release 18,734 Includes Vehicular Sally port

Secure Vehicular Sallyport 2,700

Processing Area 8,316

Dress in/ Dress out 2,687

Court Related Area 3,159

Electronic Monitoring Area 1,872

14 Inmate Services 2,509Central Functions, Balance in 24 Direct Housing Support

15 Visitation 1,248 Assum es Video Visitation

16 Health Services 12,168Health Services Administration 1,386 Core Area

Outpatient Clinic 3,808 Outpatient

Dental Clinic 702 Outpatient

Infirmary + Suicide Watch 6,272 Inpatient

17 Mental Health Services 582 Adjacency to MH housing

18 Commissary 1,023 Contracted Serv ice

19 Food Service 10,62120 Laundry 5,93421 Building Support 13,508

Warehouse 6,7 92 Includes Loading Dock Area

Maintenance 2,976

Central Plant 3,740Equipm ent Costs Prorated to Various Building Areas

Housing Areas22 Maximum Security Housing Unit 24 5,968 1 24-cell unit

23 High Security Mental Health Housing Unit 20 6,994 1 24-cell unit, 20 rated beds

24 High Security Single Cell Housing Units 192 40,160 4 48-bed single cell unit

25 Medium Security 4-Person Room Housing Units 192 30,570 4 48-bed units

26 Medium Security 8-Person Mini-Dorm Housing 192 33,060 4 48-bed units

27 Direct Housing Support 5,560Unit Management Areas 2,278

Inmate Services/ Case Management 2,886

Support Services Areas 396

subtotal 620 196,699 Total CGSF

Building Gross Area Factor 1.15 29,505Detention Center Total 226,204 Total BGSF

266,772 Total Building AreaTOTAL - Site, Common, Sheriff's Office, Detention Center

Component/ Space ID/ Name


Page 3-10

ADJACENCY Based upon operational intent and best practices, project adjacency DIAGRAM: requirements for the 620 bed option are shown below:


Page 3-11

FACILITY COMMON COMPONENTS The basic project scope includes a new Pretrial Detention Facility and

Sheriff’s Office to replace what is currently located at 1622 Spielbusch Avenue in the government center area of downtown Toledo. For these two primary functions there are several functional component areas that serve both and will be “shared elements” in the proposed replacement facility project. These include:

Site Development The scope of work required to meet project requirements for overall site acquisition and construction of site features to support the new combined facility.

Entry Area The point of public entry, security screening, and physical connection for each area of interest to the public – Sheriff’s Office, Pretrial Facility, Visitation, Business Office and the like will be a shared resource.

Staff Services and Training Sheriff’s Office staff includes individuals working in the Sheriff’s Office Administration as well law enforcement and detention facility personnel. One shared area will be provided versus having separate areas. The training area also draws from outside law enforcement and other personnel.


Page 3-12

00: SITE DEVELOPMENT This shared component addresses vehicular access, circulation, and parking for the various types of traffic to and from the proposed facility. Site development for a secure detention facility varies in response to where the site location is. Ideally, there is sufficient site area that permits a buffer zone around it so that the public does not come close to secure areas. The type and character of the surrounding area is also important, since every attempt will be made to have the facility fit into its surroundings.

Adequate site signage is required to direct inmate transportation and service delivery traffic to the proper destination points, and to direct public vehicular and pedestrian traffic into areas specifically designated for them.

The site development area surrounds the building itself. As a secure facility, one objective is to minimize the number of penetrations of the security envelope. Access is required 24 hours daily, seven days a week. Basic elements include:

Public Access and designated parking areas will be provided for inmate family visitors, official visitors, and others having business with the facility; this will be located near the public entry lobby for the Sheriff’s Office, Video Visitation, and other public access destinations. Handicapped space and ADA compliant access will be accommodated;

From the point of public vehicular access, a separate parking area will be provided for staff vehicle parking, sized to accommodate the overlap between the two largest shifts of employees. This will be located near the staff entry point to the proposed facility;

A loading dock and service yard to handle incoming and outgoing supplies and materials – sized to accommodate tractor trailer vehicles; and

A separate vehicular access point and circulation will also be provided for institutional, other vehicles transporting inmates to and from the facility.

Space Requirements

FACILITY COMMON

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

00 Site Development number of spaces required to be verified00.01 Official Vehicle Parking 20 350 7,000 department vehicles

00.02 Staff Parking 120 350 42,000 accommodates shift overlap.

00.03 Public Parking 40 350 14,000 handicapped drop off, 6 ADA parking spaces

00.04 Service Yard 1 1,200 1,200 exterior space, access to loading dock

00.05 Public Plaza 1 AR AR

64,200 NSF

net:gross ratio 1.00Total 64,200 Not included in Building Area


Page 3-13

01: ENTRY AREA This shared component provides the point of public entry to the overall facility – including the Sheriff’s Office, Video Visitation, Electronic Monitoring, and Jail Administration areas. As such, it is intended to provide a welcoming place and necessary amenities for individuals coming to the facility. Key elements include:

A spacious lobby, a waiting area and toilet rooms to present a comfortable space for people coming to the facility;

A Reception Desk to provide information and way finding;

Security screening separating “unscreened” and “clean” areas prior to accessing areas of interest;

A separate space for official visitors and law enforcement personnel to store personal weapons while on the premises;

Kiosks located in the Lobby area to permit automated deposit of funds into inmate accounts; and

Public lockers to temporarily store personal items not allowed into the facility.

Space Requirements

FACILITY COMMON

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

01 Entry Area Shared between Sheriff's Office and Jail01.01 Entry Vestibule 1 60 60

01.02 Lobby 1 680 680divided into "dirty" and "clean" areas by security screening.; includes kiosks.

01.03 Personal Weapons Lockers 1 40 40 alcove with gun lockers

01.04 Reception Desk 1 80 8001.05 Security Screening/ Metal Detector 1 20 2001.06 Official Visitor Waiting 1 80 80

01.07 Visitor Lockers 1 40 40

provide 40 coin/key operated small "bus station" lockers for inmate/family visitors; provide 24 half size (12" x 12" x 36") token operated lockers for volunteers and official visitors.

01.08 Public Rest Rooms 2 150 30001.09 Staff Toilet 1 60 6001.10 Janitor's Closet 1 60 60 includes custodial storage for the area.

1,420 NSFnet:gross ratio 1.25

subtotal 1,775 CGSF


Page 3-14

02: STAFF SERVICES & TRAINING This shared component provides two major functional elements that are

shared between all employees of the Sheriff’s Office and the Pretrial Detention Facility – staff lockers and training areas.

For the employees of the Sheriff’s Office, Pretrial Detention Facility and the other agencies involved, it is essential to provide adequate conditions of employment so staff can perform at their best. This component will be located outside the security envelope of the facility, thereby providing free access at any time of day. A separate point of staff entry to the facility will be provided. Key elements include:

Staff Lockers

An assigned locker will be provided for all uniformed and civilian employees desiring one for storage of outer garments, cell phones, and other personal property not permitted within the secure part of the facility. This is a major element in reducing the introduction of contraband into the facility;

Toilet and shower facilities, including ADA compliant ones, will be provided immediately adjacent the male and female locker rooms;

Gun lockers for personal weapons will be provided in the access corridor so that weapons are not brought into the locker room areas; and

A physical training and work-out room will be provided between the male and female locker rooms to reinforce the Sheriff’s Office promotion of physical fitness for all employees.

Training Areas The Sheriff’s Office has a robust in-service training program and is also considering making its training expertise available to other agencies. Key elements include:

Office and work stations are provided for the permanent training staff, with designated storage areas;

A Large Training Classrooms is provided for group training presentations and demonstrations. This room will be sub dividable to provide two smaller meeting areas. The larger configuration is also capable of being used for defensive tactics and similar training activities;

A typical cell is provided on one side of the large Training Room to demonstrate and practice cell extractions; and

A large break-out area is provided outside the training classroom to accommodate people during breaks in training. This area will also be located to provide a break area with a kitchenette for employees working outside the secure part of the facility. An outside patio will also be provided for fresh air when weather conditions permit.


Page 3-15

Space Requirements

FACILITY COMMON

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

02 Staff Services & Training Shared between Sheriff's Office and Jail; assumes total of 240 staff lockers

staff lockers verify total lockers required02.01 Staff Entry Vestibule 1 60 6002.02 Personal Weapons Lockers 1 40 40 alcove with gun lockers

02.03 Male Staff Lockers 1 1,728 1,728192 lockers sized at 15"W x15"D x 72"H. Locker area sized at 9 SF/locker including some civilian lockers

02.04 Male Toilet/ Shower Area 1 380 380 code check number of fixtures

02.05 Physical Training Room 1 800 800 provide adjacency to staff locker rooms

02.06 Female Staff Lockers 1 432 43248 lockers sized at 15"W x15"D x 72"H. Locker area sized at 9 SF/locker including some civilian lockers

02.07 Female Toilet/ Shower Area 1 280 280 code check number of fixtures

3,720 NSF

net:gross ratio 1.25subtotal 4,650 CGSF

training areas

02.08 Training Director 1 150 15002.09 Training Staff 3 80 24002.10 Clerical Support 1 64 6402.11 Training Storage 1 250 25002.12 Large Training Classroom 1 800 800 seats 30 at 2 person tables, subdividable

02.13 Mock Extraction Cell 1 70 7002.14 Mat/ Chair Storage 1 240 24002.15 A/ V Equipment Storage 1 80 8002.16 Staff Break Out Area 1 480 480 locate for general staff access

02.17 Kitchenette 1 80 80 adjacent break out area

02.18 Staff Toilets 2 160 32002.19 Janitor's Closet 1 40 4002.20 Staff Patio 1 400 AR exterior area, not counted as building area

2,814 NSF


Staff Services & Training Total 8,308 DGSF


Page 3-16

SHERIFF’S OFFICE COMPONENTS The Sheriff’s Office for Lucas County consists of a number of functional

components addressing the responsibilities of that office. In order to vacate the existing building at 1622 Spielbusch Avenue, several functional groups need to be incorporated in the proposed project. These include:

Executive Administration Direct reports and key management staff

General Administration Area Business office, personnel, information technology, budget and finance

CCW/ Records Gun, sex offended registrations, public access records

Task Force Area Special purpose groups of various sizes

Internal Affairs Internal investigation staff work and interview area

Detective Bureau Detectives work and interview area, work room

Resource Center Multi-purpose unit serving the entire Sheriff’s Office

Evidence Storage Centralized evidence storage for law enforcement and pretrial detention.

The various sections of the Sheriff’s Office have been grouped according to their specific roles and responsibilities, which results in a number of smaller work-related functional areas. These smaller working group area have some independence, requiring separate work areas, but may share toilet and break room facilities in the immediate area of one another.

In terms of adjacencies:

The areas with most public access need are Executive Administration, CCW/Registration/ Records, and Detective Bureau. Therefore, they should have the closest proximity to the Public Lobby;

General Administration needs proximity to Executive Administration and the Staff Services area; and

Evidence Storage needs to be in a separate zone, due to construction and ventilation requirements, yet be accessible from the staff entry area for law enforcement to bring evidence to be processed at any time.


Page 3-17

03: EXECUTIVE ADMINISTRATION The Sheriff’s Office for Lucas County consists of a number of functional

components addressing the responsibilities of that office. This Executive Administration component of the Sheriff’s Office provides office and work space for individuals reporting directly to the Sheriff. Key elements include:

A reception and waiting area to act as gatekeeper to private offices and general work areas;

A conference room adjacent the Sheriff’s Office meetings with key staff and media, which can also serve as an incident monitoring area;

Private offices for key direct reports to the Sheriff; and

Somewhat larger staff toilets to accommodate a shower in each for times when a shower and change of clothes is required due to extended hours in the office.

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

SHERIFF'S OFFICE

03 Executive Administration

03.01 Secretary/ Reception 1 80 80 gatekeeper

03.02 Waiting Area 1 100 100 shared transition area outside office areas.

03.03 Lucas County Sheriff's Office 1 350 350 includes private rest room

03.04 Sheriff's Conference Room/ EOC 1 480 480 includes Master Control/Dispatch monitor

03.05 Kitchenette 1 40 40 adjacent to Sheriff's Conference Room

03.06 Community Affairs Director 1 150 15003.07 Law Enforcement Major 1 200 20003.08 Executive Secretary 1 80 8003.09 Corrections Administrator 1 200 20003.10 Captain of Armory 1 200 20003.11 Administrative Assistants 2 64 128 general support

03.12 Staff Toilets 2 80 16003.13 File/ Storage 1 120 12003.14 Janitor's Closet 1 40 40

2,328 NSF



Page 3-18

04: GENERAL ADMINISTRATION AREA The General Administration section of the Sheriff’s Office is the basic

business office, providing budget & finance, personnel, and information technology. Key elements include:

A shared work environment for these activities that promotes communication and coordination;

Reception and public access counter to provide assistance and information to all facility staff and interested parties. Staff will come to this area to address personnel and budget questions;

Private offices for individuals with primary responsibilities;

Shared printing, copying and related functions, serving overall needs; and

A small conference room for meetings.

Space Requirements

FACILITY COMMON

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

04 General Administration Area

04.01 Budget and Finance Director 1 150 15004.02 Budget/ Finance Staff Workstations 2 80 160 modular work stations

04.03 Director of Personnel 1 150 15004.04 Personnel Staff Workstations 4 80 320 modular work stations

04.05 Work Room/ Files 1 150 15004.06 Secure Files 1 100 10004.07 Information Technology 1 120 12004.08 Server Room 1 100 10004.09 Copy/ Print Area 1 100 10004.10 Conference Room 1 480 48004.11 File Storage 1 280 28004.12 Break Room 1 200 20004.13 Mail Room 1 40 4004.14 Staff Toilets 2 60 12004.15 Janitor's Closet 1 40 40

2,510 NSF



Page 3-19

05: CCW/REGISTRATION/ RECORDS This component is an area where public access is essential, since people will

come here to obtain permits, register, and obtain copies of official documents produced by the Sheriff’s Office. Key elements include:

A shared work environment for these activities that promotes communication and coordination;

Reception and public access counter to provide assistance and service to the public and for internal facility needs;

A private office for the Captain with primary responsibilities;

Shared printing, copying and related functions, serving overall needs; and

A work room for compiling information and reports.

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

SHERIFF'S OFFICE

05: CCW/ Registration/ Records note: toilets shared in the area

05.01 Public Service Counter 2 120 240 includes workstation

05.02 Records Captain 1 150 150 enclosed office

05.03 Records Sergeants 2 100 200 modular work stations

05.04 Records Staff Workstations 8 64 512 modular work stations

05.05 Registration Staff Workstation 1 64 6405.06 Files 1 400 400 integrate with 05.03, 05.04 above.

05.07 Work Room 1 120 120

1,686 NSF



Page 3-20

06: TASK FORCE AREA: As part of the Sheriff’s Office, special purpose task forces are formed to address specific issues and situations facing law enforcement. Key elements include:

Work and support space is provided for the current Fugitive, Heroin, and Bulk Currency task forces; and

Overall, this will be a flexible area, accommodating a range of individual working groups as the need arises over time.

Space Requirements

FACILITY COMMON

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

06: Task Force Area note: toilets shared in the area

06.01 Bulk Currency Director 1 150 15006.02 Bulk Currency Work Area 1 120 120 includes one workstation

06.03 Fugitive Task Force Director 1 150 15006.04 Fugitive Task Force Bull Pen 5 80 400 open workstations

06.05 Heroin Task Force Director 1 150 15006.06 Heroin Task Force Bull Pen 5 80 400 open workstations

06.07 Conference Table 1 100 100 in midst of 06.04 above

06.08 Records Room 1 100 100

1,570 NSF



Page 3-21

07: INTERNAL AFFAIRS: Law enforcement agencies typically have an Internal Affairs section to provide independent investigation of events. Key elements include:

A private office for the Director, and staff work stations for the staff assigned to this section;

An interview room that has video recording capability that can also be used for hearings;

Secure file and evidence storage areas;

A conference room for group discussion; and

A private entry for confidential interview participants.

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

SHERIFF'S OFFICE

07: Internal Affairs

07.01 Reception/ Waiting 1 100 100 includes receptionist desk

07.02 Director of Internal Affairs 1 150 150 enclosed office

07.03 Investigator Offices 2 80 160 semi-enclosed modular workstations

07.04 Interview/ Hearing Room 1 100 100 adjacent point of entry; video recording capability

07.05 Video Equipment Room 1 40 40 includes video recording equipment

07.06 Records Room 1 100 10007.07 Evidence Storage 1 100 10007.08 Staff Toilet 2 60 12007.09 Janitor's Closet 1 40 40

910 NSF



Page 3-22

08: DETECTIVE BUREAU: The Sheriff’s Office maintains a Detective Bureau to investigate crimes and compile evidence for judicial actions. Key elements include:

Two private offices for the section’s administrative leaders;

A “bull pen” arrangement of open work stations for detectives around an open central conference area; and

A work room for major cases to provide evidence and discussion space.

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

SHERIFF'S OFFICE

08: Detective Bureau note: toilets shared in the area

08.01 Detective Sergeants 2 100 200 shared office

08.02 Detective Bull Pen 6 80 480 open workstations


08.04 Interview Room 1 100 10008.05 Video Equipment Room 1 40 4008.06 Major Case Room 1 200 20008.07 Records Room 1 100 100

1,280 NSF



Page 3-23

09: RESOURCE CENTER: One of the unique aspects of the Sheriff’s Office for Lucas County is the Resource Center section, which provides a variety of services and staff functions. Activities range from compiling statistical information to documenting standards compliance. This component needs to be near Executive Administration, since that is the source of their assignments. Key elements include:

A private office for the section’s administrative leader;

A “bull pen” arrangement of open work stations for staff around an open central conference area;

A work room for compiling information for special assignments; and

Storage areas for materials used.

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

SHERIFF'S OFFICE

09: Resource Center note: toilets shared in the area

09.01 Manager's Office 1 100 10009.02 Staff Workstations 5 80 400 open workstations


09.04 Storage Room 1 180 180

840 NSF



Page 3-24

10: EVIDENCE STORAGE: An important aspect of the Sheriff’s Office is the collection and proper chain of custody for evidence used in the criminal justice system. Specific standards and requirements apply to this aspect of the proposed project. Key elements include:

Access from the staff parking side for law enforcement officers to bring and deposit evidence 24/7. Evidence lockers are provided off a staff lobby to deposit evidence when the component area staff is not on site. A service counter is provided for evidence transfer when the staff is present;

An evidence processing area to ensure proper records and storage conditions are maintained;

Staff toilets and janitor’s closet since this area needs to be separated from other functions; and

Secure storage and relatively large general evidence storage areas with adequate ventilation.

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

SHERIFF'S OFFICE

10: Evidence Storage

10.01 Entry Lobby 1 80 8010.02 Service Counter 1 40 4010.03 Evidence Transfer Lockers 1 100 100 two sided, various sizes

10.04 Processing Area 1 160 16010.05 Supervisor's Office 1 80 8010.06 Records 1 80 8010.07 Staff Toilet 1 60 60 unisex

10.08 Janitor's Closet 1 40 4010.09 Secure Storage 1 180 18010.10 Evidence Room 1 1,200 1,200

2,020 NSF


to meet Commission on Accreditation for Law Enforcement Agencies Standards


Page 3-25

DETENTION CENTER COMPONENTS The new Pretrial Detention Center for Lucas County consists of a large

number of functional components addressing the administration, housing, program, and support elements required to provide appropriate conditions of confinement. These include:

Custody Administration Office and work space for detention center security supervision;

Central Control Security and communications control for the detention facility;

Booking/Release Arrestee processing, intake, temporary release (e.g. court movement), inmate property storage, and final release. This area also includes public access requirements for on-site courtrooms and the electronic monitoring release program;

Inmate Services Management of programs and services provided to inmates. Also includes classification review;

Visitation Public, attorney video visitation and limited face-to-face attorney visiting;

Health Services Includes outpatient medical and specialty clinic (e.g. dialysis, physical therapy), dental services, and inpatient infirmary;

Mental Health Services Acute and chronic care, utilization of outside community resources;

Commissary Staging area for contracted outside provider;

Food Service Bulk storage, food preparation, cart storage traying areas, bakery, water recovery, and ware washing. Managed by outside provider;

Laundry Staging, storage, and production areas for facility operation;

Building Support Provides warehouse storage, maintenance work shops, loading dock, and Central Plant (primary utility systems);

Maximum Security Housing Units One 24 cell/ 24 bed housing for segregation, maximum security, and protective custody inmates and one 24 cell/ 24 bed housing unit for acute mental health inmates;


Page 3-26

High Security Housing Units One 48 bed single cell housing unit for reception (incoming inmates); one 48 bed single cell housing unit for non-acute mental health, and two 48 bed single cell housing units for general population;

Medium Security Housing Units Four 48-bed housing units of 4-Person cells for specific designations of general population inmates;

Medium Security 8-Person Mini-Dorm Housing Units Four 48-bed lower medium security housing units of six 8-person mini-dorms (one of which is used initially for minimum security sentenced inmates) and

Direct Housing Support Provision of supervisory, counselor, support staff, and program space in close proximity to housing units.


The areas of the Pretrial Detention Facility that require the most public access need are Visitation and the Court-related and Electronic Monitoring areas under the Booking and Release component;

Separate entry points are required for inmates, staff, and the loading dock service areas.

The staff entry point should connect into Staff Services, Training, and Evidence Storage;

The inmate entry point must connect through the secure vehicular sally port to Booking/Release and emergency access to Health Services (ambulance); and

The service entry point will be located at the loading dock and have proximity to Food Service, Laundry, and Maintenance. Adequate vehicular access required for tractor-trailers.


Page 3-27

11: CUSTODY ADMINISTRATION: The top administrator for the detention center is located in the Executive

Administration area adjacent the Sheriff. This component in the Pretrial Detention Center provides the office and support space for the day-to-day management and operation of the detention center. Key elements include:

A location between the point of staff entry and the main security vestibule;

A office/support area for management tasks;

The Briefing Room for meeting with each shift of staff as they come on duty to convey information they need to know and give direction;

A Logistics Room where staff will pick up radios prior to the start of their shift. Multiple recharging stations to be provided within this space; and

Two workstations for staff without permanent desk assignments to write reports.

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

11 Custody Administration adjacent Central Control, outside security envelope

11.01 Chief of Security 1 150 15011.02 Lieutenants 4 100 400 one space with 4 desks @ 100 SF

11.03 Briefing Room 1 800 800

11.04 Logistics Office 1 280 280location to store, distribute radios, keys, etc. Use of electronic dispenser. 50 outlets.

11.05 Officer Mail 1 50 5011.06 Staff Toilet (ADA) 2 60 12011.07 Coffee Station 1 60 6011.08 File/ Storage Alcove 1 100 10011.09 Janitor's Closet 2 40 80

2,040 NSF



Page 3-28

12: CENTRAL CONTROL: The Central Control Area is the overall command center for the facility and will be staffed 24 hours a day 7 days a week. It is responsible for monitoring and coordinating the facility’s security, life safety, and communication systems. Key elements include:

The Master Control Room provides the human inter-face with all communication, monitoring, and control systems;

A separate Security Electronics Room where the actual security and communications equipment can be installed and maintained without disrupting activity in Master Control;

The main security vestibule for controlling pedestrian movement of staff, volunteers, other parties into/ out of the secure part of the facility;

An incident room for coordination, direction in managing emergency events;

A Corrections Emergency Response Team (CERT) room with equipment lockers and space to organize actions required;

Facility and law enforcement armories where lethal and non-lethal equipment can be securely stored and access controlled;

A locksmith shop for maintaining blank keys and producing key, card keys as needed; and

Garage space for the Sheriff’s vehicle, two judicial parking spaces, and storage of the Mobile Command vehicle.


Page 3-29

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

12 Central Control alternate is black box

12.01 Main Security Vestibule 1 400 40012.02 Master Control Room 1 350 35012.03 Control Room Toilet 1 40 4012.04 Control Security Vestibule 1 50 5012.05 Security Electronics 1 400 400 also includes central radio equipment

12.06 Incident Room 1 480 480needs adequate communications, near Central Control; provide master control video monitoring capability

12.07 Armory 1 240 240for Facility use; access controlled from Master Control Room

12.08 Locksmith Shop 1 300 300 includes blank key and key card stock

12.09 CERT Room 1 480 480sized for 10 persons, combination of lockers and central open discussion area.

12.10 SWAT Equipment 1 120 120 for Law E nforcement use; off Secure Vehicular Sally Port

12.11 Mobile Command Garage 1 1,300 1,300 includes Sheriff, Judge, Mobile Command Vehicle

4,160 NSF



Page 3-30

13: BOOKING/RELEASE: From an operational perspective, the Booking/Release area is a major element. This component is where arrestees are brought for processing and held for their first appearance determining whether or not they need to remain in secure detention. Subsequently, this is the area where individuals are checked and staged for temporary release for court appearances, medical runs, transfer to State custody or Correctional Center of Northwest Ohio (CCNO) custody, and if so determined, final release processing. While individuals are in custody, this area is responsible for secure storage of inmate property. As the first place that incoming individuals experience the detention facility, the way the area is operated has a major impact on their future interaction with staff while in custody. Key elements include:

Processing area

An enclosed, secure vehicular sally port is provided large enough to accommodate an over the road bus or 3-4 police cars and/or vans at one time;

A local control room is provided to visually and physical monitor activity in the area and to control movement;

An inmate security vestibule, large enough for 16 people at one time is provided to accommodate unloading/loading of larger inmate transportation vehicles. A smaller staff security vestibule is provided so that transport officers, other staff may come in or out independently of inmate movement;

A law enforcement lobby is provided for arresting officers to complete paperwork and to run a Breathalyzer test if necessary;

A service counter is provided for law enforcement personnel to turn the individual, paperwork, and property over to the detention staff;

Arrestees are brought in and permitted to sit in an open seating area as long as they behave; secure holding cells are provided for those that do not or that represent a security threat;

A safety cell and two sobering cells are provided for those situations during intake processing;

A series of transactions transpire, with individuals called up for initial interview at the booking counter, medical and pretrial release interviews are conducted, along with a live scan (fingerprint), photo ID performed in the areas provided, and a criminal history check run to see if other charges are pending elsewhere; and

For individuals expected to bond out quickly, an ATM is provided so that they can bond themselves out - otherwise, they will be allowed to stay in the open seating area for up to 72 hours until they are bonded out or otherwise released pending court appearance.


Page 3-31

Dress In/ Dress Out Area

An area is provided to shower individuals and have them dress in institutional clothing and receive a personal hygiene kit and bedroll as part of the intake process;

As part of the intake process, inmate property and clothing is taken, documented and placed into storage. A secure storage area is provided for valuables, while clothing is stored on racks in the large space provided. The Inmate Property Room also provides a public access service counter so that court clothing can be brought in, and where property left behind on transfer/release can be picked up;

Similarly, if an individual is to be released, the reverse process occurs where they reclaim their property and dress out in this same area; and

A separate movement flow is provided for court movement and other temporary releases that is set apart from the intake processing flow;

Court Related Area

An arraignment courtroom is provided adjacent to the intake processing area, so that first appearances with a judicial officer can be accommodated on site, using the holding capacity in the Booking/Release area to stage movement for that purpose;

Another courtroom is provided, large enough to conduct a jury trial, for cases where movement to/from the downtown court facilities is a security issue;

Two judicial chambers with toilets and clerk space are provided to accommodate judicial officers on site;

Electronic Monitoring Area

Space is also provided here for an electronic monitoring program for individuals ordered into that program;

This area requires public entry adjacency. A waiting area with adjacent toilets is provided for that service load. One of those toilets is located to collect urine samples as needed; and

Staff workstations are provided, with interview, evaluation space and a work room for storage of equipment and installation of ankle bracelets.


Page 3-32

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

13 Booking/ Release assumes 60-80 intakes a day; 107 seats excluding Staging Cells

processing area

13.01 Secure Vehicular Sally port 1 2,000 2,000 enclosed, drive through design

13.02 Law Enforcement Lobby 1 320 320 includes writing desk

13.03 Breathalyzer 1 40 4013.04 Transportation Officers 3 80 24013.05 Inmate Security Vestibule 1 240 24013.06 Staff Security Vestibule 1 120 12013.07 Booking/ Release Control Room 1 200 20013.08 Control Room Toilet 1 40 4013.09 Security Electronics 1 80 8013.10 Booking Counter 1 400 400 booth

13.11 Lieutenant's Office 1 120 120 private office

13.12 Staff Office 1 240 240 3 desks, shared space

13.13 Storage Room 1 100 10013.14 Staff Toilet 1 50 50 not ADA

13.15 Break Room 1 200 20013.16 Medical Interview / Evaluation 1 100 10013.17 Pretrial Services Supervisor 1 100 100 enclosed office

13.18 Pretrial Services 6 80 480 open area 6 workstations

13.19 Pretrial Records/ Supplies 1 120 12013.20 Pretrial Interview Room 2 70 14013.21 Open Seating 1 600 600 50 seats

13.22 Inmate Toilet 2 60 120 serves open seating

13.23 Small Holding Cell (ADA) 1 70 70 holds 1-3

13.24 Small Holding Cell 6 60 360 holds 1-3

13.25 Medium Holding Cell 5 120 600 holds 6 (maximum occupancy by Ohio Standards)

13.26 Medium Holding Cell (ADA) 1 130 130 holds 6

13.27 Staging Area 2 240 480 holds 15+

13.28 Sobering Cell 2 70 14013.29 Safety Cell 1 50 5013.30 Body Scan Area 1 120 12013.31 Live Scan/ ID 1 80 80 alcove off main circulation, includes photo ID

13.32 Property Staging 1 80 808,160 NSF



Page 3-33

Space Requirements continued

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

13 Booking/ Release assumes 60-80 intakes a day; 107 seats excluding Staging Cells

dress in/ dress out

13.33 Clothing/ Bedding Issue 1 240 240 includes personal hygiene kit

13.34 Dress In/ Dress Out Work Area 1 280 28013.35 Dress In/ Dress Out Cubicles 3 25 7513.36 Dress In/ Dress Out Cubicle (ADA) 1 32 3213.37 Inmate Shower (ADA) 1 60 6013.38 Staging Cells 2 160 320 holds 15+, also used for court movement

13.39 Release Counseling 1 100 10013.40 Inmate Property Room 1 800 800 design for 1000; include washer and dryer

13.41 Secure Property Storage 1 120 12013.42 Public Access Counter 1 40 40

2,067 NSF


court related area

13.43 Judicial Chamber 2 280 56013.44 Toilet 2 60 12013.45 Clerk 2 80 16013.46 Inmate Staging 2 240 480 short term; toilet included

13.47 Attorney Interview 3 40 120 non contact visitation booth with paper pass

13.48 Video Arraignment Court 1 360 360 also serves as Hearing Room

13.49 Trial Court 1 500 500 capable of jury trial

13.49 Video Equipment Room 1 40 402,340 NSF


electronic monitoring area accessible from public lobby13.50 Waiting Area 1 240 240 20 seats

13.51 Toilet 2 60 120 include urine pass to Work Room

13.51 Reception Clerk 1 80 8013.52 Interview Rooms 2 80 16013.53 Staff Workstations 4 100 40013.53 Work Room 1 300 300 includes equipment and multiple charging stations

13.54 Evaluation Alcove 1 40 40 includes Breathalyzer

13.53 Staff Toilet 1 60 6013.54 Janitor's Closet 1 40 40

1,440 NSF


Booking/ Release Total 18,734 DGSF


Page 3-34

14: INMATE SERVICES: Ohio Jail Standards require inmate access to recreation, television viewing, reading and legal materials, alcohol and substance abuse programs, and religious services. This component is the section of the detention facility to provide and manage these services, as well as managing classification review and changes. A number of programs for inmates are provided by volunteers – those resources are also managed by the staff in this component. Key elements are:

A central location for overall management office and support space, including space for the Director, Supervisor, Clerical Staff, and Chaplains;

A central library area for inmates to come and obtain reading materials;

A media room and associated equipment room that provides the opportunity to develop and broadcast educational and program content to each housing unit and program space throughout the facility; and

Program delivery spaces are located on and near housing units. Those spaces are defined in Component 27 Direct Housing Support.

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

14.00 Inmate Services distributed in housing areas, except for central services below

14.01 Inmate Services Director 1 150 15014.02 Inmate Services Supervisor 1 100 10014.03 Clerical Staff Workstation 2 80 16014.04 Chaplains 1 180 180 two desks, shared office

14.05 Library/ Law Library 1 600 600 includes inmate reading area

14.06 Copier/ Supply Room 1 140 14014.07 Beverage Station 1 20 2014.08 Multi-Purpose/ Media Room 1 400 400 includes broadcast capability

14.09 Multi-Purpose Equipment Room 1 80 8014.10 Staff Toilets 1 60 60 unisex

14.11 Janitor's Closet 1 40 40

1,930 NSF

net:gross ratio 1.30Total 2,509 CGSF


Page 3-35

15: VISITATION: The visiting program will provide for social, attorney, and special visits, the latter generally consisting of interactions between law enforcement staff (probation, parole, and police) and inmates. The visiting program is designed to accommodate a video visiting operation; however, attorneys and law enforcement staff will have to be able to have face-to-face non-contact visiting if requested.

The Video Visiting concept, already adopted by the Lucas County Sheriff’s Office, results in expanded social visiting as there can be increases in the number of visiting hours and capacity without impacting staff resources. There is also the potential of permitting persons to visit from off-site locations. By having the inmates visit from within their housing units, the number of staff involved in the visiting process will be reduced, as will the cost of construction as secure and dedicated visitor corridors and elevators will not be required. Key elements are:

Inmate family visitors will call in to make visiting time appointments;

Access to inmate family video visitation will be from the main public lobby, with a reception/check in counter to provide information and video visitation booth assignments; the waiting area will provide access to public toilets;

A total of 10 two-person width video visitation booths are provided, arrayed in tiers to improve visual supervision of the area from the control desk;

Two enclosed video visitation rooms (non-recordable) are provided for attorneys, one of which is ADA compliant;

Face-to-face non-contact visiting booths are provided in the Court Related Area (Space 13.47) for use as required; and

The working assumption is that remote video visitation will be available when the facility opens.

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

15 Visitation initial size, expandable in future if necessary

video visitation specific visiting time slots

15.01 Visitor Waiting Area 1 280 280 Seating for 15 persons.

15.02 Booth Operating Station 1 40 40 15.03 Video Visiting Booths 10 40 400 15.04 Video Mechanical Room 1 80 80 15.05 Attorney Video Visiting Booths 2 80 160 one to be ADA accessible

960 NSF


Visitation Total 1,248 DGSF


Page 3-36

16: HEALTH SERVICES: The medical service program will provide inmates with a continuum of services so that their health care needs are met in a timely and efficient manner. Operations will be in accordance with the National Commission on Correctional Health Care and American Correctional Association Standards.

There will be a seamless flow of inmate health care services from admission to transfer or discharge and includes referrals to community-based providers when necessary. A key factor in programming of health service operations is the desire to reduce the amount of inmate movement to and from health care service areas. An initial medical screening will be performed in the Booking/Release area as part of intake processing. At that stage, any individual with immediate medical or mental health issues will receive a more comprehensive evaluation.

New inmates will receive a comprehensive health evaluation within 14 days of admission. Medication delivery, triage and sick call services will take place either within the housing units or in each zone’s direct housing support area.

The outpatient Medical Clinic will provide diagnostic and treatment services requiring levels of service not available in the housing areas, as well as space for on-site dialysis, lab work, chronic care clinics and physical therapy. The facility will provide basic dental services, and an inpatient Infirmary will provide rooms for inmates who require continuous care and supervision within the limits of the facility’s medical care operation. Key elements include:

Health Services Administration

Offices, staff workstations, and support space is provided in an office suite adjacent the health services delivery areas;

The administration area also provides staff facilities, including a place to shower and change clothes if necessary during a shift;

Outpatient Clinic

Inmates will come here by appointment for more extensive examination and treatment;

Both open and secure waiting areas are provided for inmates awaiting service or return to housing;

Two exam rooms and one larger examination/treatment room are provided. Telemed capability will also be provided; and

Space for specialty services for dialysis, X-ray, and physical therapy are provided.

Dental Services

A dental suite is incorporated as an integral part of the outpatient clinic, with two chairs; and

Holding/waiting areas and other support functions will be shared with the medical side of the outpatient clinic.


Page 3-37

Inpatient Infirmary

A separate 24-bed infirmary is provided, consisting of two isolation rooms (positive or negative pressure), 14 single patient rooms, and two 4-bed patient wards;

In addition, there are 6 Suicide Watch cells (one ADA compliant) to consolidate appropriate facilities for this requirement within the health services areas;

A combined nurse station/security station is provided for joint management of the area;

The storage and other pertinent medical support space required for the infirmary will also be provided; and

A small recreation yard and video visitation capability are provided for inmates while recuperating in the infirmary.


Page 3-38

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

16 Health Services

health services administration

16.01 Health Services Director 1 150 15016.02 Staff Offices 2 80 16016.03 Records Staff Work Station 2 48 96 reflects change over to electronic record system

16.04 Medical Records Storage 1 320 32016.05 Scanning Copy Room 1 80 80 may be merged with Active Records Storage

16.06 Storage Room 1 80 8016.07 Changing Booth/ Scrub Storage 1 80 80 provides area for change of clothing while on duty.

16.08 Staff Toilet 1 60 60 unisex

16.09 Janitor's Closet 1 40 40

1,066 NSF


outpatient clinic

16.10 Inmate Waiting Area (8 person) 1 100 100 open waiting

16.11 Small Holding Cell (1 person) 2 50 100 with combo unit

16.12 Holding Cell (6 person) 2 120 240 with combo unit

16.13 Security Station 1 40 40 open station.

16.14 Nurses Station 1 180 180 counter with back counter, sink, cabinets

16.15 Active Records Storage 1 140 140 16.16 Staff Office 1 80 80 16.17 Staff Work Room 2 80 160 2 stations @ 40 SF

16.18 Exam Room 2 115 230 hot and cold running water

16.19 Specialty Exam/ Treatment Room 1 180 180 locate off corridor for emergency triage, full telemed, hot and cold running water

16.20 Multi-Purpose Treatment Room 1 320 320 16.21 Daily Use Supply Storage 1 80 80 16.22 Inmate Lab Toilet 1 40 40 16.23 Blood Draw Alcove 1 20 20 locate off circulation to provide direct connection to Lab.

16.24 Laboratory/ Work Room 1 80 80 hot and cold running water

16.25 Pharmaceutical Storage 1 240 240 include refrigerator; no on-site pharmacist

16.26 Clean Utility 1 60 60 16.27 Soiled Utility Storage 1 60 60 16.28 Medical Equipment Storage 1 120 120 16.29 Supply Storage 1 90 90 16.30 Janitor Closet 1 60 60 16.31 Pantry 1 40 40 storage of food for medicine dosage requirements.

16.32 Staff Toilet 1 60 60 unisex

2,720 NSF



Page 3-39


Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

16 Health Services

dental clinic

16.33 Dental Chair Operatory 1 240 240 two chairs, one dentist16.34 Dental Storage 1 60 6016.35 Dental Mechanical Room 1 100 10016.36 Dental Office 1 140 140 Two work stations

540 NSF

net:gross ratio 1.30subtotal 702 CGSF

inpatient infirmary 24 beds + 6 suicide watch16.37 Inmate Property Storage Room 1 120 12016.38 Nurses Station 1 180 18016.39 Officer's Station 1 40 40 open station.

16.40 Daily Use Supply Storage 1 60 6016.41 Medication Room 1 100 100 no on-site pharmacy

16.42 Clean Laundry Storage 1 80 8016.43 Soiled Laundry Storage 1 60 6016.44 Clean Utility Storage 1 60 6016.45 Soiled Utility Storage 1 60 6016.46 Medical Equipment Storage 1 140 14016.47 Janitor Closet 1 80 8016.48 Pantry/ Beverage Station 1 40 4016.49 Food Cart Staging 1 40 4016.50 Patient Video Visiting Booth 1 40 40 will also utilize portable unit

16.51 Staff Toilet 1 40 4016.52 Shower Room 2 40 80 ADA

16.53 Tub Room/ Sitz Bath 1 60 6016.54 Detox Cell 1 60 60 in view of nurses station/officer's station

16.55 Isolation Room Vestibule 1 80 8016.56 Isolation Room w. Shower 2 130 260 negativve or positive pressure capability

16.57 Single Bed Patient Room 14 120 1,680 with ADA compliant fixtures

16.58 Four Patient Ward 2 320 640 with ADA compliant fixtures

16.59 Recreation Yard 1 500 AR exterior space; ADA fixtures

16.60 Suicide Watch Cells 5 80 40016.61 Suicide Watch Cell (ADA) 1 80 80 with ADA compliant fixtures

4,480 NSF



Page 3-40

17: MENTAL HEALTH SERVICES: The Mental Health Services Area provides work and administrative space for

mental health staff providing treatment to the mental health population of the detention center. Mental health staff working from this area will provide the services either within the designated mental health housing units or in the program/support space provided in the housing areas. Note that this central management area should be co-located with Component 15: Health Services Administration.

Key elements are:

A central location for overall management office and support space;

An acute mental health housing unit – See Component 23. Note that at least one 48-bed high security single cell housing unit, as well as other general population housing units may be designated for chronic care mental health inmates; and

Provision of space and facilities in the housing areas for mental health counseling, group therapy, and related activities.

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

17 Mental Health Services central facilities only shown here, balance in Direct Housing Support

17.01 Staff Office 2 80 160 shared office

17.02 Staff Workstations 2 64 12817.03 Copy and File Room 1 80 8017.04 Staff Toilet 1 60 6017.05 Beverage Station 1 20 20

448 NSF

net:gross ratio 1.30Total 582 CGSF


Page 3-41

18: COMMISSARY: The Commissary function gives inmates the opportunity to purchase approved items that are not furnished by the facility. The proposed operation is to continue to utilize an outside vendor to provide commissary services. This component only provides a staging area or drop-off point where vendor shipments can be off-loaded from vendor vehicles, thereby minimizing tie ups to the loading dock. All items are individually packaged for specific inmate orders. The staging area also serves as a work space for the commissary vendor.

Historically, commissary operation profits have been used to fund programs and services for the benefit of inmates. This will continue in the new facility, with profits from the vendor’s contract with Lucas County used for the same purposes.

Key elements are:

A small area for staging commissary delivery carts.

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

18 Commissary Assumes Contracted Service. Locate near Warehouse

18.01 Commissary Office 1 80 8018.02 Commissary Staging Area 1 850 850

930 NSF



Page 3-42

19: FOOD SERVICE: The Food Service component will provide meals for Lucas County’s adult pretrial detention facility. The food service program is managed by a private vendor which utilizes traditional live cooking to produce two hot meals daily.

In addition to providing food service to inmates in the existing Jail Facility, this Food Service area also provides meals for another 225 individuals located off site (Correctional Treatment Facility and Work Release). This brings the typical average number of individuals served to 645 persons (420 + 225= 645).

Conventional production is used for the hot breakfast, dinner meals and a cold meal is provided mid-day. The proposed food service area will continue to use live cooking managed by an outside vendor, but will also use cadre inmates in the operation of this area.

Meals will be prepared here, portioned into trays, loaded onto food service carts, and delivered to each housing area (including Infirmary) for dining in each housing unit. Special diets will also be prepared and delivered to each housing area as needed. Food provided for off-site users utilize box trucks to transport meals.

There are no meals prepared for staff at this facility.

Space requirements for this area were provided by our correctional food service consultant.

Key elements include:

Storage

Bulk, secure, refrigerated and freezer food storage areas are provided to maintain adequate on site supplies;

Kitchen Area

Preparation, short term staging and food cooking areas are provided, along with cart storage, staging areas;

A baking area is also included in the main food preparation space;

Ware Washing/ Waste Management

Soiled trays and food waste will be returned from each housing area to be bussed here and food trays and carts will be cleaned prior to their next use; and

A water recovery system will be considered as part of the sustainable design initiatives in the project.


Page 3-43

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

19 Food Service

storage

19.01 Bulk Dry Food Storage 1 1,000 1,00019.02 Secure Food Storage 1 100 10019.03 Non-Food Storage 1 200 20019.04 Bulk Freezer Storage 1 400 40019.05 Thaw Cooler 1 200 20019.06 Bulk Vegetable/ Dairy Cooler 1 200 20019.07 Break Out Room 1 100 100

2,200 NSF


kitchen area

19.08 Vegetable/ Cold Food Preparation Area 1 400 40019.09 Tray Assembly Area 1 700 70019.10 Cart Parking 1 500 50019.11 Main Kitchen Office 1 140 14019.12 Tool Closet 1 40 4019.13 Storage Coolers 1 400 40019.14 Staff Toilets & Lockers 2 120 240 includes lockers19.15 Inmate Toilet 1 50 5019.16 Main Cooking Area 1 1,800 1,80019.17 Diet Area 1 400 40019.18 Cook's Cooler 1 170 17019.19 Secured Spice Cage 1 40 40

4,880 NSF


ware washing/ waste handling

19.20 Pot Washing Area 1 400 40019.21 Chemical Storage 1 100 10019.22 Dish Washing Area 1 900 90019.23 Trash Room 1 300 300

1,700 NSF


Total for Component 10,621 CGSF


Page 3-44

20: LAUNDRY: The Laundry is sized to meet the laundering requirements of a 750 bed facility. The primary requirements of the laundry operation include providing for the issuance of clean clothing, bedding and linens, and exchanging clean laundry for soiled laundry. The laundry operation will not include the laundering of items that require special handling (e.g. infirmary wear, medical clinic items, and blankets). These items will be sent to a specialized outside commercial contractor.

Key elements include:

Bulk storage space is provided to maintain stock on hand, since the Laundry supplies the clean institutional clothing issued in the Booking/Release area for new inmates;

Laundry will be collected from each housing area on a scheduled basis and clean items issued in exchange, with the clean and soiled laundry moved by laundry carts;

Space is provided to sort laundry out, clean it in the washing and drying areas, and then fold it as required prior to distribution.

An office is provided for the individual responsible for the laundry operation, along with a staff toilet; and

An inmate toilet is provided, since minimum security cadre inmates are expected to work in this area.

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

20 Laundry

20.01 Bulk Storage 1 750 75020.02 Chemical Storage/ Detergent Room 1 300 30020.03 Cart Storage 1 1,200 1,20020.04 Water Reuse System 1 400 40020.05 Washing Area 1 500 50020.06 Drying Area 1 300 30020.07 Folding Area 1 750 75020.08 Office 1 200 20020.09 Staff Toilet 1 60 6020.10 Inmate Toilet 1 60 6020.11 Janitor's Closet 1 75 7520.12 Soiled Receiving/ Sorting 1 350 350

4,945 NSF



Page 3-45

21: BUILDING SUPPORT: This component designation is used collectively for the service area of the facility, which encompasses three specific areas of space required for building support:

Warehouse Maintenance Central Plant

Warehouse:

This component provides on-site receiving, storage, and distribution of materials and supplies needed to run the facility that are not delivered to other areas such as food service and maintenance;

Space is provided for supervisory staff that will also maintain records of inventory and distribution. It is assumed that a computerized inventory control system will be used; and

The area required for the Loading Dock is included in this component, providing three overhead door bays and sufficient inside area to screen incoming and outgoing material for contraband prior to going through a security vestibule into the secure part of the facility and vice versa.

Maintenance:

The Maintenance sub component provides the on-site support functions necessary to ensure that the facility is clean, safe, and humane and that mechanical and utility systems operate without interruption;

In Lucas County, another agency is responsible for building maintenance. While off-site resources can support the on-site operation, there is a need for an ongoing on-site presence. Detention facilities contain pieces of equipment that cannot operate properly without frequent attention from skilled staff. The facility requires a preventative maintenance plan that includes provisions for emergency repairs and replacement; and

On-site maintenance areas include shop areas, administrative space and storage space large enough to ensure a proper inventory of fixtures and equipment necessary to maintaining life safety and security.

Central Plant:

As part of the overall project, several primary utility and infrastructure elements are required. The Central Plant is intended to provide emergency power generation when required, and heating and air conditioning for the facility; and

The Central Plant area also provides the location for water supply connection, domestic hot water production, and electrical service connections, including switchgear.


Page 3-46

In terms of adjacencies: The warehouse and maintenance need to be next to the loading dock, while the Central Plant should be located in terms of points of primary utility service entry and overall building configuration.

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

21 Building Support

warehouse

21.01 Warehouse Manager 1 120 120 enclosed office

21.02 Utility Officer 1 40 40 area allocation in Work Area

21.03 Work Area 1 400 40021.04 Custodial Supplies 1 500 500

21.05 General Storage 1 3,000 3,000look at off site free world warehouse to reduce on-site requirements

21.06 Secure Storage 1 120 12021.07 Staff Toilet 1 60 6021.08 Janitor's Closet 1 60 6021.09 Loading Dock/ Staging Area 1 1,000 1,000 3 bays

21.10 Service Security Vestibule 1 AR AR21.11 Recyclable Room 1 240 240 Management

21.12 Trash Room 1 240 2405,660 NSF


maintenance

21.13 Maintenance Office 1 200 200 2 person office

21.14 Staff Toilet 1 60 6021.15 Maintenance Shops 1 1,000 1,000 subdivide as needed

21.16 Shop Storage 1 600 60021.17 Secure Tool Storage 1 80 8021.18 Grounds Keeping Storage 1 400 400 exterior access required

21.19 Fire Safety Shop 1 140 1402,480 NSF



Page 3-47


Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

central plant

21.20 Central Plant Area 1 3,400 3,40021.21 Exterior Equipment Pads AR AR exterior space

21.22 Electrical Panel/ Distribution Rooms AR AR distribute in facility as required

21.23 Telephone/ IT Distribution Rooms AR AR distribute in facility as required

21.24 Mechanical Rooms AR AR distribute in facility as required

21.25 Security Electronics Room AR AR distribute in facility as required

21.26 Video Visitation Equipment Rooms AR AR distribute in facility as required

3,400 NSF


Building Support Total 13,508 CGSF


Page 3-48

22: MAXIMUM SECURITY HOUSING UNIT: This component designation provides a 24-bed maximum security housing

unit for segregation and high risk inmates. As such, the normal operation of this housing unit would provide cell confinement 23 hours a day, with one hour a day of out of cell time for recreation.

Key Elements include:

Single cell housing meeting Ohio Jail Standards in terms of size and other requirements; each cell will have a combination toilet and lavatory fixture; and each cell will have writing surface;

If possible, this should be a single level design solution rather than a two-tier arrangement;

The unit includes handicapped accessible cells to accommodate individuals with disabling conditions for which special housing is required. These cells may be used for non-handicapped individuals;

High security doors, locks, and glazing will be required throughout this housing unit;

Technically, a dayroom is not required for segregation inmates; however, sufficient space needs to be provided to accommodate delivery of services to inmates. It is highly recommended that four 6-cell sub-dayroom areas be provided to increase the ability to separate different classifications (e.g. administrative vs. disciplinary segregation) within this housing unit;

Design should provide adequate visual supervision of all inmate cells without locating them so that they face one another;

Typically, individuals will eat in their cells;

One shower is provided for every 6 inmates (above standards) in order to minimize movement beyond the sub-dayrooms;

Interview and multipurpose space within the unit is available in order to limit the off-of-unit movement; this includes a medical exam/interview room and a Multi-Purpose Room that can be used for hearings;

An outdoor recreation is provided that is subdivided into personal recreation modules to ensure sufficient capacity exists for inmates to have individual recreation periods of one hour per day; and

Permanently mounted and portable video visitation stations will be provided in this housing unit.


This housing unit should be near Booking/Release and Health Services.


Page 3-49

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

22 Maximum Security Housing Unit 24 single beds/ 4 subdayrooms

22.01 Entry Security Vestibule 1 240 240 includes cart staging

22.02 Single Occupancy Cells 22 70 1,540 Ohio Standards used. Includes combo unit.

22.03 Single Occupancy ADA Cell 2 80 160 larger to accommodate ADA clearances

22.04 Dayroom 24 35 840 Subdivide into subdivisions of 8 or less.

22.05 Officer Station 1 40 40 open desk/counter

22.06 Staff Toilet 1 40 4022.07 Food/ Beverage Station 1 40 4022.08 Inmate Showers 4 40 160 1 per each sub-dayroom

22.09 Video Visitation Stations 4 35 140 1 per each sub-dayroom

22.10 Unit Storage 1 100 10022.11 Janitor Closet 2 40 80 one on each level

22.12 Medical Exam/ Interview 1 110 110triage, medical exam (provide hot and cold running water).

22.13 Multi-Purpose Room 1 240 240 Due Process Hearings; video taping capability.

22.14 Recreation Courtyard 1 750 AR divided into four or more 180 SF enclosures

3,730 NSF

net:gross ratio 1.60Sub Total 5,968 CGSF

Number of Units 1Total this Component 5,968 CGSF


Page 3-50

23: HIGH SECURITY ACUTE MENTAL HEALTH HOUSING UNIT: This component designation provides a 24-bed high security housing unit

for higher risk inmates with mental health needs. Individuals assigned to these units are deemed suitable for an open dayroom direct supervision environment, but for who single cell housing is considered most appropriate.



While the programmed area is for 24 cells, this unit will also incorporate 3 suicide watch and 1 safety cell so that immediate access to those is available when the situation arises. These four beds are not considered rated capacity, which reduces the rated capacity of this housing unit from 24 to 20 beds;

It is expected that this housing unit will be jointly managed by security and mental health staff;

If possible, this should be a single level design solution rather than a two-tier arrangement;

The unit includes two ADA compliant cells to accommodate individuals with disabling conditions for which special housing is required. These cells may be used for non-handicapped individuals;


A dayroom meeting standards is provided; however, it is highly recommended that four 6-cell sub-dayroom areas be provided to increase the ability to separate different sub-classifications of inmates within this housing unit;

Typically, individuals will eat in the dayroom, depending upon behavior;

One shower is provided for every 6 inmates (above standards) in order to minimize movement beyond the sub-dayrooms;

An outdoor recreation is provided as part of the housing unit so that recreation space is readily available without leaving the housing unit;

Interview and multipurpose space within the unit is available in order to limit the off-of-unit movement; this includes a medical exam/interview room and a Multi-Purpose Room that can be used for programs and small group therapy sessions; and

Permanently mounted video visitation stations will be provided in this housing unit, one of which will be ADA compliant.


Page 3-51


This housing unit should be near Booking/Release and Health Services.

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

23 High Security Acute Mental Health Housing Unit 24 single beds/ 4 subdayrooms




23.04 Safety Cell 1 50 50 Not counted as rated bed.

23.05 Suicide Watch Cell 3 70 210 Not counted as rated bed.

23.06 Dayroom 24 35 840 Subdivide into subdivisions of 8 or less.


23.08 Staff Toilet 1 40 4023.09 Food/ Beverage Station 1 40 4023.10 Inmate Showers 4 40 160 1 per each sub-dayroom

23.11 Video Visitation Stations 4 35 140 1 per each sub-dayroom



23.15 Multi-Purpose Room 1 300 300 Used for small group counseling

23.16 Recreation Courtyard 1 750 AR23.17 Counseling/ Interview Rooms 2 64 12823.18 Nurse's Station 1 80 80 includes space for active inmate records.

23.19 Staff Workstations 2 48 96 common area away from inmate view.

23.20 Medication Storage 1 40 40 secure space adjacent nurse's station.

4,114 NSF




Page 3-52

24: HIGH SECURITY SINGLE CELL HOUSING UNITS: This component designation provides a 48-bed high security housing unit

for higher risk inmates. Individuals assigned to these units are deemed suitable for an open dayroom direct supervision environment, but also need single cell housing.

A total of four 48-Bed High Security housing units are provided in the project. One of these housing units will be designated for (new) reception inmates that have not completed their full classification and medical examinations. In that unit, additional staff workstations will be located in the dayroom to facilitate staff/ inmate discussion. One 48-bed High Security Housing Unit will also be dedicated to chronic mental health inmates.



This unit will typically be a two-level design with a main floor and mezzanine level of cells;

The unit includes two ADA compliant cells to accommodate individuals with disabling conditions for which special housing is required. These cells may be used for non-handicapped individuals;


A dayroom meeting standards is provided; however, it is highly recommended that some sub-dayroom areas be provided to increase the ability to separate different sub-classifications of inmates within this housing unit;

Typically, individuals will eat in the dayroom, depending upon behavior;

One shower is provided for every 12 inmates (per standards);


Interview and multipurpose space within the unit is available in order to also limit off-of-unit movement; this includes a medical exam/interview room and a Multi-Purpose Room that can be used for programs and small group meetings; and

Three video visitation stations will be provided in this housing unit, one of which will be ADA compliant.


This housing unit should be closer to Booking/Release and Health Services than the medium security housing units, so that escorted movement is a shorter distance.


Page 3-53

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

24 High Security Single Cell Housing Units 48 single beds




24.04 Dayroom 48 35 1,680 Ohio Standard applied.


24.06 Staff Toilet 1 40 4024.07 Food/ Beverage Station 1 40 4024.08 Inmate Showers 4 40 160 1 per 12 inmates, two on each level.

24.09 Video Visitation Stations 3 35 105 1 station per 16 inmates or portion



24.13 Multi-Purpose Room 1 300 300 Program space

24.14 Recreation Courtyard 1 750 AR

6,275 NSF




Page 3-54

25: MEDIUM SECURITY 4-PERSON CELL HOUSING UNITS: This component designation provides a 48-bed medium security housing

unit for general population inmates. Individuals assigned to these units are deemed suitable for an open dayroom direct supervision environment and do not need more than medium security housing.

A total of four 48-Bed 4-Person cell Medium Security housing units are provided in the project.


4-person cell housing meeting Ohio Jail Standards in terms of size and other requirements; each cell will have a combination toilet and lavatory fixture; and each cell will have writing surfaces;

This unit will typically be a two-level design with a main floor and mezzanine level of cells;

The unit includes two ADA compliant cells to accommodate individuals with disabling conditions for which only general housing is required. These cells may be used for non-handicapped individuals;

Medium security doors, locks, and glazing will be required throughout this housing unit;

A dayroom meeting standards is provided, with sufficient seating for all the inmates in the housing unit plus 2 ADA compliant seating locations;

Typically, individuals will eat in the dayroom, depending upon behavior.

One shower is provided for every 12 inmates (per standards);


Interview and multipurpose space within the unit is available in order to limit the off-of-unit movement.; this includes a medical exam/interview room and a Multi-Purpose Room that can be used for programs and small group meetings and presentations;

Three video visitation stations will be provided in this housing unit, one of which will be ADA compliant.


Page 3-55

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

25 Medium Security 4-Person Room Housing Units 12 cells/48 total beds


25.02 4-Person Cells 12 180 2,160 Ohio Standard used. Includes combo unit.



25.05 Staff Toilet 1 40 4025.06 Food/ Beverage Station 1 40 4025.07 Inmate Showers 4 40 160 1 per 12 inmates, two on each level.

25.08 Video Visitation Stations 3 35 105 1 station per 16 inmates or portion

25.09 Unit Storage 1 100 10025.10 Janitor Closet 1 40 4025.11 Medical Exam/ Interview 1 110 110 hot and cold running water, locate off sally port.

25.12 Multi-Purpose Room 1 300 30025.13 Personal Laundry Room 1 80 8025.14 Recreation Courtyard 1 750 AR

5,095 NSF




Page 3-56

26: MEDIUM SECURITY 8-PERSON MINI-DORMS: This component designation provides a 48-bed medium security housing

unit for pretrial inmates through using 8-person cells arranged around the central day room area. This permits the housing unit officer to determine which cells and how many individuals are out in the main space and/or recreation courtyard at any given time. The fronts of each mini-dorm are glazed to permit observation of activities inside. Three of these units are provided to accommodate pretrial inmates.

One mini-dorm housing unit has been added into the project for a cadre of sentenced inmate workers to serve the needs of the pretrial detention facility. As a general policy, this needs to be a relatively self-contained unit, so that the sentenced inmates can keep to themselves.


Rather than one large open dormitory, the housing would consist of 6 (six) 8-person “mini-dorms” meeting Ohio Jail Standards in terms of size and other requirements; each mini-dorm will have toilet and lavatory fixtures as well as a shower; and each mini-dorm will have tables and seating providing writing surfaces;

One shower is provided for every 8 inmates (above standards);

The housing unit will include at least two ADA compliant bedspaces. These beds may be used for non-handicapped individuals when not needed for a handicapped individual;

A dayroom meeting standards is provided, with sufficient seating for all the inmates in the housing unit plus 2 ADA compliant seating locations;

Typically, individuals will eat in the dayroom, or in their mini-dorms, depending upon their preference;

An outdoor recreation area is provided as part of the housing unit so that recreation space is readily accessible without leaving the housing unit;

Interview and multipurpose space within the unit is available in order to limit the off-of-unit movement; this includes a medical exam/interview room and a Multi-Purpose Room that can be used for programs and small group meetings and presentations; and

Four video visitation stations will be provided in this housing unit, one of which will be ADA compliant.


Page 3-57

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

26 Medium Security 8-Person Mini-Dorm Housing four (6) 8-person mini-dorms


26.02 8-Person Mini dorms 6 450 2,700Ohio Standard used. Includes combo unit. Additional area added for shower.



26.05 Staff Toilet 1 40 4026.06 Food/ Beverage Station 1 40 4026.07 Video Visitation Stations 4 35 140 1 station per 12 inmates

26.08 Unit Storage 1 100 10026.09 Janitor Closet 1 40 4026.10 Medical Exam/ Interview 1 110 110 hot and cold running water, locate off sally port.

26.11 Recreation Courtyard 1 750 AR26.12 Personal Laundry Room 1 80 80

26.13 Multi-Purpose Room 1 300 300calculated at 20sf/48 inmates, assumed part of dayroom area requirement; sub-dividable.

5,510 NSF




Page 3-58

27: DIRECT HOUSING SUPPORT: This component reinforces the operational concept of providing program

and support space in and adjacent to housing units to minimize inmate movement by providing Unit Management, Inmate Services/ Case Management, and Support Services areas for each cluster of 250 to 300 beds. Key elements include:

Unit Management Areas: In direct supervision, one officer is assigned to each housing unit. Additional staff is required to provide relief breaks and to escort inmate movement when it is required. The unit management area provides office, work and related space to support operation of housing units and the connections needed to each.

In addition to staff work space, a hearing/conference room is provided for meetings that need to be “off the unit”.

A floor security station is provided to act as a home base for escort staff, and to direct movement; and

Staff Toilets are provided for staff not working inside housing units.

Inmate Services/ Case Management: This section provides the necessary interaction and counseling with inmates to address problems and take care of items important to them and the facility.

Staff work space is incorporated to provide a “home base” to work out of in carrying out their assigned responsibilities; and

A classroom seating 20 students at desks and chairs is provided for meetings, classes, and other activities that draw from more than one housing unit.

Support Services:

Some building support space is provided to stage trash removal and to provide housekeeping supplies on the main circulation corridor.

In terms of adjacencies: These areas need to be off the main circulation corridor and in the midst of a cluster of housing units.


Page 3-59

Space Requirements

Space

No.Space Name

No. of

spaces

Unit

nsf

Total

nsfComments

DETENTION CENTER

27 Direct Housing Support

Unit Management Areas one per 250-300 beds27.01 Unit Management Office 1 100 100 zone supervisor

27.02 Staff Computer Stations 2 40 8027.03 Interview Room 1 80 8027.04 Zone Storage 1 200 20027.05 Corridor Floor Security Station 1 60 60 open station

27.06 Staging Area - 16 person 1 196 196 with toilet

27.07 Individual Zone Staging/ Holding Cell 2 50 100 with toilet

27.08 Staff Toilet 1 60 60 unisex, locate off main corridor

876 NSF


Inmate Services/ Case Management

27.09 Program Staff Work Stations 2 50 10027.10 Case Managers 5 70 35027.11 Break Room 1 200 20027.12 Beverage Station 1 20 2027.13 Classroom/ Program Room 1 440 440 Sized at 40 sf teacher area plus 20sf/20 students.

1,110 NSF


Support Services Areas

27.14 Trash Room/ Alcove 1 80 80 locate off Service Corridor

27.15 Zone Janitor Closet 1 100 100 supports zone

180 NSF

net:gross ratio 1.10subtotal 198 CGSF

Total 2,780 CGSF


New Jail Feasibility Study Lucas County, Ohio Final Report October 14, 2014 SECTION 4: SITE INVESTIGATION

Page 4- 1

INTRODUCTION: A major question arises in considering replacement of the existing Lucas County Jail and Sheriff’s Office in terms of where to locate it? Part of the scope of work for the New Jail Feasibility Study was to investigate potential site locations and determine if feasible sites were available should the County decide to proceed with a replacement pretrial detention facility.

The process of identifying potential sites has been rigorous and occurred in the following steps: Data Gathering, Developing the Site Criteria and Ranking System, Analysis of the Data against the Criteria, and a working session to determine whether or not sites were feasible for the project.

The site investigation effort was not to select a specific site for the project, but simply to determine if feasible sites exist in the County to proceed with the project. The identification of potential feasible sites in this report does not mean the project would be undertaken there, only that it could be. If the project proceeds, it could be another site other than those in this effort identified as feasible locations.

This section of the Feasibility Study includes an overview of sites considered, and rationale for assessing site locations, including initial site screening and evaluation criteria and findings.

SITES CONSIDERED: At the outset, a decision was made that sites for consideration would be

sought across all areas of Lucas County. This resulted in many opportunities, of which 18 sites in 17 locations were selected for specific review. The general locations of sites considered are shown below:

Note: Site addresses intentionally not included.


Page 4- 2

EVALUATION Prior to investigating potential sites for consideration, work sessions with CRITERIA: the County were conducted to generate the criteria that should be used in

identifying and evaluating potential sites. These criteria were subsequently applied to the various sites using a simple rating technique of using the colors of a stop light - green, yellow, and red - to indicate relative performance for each criteria.

The site evaluation criteria were developed in terms of the following categories and associated rating designations.

Acquisition Cost Estimated costs of acquisition of the various sites was recorded, not so much as an evaluation criteria as what a cost impact might be incurred. The major differentiator in this element is whether or not the site is publically or privately owned.

Site Size The Lucas County Sheriff’s Office desires a single level facility so that stairs and elevators do not have to be used for internal movement. For the initial project of a 575-bed pretrial detention facility this will require a useable site area of 14 acres or more to accommodate the building, parking, and on-site circulation. This is a lynchpin issue. To accommodate potential future expansion, a useable site area of 18 acres or more will be required. Not surprisingly, the largest potential sites were located further away from the downtown core. From an evaluation perspective, the larger the site the better.

Site Size Green The site is large enough to accommodate replacement of the current Corrections Center elements and potential future expansion in primarily a one story design solution;

Site Size Yellow The site is large enough to accommodate replacement of the current Corrections Center elements with appropriate setbacks primarily in a one story design solution; and

Site Size Red The site is not large enough to accommodate current projected needs in a one-story solution.

Site Ownership Publicly-owned sites potentially represent an easier acquisition process and lower cost in comparison to privately owned sites which may have multiple owners and/or values. Private ownership typically involves price negotiations and more complex acquisition actions.

Site Ownership Green The site is already owned by the County or other willing local government agency or community partner;

Site Ownership Yellow The site requires land transfer from a single private entity; and


Page 4- 3

Site Ownership Red The site requires land transfer from multiple private owners.

Capability to Support Correctional Design (Surveillance & Safety) Within the overall site size, the capability to provide clear sightline and setbacks from adjacent uses is important in terms of maintaining facility and public safety.

Correctional Design Green The site is configured in such a way to allow for unobstructed surveillance capabilities to assure public and facility safety;

Correctional Design Yellow The site is configured in such a way that would present surveillance challenges, but ones that could be overcome; and

Correctional Design Red The site does not support the appropriate level of surveillance capabilities necessary to assure public safety.

Community Context (Buffers) Historically there has been little impact on adjacent property values when a secure facility has been built in a neighborhood – including residential and high land value areas. An important project objective is to locate the facility in an area where it is not a disruptive factor, but rather fits into the community context in which the site is located. The other aspect to consider is whether or not adjacent buffer areas can be provided between the proposed facility and adjacent uses.

Community Context Green The site has buffer areas on all sides which support sight and sound separation from adjacent land uses;

Community Context Yellow The site has buffer areas on at least two sides which support sight and sound separation from adjacent land uses; and

Community Context Red The site does not have sufficient buffer areas.

Public Benefit (Zoning/ Deed Restrictions) This is an extension of community context, and whether or not the site fits within current zoning, and whether or not it would benefit the public to develop this site. This element revolves around whether or not the proposed facility would fall within current zoning and an assessment of whether or not using this site for the project would be beneficial from a public policy perspective. For example, some jurisdictions have used constructing a secure facility as a first step in an area they want to generate industrial or commercial development in, or to remediate a brown field site for public benefit. Correctional facilities are allowable use in General Industrial zones in the County.


Page 4- 4

Public Benefit Green All site parcels are zoned General Industrial and clear of any deed restrictions which would prohibit development of a correctional facility;

Public Benefit Yellow The majority of site parcels by land area are zoned General Industrial and all parcels are clear of deed restrictions which would prohibit development of a correctional facility; and

Public Benefit Red Less than the majority of site parcels by land area are zoned General Industrial and/or there are deed restrictions which would prohibit development of a correctional facility.

Public Transportation Accessibility A correctional facility has many users that need access, including those that would come via public transportation.

Public Transportation Green The site is located on a current TARTA bus route;

Public Transportation Yellow The site is located in a TARTA member community; and

Public Transportation Red The site is located in a community not currently serviced by TARTA.

Law Enforcement Accessibility Law enforcement officers across the County need relative ease of access to bring in arrestees for processing.

Public Transportation Green The site is located within 1 mile of an expressway exit;

Public Transportation Yellow The site is located within 2.5 miles of an expressway exit; and

Public Transportation Red The site is located more than 2.5 miles of an expressway exit.

Court Transportation Accessibility The best sites in this aspect of site evaluation are those close to interstate and/or major traffic arteries – thereby providing shorter distances and driving time from all parts of Lucas County. Of particular concern is the transportation time from the proposed site to the downtown courts.

Court Transportation Green The site is within 10 minutes driving time to the County Court of Common Pleas;


Page 4- 5

Court Transportation Yellow The site is within 20 minutes driving time to the County Court of Common Pleas; and

Court Transportation Red The site is more than 20 minutes driving time to the County Court of Common Pleas.

Transportation Infrastructure The best sites in this aspect of site evaluation are those that are on major streets and have good roads in terms of size and quality for the level of traffic that will be generated by the facility. Of particular interest is the vehicular capability of the adjacent roads and connectors.

Transportation Infrastructure Green The site is located on a principal arterial route;

Transportation Infrastructure Yellow The site is located on a minor arterial route; and

Transportation Infrastructure Red The site is located on a collector street or local route.

Existing Utility Services A secure facility of the proposed size requires substantial amounts of water, power, waste treatment, and fuel for heating/cooling. Whether or not adequate primary utilities exist at the site has a major impact on site development costs.

Utility Services Green The site has existing industrial grade level availability of all utility services (water, power, sewer, natural gas);

Utility Services Yellow The site has less than industrial grade level availability of all utility services (water, power, sewer, natural gas); and

Utility Services Red The site is missing one or more of the basic utility services required.

Accessibility to Medical Facilities There is occasional need of emergency medical access, and to specialized medical treatment on a more routine basis. Of particular concern is the transportation time from the proposed site to medical facilities.

Medical Facilities Green The site is within 10 minutes driving time to the nearest hospital;

Medical Facilities Yellow The site is within 20 minutes driving time to the nearest hospital; and

Medical Facilities Red The site is more than 20 minutes driving time to the nearest hospital.


Page 4- 6

Environmental and Historic Preservation In developing projects, the public sector has a responsibility to minimize negative environmental impacts and/or disturbance of historically important buildings or areas.

Environmental & Historic Preservation Green No portion of the site impacts floodplains, wetlands, fragile landscapes, or historical/archeological sites;

Environmental & Historic Preservation Yellow A portion of the site which may remain undeveloped and buffered contains floodplains, wetlands, fragile landscapes, or historical/ archeological sites; and

Environmental & Historic Preservation Red Development of the site directly impacts floodplains, wetlands, fragile landscapes, or historical/ archeological sites.

Soil, Drainage, and Terrain Conditions Within the overall site size, the amount of buildable area and configuration are an integral consideration – it has to be sufficient enough to accommodate the building and vehicular circulation, parking as well as load bearing capacity. Flood plains, steep slopes and other aspects of a site can significantly reduce the buildable area for a project.

Soil, Drainage & Terrain Green The site has adequate load bearing capacity, drainage, run-off, and topography for development;

Soil, Drainage & Terrain Yellow The site will require special techniques, foundation work, or additional drainage systems to support development; and

Soil, Drainage & Terrain Red The site does not provide adequate load bearing capacity, drainage, run-off, and topography to support development.

Ease of Development The question here is whether or not issues exist with the site that will create difficulty in acquisition, development, or use. The relative difficulty of implementation comes into play because the County would like to have an expedited schedule, should the project proceed. The primary focus in the aspect of site characteristics is whether or not on-site conditions will require additional effort and/or cost.

Ease of Development Green The site is clear and free from material defect which would require improvement;

Ease of Development Yellow The land is clear, but requires some sort of remediation; and


Page 4- 7

Ease of Development Red The land has existing structures requiring demolition and/or requires some form of remediation.

Sustainable Design Initiatives Public projects need to show leadership in sustainable design and “green building” elements to minimize costs to the public for long term operation and to conserve natural resources, particularly in terms of energy conservation.

Sustainable Design Green The site has the potential to use its orientation, exposure, and land area to develop energy efficient systems as part of the project;

Sustainable Design Yellow The site has the potential to use its orientation, exposure, or land area to develop energy efficient systems as part of the project; and

Sustainable Design Red The site cannot support sustainable design initiatives in terms of energy efficient systems.


Page 4- 8

SITE EVALUATIONS: Information on each site was collected including property lines, site size/buildable area, aerial view, potential site cost, ownership, current zoning, distance to nearest expressway, travel time to the downtown courts, existence of wetlands or flood plains, condition of terrain and utilities – basic information that impact whether or not the site would be viable for use.

Stop Light Chart: The site evaluation criteria outlined at the beginning of this section were applied to the various sites using a simple technique of using the colors of a stop light - green, yellow, and red - to indicate relative performance for each criteria, where:

Green is good, meets objectives, no real issues: Yellow is marginal, close to meeting criteria; and Red is poor, does not meet objectives, indicates issues at some level of difficulty that may have to be overcome.

This technique is used to graphically indicate evaluation results for each criterion and provide a visual display to quickly illustrate how each site is rated overall. Each site is a combination of attributes and potential issues; such issues may or may not be not be fatal flaws, other than a site that is just too small to accommodate basic requirements.

Evaluation Matrix

Note: Site address and data intentionally not shown.

Site ID Region Size

Ow

ners

hip

Cor

rect

iona

l

Buf

fers

Zoni

ng

TAR

TA

LE A

cces

s

Cou

rt

Roa

ds

Util

ity

Med

ical

EHP

Terr

ain

Dev

elop

men

t

Ener

gy

1 North

2 Central

3 North

4 North

5 North

6 East

7 Central

8 North

9 South

10 South

11 South

12 Central

13 East

14 East

15 East

16 West

17 West

18 East


Page 4- 9

As shown graphically above, there are five sites with two or fewer “red” issues to deal with. Getting into the detail, none of those issues are insurmountable. Additionally, the sites identified represent a range of options, but a serious effort to locate the project once it is determined to go forward would likely identify more opportunities.

FEASIBLE SITES: As stated at the beginning of this section, the scope for the New Jail

Feasibility Study is simply to determine if feasible sites exist where the project could be implemented without great difficulty. The scope was not to identify a “selected site” – that will only need to be done after the County decides to proceed with the project.

The finding is that feasible sites do exist within the County for this initiative, if the County decides to undertake design and construction of a new pretrial detention facility. At least four sites were identified to the County Commissioners that would serve as adequate project development sites.

From the site investigation and evaluation effort, locations deemed feasible sites for the project does not mean one of them will definitely be the ultimate site selected – only that these sites demonstrate that multiple, feasible locations exist within the County.

New Jail Feasibility Study Lucas County, Ohio Final Report October 14, 2014 SECTION 5: FINDINGS AND RECOMMENDATIONS

Page 5- 1

INTRODUCTION: This section of the report brings together the information and findings from earlier sections to summarize basic findings, then to put this information together to examine the cost/benefit of continuing to operate the existing facility in comparison to developing a new replacement facility.

In the final financial analysis, the cost baseline is set by using the current 2014 authorized budget in three overall categories: Capital Construction Cost by calculating the cost of financing

renovation and/or new construction required; Operational Costs, including Personnel Costs (salaries and benefits) and

Non-Personal Costs; and Plant Operation Costs, including utility services.

The evaluation of all potential options is in comparison to the 2014 baseline cost on an annual basis.

KEY FINDINGS: The preceding portions of the study process, and documentation, investigation and analysis of the various aspects of the project has resulted in some key findings. These are summarized below by category:

Existing Facility Conditions Initially, the consultant team needed to become familiar with the existing

facility, the staff, and operational characteristics of the Lucas County Corrections Center. Key findings included: Physical Aspects

Multiple site visits, tours, and discussions were used to understand the utilization and operation of the existing facility at 1622 Spielbusch Avenue;

Any replacement facility needs to include the Sheriff’s Office and other related functions currently housed in the building in addition to its current pretrial detention use;

The current facility has a rated capacity of 342 beds plus 24 medical beds. Occupancy routinely reaching 425 has occasionally reached 495 inmates (135% of rated capacity);

To reach the low end projected need in 2025 of 575 pretrial beds, 233 additional beds [575-342= 233, since medical beds should not be counted as rated capacity] would have to be added to the existing facility. Given the current building location and configuration, there is no feasible way to increase its pretrial detention capacity to that level;

The existing facility has such a lack of the required operational space and is in such poor physical condition, it is deficient in almost every category examined; and

The existing building envelope, primary systems, communications and security electronics all need immediate attention and would have to be replaced over the next 20-year planning horizon.


Page 5- 2

Operational Aspects

In addition to a lack of area and appropriately designed space, the existing facility is staff inefficient, requiring a higher staff to inmate ratio than other facilities across the Midwest of similar size and scope;

Significant inmate movement is required in current operations, made more difficult by the poor elevator service in what is a high rise building;

Existing housing units are small, as few as 12 beds, with poor sight lines, whereas new facilities have housing units of 48 to 64 beds and much improved visual and physical supervision capability;

Typically, only intermittent supervision of inmates can be provided in the existing facility, given its design and configuration;

Since its construction, there have been significant increases in special needs populations such as acute mental health, medical problems, and major security risk individuals for both male and female inmates. The existing facility has only limited “purpose built” housing for such inmates, which creates major operational issues; and

Working conditions suffer from a lack of good air quality and sunlight in housing and other areas of the facility.

Population Projections On a parallel track, data collection/analysis and interviews across the criminal justice system were used as a basis to project total pretrial service loads and in-custody population projections. Multiple mathematical models were used to project needs on a range of factors before a consensus projection was reached with key stakeholders.

Key findings included:

The prior Pretrial Services analysis performed by the National Institute of Corrections for the County was a valuable precursor to the inmate population projections incorporated in this study;

Interviews were conducted with the relevant agencies to develop a comprehensive understanding of the criminal justice system in Lucas County;

Court orders circumscribe management of the in-custody population by specifying time to mandatory release depending upon offense classification as a means of population management. Court orders also prohibit double bunking existing single cells in the facility;

The County and criminal justice agencies are establishing a risk-based pretrial assessment instrument and release matrix to qualify individuals for alternatives to incarceration. Implementation of this, with appropriate release mechanisms, may be required to eliminate the need for the current Federal Court Order. Population management from the “front end” rather than the “back end” is needed to reduce total in-custody inmate requirements now and in the future;


Page 5- 3

Current daily population is in the range of 425 individuals. Based upon current needs, the Pretrial Detention Facility should have 526 beds to accommodate current in-custody population peaking, classification separations, and maintenance requirements; and

Based on the most likely mathematical model results, the projected bedspace requirement for 2025 would be 624 beds. With aggressive population management initiatives in place, the projected population could be held to between 575 and 624 for a relatively long duration; without that effective population management effort, the County would need to build as many as 725 - 765 pretrial beds – at a significantly higher capital and operational cost to the County.

Space Requirements A series of working sessions were conducted with the Sheriff and key staff involved in running the Jail, along with representatives of the workforce and other effected agencies. In these working sessions, national best practices were discussed and an operational intent was forged for each functional component area of the proposed facility. Key findings included:

A commitment by the Sheriff’s Office for the direct supervision model supported by Inmate Behaviour Management (IBM) in housing units of 24 beds in high security areas and 48 beds in the balance of the pretrial facility;

Housing units with either single occupancy or multiple occupancy cells (no 2-person cells);

Enthusiasm for adopting the range of best practices outlined in Section 3, including:

Minimizing inmate movement Targeting programs and services for pretrial inmates consistent with

Ohio statutory requirements Providing sufficient housing units and subdivisions within to

accommodate the range of required classification separations

Space requirements generated consistent with current functional component areas and projected staffing, replacing existing functions at 1622 Spielbusch (pretrial detention and Sheriff’s Office) in kind;

Development of operational concepts consistent with both Ohio Department of Rehabilitation and Corrections (ODRC) statutory requirements and with American Correctional Association (ACA) Standards for Adult Local Correctional Facilities. This will facilitate future ACA accreditation of the facility;

Provision of adequate conditions of confinement to mitigate and eliminate current court oversight of the facility;

Provision of 575 pretrial beds to meet current and projected “low end” 2025 needs;


Page 5- 4

Incorporation of a 48-bed sentenced inmate cadre housing unit for inmate workers, ending reliance on pretrial status volunteers;

Preference for a single level facility to make circulation and movement simpler than in a high rise facility;

Incorporating improved staff services and training areas that will be shared by all divisions of the Sheriff’s Office;

Providing a core of administration, program, and support space that will accommodate future capacity expansion beyond the initial 575 pretrial beds if population management issues do not reduce projected needs;

Incorporating only the space required to meet operational intent and requirements of the facility;

Incorporation of sustainable design initiatives to provide improved environmental conditions; and

Maintaining a focus on staff, inmate, public safety and security in all aspects of the facility.

Detailed space programming produced an overall projected space requirement of 266,772 building gross square feet for the 620-bed option, summarized as follows:

Facility Common 21,150 bgsf Sheriff’s Office 19,418 bgsf Detention Center 226,204 bgsf 266,772 bgsf

Refer to Appendix B: Space Requirements. Note that the existing facility totals approximately 216,000 bgsf.

Site Investigation An essential question if a facility is to be replaced is whether or not there are one or more feasible sites on which it can be developed. In pursuing this aspect of the project, key findings included:

Development of site identification and evaluation criteria specifically defined for Lucas County;

A key evaluation factor was site size, since it was estimated that a site area of 12 acres or more would be required to have a single level project of 575 beds or more;

County realization that based on the site criteria to be applied that it was unlikely to find a feasible site immediately adjacent or close to the current facility, Common Pleas, and/or Toledo Municipal Courts;

Identification of 18 potential site options in 17 locations for consideration, followed be investigation and documentation of key site characteristics, including physically examining each site in person;

Through discussion with key County representatives and detailed analysis using evaluation criteria, boiling down the most favorable locations to 3-5 feasible sites; and


Page 5- 5

While sites on the list that were evaluated may or may not be ultimately used if the County decides to proceed with the project, this effort did conclusively demonstrate that feasible sites do exist in the County.

Operational Improvements An important consideration for a replacement project is the opportunity to operate the new facility more effectively by planning and designing in improved operational concepts and strategies. In a sense, this is a list of what the new facility will incorporate as operational improvements that aren’t available in the existing facility. For the proposed project, operational improvements will include:

Increased Use of Technology Information quality and timeliness, communications and coordination will be improved through the application of current technology for:

A content management system for the inmate information management system and coordination internally and with other agencies;

Continued use of a new inmate classification system providing better information and results;

Video Court Arraignment, with significant reduction in court transports;

Kiosks for deposit of funds into inmate accounts;

Kiosks in housing units to place commissary orders and to request medical attention; and

Increased use of video visitation, including the potential use of off/site/remote visitation.

An Integrated Security System Security, control, safety, recording, and monitoring will be significantly upgraded through use of an integrated security system, which will also permit more local staff access control within their work zones.

Reduced Inmate Movement Operational efficiency will be improved by reducing the number of times inmates have to leave the housing units, by providing the following in each housing unit:

Dining (dayroom or in cell); Video Visitation (and potential court appearance); Commissary and sick call requests; Recreation; Medical Exam and Medication Distribution; Confidential Interview; and Counseling and/or Small Group Program spaces for education,

information, and AA and NA meetings.


Page 5- 6

Purpose Built Housing Custom designed housing units for special needs individuals::

Segregation and Protective Custody; Acute Mental Health (joint management); Chronic Mental Health; Classification; Medical Infirmary; Suicide Watch; Safety Cells; and Female multi-custody level hybrid housing units.

Mental Health Integration With mental health a major concern in the inmate population, integration of work, counseling, and meeting space in and adjacent to housing units for those inmates.

Improved Staff Facilities Provision of lockers for all staff (which are not provided now), staff work out areas, and break areas.

Improved Training Facilities An improved training environment for the shared training area, including:

Adequate work space for permanent and temporary training staff; A large, sub dividable training classroom; and A cell extraction training cell.

Improved Medical Facilities Significantly increased capability for delivery of medical, mental health, and dental services, including:

Medical Interview/Exam Rooms on every housing unit; 24 inpatient infirmary beds vs. the standard cells used in the existing

facility now; Additional Exam/Treatment space, incorporating telemedicine

capability; Improved dental treatment capability; and Specialty Treatment space provided to permit contracted specialty

clinics to be conducted in the facility vs. hospital.

Improved Work and Living Environment Integration of sustainable design initiatives such as better air quality, increased daylighting and other elements will provide a healthy work and living environment. Improved working conditions reduce workers compensation and sick leave requests. Sustainable design initiatives also reduce operational costs for primary utilities.


Page 5- 7

Incorporation of a Cadre Housing Unit Pretrial status inmates may only work at facility tasks if they volunteer to do so. The proposed project will incorporate a 48-bed sentenced inmate housing unit that will provide inmate workers (cadre) for food service, laundry, housekeeping, grounds keeping and the like – which will reduce the costs of beds at CCNO and for facility operations.

Adequate Space Throughout the existing facility administration and support functions are scattered and have inadequate space. These deficiencies will be corrected in the new proposed facility.

PROJECT DEVELOPMENT In order to compare the relative cost benefit of continuing use of the existing

facility in comparison to developing a replacement facility, the capital, personnel, and other non-personnel operational costs of each scenario need to be calculated and compared.

Implementation Schedule: For a new replacement facility, an aggressive schedule for implementation was defined as follows: Selection of a Design Firm in December, 2014

Project Bidding in September, 2015

Start of Construction in November, 2015

Completion of Construction in November, 2017

This is an aggressive schedule and would place the mid-point of construction in November of 2016 – allowing 24 months for construction.

New Facility Construction Cost: The development of a new 620-Bed Pretrial Detention Facility and Sheriff’s

Office will be a major capital project. The space requirements developed in detail in Section 3 provided the basis for capital cost estimating by the teams’ cost estimators1.

By applying a cost per square foot for each different functional component area, an overall project construction cost was generated. Part of this calculation included adding factors for the following:

Building Gross Area factor Adding 15% to account for the area required beyond the total component gross areas for building circulation, exterior wall thickness, and mechanical spaces, chases;

1 Parametrix of Salt Lake City, specialists in correctional facility projects nationally, and Swint Consulting Services of Toledo for local expertise.


Page 5- 8

Project Soft Costs Adding 30% to cover the costs of Design and Construction Contingencies; Architectural/Engineering fees; Furniture, Fixtures, and Equipment (FF&E); Information Technology; Permits & Fees; and County Management costs; and

Escalation Based on an aggressive schedule, the project is assumed to be bid in September, 2015 and start construction in November, 2015. Construction costs are calculated to the mid-point of construction (November, 2016) at 3% annually from the start of construction.

As shown in the following graphic, the construction costs are developed in major categories, including:

Site Development No cost is included at this point for site acquisition, since it may be at little or no cost, if in current government ownership. This cost will depend upon what site is selected for development. The cost of demolition of the existing facility is included, and this must be done to prevent continued use of the existing facility once the new one is up and running. In terms of actual site development, the roads and more than an acre of parking are the major costs.

Facility Common The elements in this category will serve public access and Staff Services & Training functions – which will be shared between the Detention Facility and the Sheriff’s Office.

Sheriff’s Office The elements in this category will replace all the current Sheriff’s Office functions at 1622 Spielbusch Avenue in appropriately sized space.

Detention Center All the elements required to provide administration, housing, program and support space for a 620-bed facility.


Page 5- 9


SITE DEVELOPMENT

SFUNIT COST

COST Comments

00. Demolish Existing Buildings $1,512,00000. Site Acquistion To Be Determined

00. Site Improvements - 14 Acres 610,000 $12.00 $7,320,000Includes Public and Staff Parking - 64,200 SF

subtotal $8,832,000 Total Site SF - Not Building Area

CGSFUNIT COST

COST Comments

A: FACILITY COMMON01 Entry Area 1,775 $300.00 $532,50002 Staff Services & Training 8,308

Staff Locker Areas 4,650 $385.00 $1,790,250Staff Training Areas 3,658 $315.00 $1,152,333

subtotal 18,391 $188.95 $3,475,083 Total CGSF

Building Gross Area Factor 1.15 2,759 $188.95 $521,262Facility Common 21,150 $188.95 $3,996,345 Total BGSF

CGSFUNIT COST

COST Comments

B: SHERIFF'S OFFICE03 Executive Administration 3,026 $325.00 $983,58004 General Administration Area 3,263 $315.00 $1,027,84505 CCW/ Registration/ Records 2,192 $315.00 $690,41706 Task Force Area 2,041 $315.00 $642,91507 Internal Affairs 1,183 $315.00 $372,64508 Detective Bureau 1,664 $315.00 $524,16009 Resource Center 1,092 $315.00 $343,98010 Evidence Storage 2,424 $300.00 $727,200

subtotal 16,885 $314.64 $5,312,742 Total CGSF

Building Gross Area Factor 1.15 2,533 $314.64 $796,911Sheriff's Office Total 19,418 $314.64 $6,109,653 Total BGSF

DETENTION CENTER11 Custody Administration 2,652 $320.00 $848,640 Inside v s. Outside Security Env elope

12 Central Control 5,408 $500.00 $2,704,000 Includes Arm ory , Mobile Com mand


Secure Vehicular Sallyport 2,700 $205.00 $553,500

Processing Area 8,316 $385.00 $3,201,660

Dress in/ Dress out 2,687 $345.00 $927 ,050

Court Related Area 3,159 $385.00 $1,216,215

Electronic Monitoring Area 1,87 2 $345.00 $645,840

14 Inmate Services 2,509 $345.00 $865,605Central Functions, Balance in 24 Direct Housing Support

15 Visitation 1,248 $320.00 $399,360 Assumes Video Visitation

16 Health Services 12,168Health Services Administration 1,386 $345.00 $478,101 Core Area

Outpatient Clinic 3,808 $415.00 $1,580,320 Outpatient

Dental Clinic 702 $450.00 $315,900 Outpatient

Infirmary + Suicide Watch 6,27 2 $390.00 $2,446,080 Inpatient

17 Mental Health Services 582 $345.00 $200,928 Adjacency to MH housing

18 Commissary 1,023 $315.00 $322,245 Contracted Serv ice

19 Food Service 10,621 $515.00 $5,469,81520 Laundry 5,934 $430.00 $2,551,62021 Building Support 13,508

Warehouse 6,792 $230.00 $1,562,160 Includes Loading Dock Area

Maintenance 2,97 6 $285.00 $848,160

Central Plant 3,740 $205.00 $766,700Equipment Costs Prorated to Various Building Areas


Component

Component


Page 5- 10

Renovation Cost: In evaluating the cost difference between building a new replacement facility and continuing use of the existing facility, it is also necessary to examine what the cost will be to continue use of the existing facility physical environment for another 20 to 30 years.

With the original construction dating from 1977, the facility is already 37 years old and it reflects the typical hard use such facilities are subjected to 24 hours a day, 7 days a week. The existing facility is not in good condition and will require major renovation work to carry it operationally for another 20 years or more.

Evaluation of Existing Physical Condition The DLR Group/SSOE team used a simple evaluation process based upon our extensive experience in evaluating the condition of existing facilities.

Each major building element was rated on a scale of 0 to 5 as follows:

0 Not Required 1 Excellent, Like New Condition 2 Good Condition 3 Moderate Condition 4 Marginal Condition, Replace in Near Future 5 Poor Condition or Lacking, Needs Immediate Replacement

Using these ratings, the next step was to look at a 20 year horizon and estimate how much work the existing building would require.

Rated Beds CGSF

UNIT COST

COST Comments

DETENTION CENTER - ContinuedHousing Areas22 Maximum Security Housing Unit 24 5,968 $415.00 $2,476,720 1 24-cell unit

23 High Security Mental Health Housing Unit 20 6,994 $430.00 $3,007,334 1 24-cell unit, 20 rated beds

24 High Security Single Cell Housing Units 192 40,160 $405.00 $16,264,800 4 48-bed single cell unit

25 Medium Security 4-Person Room Housing Units 192 30,570 $350.00 $10,699,500 4 48-bed units

26 Medium Security 8-Person Mini-Dorm Housing 192 33,060 $320.00 $10,579,200 4 48-bed units

27 Direct Housing Support 5,560Unit Management Areas 2,278 $360.00 $819,936

Inmate Services/ Case Management 2,886 $345.00 $995,67 0

Support Services Areas 396 $320.00 $126,720

subtotal 620 196,699 $370.48 $72,873,779 Total CGSF

Building Gross Area Factor 1.15 29,505 $370.48 $10,931,067Detention Center Total 226,204 $370.48 $83,804,845 Total BGSF

266,772 $385.13 $102,742,844Total Building Area/ Construction Cost

30.0% $30,822,853

TOTAL - Site, Common, Sheriff's Office, Detention Center $133,565,697 Project Cost w/o Escalation

6.35% $8,481,422

assumes 24 m onths of construction starting in 1 1 /201 5

TOTAL - Site, Common, Sheriff's Office, Detention Center $142,047,119

Project Soft Costs: Design/Construction Contingencies; A/E Fees; Allowances for FF&E, IT, Permits and Fees, County Management

Escalation - 3.0% per Year Compounded to the Midpoint of Construction - November 2016

TOTAL - Site, Common, Sheriff's Office, Detention Center

Component


Page 5- 11

As shown in the graphic summary above:

The largest deficiencies for long term continued use are communication/ technology and electronic security systems – both of which are totally deficient by today’s standards;

The General Structure category includes interior finishes and vertical transportation. The elevators would need to be replaced soon, but it is also necessary to do a general interior refinishing (floors and walls, ceilings) every 20 years in this building type;

Major costs will also be incurred in the HVAC system and electrical system to replace worn out equipment and to achieve some energy efficiency; and

It should be noted that whatever condition the roof is in today, it will need to be replaced within the next 20 years.

The amount of work necessary to continue use for another 20 years is considerable – $44.5 million. When project soft costs of 30% are added (as in new construction) this grows to $57.8 million. When escalation is added, the total cost rises to $61.5 million. This cost counter balances what would otherwise have to be spent for a new replacement facility.

20-Year Renovation Cost for Existing Facility

Facility: Lucas County Jail

Area: 216,000

Indexed Average Cost/SF $400.00

Element Relative ValueRelative Total

Cost

Physical

Rating

Physical

Rating %

Resulting %

Work NeededResulting Cost

Primary Building SystemsGeneral Structure* 22.00% $19,008,000 3 65% 35% $6,652,800Exterior Wall/ Fenstration 6.00% $5,184,000 3 70% 30% $1,555,200Roof 4.00% $3,456,000 5 0% 100% $3,456,000ADA Compliance 2.00% $1,728,000 4 25% 75% $1,296,000Life Safety 6.00% $5,184,000 4 25% 75% $3,888,000Fire Protection 5.00% $4,320,000 4 25% 75% $3,240,000Graphics/Signage 1.00% $864,000 4 25% 75% $648,000Plumbing Systems 10.00% $8,640,000 3 75% 25% $2,160,000HVAC Systems 17.00% $14,688,000 4 50% 50% $7,344,000Electrical Systems 12.00% $10,368,000 3 75% 25% $2,592,000Communication/ Technology 6.00% $5,184,000 5 10% 90% $4,665,600Electronic Security 9.00% $7,776,000 5 10% 90% $6,998,400

100.00% $86,400,000 $44,496,000*category includes general interior finishes and architectural elements including elevators. residual value 48.5%

Capital Costs for Continued Use of Lucas County JailBase Construction Cost $44,496,000

Project Soft Costs @ 30% $13,348,800

Total 20-Year Project Cost (No Escalation) $57,844,800Escalated Cost (6.35%) $61,517,945


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Best practices in terms of facility management dictate that a building that requires reinvestment approaching 50% of the cost of replacement should be given serious consideration for abandonment. Such is the case with the existing Lucas County Correction Center.

EXISTING STAFFING ANALYSIS: Capital construction cost (A/E fees, FF&E, and Construction) is a

significant cost, but in a twenty or thirty year life cycle cost analysis, it only represents about 9% of total cost of operation, as shown below:

The major factor in overall cost of operation of a secure facility is staffing-related salaries and benefits. In order to staff a single post 24 hours a day/ 7 days a week takes 5.3 Full Time Equivalent (FTE) positions. At an average salary plus benefit cost in Lucas County of $66,906, this translates into $334,602 annually for each 24 hour uniformed officer post. Therefore, it is important to try and reduce the number of 24 hour posts required to manage inmate housing areas.

Existing Facility Housing Staffing One of the most important issues facing the LCSO in the existing building is

the excessive staffing required to supervise the small and poorly configured housing units. The current facility has a total of 22 housing units distributed over 5 floors of housing. As a primary driver of overall operational costs, housing is a focus to improve upon in a replacement facility.

Existing housing area staffing is shown in the following graphic:

Staffing Cost 60% Utilities and

Maintenance 20%

Miscellaneous 2%

Food and Inmate

Services 9%

Construction 7%

A&E Fees .5%

F&E 1.5%


Page 5- 13

In the staffing compilation above, the Overtime Equivalent in the existing

facility was cited as an important element. The facility is experiencing a high level of overtime due to the poor configuration and working conditions in the facility. The majority of this overtime is attributed to the housing areas, where most of it is generated through sick time and other factors. Through analysis by LCSO, it was estimated that the level of overtime generated by the housing area was essentially equal to 22 Full Time Equivalent positions (FTE’s)2.

2 Payroll/Budget staff accounting by Lucas County Sheriff’s Office on June 25, 2014 totaled 151.0 staff in housing; variation from this graphic summary attributable to overtime equivalent, different date, small change in budgeted to actual positions, and rounding.

Lucas County Jail - Existing Housing Staffing1

Floor No. of Type Area Staffing

Level Units Capacity2 1st 2nd 3rd Other Post Relief Total

2Control 1 1 1 1 5.3 5.3

2N 0 cells 12 02S 1 medical 12 1 1 1 1 5.3 5.32S 1 2 1/2 12 1 1 1 1 5.3 5.32E 2 dorm 52 2 2 2 2 5.3 10.6

2E Floater 1 1 1 1 5.3 5.3Kitchen Escort 1 1 1 3.53 3.53Medical Floater 1 1 1 3.53 3.53Suicide Watch Varies 3 3 3 3 5.3 15.9

Overtime Equivalent 22.2

3Control 1 1 1 1 5.3 5.3

3N 2 cells 24 1 1 1 1 5.3 5.33S 2 cells 24 1 1 1 1 5.3 5.3

3E & 3W & 3D 1 cells 16 1 1 1 1 5.3 5.3

4Control 1 1 1 1 5.3 5.3

4N 2 cells 24 1 1 1 1 5.3 5.34SE & 4SW (Discipline) 2 cells 24 2 2 2 2 5.3 10.6

4E & 4W 1 cells 10 1 1 1 1 5.3 5.3

5Control 1 1 1 1 5.3 5.3

5N 2 cells 24 1 1 1 1 5.3 5.35S 2 cells 24 1 1 1 1 5.3 5.3

5D & 5W 1 dorm 26 1 1 1 1 5.3 5.3Video Court Escort 1 1 1.76 1.76

5th Floor Floater 1 1 1 1 5.3 5.3Jail Floater 1 1 1.76 1.76

6Control 1 1 1 1 5.3 5.3

6N 4 cells 24 1 1 1 1 5.3 5.36S 4 cells 24 1 1 1 1 5.3 5.3

6E & 6W 1 cells 10 1 1 1 1 5.3 5.3

342 175.88

actual head count 425 FTE's without Overtime Equivalent above3 153.68

1: Corrections Officers only without Supervision Management Positions; Data from 2014 JCA Final Report2: Area Capacity column is reflecting the rated capacity, not necessarily the current usage, which includes cots3. Once all Non-Housing Staff accounted for, there were 151 CO/Deputy employees left on personnel compilation.


Page 5- 14

Existing Facility Non-Housing Staffing

The financial analysis also has to consider the staffing required for all other areas besides housing. Many of these positions are also filled with officers (highlighted in blue) to maintain safety and security in the facility. Existing non-housing staffing is shown below:

Site Development

Outside Patrol Outside Security included in Central Control section

Entry Area

Reception Desk Deputy Sheriff x 1

Security Screening/ Metal Detector Deputy Sheriff x 5

Training

Training Director Director x 1

Training Staff Deputy Sheriff x 3

1 9

SHERIFF'S OFFICE Position Civilian Uniform Civilian

FTEs

Uniform

FTEsNOTES

Executive Administration

Sheriff Elected Sheriff 1 1

Community Affairs Director/DARE Director x 1

Law Enforcement Major Major/Chief Deputy x 1

Executive Secretaries (Secretary to Sheriff) Secretary x 1

Corrections Administrator Major x 1

Captain of Armory Captain x 1

Administrative Assistants Secretary x 2

General Administration Area

Director of Finance & Operations Director x 1

Finance & Operations Adm Assistant Secretary x 1

Director of Personnel Director x 1

Personnel Staff Workstations Payroll Specialists x 3

Commissary Clerk Clerk x 1

CCW/ Registration/ Records

Public Service Counter Clerk x 1 1 Records Clerk

Records Captain Captain x 1

Records Sergeant Sergeant x 2

Records Staff Workstations Clerk x 8 8 Record Clerks

Registration Staff Workstation Deputy Sheriff x 1

Task Force Area

Bulk Currency Director Director x 1

Fugitive Task Force Director Director x 1

Drug Task Force Deputy Sheriff x 1

Drug Intervention Officer Deputy Sheriff x 2

Internal Affairs

Director of Internal Affairs Captain x 1

Investigator Offices Deputy Sheriff x 1

Detective Bureau

Detective Sergeant Sergeant x 2

Detectives Detectives x 3

Resource Center

Manager's Office Sergeant x 1

Staff Workstations Resource Officers x 3

Evidence Storage

Evidence/ Property Clerk Deputy Sheriff x 1

16 29

NOTESPosition Civilian Uniform Uniform

FTEs

Civilian

FTEsFACILITY COMMON


Page 5- 15

DETENTION FACILITY Position Civilian Uniform Civilian

FTEs

Uniform

FTEsNOTES

Custody Administration

Director of Security Captain x 1

Shift Supervisor Sergeants x 1510 Jail Sgts, 5 Booking Sgts - group pool, assigned as required

Senior Command Lieutenants x 54 Jail Lt's, 1 Booking Lt. - group pool, assigned as required

Central Control

Main Security Vestibule C/O- Deputy x 5 5 C/O - D/S

Master Control Room C/O- Deputy x 5 5 C/O - D/S

Outside Security C/O- Deputy x 10 10 C/O - D/S

Booking/ Release

Booking Officers C/O- Deputy x 41 group pool, assigned as required

Transportation Officers C/O- Deputy x 4 group pool, assigned as required

Court Related Area

Judicial Postions Staffing by Courts

Video Arraignment Officer x 1 1 Jail C/O-D/S

Video Arraignment Coordinator x 1 1 Booking Officer

Electronic Monitoring Unit

Supervisor Staffing by Pretrial Services

Staff Workstations Staffing by Pretrial Services

Inmate Services

Inmate Services Director Director 1

Inmate Services Supervisor Supervisor 1

Inmate Services Clerical Staff Clerk x 2

Counselors Counselor x 21 21 Counselors - non-uniformed, group pool

Recreation Officers C/O- Deputy x 4

PT Teacher/ GED Instructor x 0.5

Library/ Law Library Counselor 11 Counselor assigned to run Library M-F 2nd shift

Visitation

Visiting Security, Information Desk covered by lobby reception

Health Services

Health Administration Area 15 total civilians in budget

Medical Director Director x 1

Staff Offices RN/LPN x 11.5 11FT, 1 PT

Special Projects Nurse RN/LPN x 0.5 1 PT

Medical Clerk C/O-Deputy x 1

Outpatient Clinic

Security Station Deputy Sheriff x 0 in housing staffing as medical floater.

Dental Suite

Dental Staff contracted service

Inpatient Infirmary

Nurses Station 0 covered in staffing above

Officer's Station Infirmary Officer x 0 covered in housing staffing

Mental Health Services

Mental Health Supervisor Staffing by Another Agency

Staff Workstations Staffing by Another Agency

Case Management

Case Management Supervisor covered in Inmate Services

Case Managers covered in Inmate Services

Food Service

Food Service Supervisor contracted service

Security Staff x 0 reflected in Housing - Kitchen Float

Laundry

Laundry Staff C/O - Deputy x 3

Building Support

Warehouse

Warehouse Manager Director x 0.5 1 part time

Sanitation Officers Sanitation Officer x x 7

Maintenance

Maintenance Office Staffing by Another Agency

Maintenance Shops Staffing by Another Agency

39 104

TOTAL STAFFING SUMMARY non-housing civilian 56 142 non-housing uniform

151.0 housing uniform

56.0 293.0349.00


Page 5- 16

Supervision Management Positions The Lucas County Sheriff’s Office provides supervision and leadership of

correctional officers in a relatively unique approach of using “pools” of lieutenants and sergeants that are deployed as needed over the course of each week. Current staffing includes 5 lieutenants and 15 Sergeants. In terms of executive leadership, the Corrections Administrator (Major) is allocated to the Sheriff’s Office, while the Chief of Security (Capt.) and below are allocated to the non-housing staffing chart above.

Similarly, a staff pool is also used for the Counselors/ Case Managers, with 21 current positions shown under the Inmate Services component. These positions are accounted for in the Non-Housing Staffing chart.

Existing Staffing Ratios Based upon the 2014 authorized budget adjustments and staff compilation

done for this project3, the total staffing for the Lucas County Corrections Center is 151.0 officers for the housing areas and 142 officers, 56 civilians in non-housing positions, for a total of 349 staff. [151 + 142 + 56= 349] At a typical (overcrowded) head count of 425 inmates, this produces a total staffing ratio of one staff person to every 1.33 inmates.

Looking at just housing areas, the staffing ratio is 1 uniformed correction officer for every 2.8 inmates. [425/151 = 2.81]

3 Payroll/Staff Compilation by Lucas County Sheriff’s Office, June 25, 2014, totaled 349 employee positions. This is somewhat less than the original 356 authorized budget positions.


Page 5- 17

PROPOSED STAFFING A working session was conducted with the Sheriff’s Office to review each functional component area, including housing, to arrive at the necessary staffing changes to support a new, higher capacity facility. While the housing areas produced some major savings, some additional non-housing area staff would be required to go to the 620 bed capacity level.

Proposed Facility Housing Staffing For the proposed 620 Bed replacement facility, a total of 13 housing units

would be provided, approximately half the number of housing units as in the existing facility.

A total of 125.4FTEs housing area staff would be required in the proposed

620-bed facility in comparison to 175.9 FTEs for housing areas at the existing facility (342 rated beds and housing an average of 425 inmates). This creates a staff savings of 50.5 FTEs in the housing area staff [175.9-125.4= 50.5]. At the average annual uniformed officer cost of $66,906 this produces a savings of– a savings of $3.375 million annually. Staff savings in housing areas will vary by option, but new housing unit design and configuration will provide a real opportunity for improved staff ratios as staff requirements in other aspects of facility operation need to be increased.

Lucas County Proposed Jail Staffing - Housing - 620 BedsHousing Unit No. of Type Area Staffing

Level Units Capacity* 1st 2nd 3rd Post Relief Total

1A: Segregation/Maximum 1 Max 24 2 2 2 2 5.3 10.61B: Acute Mental Health 1 Max 10 1 1 1 1 5.3 5.31C: Acute Mental Health (female) 1 Max 10 1 1 1 1 5.3 5.3

2: Single Cell Housing Unit 1 Classification 48 1 1 1 1 5.3 5.33: Single Cell Housing Unit 1 Female/Hybrid 48 1 1 1 1 5.3 5.34: Single Cell Housing Unit 1 General 48 1 1 1 1 5.3 5.35: Single Cell Housing Unit 1 General 48 1 1 1 1 5.3 5.3

6: 4-Person Cell Housing Unit 1 General 48 1 1 1 1 5.3 5.37: 4-Person Cell Housing Unit 1 General 48 1 1 1 1 5.3 5.38: 4-Person Cell Housing Unit 1 General 48 1 1 1 1 5.3 5.39: 4-Person Cell Housing Unit 1 General 48 1 1 1 1 5.3 5.3

10: 8-Person Mini-Dorm Housing 1 General 48 1 1 1 1 5.3 5.311: 8-Person Mini-Dorm Housing 1 General 48 1 1 1 1 5.3 5.312: 8-Person Mini-Dorm Housing 1 General 48 1 1 1 1 5.3 5.313: 8-Person Mini-Dorm Housing 1 Cadre 48 1 1 1 1 5.3 5.3

subtotals 620 16 84.8Medical Floater 1 1 1 3.53 3.53Suicide Watch Varies 3 3 3 3 5.3 15.9

Direct Housing Support Zone 1Zone Sergeant 0Rovers/ Escort 2 2 2 2 5.3 10.6


subtotals 40.6Totals 620 125.4

Average Uniformed FTE = $66,906Existing Housing Staffing at 342 rated beds, 425 inmates 175.9 Existing Housing Staffing CostHousing Staffing at 620 beds incl. Cadre 125.4 New Staffing Cost @ 620

50.5 Staff FTE savings at 620 $3,375,408

Accounted for in Non-Housing Staffing


$11,767,427$8,392,020


Page 5- 18

Other Required Staffing Adjustments In comparison to other jurisdictions, the existing non-housing staffing in

Lucas County is generally very tight. By this, we mean that a combination of budget/ staffing funding limitations and creative ways to accomplish required workload has resulted in a very efficient non-housing staffing pattern.

However, the increased bed capacity and number of in-custody inmates will require some additional staff positions, as outlined below:

Supervision Management Changes

Currently, there is a senior uniformed management pool of 5 Lieutenants – all of which would be available for deployment in the new facility as part of the baseline cost. In the new proposed facility one Lieutenant assigned to each shift (relieved at 5.0) will be required, plus one for regular work week position for administration and one for booking (both unrelieved). This will result in a need for a total of 7 Lieutenants, two more than exist in the pool today; and

Similarly, there is an existing pool of 15 Sergeants. In the new proposed facility there will be three Sergeants 24/7 (one in each Direct Housing Support zone and one in Booking/Release), which will require a total of 15.9 FTE’s. [3 x 5.3=15.9] Therefore, one Sergeant needs to be added to the existing pool of 15 Sergeants.

Other Non-Housing Area Changes

Four recreation officers now can be eliminated, since recreation will now occur at each housing unit, and activity/access emanating from the Housing Unit Officer.

The new facility will require two security screening locations, one at the public entry point, which will be covered by the existing screening staff, and more comprehensive screening at the point of entry into the secure part of the facility. This additional screening location will add 5 FTE’s for that purpose.

With a housing unit for 48 sentenced inmates (cadre) that will work in the facility, there will be a reduction in contracted food service costs with inmates working in the kitchen – but this will require the addition of 3 Officers to provide supervision when operating;

To ensure that maintenance work (staffed by another agency) is well coordinated with facility operations, two Maintenance Officers are added;

With a larger population, additional Counselors, who also serve as case managers, will be required to maintain an appropriate ratio of inmates to counselors;

With significantly more technology in use, a new position for Information Technology will need to be added.


Page 5- 19

Summary of Staffing Differentials Overall staffing changes to go from current staffing to a new replacement

facility are outlined on the graphic on the following page.

All told, a net staffing reduction of 35.5 FTEs is projected, which will provide net operational savings of $2.3 million annually from the current baseline.

Proposed Staffing Ratio: Based upon the proposed project configuration of 620 beds, the total staffing

for new Replacement Detention Facility (excluding the Sheriff’s Office per se) would be 125.4 FTE’s in the housing area and 158 [143 + 15] in non-housing area FTE’s for a total of 283.4 FTE’s for 572 pretrial beds and 48 sentenced inmate beds. At the operational capacity of 620 beds, this produces a staffing ratio of 1 staff person to every 2.18 inmates.

In simple terms, this means that the proposed 620-bed replacement facility can operate with 35.5 fewer FTE’s than the existing Lucas County Correctional Center with 342 rated beds and holding an average of 425 inmates. As shown above, this higher capacity is achieved at a cost of $2.3 million less per year in staffing costs.

Any time there is an opportunity to develop a new facility that significantly improves security, safety, and working conditions more cost effectively, there is a collateral concern about loss of jobs. In this case, there theoretically will be 35.5 fewer jobs in the new facility.

Anyone working in the facility today will almost certainly have a position due to current rates of attrition. Between 2004 and 2013, the annual average attrition rate in the Lucas County Corrections Division has been 27.2 FTE’s, which will be the primary means of adjusting staffing for the new facility.

620 Bed Replacement Facility Staffing Adjustments $66,906 Average Uniformed FTE

Housing Staffing

Existing Housing Staffing at 342 rated beds, 425 inmates 175.9 $11,767,427 Existing Housing Staffing Cost

Proposed Housing Staffing at 620 beds incl. Cadre 125.4 $8,392,020 New Staffing Cost @ 620

difference from existing 50.5 $3,375,408 Housing Staff Savings at 620

Other Staffing Adjustments @ 620 Bed Level

Supervision Management Changes (above baseline)

Lieutenants $89,254 2 $178,508 in addition to existing "pool"

Sergeants $82,355 1 $82,355 in addition to existing "pool"

Other Non-Housing Staff

Recreation Officers $66,906 -4.00 -$267,624

Sheriff's Office/ Facility Reception $66,906 5.00 $334,530

Food Service Officer $66,906 3.00 $200,718

Maintenance Officer $66,906 2.00 $133,812

Additional Counselors $68,315 5.00 $341,575

Information Technology $68,315 1.00 $68,315

difference from existing 15.00 $1,072,189 Cost of Other Staffing Adjustments

overall net change 35.5 $2,303,219 Net Staffing Savings


Page 5- 20

PROJECT FEASIBILITY With an understanding current and projected facility capital and essential ANALYSIS: operational costs in hand, annual cost analysis can be performed to test basic

feasibility of various options. This section presents that analysis for six basic options and variations:

Option 1: Existing Facility Continued Option 2: Continued Use with Boarding Out Option 3: Reuse of Existing plus 236 Bed Addition Option 4: Continued Use plus a 2nd Pretrial Facility Option 5: New Replacement Facility – 620 beds Option 6: New Replacement Facility – 572 beds

Assumptions In considering the relative value of different options, basic assumptions

include:

The current authorized budget for the Lucas County Correctional Center (Pretrial Detention and Sheriff’s Office) forms appropriate baseline costs for comparison, and options will be compared to the variations from that cost;

The proposed staffing developed in conjunction with the Sheriff’s Office for direct supervision housing units and staffing for program delivery can be achieved;

The most significant item for comparison is the total annual cost of the system to accommodate the both pretrial and sentenced inmates; and

In terms of financial feasibility, a favorable financing rate can be achieved.

OPTION 1: Existing Facility Continued: The County has operated the existing facility for 37 years at its present

capacity. As a point of beginning, we can document continued use as the “no change option” if no significant change is made in capacity provided. The liability in this option is that there is insufficient capacity for current need, much less additional capacity that will be required over time.

As shown in the following graphic, by far the largest proportion of total cost of operation is in personnel costs. While the existing Lucas County Corrections Center is currently budgeted at $26.48 million, those aren’t the only costs to be considered. Another cost would be the cost outlined earlier in terms of renovation, repair work required to keep the facility on line. [Refer to page 5-11 ] Adding the $61.5 million in renovation costs for that element, the annual cost to amortize bonds for that work would add $3.86 million each year.

In terms of accommodating the entire in-custody population, the cost of accommodating the sentenced inmate population of Lucas County and the City of Toledo at CCNO in Stryker adds another $10.57 million per year.


Page 5- 21

Source: Lucas County Sheriff’s Office, June, 2014, 2014 Budget

All told, accommodating the pretrial and sentenced inmates for Lucas County adds up to $40.9 million annually in constant 2014 dollars. Extending the annual cost out another 20 years would add up to $818.12 million. The difference between what is budgeted annually today for the Corrections Center and CCNO is the $3.86 million annually added on for capital repair and renovation work.

While many may say we haven’t changed anything in 35 years, why do we have to do something now? The answer is what exists today is not sufficient to accommodate current, much less projected needs. Moreover, the Lucas County Correction Center is, and has been, under Federal District Court Order and the requirements for compliance are completely outside Lucas County control. At any time the Court could order new requirements, which may or may not be what the County would prefer.

What is important to recognize here is that Lucas County is going to spend a very large sum of money over the next 20 years in housing pretrial and sentenced inmates, even if no changes are made in how that is done. The focus of the New Jail Feasibility Study then is to see if better performance and results can be achieved more cost effectively.

Capacity Parity: The other major factor to deal with is the bed capacity of the existing

facility, which has only 342 rated general confinement beds (+ 24 medical beds) in comparison to at least 526 beds required now and 575 beds required by 2025. For comparison of continued use of the existing facility to a new replacement facility, there are several ways to make up the 233 bed capacity shortfall [575 – 342 = 233] for 2025.

1: Existing Facility Continued: 342 Rated Beds cost

Existing Baseline





Renovation Work on Existing Facility $61,517,945



Sentenced Inmates

CCNO Contract Cost - 438 beds $10,565,000




Page 5- 22

OPTION 2: Continued Use With Boarding Out Boarding Out involves housing in-custody inmates in another County’s jail

and providing transportation back and forth. This requires no capital construction costs, but incurs heavy costs for the per diem rates charged – even at a relatively low boarding rate of $65/day this would be $5.5 million [$65 x 233 x 365] annually plus two vehicles and additional transportation officers. [$340,000 annually]4

This approach also assumes that Lucas County could locate one or more jurisdictions capable of boarding that many individuals.

Another issue is that the boarding out will be required for pretrial individuals, which present higher security risks than locally sentenced inmates, further adding to the difficulty in transporting those individuals. The other jurisdictions would likely want the lowest security individuals in custody, further complicating security issues at the existing facility.

If boarding out for 233 pretrial beds were required, this would raise the total system cost of Option 2 to $46.77 million annually; over 20 years this would add up to $935.48 million. Option 2 is definitely not more cost effective, in addition to being very difficult to manage. The cost summary for Option 2 is incorporated below:

4 Estimate by Lucas County Commissioners Office, July, 2014

2: Existing Facility + Boarding Out: 575 Rated Beds cost

Existing Baseline







Additional Pretrial Capacity

Boarding Out Cost (233 @ $65/day) $5,527,925

Additional Transportation Costs $340,000

subtotal $9,732,117

Sentenced Inmates





Page 5- 23

OPTION 3: Reuse of Existing plus 236 Bed Addition Traditionally, the least expensive way to accommodate the required

additional capacity while reusing the existing facility would typically be to add a 236 bed addition to the existing facility, primarily because many functions would not have to be duplicated like they would have to be in a new freestanding facility as in Option 4 that follows.

The problem in Lucas County is that adding onto the existing facility is a real problem. The only way enough additional space could be generated is encroaching upon the existing green space between the major buildings bounded by Spielbusch Avenue, Constitution Avenue, North Erie Street, and Jackson Street.

It is unlikely that such an approach would ever be an acceptable strategy. However, to illustrate what the associated costs of construction and operation would be for purposes of comparison, the following analysis would result:

At this point in the financial analysis of options, it is the first instance of costs for new construction and having more than 425 inmates accommodated in Lucas County facilities – so those costs need to be examined and incorporated as well.

Option 3 Capital Construction Costs: In the expansion of the existing facility scenario, the estimated construction

cost, soft costs, and escalation are outlined below:

General renovation work to maintain the facility in service over the next 20 years (escalated cost previously estimated at $61,517,945); and

Due to the difficulty of supervising high security inmates in the existing facility, the more secure housing areas of the proposed replacement facility – high security special housing (44 beds), two 48-bed single cell housing units (96 beds), and two 48-bed 4-person cell housing units (96 beds) – are incorporated in the proposed facility addition. This would provide a total 236 beds, with the capacity very close to the 233 bed shortfall.

Other elements considered include:

Conversion of the remaining housing units in the existing facility to medium security direct supervision where possible;

Construction of a new Booking/ Release area for two reasons – to provide an appropriate, efficient area for this key function and to provide some space within the existing facility to meet some of the other space deficiencies;

Provision of one Direct Housing Support area; and

Limited site development work.


Page 5- 24

This approach is strictly theoretical and does not really account for other deficient areas of relatively expensive renovation that would likely be required. The total building area required for this addition is 82,617 building gross square feet. This is approximately 38% of the size of the existing building (216,000 bgsf) – which provides an idea of how large it would need to be.

Lucas County Jail Feasibility Study 236 Bed Addition to Existing Facility

SITE DEVELOPMENT

SFUNIT COST

COST Comments

A1. Site Improvements - 1 Acre 43,560 $12.00 $522,720subtotal $522,720 Total Site SF - Not Building Area

EXISTING FACILITY ADDITIONRated Beds CGSF

UNIT COST

COST Comments

B1. Connection Corridor/ Elevators 2,000 $320.00 $640,000B2. Booking/ Release 18,734 $6,814,265 Existing needs to be replaced


Processing Area 9,816 $385.00 $3,779,160

Dress in/ Dress out 2,687 $345.00 $927,050


Electronic Monitoring Area 1 ,872 $345.00 $645,840

Housing AreasB3. Maximum Security Housing Unit 24 5,968 $415.00 $2,476,720 1 24-cell unit

B4. High Security Mental Health Housing Unit 20 6,994 $430.00 $3,007,334 1 24-cell unit, 20 rated beds

B5. High Security Single Cell Housing Units 96 20,080 $405.00 $8,132,400 2 48-bed single cell unit

B6. Medium Security 4-Person Room Housing Units 96 15,285 $350.00 $5,349,750 2 48-bed units

B7. Direct Housing Support 2,780 $971,163 One area for new housing

Unit Management Areas 1,139 $360.00 $409,968

Inmate Services/ Case Management 1 ,443 $345.00 $497,835


subtotal 236 71,841 $388.56 $27,914,352 Total CGSF

Building Gross Area Factor 1.15 10,776 $388.56 $4,187,153Existing Facility Addition 82,617 $388.56 $32,101,504 Total BGSF

82,617 $388.56 $32,624,224 Total Construction Cost

30.0% $9,787,267

TOTAL FACILITY EXPANSION PROJECT $42,411,491 Project Cost w/o Escalation

6.35% $2,693,130

assumes 24 months of construction starting in 9/201 5

TOTAL PROJECT COST WITH ESCALATION $45,104,621 Project Cost w/ Escalation


Escalation - 3.0% per Year Compounded to the Midpoint of Construction - October 2016

Component


TOTAL - Site and Facility Addition


Page 5- 25

Personnel Costs: Housing Staffing In adding 236 inmates to the existing facility will also generate additional

housing area personnel costs for 6 new housing units as listed below:

Personnel Costs: Non-Housing Staffing As previously noted, a working session with the Sheriff’s Office and other stakeholders was used to determine what additional non-housing staff would be required at the higher capacity level. While this was done for a new replacement facility, additional non-housing staffing for another 236 beds at the existing facility would be similar to that, as shown below:

In supervision management, an additional Lieutenant is required to manage what will a separate building connected only on one floor. Similarly, another 24/7 Sergeant’s post will be required for the housing addition area.

Since there is no cadre housing provided in this Option, officers for supervision of inmates working in the food service area will not be required. Additional security screening positions will not be required either.

Lucas County Proposed Jail Staffing - Housing 236 Bed Addition: Total Capacity 578 Pretrial BedsHousing Unit No. of Type Area Staffing

Level Units Capacity* 1st 2nd 3rd Other Post Relief Total

B4: Segregation/Maximum 1 Max 24 2 2 2 2 5.3 10.6B5: Acute Mental Health 1 Max 20 2 2 2 2 5.3 10.6

B6: Single Cell Housing Unit 1 Classification 48 1 1 1 1 5.3 5.3B6: Single Cell Housing Unit 1 Mental Health 48 1 1 1 1 5.3 5.3

B7: 4-Person Cell Housing Unit 1 General 48 1 1 1 1 5.3 5.3B7: 4-Person Cell Housing Unit 1 General 48 1 1 1 1 5.3 5.3

subtotals 236 42.4Direct Housing Support

Zone Sergeant 0Rovers/ Escort 2 2 2 2 5.3 10.6


Average Uniformed FTE $66,906

Additional Staffing for 236 Bed Addition 53.0 $3,546,018 Additional Staffing Cost

Acccounted for in Non-Housing Staffing

Staffing Adjustments For 236-Bed Addition $66,906 Average Uniformed FTE

Housing Staffing

Existing Housing Staffing at 342 rated beds, 425 inmates 175.9 $11,767,427 Existing Housing Staffing CostAdditional Housing Staffing for 236 Bed Addition 53.0 $3,546,018 Additional Housing Staffing Cost

new total 228.9 $15,313,445

Other Staffing Adjustments @ 578 bed level


Lieutenants $89,254 2 $178,508.00 in addition to existing "pool"

Sergeants (1 post @ 5.3) $82,355 5.3 $436,481.50 in addition to existing "pool"

Other Non-Housing StaffMaintenance Officer $66,906 3 $200,718Additional Counselors $68,315 7 $478,205Information Technology $68,315 1 $68,315

18.3 $1,362,228 Additonal Non-Housing Staff

71.3 $4,908,246 Total Additional Staffing Cost


Page 5- 26

Non-Personnel Costs: In adding 236 beds to the existing facility also generates additional inmate

non-personnel costs such as additional food, medical services, institutional clothing and the like. This was calculated by compiling the variable inmate costs and totaling those to determine an annual incremental cost per inmate added. The worksheet used is incorporated below:

Lucas County Jail Existing Operational Expenditures

Sum of ExpenditureAuthorized 2014

Budget%

AttributableIncremental

CostsDescription CSG Title Service Total per inmate2. Non-Personal Services Supplies and Materials Medical Supplies 5,000.00$ 100% 5,000.00$

Laundry Supplies 20,000.00$ 100% 20,000.00$ Inmate Clothing 60,000.00$ 100% 60,000.00$ Janitorial Supplies 115,000.00$ 80% 92,000.00$ Maintenance/ Sanitation Supplies 10,000.00$ 80% 8,000.00$ Maintenance Supplies 70,000.00$ 0% -$ Office Supplies 122,000.00$ 60% 73,200.00$ Postage 29,000.00$ 90% 26,100.00$ Training 35,000.00$ 0% -$ Employee Uniforms 114,250.00$ 50% 57,125.00$ Fire Extinguishers 500.00$ 0% -$

Supplies and Materials Total 580,750.00$ 341,425.00$ Telephone, Communications Telephone 67,000.00$ 0%

Intercom 10,000.00$ 0%Telephone, Communications Total 77,000.00$ -$ Vehicles Vehicle Fuel 23,500.00$ 100% 23,500.00$

Vehicle Repairs 6,000.00$ 100% 6,000.00$ Vehicles Total 29,500.00$ 29,500.00$ Insurance Law Enforcement Liability Insurance 196,491.00$ 100% 196,491.00$ Insurance Total 196,491.00$ 196,491.00$ Meal Costs Meal Costs 745,000.00$ 100% 745,000.00$ Meal Costs Total 745,000.00$ 745,000.00$ Computer Services Computer Services 445,000.00$ 50% 222,500.00$ Meal Costs Total 445,000.00$ 222,500.00$ Contracted Services Physician Services 123,000.00$ 100% 123,000.00$

Dentist Services 35,000.00$ 100% 35,000.00$ Inmate Medical 250,000.00$ 100% 250,000.00$ Laundry Services 73,000.00$ 100% 73,000.00$ Biohazard Disposal 8,330.00$ 100% 8,330.00$ Elevator Service 23,000.00$ 0% -$ Pest Control 5,000.00$ 0% -$ Waste Hauling 6,700.00$ 100% 6,700.00$ Shredding Services 2,000.00$ 0% -$ Misc. Contracted Services 16,670.00$ 100% 16,670.00$ Misc. Contracted Repairs 9,000.00$ 0% -$

Contracted Services Total 551,700.00$ 512,700.00$ Contractual services - Maintenance Maintenance 97,008.00$ 0% -$

Maintenance Personnel 312,938$ 0% -$ Honeywell 5,000.00$ 0% -$

Contracted Services - Maintenance Total 414,945.50$ -$ Equipment & Equipment Rental Equipment 15,000.00$ 0% -$

Chiller Maintenance 30,000.00$ 0% -$ Equipment & Equipment Rental Total 45,000.00$ -$ Commodity - Gas Natural Gas 80,000.00$ Commodity - Gas Total 80,000.00$ Commodity - Electricity Electricity 349,000.00$ Commodity - Electricity Total 349,000.00$ Commodity - Water Water 185,000.00$ Commodity - Water Total 185,000.00$

Total Non-Personnel Cost

Applicable to per Inmate Cost

3,699,386.50$ 2,047,616.00$ total variable costs

4,817.92$ annual cost/425

Incorporated in Central Plant/

Utilities Calculation


Page 5- 27

Note: The “annual cost per additional inmate” calculated above is used for the balance of financial cost analysis of options.

At $4,817.92/inmate, the addition of 153 inmates at the existing facility would raise the non-personnel per inmate cost by $737,142. The calculation here is the total capacity is 578 minus 425 inmates [578-425= 153) where 425 inmates are accounted for in the current baseline cost.

The other element to be added is a 40% increase in primary utilities due to increased building size. This adds

Element Baseline Cost Additional Cost(40%)

Natural Gas $ 70,400 $ 32,000 Electric $ 307,120 $ 139,600 Water $ 162,800 $ 74,000 total $540,320 $ 245,600

Annual Cost Analysis: Reuse/ Expansion Option at 578 Beds

This documents an annual total operational cost of $49.6 million in constant 2014 dollars. Extending that cost for Option 3 out for 20 years will add up to a total of $ 992.06 million.

3: Existing Facility + 236 Bed Addition: 578 Beds cost

Existing Baseline









Operational CostsAdditional Staffing (71.3 FTEs) $4,908,246


Plant Operations/Utility Cost Adjustment $245,600


Sentenced Inmates





Page 5- 28

OPTION 4: Continued Use A second facility could be built in Lucas County for 236 beds to make up for Plus 2nd Pretrial Facility the current pretrial capacity shortfall in the existing Corrections Center.

The issue here is not just total construction cost, but rather the inefficiency in running two pretrial detention facilities in the same jurisdiction.

Capital Construction Cost

Lucas County Jail Feasibility Study 236-Bed Freestanding Facility

SITE DEVELOPMENT

SFUNIT COST

COST Comments

00. Site Acquistion To Be Determined



A: FACILITY COMMON01 Entry Area 1,000 $300.00 $300,00002 Staff Services & Training 2,400 $385.00 $924,000

subtotal 3,400 $360.00 $1,224,000 Total CGSFBuilding Gross Area Factor 1.15 510 $360.00 $183,600Facility Common 3,910 $1,407,600 Total BGSF


12 Central Control 1,800 $500.00 $900,000 Includes Armory , Mobile Com mand

13 Booking/ Release 6,200 $2,171,000 Includes Vehicular Sally port

Secure Vehicular Sallyport 800 $205.00 $164,000

Processing/Staging Area 3,600 $385.00 $1,386,000

Electronic Monitoring Area 1,800 $345.00 $621,000

14 Inmate Services 800 $345.00 $276,000 Central Functions

15 Visitation 800 $320.00 $256,000 Assum es Video Visitation

16 Health Services 2,000 $802,000Health Services Administration 400 $345.00 $138,000 Core Area

Examination/Transfer Holding 1,600 $415.00 $664,000 Outpatient


18 Commissary 400 $315.00 $126,000 Contracted Serv ice

19 Food Service 2,400 $515.00 $1,236,000 Reheating/ Staging

20 Laundry 800 $430.00 $344,000 Staging Only

21 Building Support 4,280 varies $937,400Warehouse 480 $230.00 $110,400 Includes Loading Dock Area

Maintenance 600 $285.00 $171,000 Staging Only

Central Plant 3,200 $205.00 $656,000

Housing Areas22 Maximum Security Housing Unit 24 5,968 $415.00 $2,476,720 1 24-cell unit




26 Direct Housing Support 2,780 $360.00 $1,000,728 One area for new housing

subtotal 236 72,187 $381.54 $27,542,332 Total CGSFBuilding Gross Area Factor 1.15 10,828 $381.54 $4,131,350Detention Center Total 83,015 $381.54 $31,673,682 Total BGSF

86,925 $381.54 $36,217,602Total Building Area/ Construction Cost

30.0% $10,865,281

TOTAL - Site, Common, Detention Center $47,082,882 Project Cost w/o Escalation

6.35% $2,989,763

TOTAL - Site, Common, Detention Center $50,072,645




TOTAL - Site, Common, Detention Center


Page 5- 29

The proposed program and costs listed above for a 2nd Pretrial Facility of 236 beds5 has been generated as a “bare bones” approach as a way to present the least possible cost for this strategy. One major drawback is that it does not have a robust core area that would allow easy expansion in the future, but would be a facility relying on the existing Lucas County Corrections Center for administration, food service, laundry, booking, and the like. Therefore it is more like a housing addition with minimal freestanding capability. Another drawback is that the cost of replacing the existing Booking/Release area is not included and would continue to be a problem in terms of effective operation.

Even as a minimalist approach, construction cost would be more than a straight addition to the facility

Proposed Housing Staffing Proposed housing area staffing for the new facility is the same as that for the

housing area addition to the existing facility as summarized below:

Other Staffing Adjustments:

Staffing costs would be higher in a two facility situation, because of duplication of areas such as entry, visitation, central control, and administration/ program/ and support spaces.

Currently, there is a senior uniformed management pool of 5 Lieutenants – all of which would be required in terms of management of the existing facility. This means that additional resources will be required to manage the new, 2nd pretrial facility. One will be required for each shift (relieved at 5.0) will be required, plus one for regular work week position for 2nd facility administration and one for operations (both unrelieved). This will result in a need for a total of 7 more Lieutenants above and beyond those in the existing pool today;

5 236 beds are provided (versus the 233 bed shortfall) as the closest multiple of 48 bed housing units.

Lucas County Proposed Jail Staffing - New 236-Bed FacilityHousing Unit No. of Type Area Staffing


B4: Segregation/Maximum 1 Max 24 2 2 2 2 5.3 10.6B5: Acute Mental Health 1 Max 20 2 2 2 2 5.3 10.6

B6: Single Cell Housing Unit 1 Classification 48 1 1 1 1 5.3 5.3B6: Single Cell Housing Unit 1 Mental Health 48 1 1 1 1 5.3 5.3

B7: 4-Person Cell Housing Unit 1 General 48 1 1 1 1 5.3 5.3B7: 4-Person Cell Housing Unit 1 General 48 1 1 1 1 5.3 5.3

subtotals 236 42.4Direct Housing Support

Zone Sergeant 0Rovers/ Escort 2 2 2 2 5.3 10.6


Average Uniformed FTE $66,906

Housing Staffing for New 236 Bed Facility 53.0

$3,546,018 Housing Area Staffing Cost for 236 Beds



Page 5- 30

Similarly, there is an existing pool of 15 Sergeants, all of which will still be required for continued operation of the existing facility. In the new proposed facility there will need to be a Sergeant on each shift to supervise daily activity. Relieved at 5.3, this will require that a total of 5.3 new FTE’s be added to the existing pool of Sergeants;

Facility management will be similar to the 236-Bed Addition, including the inclusion of one Direct Housing Support Area staffing for inmates;

Facility Reception positions will be maintained as well, but in the new facility area, they will primarily be processing inmates in and out;

Central Control functions need to be added;

Additional counselors need to be added to service the additional pretrial inmate capacity;

A Food Service and Maintenance Officers will still be required, since they will supervise those areas in the new facility; and

Operating as a minimalist facility, relying on the existing LCCC for primary services, will increase the importance of information technology.

Summary of Staffing Changes for 2nd Pretrial Facility

Additional Cost per Inmate In this Option, there will be 153 more inmates than in the facility baseline cost. For those additional inmates, the additional non-personnel cost will add up to $737,142. [153 x $4817.92]

New 236-Bed Facility Staffing Adjustments $66,906 Average Uniformed FTE

Housing Staffing

Proposed Housing Staffing for Additional 236 53.0 $3,546,018 New Staffing Cost @ 578

53.0 $3,546,018 additional cost at 236

Other Staffing Adjustments for 236 Freestanding Facility


Lieutenants $89,254 7.0 $624,778 in addition to existing "pool"

Sergeants $82,355 5.3 $436,481 in addition to existing "pool"


Facility Reception (1 post @ 5.3) $66,906 5.3 $354,602

Central Control (1 post @ 5.3) $66,906 5.3 $354,602






overall net change 83.9 $5,860,183 Net Staffing Increase


Page 5- 31

Additional Transportation Costs: As in Option 2, a significant amount of additional transportation will be incurred in moving people and materials back and forth between the existing facility and the new 2nd Pretrial Facility. This cost is estimated at $340,000 including staff and vehicles.

Plant Operations/Utility Adjustment: The other element to be added is a 40% increase in primary utilities due to the amount of new building area that has to be serviced. While the new facility can incorporate sustainable design initiatives for energy efficiency, there is a new 87,000 area to operate.

Element Baseline Cost Additional Cost(40%)

Natural Gas $ 80,000 $ 32,000 Electric $ 349000 $ 139,600 Water $ 185,000 $ 74,000 total $ 614,000 $ 245,600

Summary Analysis:

The total annual cost of Option 4 in constant 2014 dollars is $51.2 million; extending this out for 20 years adds up to $1.024 billion. Even with construction of a “minimal” facility, this Option is the most costly of all Options considered, mainly due to duplication of many areas.

4: Existing Facility + New 236 Bed Facility: 578 Beds cost

Existing Baseline







Additional Pretrial Capacity - Freestanding 236 Bed Facility



Operational Costs

Additional Staffing (+ 83.9 FTEs) $5,860,165


Additional Transportation Costs $340,000

Plant Operations/Utility Cost Adjustment $245,600


Sentenced Inmates





Page 5- 32

OPTION 5: 620-Bed Replacement Facility The final options evaluated are replacement of the existing Sheriff’s Office

and Detention Facility on another site, then demolishing the existing facility.

The first option examined is for a total of 620 beds.

Capital Construction Costs Capital Costs for the Replacement Facility at 620 beds were shown on pages

5-9 and 5-10. [A Summary Recap is included here – refer to the prior pages for detail.] In this scenario there are 572 pretrial beds and 48 sentenced inmate beds to provide a cadre of inmate workers at the facility. Providing 48 sentenced beds as part of the proposed facility has an equivalent reduction in the contracted bed cost at CCNO.

Housing Staffing Changes Proposed housing staffing for the 620-bed facility was documented on page 5-17, and is only recapped here in summary form.


SITE DEVELOPMENTsubtotal $8,832,000 Total Site SF - Not Building Area

A: FACILITY COMMONFacility Common 21,150 $188.95 $3,996,345 Total BGSF

B: SHERIFF'S OFFICESheriff's Office Total 19,418 $314.64 $6,109,653 Total BGSF

DETENTION CENTERDetention Center Total 226,204 $370.48 $83,804,845 Total BGSF

266,772 $385.13 $102,742,844 Total Building Area

30.0% $30,822,853


6.35% $8,481,422

assumes 24 m onths of construction starting in 9/201 5

TOTAL - Site, Common, Sheriff's Office, Detention Center $142,047,119 142,047,119




Average Uniformed FTE = $66,906Existing Housing Staffing at 342 rated beds, 425 inmates 175.9 Existing Housing Staffing CostHousing Staffing at 620 beds incl. Cadre 125.4 New Staffing Cost @ 620

50.5 Staff FTE savings at 620

$11,767,427$8,392,020

$3,375,408


Page 5- 33

Personnel Costs: All Staffing Adjustments Proposed Staffing for Housing and for Non-Housing areas was presented on

page 5-19 (Non-Housing) and is summarized here along with housing staff changes.

Non-Personnel Costs: Adding 195 inmates (620 – 425= 195) to the existing facility baseline will also

generate adjustments to non-personnel costs.

As in the Reuse/Expansion Option, analysis has derived an assumed increase per inmate of $4,817.92 annually. At this rate per inmate, the addition of 195 inmates in the new facility above the current baseline would raise the non-personnel costs by $939,494.

A major benefit of providing a Cadre housing unit is that it would reduce the number of contracted beds at CCNO in Stryker. This savings is calculated at 48 x $63.48 per day x 365 days = $1,115,849, bring the remaining contracted cost for 390 beds down to $9,449,151 annually.

The other element to be added is a small decrease in primary utilities due to increased sustainable design initiatives – which will be much more efficient for a similar total building area – estimated at 20% improved efficiency. This decreases Non-Personnel Costs by $122,800.

Element Baseline Cost New Facility Savings

Natural Gas $ 80,000 $ 16,000 Electric $ 349,000 $ 69,800 Water $ 185,000 $ 39,000 total $ 614,000 $ 122,800


Housing Staffing


















Page 5- 34

Option 5 Cost Summary

This represents an annual total operational cost of $43.36 million in constant 2014 dollars. Extending the cost for Option 5 out for 20 years will add up to a total of $ 887.2 million.

This year, the total system cost to accommodate Lucas County pretrial and sentenced inmates can be summarized as follows:

Lucas County Correctional Center $ 26,476,955 Correctional Center of Northwest Ohio $ 10,565,000

Total $ 37,041,955

In contrast, implementation of Option 5 will cost $ 43,362,138

The annual cost difference will be $ 6,320,182 (ignoring any required renovation costs)

OPTION 6: 572 Bed Replacement Facility The final option evaluated is replacement of the existing Sheriff’s Office and

Detention Facility on another site, then demolishing the existing facility, providing 572 pretrial beds, without a sentenced housing unit for cadre.

Capital Construction Costs Capital Costs for the Replacement Facility at 572 beds is essentially the

same as for 620 beds minus the cadre housing unit.


Existing Baseline




subtotal $26,476,955New Construction $142,047,119


Operational Costs




subtotal $7,436,031

Sentenced Inmates

CCNO Contract Cost: 390 beds (48 bed reduction) $9,449,151




Page 5- 35

As shown above the total escalated project cost goes down from $142.0 million for the 620 beds to $137.8 million for 572 beds.

Lucas County Jail Feasibility Study 572 Pretrial Beds

SITE DEVELOPMENT

SFUNIT COST

COST Comments

00. Demolish Existing Buildings $1,512,00000. Site Acquistion To Be Determined



A: FACILITY COMMONFacility Common 11,596 $344.64 $3,996,345 Total BGSF

B: SHERIFF'S OFFICESheriff's Office Total 19,418 $314.64 $6,109,653 Total BGSF


12 Central Control 5,408 $500.00 $2,704,000 Includes Armory , Mobile Command



Processing Area 8,316 $385.00 $3,201,660

Dress in/ Dress out 2,687 $345.00 $927,050


Electronic Monitoring Area 1,872 $345.00 $645,840

14 Inmate Services 2,509 $345.00 $865,605 Central Functions

15 Visitation 1,248 $320.00 $399,360 Assumes Video Visitation

16 Health Services 12,168Health Services Administration 1,386 $345.00 $478,101 Core Area

Outpatient Clinic 3,808 $415.00 $1,580,320 Outpatient

Dental Clinic 702 $450.00 $315,900 Outpatient

Infirmary + Suicide Watch 6,272 $390.00 $2,446,080 Inpatient


18 Commissary 1,023 $315.00 $322,245 Contracted Serv ice

19 Food Service 10,621 $515.00 $5,469,81520 Laundry 5,934 $430.00 $2,551,62021 Building Support 13,508

Warehouse 6,792 $230.00 $1,562,160 Includes Loading Dock Area

Maintenance 2,976 $285.00 $848,160Central Plant 3,740 $205.00 $766,700

Housing Areas22 Maximum Security Housing Unit 24 5,968 $415.00 $2,476,720 1 24-cell unit




26 Medium Security 8-Person Mini-Dorm Housing 144 24,795 $320.00 $7,934,400 3 48-bed units

27 Direct Housing Support 5,560Unit Management Areas 2,278 $360.00 $819,936

Inmate Services/ Case Management 2,886 $345.00 $995,670


subtotal 572 188,434 $372.70 $70,228,979 Total CGSFBuilding Gross Area Factor 1.15 28,265 $372.70 $10,534,347Detention Center Total 216,699 $372.70 $80,763,325 Total BGSF

247,712 $402.49 $99,701,324 Total Area

30.0% $29,910,397


6.35% $8,230,344

TOTAL - Site, Common, Sheriff's Office, Detention Center $137,842,066 137,889,883






Page 5- 36

Staffing Revisions Building upon the prior analysis, there is slightly more staff savings, due to a lower total bed capacity.

In terms of housing staffing for the 620 bed Facility, the only difference is a reduction of 5.3 FTE’s previously allocated to Housing Unit #13. This takes the staff required in the 572-Bed option down to 120.1 from 125.4 required in the 620-Bed option.

Lucas County Proposed Jail Staffing - Housing - 572 BedsHousing Unit No. of Type Area Staffing


1A: Segregation/Maximum 1 Max 24 2 2 2 2 5.3 10.61B: Acute Mental Health 1 Max 10 1 1 1 1 5.3 5.31C: Acute Mental Health 1 Max 10 1 1 1 1 5.3 5.3

2: Single Cell Housing Unit 1 Classification 48 1 1 1 1 5.3 5.33: Single Cell Housing Unit 1 Female/Hybrid 48 1 1 1 1 5.3 5.34: Single Cell Housing Unit 1 General/High 48 1 1 1 1 5.3 5.35: Single Cell Housing Unit 1 General/High 48 1 1 1 1 5.3 5.3

6: 4-Person Cell Housing Unit 1 General/Med. 48 1 1 1 1 5.3 5.37: 4-Person Cell Housing Unit 1 General/Med. 48 1 1 1 1 5.3 5.38: 4-Person Cell Housing Unit 1 General/Med. 48 1 1 1 1 5.3 5.39: 4-Person Cell Housing Unit 1 General/Med. 48 1 1 1 1 5.3 5.3

10: 8-Person Mini-Dorm Housing 1 General/Med. 48 1 1 1 1 5.3 5.311: 8-Person Mini-Dorm Housing 1 General/Med. 48 1 1 1 1 5.3 5.312: 8-Person Mini-Dorm Housing 1 General 48 1 1 1 1 5.3 5.3

subtotals 572 15 79.5Medical Floater 1 1 1 3.53 3.53Suicide Watch Varies 3 3 3 3 5.3 15.9







Housing Staffing


















Page 5- 37

Annual Operational Cost Analysis

Additional Cost/Inmate goes from 195 in the 620-Bed Facility to 147 in the 572-Bed Facility. There is a collateral reduction in staffing and per inmate costs, but overall costs are higher because there is no countervailing “credit” for reducing the contracted beds at CCNO. Otherwise, it is very similar.

Similarly, there is little difference between this facility and the slightly larger 620-Bed Facility. In terms of plant operation and utility expenses, it is assumed they will reflect essentially the same savings as in the 620-Bed Facility.

Option 6 represents a slightly higher annual total operational cost of $43.6 million in constant 2014 dollars. Extending that cost for Option 5 out for 20 years would add up to a total of $ 872.6 million.

There is no large difference between Options 5 and 6 in terms of annual total cost. Looking at total system cost to Lucas County for accommodating pretrial and sentenced inmates In Option 6, this year’s costs are:

Lucas County Correctional Center $ 26,476,955 Correctional Center of Northwest Ohio $ 10,565,000

Total $ 37,041,955

In contrast, implementation of Option 6 will cost $ 43,627,988 The annual cost difference will be $ 6,586,032

(again ignoring capital renovation costs.)


Existing Baseline




subtotal $26,476,955New Construction $137,842,066


Operational Costs




subtotal $6,586,032

Sentenced Inmates





Page 5- 38

IMPLEMENTATION OPTIONS: If Lucas County decides to proceed with the new replacement facility, there

are options in the implementation process to be considered. There are multiple strategies for implementation of a project, including:

Traditional Design/Bid/Build

Design/Bid/Build, Agency Construction Manager

Design/Bid/Build, Construction Manager at Risk

Design/Build

Qualifications Based Scoping Documents Bridging Documents

Design/Build/Finance

Private Financing Tax Free Public Financing

Performance Based Infrastructure

There are advantages and disadvantages in each approach to project implementation, with a number of variables that influence the Owner’s decision. Variables to consider include:

Schedule for Completion

Economic Conditions

Staff Operating Costs

Quality and Complexity of Space

Level of Design Control Desired

Certainty of Availability of Financing

Assumption of Risk Tolerance

Owner Decision Making Process.

Appendix C: Alternative Project Delivery Approaches - Pros and Cons provides information on each of the approaches listed above, outlining the benefits and risks of each approach.

Key Issues for Lucas County Which implementation method is to be used on the project is strictly a

decision in the hands of the County Commissioners and key stakeholders.

However, in terms of the variables that will influence selection of the project implementation method, there are some key issues applicable to this project in Lucas County, including:


Page 5- 39

Quality and Complexity of Space Secure detention facilities are a relatively unique building type that employs special materials (detention equipment) and systems (security electronics, content management systems) that require experience in this building type for both designers and contractors in order to have a successful project.

Level of Design Control Desired In working sessions the Sheriff’s Office and key stakeholders, there has been an evolution of the operational intent that is a departure from the operation of existing facility. Achieving the national best practices and specific ideas that form the basis for the project space program will require a degree of Owner/Sheriff’s Office participation in and control of preliminary and final design. For example, a design/build approach will require at least bridging documents to establish quantities and level of quality in order to get what is necessary for the project to perform as intended.

Staff Operating Costs To a large degree, the economic feasibility of the proposed project is dependent upon achieving a high level of staffing efficiency and efficacy. This further reinforces the collaborative situation required with the designer to ensure staffing ratios can be met in whatever the final design configuration is.

In the final analysis, the County will need to select the implementation process that best fits their project needs.


Page 5- 40

SUMMARY OF FINDINGS: A range of options have been explored in order to document what the total

long term costs would be to accommodate pretrial and sentenced inmates in different scenarios. These are summarized below:

In terms of the cost of changing the existing situation, implementation

of Option 5: New 620-Bed Facility will cost $43.36 million annually (including sentenced inmates at CCNO) in comparison to the current cost of the Lucas County Correctional Center plus CCNO of $ 37.04 million if no capital costs are included. In that analysis, the cost to change the situation from the current expenditure level will be just over $6.3 million. ($6,320,182)

If the bonding cost for the estimated 20 year capital expenditures to keep the existing facility on line are included, then the total annual cost of operation between Option 1: Existing Facility Continued, and Option 5: New 620-Bed Facility is closer. ($40.91 million to $43.36 million =$2.45 million). As a practical matter, the County can’t ignore major portions of the identified capital outlay.

Option 0: Existing Facility Today Beds Capital CostAnnual Capital

Financing Cost

Annual

Personnel Cost

Annual Non-

Personnel Cost

Annual Plant

Operations

Annual Total

Cost

Existing Facility 342 22.78$ 3.09$ 0.61$ 26.48$ Sentenced Inmates CCNO ($66.09/day) 438 10.57$ 10.57$

780 37.05$

Option 1: Existing Facility Continued Beds Capital CostAnnual Capital

Financing Cost

Annual

Personnel Cost

Annual Non-

Personnel Cost

Annual Plant

Operations

Annual Total

Cost

Existing Facility 342 61.52$ 3.86$ 22.78$ 3.09$ 0.61$ 30.34$ Sentenced Inmates CCNO ($66.09/day) 438 10.57$ 10.57$

780 40.91$

Option 2: Reuse Existing + Boarding Out Beds Capital CostAnnual Capital

Financing Cost

Annual

Personnel Cost

Annual Non-

Personnel Cost

Annual Plant

Operations

Annual Total

Cost

Existing Facility 342 61.52$ 3.86$ 22.78$ 3.09$ 0.61$ 30.34$ Boarding Out 233 5.87$ 5.87$ Sentenced Inmates CCNO ($66.09/day) 438 10.57$ 10.57$

1013 46.77$

Option 3: Reuse Existing + 236 Bed Addition Beds Capital CostAnnual Capital

Financing Cost

Annual

Personnel Cost

Annual Non-

Personnel Cost

Annual Plant

Operations

Annual Total

Cost

Existing Facility 342 61.52$ 3.86$ 22.78$ 3.09$ 0.61$ 30.34$ 236 Bed Addition 236 45.10$ 2.83$ 4.91$ 0.74$ 0.25$ 8.72$ Sentenced Inmates CCNO ($66.09/day) 438 10.57$ -$ 10.57$

1016 49.63$

Option 4: Second Freestanding Pretrial Facility Beds Capital CostAnnual Capital

Financing Cost

Annual

Personnel Cost

Annual Non-

Personnel Cost

Annual Plant

Operations

Annual Total

Cost

Existing Facility 342 61.52$ 3.86$ 22.78$ 3.09$ 0.61$ 30.34$ New Freestanding 236 Pretrial Facility 236 50.07$ 3.15$ 5.86$ 1.08$ 0.25$ 10.33$ Sentenced Inmates CCNO ($66.09/day) 438 10.57$ 10.57$

1016 51.23$

Option 5: New 620 Bed Replacement Facility Beds Capital CostAnnual Capital

Financing Cost

Annual

Personnel Cost

Annual Non-

Personnel Cost

Annual Plant

Operations

Annual Total

Cost

New Pretrial + 48 Cadre 620 142.05$ 8.92$ 20.47$ 4.02$ 0.49$ 33.91$ Sentenced Inmates CCNO ($66.09/day) 390 9.44$ 9.44$

1010 43.36$

Option 6: New 575 Bed Replacement Facility Beds Capital CostAnnual Capital

Financing Cost

Annual

Personnel Cost

Annual Non-

Personnel Cost

Annual Plant

Operations

Annual Total

Cost

New Pretrial + No Cadre 572 137.84$ 8.66$ 20.12$ 3.79$ 0.49$ 33.06$ Sentenced Inmates CCNO ($66.09/day) 438 10.57$ 10.57$

all costs shown in millions 1010 43.63$


Page 5- 41

REVIEW OF OPTIONS: Taking these one by one, the risks and rewards of each option are outlined as follows:

Option 1: Existing Facility Continued Option 1 was documented primarily to show what the total 20 year life cycle cost would be to Lucas County if nothing was done to change the current system, other than making a large capital reinvestment in the physical building. As it stands now, the total system cost will be just over $40.9 million dollars annually – certainly a very large expenditure that should be expended in the most cost effective way possible.

c Option 1 Liabilities:

At first glance, this option may seem “the best” in terms of economic cost. However, the major, very potent risk is that this option, at 342 general confinement pretrial beds, doesn’t provide sufficient bed capacity to meet current, much less longer term needs;

For the Sheriff’s Office, the ability to meet appropriate conditions of confinement at the existing facility is a very difficult challenge to meet; and

Since the existing Corrections Center is under Federal District Court Order and specific Court-issued rules to comply with, the liability is that the Court could issue new remedies at any time which means Options 2, 3, or 4 could be required.

Option 1 Rewards:

The County doesn’t need to make any changes.

Option 2: Continued Use with Boarding Out Option 2 is one way to make up for the 233 pretrial bed capacity shortfall in Option 1. Unfortunately, this comes at a very heavy cost and level of effort to accomplish.

Option 2 Liabilities:

The County is not able to find sufficient boarding out space at reasonable cost and distance from Toledo;

Other jurisdictions are going to be reluctant to take high security pretrial inmates, so lower security level individuals will have to be the ones boarding out. This will raise the risk factor in the existing Corrections Center;

If such boarding out space is found, there is no long term guarantee that it will remain available;

From the Court’s perspective, this will likely only be viewed as a temporary stop gap solution; and

The boarding out costs could soar and further negatively impact the County’s expenditure levels.


Page 5- 42

Option 2 Rewards:

Sufficient pretrial bedspace is provided, making it easier to maintain appropriate conditions of confinement.

Option 3: Reuse of Existing plus 236 Bed Addition Option 3 is another way to make up for the 233 pretrial bed capacity shortfall in Option 1. This approach will involve building a new 236 pretrial bed addition to the existing facility. Overall, this is the second most expensive option for the County to consider.


The proposed addition will require approximately 82,617 bgsf, which is about 38% of the size of the existing Corrections Center. In order to add such a large area to the existing building, it would likely have to encroach on the public green space; Construction in the public green space would not be viewed as acceptable public policy;

The County would need to go through the process of scoping, designing, bidding, and constructing a new facility addition simply to make up the pretrial capacity shortfall; and

The other multiple deficiencies in the existing facility would not be fully resolved – including continued use of inadequate existing housing units.

Option 3 Rewards:

Sufficient pretrial bedspace is provided,

The operational inefficiency of operating two pretrial facilities is avoided; and

Physical connection to the courts would be maintained.

Option 4: Continued Use plus a 2nd Pretrial Facility Option 4 is yet another way to make up for the 233 pretrial bed capacity shortfall in Option 1. This approach will involve building a new 236 pretrial facility at a new site in the County. The second pretrial facility also comes at a very heavy cost and level of effort to accomplish. What is proposed physically for this Option is a minimalist facility that would rely heavily of the existing facility for booking, release food service, laundry, administrative support, and the like.


The County will need to go through the entire process of locating a new site, acquiring that, designing, bidding, and constructing a new facility simply to make up the pretrial capacity shortfall;

Operational costs will be the hardest to restrain with the Sheriff’s Office required to operate two secure pretrial inmate facilities. Of all the options considered, this is the most expensive one in terms of total system cost; and

The multiple deficiencies in the existing facility would not be resolved.


Page 5- 43

Option 4 Rewards:

Sufficient pretrial bedspace is provided, making it possible to maintain appropriate conditions of confinement; and

Adequate purpose built space for high security, special needs inmates would be provided.

Option 5: New 620-Bed Replacement Facility Option 5 is a different approach, abandoning the existing facility in favor of “starting over” with a contemporary facility that reflects national best practices and operational efficacy. Option 5 also includes a 48 bed sentenced inmate housing unit in addition to 575 pretrial beds.

The sentenced inmates would provide inmate workers for various assignments within the new facility.


A site needs to be selected and acquired;

The County will need to select a project implementation approach and go through the entire process of scoping, designing, bidding, and constructing a new facility;

The implementation will need close attention to final design in order to achieve anticipated staff savings;

Public perception issues going from 342 rated beds to 620 rated beds; and

Additional transportation effort and cost may be required for in-custody court appearances if technology cannot achieve significant reduction.

Option 5 Rewards:

The existing Federal Court Order could be vacated;

Improved public, staff, and inmate safety;

Improved working conditions for staff, with collateral reduction in staff turnover, overtime, and sick leave;

Compliance will all Ohio Department of Rehabilitation and Corrections Standards and requirements;

The capability of becoming an American Correctional Association accredited facility;

Utilization of inmate workers to reduce costs of contracted and other services;

A facility with a core area sufficient to accommodate additional housing additions in the future; and

A reduction in the cost of housing sentenced individuals at CCNO [48].


Page 5- 44

Option 6: New 572-Bed Replacement Facility Option 6 is a slightly different approach, abandoning the existing facility and constructing a new replacement facility providing the 572 pretrial beds, which is the low range projected pretrial in-custody population in 2025. The new replacement facility will provide improved service delivery and related cost economies through integration of national best practices. This is the same as Option 5, without the 48-bed cadre housing unit – reducing the total number of housing units to 12 from 13.


A site needs to be selected and acquired;

The County will need to select a project implementation approach and go through the entire process of scoping, designing, bidding, and constructing a new facility;

The implementation will need close attention to final design in order to achieve anticipated staff savings;

Public perception issues going from 330 rated beds to 575 rated beds; and

Additional transportation effort and cost may be required for in-custody court appearances if technology cannot achieve significant reduction.

Option 6 Rewards:

The existing Federal Court Order could be vacated;

Improved public, staff, and inmate safety;

Improved working conditions for staff, with collateral reduction in staff turnover, overtime, and sick leave;

Compliance will all Ohio Department of Rehabilitation and Corrections Standards and requirements;

The capability of becoming an American Correctional Association accredited facility; and

A facility with a core area sufficient to accommodate additional housing additions in the future.


Page 5- 45

RECOMMENDATIONS: Based upon the information and findings generated in the Feasibility Study effort, the consultant recommendations are:

Select Option 5: New 620-Bed Replacement Facility in order to achieve a significant improvement in the cost effectiveness across the entire system and gain cadre workers to the benefit of pretrial facility operation;

Identify and gain control of a feasible site for project development from the multiple opportunities available, whether or not included as part of this study;

Determine the project implementation method. In terms of what is known about the project now, the approach should provide the ability for the County/Sheriff’s Office to control final design to their satisfaction;

Initiate a public information campaign to present the rationale for moving forward with a replacement facility. This will be aided by the fact that the County has undertaken a rational, step-by-step process to reach that decision; and

Formalize a Transition Team to provide leadership during final design and to manage the training and development of policy/procedure manuals that will need to be developed for a new facility.