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Cuyahoga County Regional Jail Assessment

Prepared for Office of Public Safety & Justice Services, Cuyahoga County, Ohio

July 2014

The PFM Group

7251 Engle Road, Suite 115 Cleveland, OH 44130 Phone: 440.239.7070

Fax: 440.239.7074

850 Market Street, Suite 202 Chattanooga, TN 37402

Phone: 423.425.3154

2 Logan Square, Suite 1600 18th & Arch Streets

Philadelphia, PA 19103 Phone: 215.567.6100

Fax: 215.567.4180

RNR Consulting

1111 Superior Ave E Cleveland, OH 44114 Phone: 216.621.8977

Consultant Team

Public Financial Management, Inc. Public Financial Management (PFM) is the nation's largest independent financial advisor to state and local governments. PFM’s national reputation for independence, initiative and integrity is provided by more than 450 professionals in more than 30 offices across the nation –

including Cleveland, Ohio. RNR Consulting RNR Consulting (RNR) is a management and IT professional services consulting firm that primarily services the public sector. Based in Cleveland and a product of the Weatherhead Consulting Group at Case Western Reserve University, RNR Consulting is a Small Business Enterprise and a Minority owned Business Enterprise (MBE).

Table of Contents

Summary of Primary Findings ..................................................................................... 5

Introduction and Overview ........................................................................................... 7

Project Overview and Approach ......................................................................................... 7

Overview of Responding Jurisdictions ....................................................................... 9

Number of Responding Jurisdictions and Operational Design ............................................. 9

Jail Characteristics .............................................................................................................10

Operational Capacity .................................................................................................. 13

Central Findings .................................................................................................................13

Operational Capacity Detail ...............................................................................................13

Facilities, Technology and Transportation ............................................................... 17


Facilities, Technology and Transportation Detail ................................................................17

Facilities ..........................................................................................................................17

Medical Facilities .............................................................................................................19

Technology .....................................................................................................................21

Transportation .................................................................................................................22

Operational Information .............................................................................................. 24


Operational Information Detail ............................................................................................25

Full Service Jails .............................................................................................................25

Bookings .........................................................................................................................33

Sentenced Inmates by Top Charge .................................................................................35

Average Length of Stay for Misdemeanants (Full-Service Facilities) ...............................37

Average Daily Population (ADP) Overview ......................................................................37

Average Daily Cost Per Inmate (All Jails) ........................................................................39

Programming ..................................................................................................................40

Personnel ..................................................................................................................... 41


Personnel Detail.................................................................................................................42

Personnel Overview ........................................................................................................42

Collective Bargaining Agreements ..................................................................................44

Use of Police Patrol and/or Dispatch Staff .......................................................................44

Budget .......................................................................................................................... 47


Budget Details ...................................................................................................................48

Expenditures ...................................................................................................................48

Revenues ........................................................................................................................49

Food and Medical Costs .................................................................................................50

Appendices .................................................................................................................. 55

Appendix A – Letter from Cuyahoga County to Mayors Announcing Jail Survey

(November 2013) ...............................................................................................................56

Appendix B – Letter from Cuyahoga County to Mayors Confirming Deadline for Survey

Responses (January 2014) ................................................................................................57

Appendix C – Definitions of Terms Used in Survey of Jail Operations in

Cuyahoga County ..............................................................................................................58

Regional Jail Assessment Study Summary of Primary Findings Cuyahoga County, Ohio

Summary of Primary Findings The following primary findings provide a baseline overview of operational information, operational capacity and budgetary information in Cuyahoga County.

1. If the County in coordination with a sufficient number of municipalities moves forward with a regional jail model, ample bed space appears to exist to house inmate populations. Excluding the Cuyahoga County Jail, the total rated bed capacity among the remaining jails is 996 (902 without Cleveland’s “open and inactive” district jails) and the corresponding average daily population within those jails is 467. Viewed another way, ample bed space existed when excluding all of Cleveland’s jails and the County Jail from bed space and ADP considerations – a rated capacity of 584 municipal jail beds exist to house the average daily population of 290 non-Cleveland municipal inmates.

2. As the County and municipalities consider a regional jail model, current full

service and non-full service facilities exist throughout the County in various geographic areas. One particular geographic question that may warrant additional analysis and consideration is the optimal location and physical space necessary for a regional jail facility on the County’s western side. There are several facilities that could be considered – though it is unclear whether there would be a need for one or more than one facility to house prisoners on the County’s western side.

3. Potential fiscal impacts of regional jail operations. Regional jail operations may be less costly than current operations for many full service jails, given high fixed costs and relatively low inmate populations. Non-full service jails may also find regional operations less costly than current operations which require them to send inmates to be housed in other jurisdictions’ jails. Often off-site housing is at a per diem rate between $70 and $100. If the County can house inmates at a lesser per diem rate, manage population to keep sentenced individuals out of jail or lessen lengths of stay, or a combination of both, many jurisdictions would see a decrease in costs for jail services. Because their annual expenditures for jail services are already very low, jurisdictions who have limited prisoners and pay other jurisdictions to house their inmates may not achieve significant fiscal savings. Jurisdictions that house a significant number of inmates from other jurisdictions may be reluctant to forego revenues by participating in a regional jailing effort.

4. In some municipalities, a regional jail model could increase staffing availability for core police department activities without increasing costs. A sizable number of jurisdictions use police patrol and/or dispatch staff to provide some level of jail-related services. Police departments could reallocate staff time previously spent on jail-related duties to perform additional patrol and dispatch duties – without any additional cost.

5. The County may be able to achieve economies of scale in food and medical services. These benefits are not always available to smaller municipalities and could reduce the overall cost of jail operations from current baseline levels and produce a net cost savings in the system.

Regional Jail Assessment Study Summary of Primary Findings Cuyahoga County, Ohio

6. In 2013, responding jurisdictions reported budgeting jail expenditures of approximately $88.0 million and budgeting revenues of approximately $3.0 million. Cuyahoga County jail and Cleveland jails accounted for nearly 89.8 percent of all budgeted jail expenditures among responding jails. Bedford Heights accounted for approximately 69.0 percent of all budgeted revenues among responding jails.

2013 Budgeted Expenditures of Responding Jails1

Budgeted

Expenditures Percent of All Jail

Expenditures

Total Expenditures (All Jurisdictions) $87,959,128 -

Cuyahoga County Expenditures $64,100,000 72.9%

Cleveland Expenditures $14,914,283 17.0%

All Other Expenditures $8,944,845 10.2%

2013 Budgeted Revenues of Responding Jails

Budgeted Revenues

Percent of All Jail Revenues

Total Budgeted Revenues (All Jurisdictions) $3,037,738 -

Bedford Heights Budgeted Revenues $2,094,800 69.0%

Solon Budgeted Revenues $265,000 8.7%

North Royalton Budgeted Revenues $180,000 5.9%

Broadview Heights Budgeted Revenues $113,667 3.7%

Strongsville Budgeted Revenues $108,169 3.6%

All Other Budgeted Revenues $276,102 9.1%

1 Four jurisdictions (Brook Park, Brooklyn, Mayfield Heights, and Strongsville) reported personnel costs that were greater than their reported total costs of operations. It appears these jurisdictions did not include personnel expenditures as part of total costs. If each jurisdiction’s personnel costs are added to total operation costs, the total expenditures for all jails would increase from $88.0 million to $88.7 million.

Regional Jail Assessment Study Introduction and Overview Cuyahoga County, Ohio

Introduction and Overview

Project Overview and Approach

In September 2013, Cuyahoga County issued a Request for Proposals to provide a Regional Jail Assessment for the County. In mid-October 2013, the County selected a team led by Public Financial Management, Inc., including subcontractor RNR Consulting (collectively referred to throughout the report as “the PFM Team”), to conduct a detailed analysis of jail operations within the County’s geographic footprint. The assessment could then be used by the County as a step toward exploring a countywide jail regionalization. Cuyahoga County asked the PFM Team to collect information from all jails within the County. Data collected included: operations, operational capacity, personnel, budget, and other jail-specific items. The PFM Team was charged with:

Creating a survey to be distributed to all jails related to jail operations and functions

Developing a template and on-line tool for administering the survey instrument and collection data

Launching the electronic survey tool

Compiling the results into a written report and providing high-level recommendations for next steps.

The study will assist the County, municipal decision-makers, and the public in weighing the policy impacts of a proposed jail regionalization. This document represents the final report detailing the survey results and the PFM Team’s high-level findings. In developing the final report, the PFM Team relied upon the survey responses from responding jails. As with any such review and use of third-party responses to survey questions, individual components of our analysis rely on the validity, accuracy, and comprehensiveness of the information supplied to us. To complete the assigned scope of work, the PFM Team worked with Cuyahoga County and its municipal jails to design and disseminate an electronic survey. The intention of the survey was to capture critical information to assist the County in assessing regional jailing options. The survey was previewed with municipalities at two separate community meetings. All Police Chiefs/Jail Administrators and Mayors were invited to attend the meetings and provide feedback on the draft survey. The initial community meetings were held in early December 2013 – one meeting was held in Cuyahoga Heights and another in Mayfield. The input received from each respective meeting was incorporated into the design of the final survey. In early December 2013, Cuyahoga County disseminated the electronic survey link and a detailed instruction manual/user’s guide to Police Chiefs/Jail Administrators in every jurisdiction within Cuyahoga County.2 The survey sought information regarding the various jails’ core operations and functions.

2 Several jurisdictions received the survey at a later date because of missing or outdated contact information.

Regional Jail Assessment Study Introduction and Overview Cuyahoga County, Ohio

The survey focused questions on six areas:

1. General Information 2. Operational Information 3. Operational Capacity 4. Personnel 5. Jail Budget 6. Other Jail Specific Items (Technology, Transportation, and Facility Capabilities)

During the survey response period (Dec. 2013 – Jan. 2014), two additional community meetings were held in early January 2014 (one in Solon and one in Parma). The intention of the meetings was to provide additional opportunities for Police Chiefs/Jail Administrators to provide information, ask questions, or address concerns. During the survey response period, PFM contacted each municipality via email and telephone to proactively answer questions and troubleshoot issues on an individual basis. In early January 2014, the County sent a reminder letter to the Mayors and Police Chiefs/Jail Administrators of every jurisdiction to remind them of the mid-January deadline for survey submissions. A final letter from the County and follow-up telephone calls by the County and PFM personnel secured all remaining surveys in late January 2014. As a result, all 59 requested survey participants (representing 64 total jail facilities) successfully submitted responses.3 During February 2014, PFM reviewed each survey submission and clarified information/data as needed.

This report provides summary and detailed views of responses received from participating jurisdictions. The PFM Team made a concerted effort to verify data and work with responding jails to confirm and revise information to provide the most accurate data available. Certain jails were unable to provide further confirmation or did not respond to follow-up questions. The information contained in this report is reflective of the best available information received from responding jurisdictions. Certain data that were not received or not able to be confirmed may warrant future discussion as the County and municipalities continue to discuss jail regionalization.

In some instances, survey respondents answered some, but not all survey questions. As a result, the total number of responses to each question or sub-question is not the same throughout the report.

The following table includes all participating jurisdictions:4

Bay Village Beachwood Bedford Bedford Heights

Bentleyville Berea Brecksville Broadview

Heights

Brook Park Brooklyn Brooklyn Heights

Chagrin Falls

Cleveland Cleveland Heights

Cuyahoga County

Cuyahoga Heights

East Cleveland

Euclid Fairview

Park Garfield Heights

Gates Mills Village

Glenwillow Highland Heights

Highland Hills

Hunting Valley

Independence Lakewood Linndale Lyndhurst Maple

Heights Mayfield Heights

Mayfield Village

Middleburg Heights

Moreland Hills Newburgh

Heights North

Olmsted North

Randall North

Royalton Oakwood Olmsted Falls

Olmsted Township

Orange Village Parma Parma Heights

Pepper Pike Richmond

Heights Rocky River Seven Hills

Shaker Heights

Solon South Euclid

Strongsville University Heights

Valley View Village of Bratenahl

Walton Hills

Warrensville Heights

Westlake Woodmere

3 The City of Cleveland reported seven total jail facilities – five of which are not actively used to house inmates. Data from Chagrin Falls and Chagrin Falls Township were included in the same survey response and are reported as “Chagrin Falls” in this report. 4 While all jurisdictions responded to the survey, not every jurisdiction responded to every question.

Regional Jail Assessment Study Overview of Responding Jurisdictions Cuyahoga County, Ohio

Overview of Responding Jurisdictions

Number of Responding Jurisdictions and Operational Design

Each of the requested 59 jurisdictions responded to the jail-specific survey disseminated in December 2013. The survey responses indicated that 52 jurisdictions’ jail functions resided within their respective police departments. Five jurisdictions classified their jail facility as “another design.”5 The only jurisdiction that operated its jail as a separate department within its municipal government was the City of Bedford Heights. The City of Cleveland indicated that its jails were operated under the purview of the Cleveland Department of Public Safety.

Table 1 – Jail Operational Design Among Responding Jurisdictions Design Response Number Percentage of Total

Police Department 52 86%

Another Design 5 10%

Own Department 1 2%

Public Safety Department 1 2%

Total 59 100%

Geographic Distribution of Jails The majority of jails in Cuyahoga County are located in the central and northeast regions of the County. The following graphic displays jails and temporary holding facilities within the County. Jails (full service jails) are shown in blue and temporary holding facilities (non-full service jails) are shown in red. Several smaller full service jails and temporary holding facilities reside on the County’s west side. As the County and its municipalities contemplate regionalizing jail operations, the geographic distribution of regional satellite jails should be an important component of the discussion. As a result, one area that will warrant additional review is the west side of the County. However, as will be discussed later in this report, capacity on the west side may be sufficient to handle the area’s relatively smaller jail needs.

5 Responses include examples such as “we have no facility” and “we’re not a jail, but we have a six hour holding cell.”


Figure 1: Geographic Distribution of Responding Jail Facilities in Cuyahoga County

Jail Characteristics Operational Status Survey responses indicated there are a total 64 jails/temporary holding facilities in 58 jurisdictions.6 Currently, Cuyahoga County and 49 municipalities within the County operate open and active jail facilities. Within the 50 jurisdictions there are 51 open and active jails (Cleveland has two open and active jails); the survey divided the facilities into two discrete categories – full service jails and non-full service jails. For the purposes of this survey, the PFM Team used the following definitions:

Full Service: a local confinement facility used primarily to detain adults for more than one hundred and twenty (120) hours.

Non-Full Service: a temporary holding facility or any other local facility not meeting

the criteria to be considered a full service jail. Of the remaining 9 jurisdictions, two responded that their jail facilities were “open and inactive,” six provided a jail status of “other,” and one reported its jail as “closed.” A jail status of “open

6 One jurisdiction, Newburgh Heights, reported that it did not have any jail or temporary holding facility.

Bedford

Heights


and inactive” meant that the jail facility was not formally closed, but was not actively used to house or hold inmates. Pepper Pike and Warrensville Heights responded that their respective jails were “open and inactive.” Additionally, the City of Cleveland’s five district jails were indicated as “open and inactive.” Bentleyville, Glenwillow, Highland Hills, Newburgh Heights, Orange Village, and Seven Hills listed their operational status as “other;” this category included responses such as “we have no facility” and “we are not a jail, but have a six-hour holding cell.” The only reported “closed” jail (reported closed to the Ohio Department of Rehabilitation and Correct) was Gates Mills Village, which closed its jail in May 2013.

The following table summarizes selected primary responses from each jail in Cuyahoga County.

Table 2 - Primary Results7

Jurisdiction Facility Full

Service

Rated Bed

Capacity

Operational Status

2013 ADP

Percent Filled

2013 Total Budgeted

Expenditures

Housed Inmates for

other jurisdictions

Bay Village x 6 Open and Active 1.0 16% $17,360 x

Beachwood x 13 Open and Active 2.0 15%

x

Bedford x 14 Open and Active 4.0 29% $152,937 x

Bedford Heights x 126 Open and Active 66.5 53% $2,182,000 x

Bentleyville Other 0 $1,500

Berea 8 Open and Active 0.9 11% $27,000

Brecksville 6 Open and Active 3.4 57% $265,738

Broadview Heights

x 10 Open and Active 2.6 26% $285,116 x

Brook Park 11 Open and Active 2.1 19% $37,396 x

Brooklyn 20 Open and Active 8.0 40% $75,000

Brooklyn Heights 3 Open and Active 6.4 214% $16,700

Chagrin Falls 2 Open and Active 0 0%

Cleveland

HOC x 268 Open and Active 270 $14,914,283

CPU x 50 Open and Active Included in above

Included in

above

2nd District x 20 Open and Inactive

3rd District x 20 Open and Inactive

5th District x 20 Open and Inactive

1st District x 17 Open and Inactive

4th District x 17 Open and Inactive

Cleveland Heights

x 13 Open and Active 9.1 70% $90,000 x

Cuyahoga County

x 1765 Open and Active 2,041 116% $64,100,0008 x

Cuyahoga Heights

8 Open and Active 0.2 2% $15,000 x

East Cleveland 22 Open and Active 15 68%

Euclid x 43 Open and Active 289 65% $65,000

Fairview Park x 6 Open and Active $19,400 x

Garfield Heights x 16 Open and Active 14.4 90% $442,463

Gates Mills Village

x 3 Closed

Glenwillow Other

7 Four jurisdictions (Brook Park, Brooklyn, Mayfield Heights, and Strongsville) reported personnel costs that were greater than their reported total costs of operations. It appears these jurisdictions did not include personnel expenditures as part of total costs. 8 Approximately $8.0 million is a result of how the County charges back for space maintenance, while the remaining $56.1 million is related to actual jail operations. 9 The County and Euclid are currently in the process of consolidating operations. In May 2013, Euclid’s jail became a 6 hour holding facility. In 2012, Euclid’s jail was a full service jail and had an ADP of 48. The jail’s ADP for the first quarter of 2013 (when it was a full service jail) was 28. This data point is used in the table above.


Table 2 – Primary Results (Continued)


Service

Rated Bed

Capacity

Operational Status

2013 ADP

Percent Filled

2013 Total Budgeted

Expenditures

Housed Inmates for

other jurisdictions

Highland Heights x 6 Open and Active 1.2 20% $15,644 x

Highland Hills Other

Hunting Valley 1 Open and Active

Independence 6 Open and Active 1.1 18% $139,096

Lakewood 16 Open and Active 5 31% $330,930

Linndale Open and Active

Lyndhurst x 1 Open and Active 2.1 213% $25,000 x

Maple Heights 10 Open and Active 23 230% $56,890

Mayfield Heights x 12 Open and Active 2.0 16% $30,000

Mayfield Village 1 Open and Active 0.2 18% $15,000

Middleburg Heights x 7 Open and Active 2.9 42% $28,622

Moreland Hills 1 Open and Active

Newburgh Heights Other

North Olmsted 9 Open and Active 4.0 44% $157,190 x

North Randall x 12 Open and Active 1.1 9% $1,000

North Royalton x 12 Open and Active 9.2 76% $899,958 x

Oakwood Open and Active

Olmsted Falls 3 Open and Active 0.0 $30,000

Olmsted Township Open and Active

Orange Village Other

Parma x 26 Open and Active 21.8 84% $1,449,876 x

Parma Heights 6 Open and Active 1.4 23%

Pepper Pike 4 Open and Inactive $10,000

Richmond Heights 8 Open and Active 2.5 31% $14,663

Rocky River Open and Active 3.9 $38,828 x

Seven Hills Other

Shaker Heights x 11 Open and Active 7.2 65% $373,878

Solon x 26 Open and Active 16.4 63% $1,066,000 x

South Euclid 8 Open and Active 2.5 31% $51,594 x

Strongsville 24 Open and Active 9.0 37% $120,832 x

University Heights Open and Active 2.0 $20,000 x

Valley View x 11 Open and Active 0.3 3% $125,000 x

Village of Bratenahl 5 Open and Active 1.5 30% $1,000

Walton Hills x 3 Open and Active $9,390

Warrensville Heights 12 Open and Inactive 0.2 2% $144

Westlake x 13 Open and Active 5.8 44% $236,700 x

Woodmere Open and Active 0.0 $5,000

Regional Jail Assessment Study Operational Capacity Cuyahoga County, Ohio

Operational Capacity Central Findings Rated Capacity:

Total countywide rated bed capacity is 2,761 beds – including 1,765 at the Cuyahoga County jail, 412 in the City of Cleveland jails, and 584 beds throughout the rest of the County.

Nine other jails have a rated capacity of more than 15 beds: o Bedford Heights (126) o Euclid (43) o Parma (26) o Solon (26) o Strongsville (24) o East Cleveland (22) o Brooklyn (20) o Garfield Heights(16) o Lakewood (16)

Operational Capacity Detail For comparative and analytical purposes the PFM Team categorized jurisdictions into three groups using the size of each jurisdiction’s rated bed space.

Group A: consists of jail facilities with rated bed capacities of 20 beds or more.

Group B: consists of jail facilities with rated bed capacities between 10 and 19 beds.

Group C: consists of jail facilities with rated bed capacities of less than 10 beds. Group A Facilities Thirteen of the 64 responding jails in Cuyahoga County were classified as Group A jails. The 13 facilities were located in nine jurisdictions within the County. The City of Cleveland reported five Group A jail facilities, but only actively operated two facilities, three of the City’s Group A facilities were reported to be “open and inactive.” Among all Group A facilities, the total rated bed capacity was 2,430 beds. The vast majority of rated bed capacity is located in three jurisdictions. Cuyahoga County jail had the largest rated bed space; 1,765 beds, the City of Cleveland; 412 beds, and Bedford Heights; 126 beds, were the next largest jails in terms of rated capacity. Ten of the 13 Group A facilities self-reported as full service facilities. Strongsville, East Cleveland, and Brooklyn reported that their jurisdictions did not operate full service jail facilities. The survey responses indicate that all 1,516 cells in Group A jail facilities can be closed and locked. Four jurisdictions had a total of 51 ADA compliant cells, Cuyahoga County (30), Solon (14), Strongsville (5), and Parma (2). Four of the 9 jurisdictions with “open and active” Group A facilities had an infirmary: Cuyahoga County, Cleveland, Euclid, and Parma. Group A jails included several potential regional satellite jail locations that were not operated by the County or City of Cleveland. The non-County, non-Cleveland Group A jails contained a


total rated bed capacity of 287. Of the 287 beds, all were located in cells that locked, 69 of which had access to an infirmary, and at least 21 were ADA compliant. These characteristics may make these facilities attractive to the County as it considers potential satellite jail locations.

Table 3 - Operational Capacity (Group A: 20+ Beds)

Group Jail Full

Service Rated Bed Capacity

# of Cells

# of Cells that Lock

# of ADA Compliant

Cells Infirmary

A Cuyahoga County X 1,765 1,256 1,256 30 X

A Cleveland (HOC) X 268 16 16 0 X

A Cleveland (CPU) X 50 50 50 0

A Cleveland (2

nd

Dist.) X 20 20 20 0

A Cleveland (3rd

Dist.) X 20 20 20 0

A Cleveland (5th

Dist.) X 20 20 20 0

A Bedford Heights X 126 7 7 0

A Euclid X 43 43 43 0 X

A Parma X 26 14 14 2 X

A Solon X 26 14 14 14

A Strongsville

24 28 28 5

A East Cleveland

22 18 18 0

A Brooklyn

20 10 10 0

TOTAL 13 10 2,430 1,516 1,516 51 4

Group B Facilities Seventeen of the 64 jail facilities in Cuyahoga County had rated bed capacities between 10 and 19 beds and are categorized as Group B facilities. The 17 facilities were located in 16 different jurisdictions (the City of Cleveland had two Group B facilities, neither of which was currently housing prisoners). Group B jails had a total rated bed capacity of 220 beds. Among full service facilities, Cleveland’s 1st and 2nd district jails had the highest rated bed capacity with 17 beds, and were followed by Garfield Heights and Bedford with 16 beds and 14 beds, respectively. Twelve jurisdictions in Group B operated full service jails and four jurisdictions operated non-full service jails (Lakewood, Warrensville Heights, Brook Park, and Maple Heights). Among non-full service jails, Lakewood had the highest rated bed capacity with 16 beds, followed by Warrensville Heights- 12 beds; Brook Park – 11 beds; and Maple Heights – 10 beds. Excluding the City of Cleveland jail facilities, the total rated bed capacity for the Group B jails is 186 beds. The survey responses indicate that 189 of 191 cells in Group B facilities could be closed and locked. Additionally, Group B facilities had a total of 51 ADA compliant cells, located in Westlake (18), Cleveland Heights (13), Bedford (10), Garfield Heights (9), and Valley View (1). None of the jails in Group B had an infirmary.


Table 4 - Operational Capacity (Group B 10 to 19 Beds)

Group Jail Full

service Rated Bed Capacity

# of Cells


# of ADA Compliant Cells

B Cleveland (1

st

Dist.) X 17 17 17 0

B Cleveland (4

th

Dist.) X 17 17 17 0

B Garfield Heights X 16 9 9 9

B Lakewood 16 11 11 0

B Bedford X 14 10 10 10

B Beachwood X 13 15 15 0

B Cleveland Heights X 13 13 13 13

B Westlake X 13 18 18 18

B Mayfield Heights X 12 10 10 0

B North Randall X 12 6 6 0

B North Royalton X 12 10 10 0

B Warrensville Heights

12 5 5 0

B Brook Park 11 11 11 0

B Shaker Heights X 11 15 1310

0

B Valley View X 11 8 8 1

B Broadview Heights

X 10 5 5 0

B Maple Heights 10 11 11 0

Total 17 13 220 191 189 51

Group C Facilities Thirty-five of the 64 jail facilities in Cuyahoga County have rated bed capacities of less than 10 beds or did not operate a jail and were categorized as Group C facilities. Group C jails have a total rated bed capacity of 111 beds. Among full service facilities, Middleburg Heights had the highest rated bed capacity with seven beds, followed by Fairview Park, and Highland Heights with six beds each. Seven jurisdictions in Group C operated full service jails, 16 jurisdictions operated non-full service jails, and three jurisdictions did not operate a jail.11 Among non-full service jails, North Olmsted had the highest rated bed capacity with nine beds, followed by Berea, Cuyahoga Heights, Richmond Heights, and South Euclid all with eight beds. The survey responses indicated that 123 cells in Group C facilities can be closed and locked; three cells in Walton Hills cannot be locked. Group C facilities had a total of 19 ADA compliant cells, located in: Cuyahoga Heights (2), Richmond Heights (8), Middleburg Heights (2), Brooklyn Heights (1), Walton Hills (3), Hunting Valley (1), and Mayfield Village (1). None of the jails in Group C had an infirmary.

10 2 of Shaker Heights’ jail cells are not permitted to be closed and locked. 11 Gates Mills closed its jail in May 2013. Until that time, it was listed as a full-service facility, because it operated as a full service jail in 2013, is included in the total number of full service facilities for this grouping.


Bentleyville, Glenwillow, Highland Hills, Newburgh Heights, Oakwood, Olmsted Township, Orange Village, Seven Hills, and Woodmere did not report a rated bed capacity or cell space, and are omitted from the below table. In taking a regional approach, larger jails in Group C, may provide necessary geographical coverage as satellite jails for certain regions of the County.

Table 5 - Operational Capacity (Group C less than 10 beds)

Group Jail Full service Rated Bed Capacity

# of Cells


# of ADA Compliant Cells

C North Olmsted 9 9 9 0

C Berea 8 6 6 0

C Cuyahoga Heights 8 6 6 2

C Richmond Heights 8 10 10 8

C South Euclid 8 10 10 0

C Middleburg Heights X 7 7 7 1

C Bay Village X 6 8 8 2

C Brecksville 6 5 5 0

C Fairview Park X 6 6 6 0

C Highland Heights X 6 9 9 0

C Independence 6 9 9 0

C Parma Heights 6 4 4 0

C Village of Bratenahl 5 2 2 0

C Pepper Pike 4 3 3 0

C Brooklyn Heights 3 3 3 1

C Gates Mills Village Closed May

2013 3 0 0 0

C Olmsted Falls 3 3 3 0

C Walton Hills X 3 3 0 3

C Chagrin Falls 2 2 2 0

C Hunting Valley 1 1 1 1

C Lyndhurst X 1 6 6 0

C Mayfield Village 1 1 1 1

C Moreland Hills 1 1 1 0

C Linndale N/A 1 1 0

C Rocky River N/A 6 6 0

C University Heights N/A 5 5 0

Total 26 7 111 126 123 19

Regional Jail Assessment Study Facilities, Technology and Transportation Cuyahoga County, Ohio

Facilities, Technology and Transportation Most of the jails that may be considered for use as regional jail facilities have laundry and/or kitchen facilities.

Facilities are again reviewed based on three categories of rated bed space: Group A (20+ beds), Group B (10 to 19 beds), Group C (less than 10 beds). Central Findings Facilities

Most of the potential jails that may be considered for use as regional jail facilities have laundry and/or kitchen facilities.

Technology

Video capabilities exist within the majority of jail locations being considered for use as regional jail facilities. Video capabilities can be used for video arraignment and other hearings which could reduce transportation costs and/or improve efficiency.

While most jails reported that they cannot or do not connect with the County’s inJail management software, the County’s technology could be installed at any satellite facility.

Transportation

Although most jurisdictions reported responsibility for transporting inmates, most did not provide data regarding transportation cost. The County will likely absorb transportation costs for inmates traveling to/from appointments, court hearings, and other locations. The County would have the opportunity to structure its transportation needs by region, charging districts/municipal courts, medical care proximity, and other factors to help achieve levels of scale and efficiency that are generally not attainable for all jurisdictions.

Facilities, Technology and Transportation Detail Facilities Group A Facilities Within Group A, seven of nine jails had both a laundry and kitchen facility – including jails in six of the seven municipal facilities other than Cleveland. In addition to having laundry and kitchen capabilities, five municipalities renovated their jails as of 2000.


Table 6 - Group A - Jails with Laundry and/or Kitchen Facilities

Jurisdiction Rated Bed Capacity

Year Facility was Built

Renovations Laundry Facility

Kitchen Facility

Cuyahoga County 1,765 1977 2010 X X

Cleveland 412 N/A 2006 X X

Bedford Heights 126 1995 2003 X X

Euclid 43 1987

X X

Parma 26 2000

X

Solon 26 1998 2003 X X

Strongsville 24 2010

X X

East Cleveland 22 1911 2009 X

Brooklyn 20 1974 X X

Total 2,464 5 9 7

Group B Facilities Among the responding jails in Group B, six reported having both laundry and kitchen facilities. Ten jails reported having laundry capabilities and nine jails reported having a kitchen. Several municipalities recently renovated their jail facilities – including Cleveland Heights, North Randall, and Shaker Heights.

Table 7 - Group B - Jails with Laundry and/or Kitchen Facilities


Year facility was built


Kitchen Facility

Garfield Heights 16 1990 1990 X X

Lakewood 16 1958 X

Bedford 14 2003 X

Beachwood 13 1993 X X

Cleveland Heights 13 1986 2014

Westlake 13 1992 X

Mayfield Heights 12 1985

North Randall 12 1957 2013 X

North Royalton 12 1991 1993 X X

Warrensville Heights

12 1962 X

Brook Park 11 1970 1985 X

Shaker Heights 11 1974 2005 X

Valley View 11 1991 1991 X X

Broadview Heights 10 2000 X X

Maple Heights 10 1967 X X

Total 186 7 10 9

Group C Facilities Among responding Group C jails, four jails had both laundry and kitchen facilities. Nine jails reported having laundry services and five jails reported having kitchen facilities. Four jails also indicated that there was some level of recent renovations to their respective jails.


Table 8 - Group C - Jails with Laundry and/or Kitchen Facilities


Year facility was built


Kitchen Facility

Cuyahoga Heights 8 2006 2006 X X

Middleburg Heights 7 1980 1999 X

Brecksville 6 1972 1972 X

Fairview Park 6 1967 1999, 2002 X

Independence 6 1982 X

Village of Bratenahl 5 1910 2007 X

Brooklyn Heights 3 1973 2010 X X

Walton Hills 3 1971 X X

Moreland Hills 1 1998 1998 X

Woodmere 0 N/A X X

Total 45 7 9 5

Medical Facilities Many jails transport inmates to outside medical facilities when they require any medical attention beyond the most basic care or beyond available care at the jail’s infirmary. Transportation costs and staffing costs associated with inmate medical visits, particularly security, are often significant. As a result, the survey asked jails to provide the hospital(s) to which they transport inmates. Hillcrest Hospital in Mayfield Heights (12), MetroHealth Hospital/Metro General (10), Southpointe Hospital in Warrensville Heights (8), Ahuja Medical Center – University Hospitals in Beachwood (7), Marymount Hospital in Garfield Heights (7), Southwest General Health Center (6) in Middleburg Heights, and Parma Hospital in Parma (6) served the most jails.


Table 9 - Medical Facility(ies) Used for Inmate Populations Jurisdiction Medical Facility Used

Bay Village St. John's

Bedford UHHS Bedford Medical Center

Bedford Heights South Point Medical Center

Bentleyville N/A

Berea Southwest General Hospital

Brecksville Sagamore Hills Medical Center; Marymount South; Marymount Hospital

Broadview Heights Marymount South; Parma Hospital; Sagamore Hills Medical Center

Brook Park Southwest General Hospital

Brooklyn Parma Community Hospital; Metro General Hospital

Brooklyn Heights Parma Community Hospital; Metrohealth Medical Center

Chagrin Falls Hillcrest Hospital; Ahuja Medical Center

Beachwood Ahuja; Southpointe; Hillcrest

Middleburg Heights Southwest General Hospital

Cleveland South Point Hospital; St. Vincent Charity; Metro General Hospital, Lutheran Hospital; Hillcrest Hospital

Cleveland Heights Kaiser Permanente; Cleveland Heights; University Hospital; Cleveland Clinic; Metrohealth Hospital

Cuyahoga County Several different facilities (Facility names not provided)

Cuyahoga Heights Marymount Hospital; Metro General Hospital

East Cleveland University Hospitals

Euclid Euclid Hospital

Fairview Park Fairview Hospital; Rocky River Urgent Care

Garfield Heights Marymount Hospital

Gates Mills Village N/A

Glenwillow N/A

Highland Heights Hillcrest Hospital

Highland Hills N/A

Hunting Valley Hillcrest Hospital; University Hospital (Ahuja Center)

Independence Mary Mount Hospital

Lakewood Lakewood Hospital

Linndale Metro General Hospital

Lyndhurst Hillcrest Hospital

Maple Heights Marymount Hospital

Mayfield Heights Hillcrest Hospital

Mayfield Village Hillcrest Hospital

Moreland Hills N/A

Newburgh Heights N/A

North Olmsted St. John Medical Center; Fairview General Hospital

North Randall South Pointe Hospital

North Royalton Parma Hospital, Southwest General Hospital, Metro Hospital, Marymount South Hospital.

Oakwood N/A

Olmsted Falls Southwest General Hospital

Olmsted Township N/A

Orange Village N/A

Parma Parma Community General Hospital; Metro Hospital

Parma Heights Parma Community General Hospital

Pepper Pike Hillcrest

Richmond Heights Richmond Heights/University Heights Hospital

Rocky River Fairview; Lakewood Hospital; Rocky River Urgicare

Seven Hills N/A

Shaker Heights Ahuja Medical Center; Southpointe Hospital; Hillcrest Hospital; MetroHealth Medical Center

Solon University Hospitals; Ahuja University Hospitals; Southpointe Medical Center Cleveland Clinic Twinsburg ER

Hillcrest Hospital

South Euclid Hillcrest Hospital

Strongsville Southwest General Hospital

University Heights Southpointe Hospital

Valley View Marymount ER

Village of Bratenahl Closest ER hospital

Walton Hills Bedford Hospital; Marymount Hospital

Warrensville Heights Southpointe Hospital

Westlake St. John Medical Center; Fairview General Hospital; Lakewood Hospital; Metrohealth

Woodmere Solon Medical Center


Technology Group A Facilities Most jails reported using inJail software or having the ability to communicate with Cuyahoga County Jail’s inJail jail management software. All nine Group A jails had the capacity for video arraignments.

Table 10 - Group A - Technology

Jurisdiction Jail Software Communicate with

inJail? Video

Capabilities?

Bedford Heights TAC X X

Brooklyn Sundance X

Cleveland IMACS, New world RMS X

Cuyahoga County inJail X

East Cleveland inJail X

Euclid inJail X

Parma inJail, CODY (in future) X

Solon inJail & Emergitech X

Strongsville inJail & CAD X

Total 1 9

Group B Facilities In Group B, ten jails reported using inJail software. Fourteen jurisdictions had the capacity for video arraignments.

Table 11 - Group B - Technology


inJail? Video

Capabilities?

Beachwood TAC X X

Bedford inJail & TAC X X

Broadview Heights inJail & TAC

X

Brook Park TAC

X

Cleveland Heights inJail & TAC X X

Garfield Heights inJail & Sundance

X

Lakewood inJail & Sungard

NaviLine

Maple Heights CAD X X

Mayfield Heights inJail & TAC X X

North Randall No jail software

X

North Royalton inJail & CAD X X

Shaker Heights inJail & New World

Systems X

Valley View inJail

X

Warrensville Heights N/A

X

Westlake inJail & TAC X X

Total 7 14

Group C Facilities In Group C, sixteen of the jurisdictions reported using inJail software. Nineteen jurisdictions had the capacity for video arraignments.


Table 12 - Group C - Technology


inJail? Video

Capabilities?

Bay Village inJail & TAC X

Bentleyville N/A

Berea inJail & TAC

X

Brecksville inJail & Sundance X X

Brooklyn Heights TAC

Chagrin Falls inJail X

Cuyahoga Heights Sundance X X

Fairview Park inJail, TAC, & CAD X X

Gates Mills Village Closed X

Glenwillow N/A

Highland Heights inJail & TAC X

Highland Hills N/A

Hunting Valley TAC

Independence inJail & Sundance

X

Linndale inJail

Lyndhurst inJail & Sundance X

Mayfield Village TAC R/M & CAD X

Middleburg Heights inJail & other X

Moreland Hills No Electronic Jail

Management System X

Newburgh Heights N/A

North Olmsted inJail, TAC, & CAD

X

Oakwood N/A

Olmsted Falls inJail and other X X

Olmsted Township N/A

Orange Village N/A

Parma Heights N/A X X

Pepper Pike TAC X X

Richmond Heights inJail & TAC X X

Rocky River inJail & Sundance X X

Seven Hills N/A

South Euclid inJail & Sundance X

University Heights Other X X

Village of Bratenahl LEOT

Walton Hills TAC X X

Woodmere inJail X

Total 14 19

Transportation Jail staff typically transports prisoners to court hearings, off-site medical facilities, family funerals, or other locations. Among all respondents, 49 jurisdictions were responsible for transporting inmates:

43 jurisdictions identified transporting inmates to off-site medical facilities

36 jurisdictions reported responsibility for transporting inmates to court hearings

11 jurisdictions transported inmates for other reasons – such as transport to other jails, halfway houses, or treatment appointments

9 jurisdictions transported inmates to family funerals


Most respondents were unable to calculate transportation costs for 2013, while others reported having responsibilities for transportation, but reported zero associated expense in 2013.12

Table 13 – Transportation

Jurisdiction Court Hearings Off-site medical facilities Family Funerals Other Transport Costs

(2013)

Euclid X $47,948

Lakewood X X $17,187

Bedford Heights X X $15,000

Strongsville X X X $10,953

South Euclid X $9,240

Olmsted Falls X X $5,000

Cuyahoga Heights X X $1,500

Bedford X $500

Pepper Pike X X $500

Bay Village X $0

Berea X X X $0

Broadview Heights X X $0

Brooklyn Heights X $0

Fairview Park X $0

Highland Heights X X X $0

Hunting Valley X $0

Lyndhurst X $0

Middleburg Heights X X $0

North Royalton X X $0

Richmond Heights X X X X $0

Rocky River X X $0

Walton Hills X $0

Woodmere X X X $0

Beachwood X X X N/A

Brecksville X X N/A

Brook Park X X N/A

Brooklyn X X N/A

Chagrin Falls X X N/A

Cleveland X X N/A

Cleveland Heights X X N/A

Cuyahoga County X X X X N/A

Garfield Heights X X N/A

Independence X X N/A

Linndale X N/A

Maple Heights X X X N/A

Mayfield Heights X X X N/A

Mayfield Village X X N/A

North Olmsted X X N/A

North Randall X X X N/A

Oakwood X N/A

Parma X X X N/A

Parma Heights X N/A

Shaker Heights X X N/A

Solon X X X X N/A

University Heights X X N/A

Valley View X N/A

Village of Bratenahl X N/A

Warrensville Heights X X N/A

Westlake X X N/A

Total 36 43 9 11 $107,828

12 Additional detail was not available to provide information as to whether the jails reporting no 2013 transportation costs ($0) did not provide any transportation during the year or were unable to calculate the associated costs of transportation.

Regional Jail Assessment Study Personnel Cuyahoga County, Ohio

Operational Information

The PFM Team surveyed jails to collect data on bookings, average daily population (ADP), length of stay, charges against inmates, relationships with municipal courts and the daily cost per inmate. In order for the County and its municipalities to understand potential costs and savings from regionalizing jail operations, it will be necessary to identify the baseline jail operations for each jurisdiction.

If the County moves toward a regional jail model, it would be responsible for most of the inmates currently held in its jail and those municipal jails that participate in the regional jail operation. The longer-term sentenced inmates currently serving sentences in full-service municipal jails would drive the potential costs and space the County would absorb. To provide an estimate of the potential operational impact and cost impact of regional consolidation, most data contained in this section is reported for full service jails – which would drive much of the population and cost – and non-full service jails.

Central Findings

Full Service and Non-Full Service Jails

Full Service Jail Definition: A local confinement facility used primarily to detain adults for more than one hundred twenty hours.

Non-Full Service Jail Definition: A local confinement facility used primarily to detain adults for less than one hundred twenty hours.

Twenty-four of the 59 jurisdictions reported managing a full service jail. Thirty-five of the 59 jurisdictions reported managing a temporary holding facility (or other non-full service jail) or no jail at all.

Average Daily Population (ADP)

In 2013, the reported ADP among all jails in Cuyahoga County was 2,601.

Excluding Cuyahoga County Jail from ADP calculations, the remaining ADP was 560 inmates.

Excluding Cuyahoga County Jail and Cleveland jails, the remaining jails had an ADP of 290 inmates. o 7 jails accounted for 185 of the 290 inmates (63.8 percent):

Bedford Heights (66.5) Euclid (28)13 Maple Heights (23) Parma (21.8) Solon (16.4) East Cleveland (15) Garfield Heights (14.4)

Full-service jails had an average daily population of 2,508.

Non-full service jails had an ADP of 93 inmates.

Cuyahoga County jail (2,041) and Cleveland’s jails (270) accounted for most of the total ADP among full service jails. The remaining full service jails had an ADP of 197 inmates.

The majority of municipal jails had relatively small ADPs and inmates who did not stay in jail for long periods of time.

13 Euclid transitioned from a full service jail to a six hour holding facility in May 2013. For the first four months of the year, its jail was a full service facility and had an ADP of 28.


Expenditures and Revenues

In 2013, the total budgeted expenditures of all responding jails (full service and non-full service) were $88.0 million.14

In 2013, the total budgeted expenditures of all full service jails in Cuyahoga County equaled $86.5 million. o The County’s Jail and the City of Cleveland’s jails accounted for the majority of

full service jail expenditures, representing a combined $79.0 million in expenditures.

o All non-County and non-City full service jails combined for total expenditures of $7.5 million.

Only one jail, Bedford Heights, came close to operating its jail at a net zero fiscal impact (revenues equal to expenditures), though some jurisdictions received significant revenues to help offset a portion of jail expenditures.

Potential Fiscal Impacts of Regional Jail Operations

Regional jail operations may be less costly than current operations for many full service jails, given high fixed costs and relatively low ADPs.

Jurisdictions that pay others to house their inmates and also send a very low number of inmates per year to be housed in other locations may not achieve significant fiscal savings because their annual expenditures for jail services are already very low.

Jurisdictions that house a significant number of inmates from other jurisdictions may be reluctant to forego revenues.

Non-full service jails may find regional operations less costly than current operations that require them to send inmates to be housed at other jails (often at a per diem rate between $70 and $100). If the County can house inmates at a lesser per diem rate, manage population to keep sentenced individuals out of jail, or lessen lengths of stay, many jurisdictions could see a decrease in costs for jail services.

Operational Information Detail Full Service Jails In 2013, 24 jurisdictions including the Cuyahoga County Corrections Center reported having full service jails (a total of 30); 24 jails were “open and active,” five jails were “open and inactive,” and one jail was “closed.”15 In 2013, the total average daily population (ADP) was 2,508 for full service jails in Cuyahoga County.16 Cuyahoga County jail had an ADP of 2,041, Cleveland’s jails had an ADP of 270 and the remaining full service jails had an ADP of 197 inmates. In 2013, the total budgeted expenditures for all full service jails in Cuyahoga County were $86.5 million. The County’s jail and the City of Cleveland’s jails accounted for the majority of full service jail expenditures – representing a combined $79.0 million in expenditures – or 91.3

14 Four jurisdictions (Brook Park, Brooklyn, Mayfield Heights, and Strongsville) reported personnel costs that were greater than their reported total costs of operations. It appears these jurisdictions did not include personnel expenditures as part of total costs. If each jurisdiction’s personnel costs are added to total operation costs, the total expenditures for all jails would increase from $88.0 million to $88.7 million. 15 Gates Mills closed its jail in May 2013. 16 Fairview Park and Walton Hills did not provide an ADP. Euclid operated as a full service facility for the first 4 months of 2013, and then converted to a 6 hour holding facility. The County and Euclid are currently in the process of consolidating operations. In 2013, Euclid’s reported ADP was 28.


percent of the total. The combined expenditures of remaining full service jails were approximately $7.5 million. Larger jails often housed inmates for jurisdictions that did not have a jail, had only a temporary holding facility, or did not have a sizeable jail facility. Some jails housed small numbers of prisoners for U.S. Immigrations and Customs Enforcement (ICE) and other federal or state entities. The larger jails that held inmates from other jurisdictions charged originating jurisdictions a per diem or flat fee cost to house prisoners. In 2013, among jurisdictions operating active full service jails, 15 of the 24 housed inmates for other jurisdictions.

Table 14 – Full Service Jails (2013 Overview)17


Service Operational

Status

Rated Bed

Capacity

ADP 2013

FY2013 Total Budgeted

Expenditures

Houses Inmates from other

jurisdictions

Cuyahoga County X Open and Active 1,765 2,041 $64,100,000 X

Cleveland HOC X Open and Active 268 270 $14,914,283

Cleveland CPU X Open and Active 50 Included in above

Included in above

Cleveland 1-5th

Districts X Open and Inactive 94 0 N/A

Bedford Heights X Open and Active 126 66.49 $2,182,000 X

Euclid X Open and Active 43 28* $65,000

Parma X Open and Active 26 21.80 $1,449,876 X

Solon X Open and Active 26 16.40 $1,066,000 X

Garfield Heights X Open and Active 16 14.40 $442,463

Bedford X Open and Active 14 4 $152,937 X

Beachwood X Open and Active 13 1.98 N/A X

Cleveland Heights X Open and Active 13 9.12 $90,000 X

Westlake X Open and Active 13 5.78 $236,700 X

Mayfield Heights X Open and Active 12 1.96 $30,000

North Randall X Open and Active 12 1.08 $1,000

North Royalton X Open and Active 12 9.16 $899,958 X

Shaker Heights X Open and Active 11 7.20 $373,878

Valley View X Open and Active 11 0.32 $125,000 X

Broadview Heights X Open and Active 10 2.61 $285,116 X

Middleburg Heights X Open and Active 7 2.91 $28,622

Bay Village X Open and Active 6 0.95 $17,360 X

Fairview Park X Open and Active 6 N/A $19,400 X

Highland Heights X Open and Active 6 1.18 $15,644 X

Gates Mills Village X Closed 3 - -

Walton Hills X Open and Active 3 0 $9,390

Lyndhurst X Open and Active 1 2.13 $25,000 X

Total 30* 2,567 2,508 $86,529,627 15 * The County and Euclid are currently in the process of consolidating operations. In May 2013, Euclid’s jail became a 6 hour holding facility. In 2012, Euclid’s jail was a full service jail and had an ADP of 48. The jail’s ADP for the first quarter of 2013 (when it was a full service jail) was 28. This data point is used in the table above. **Cleveland’s district jails (1

st through 5

th) are included in the total facility count.

In 2010, jurisdictions with a full service jail reported revenues of $3.0 million, increasing in 2012 to $3.1 million. This growth was primarily attributable to increased revenues in Parma, Solon, and Bedford.18 In all three years, the City of Bedford Heights accounted for the majority of

17 In this table, the ADP shown for Euclid is the 2012 ADP – the last complete year that jurisdiction had a full service facility. 18 Data received did not indicate if reported revenues were solely from housing other jurisdictions’ inmates. More granular detail was often unavailable.


reported revenues. This includes nearly $2.4 million of the total $3.1 million in 2012 (77.4 percent of total revenues).19

In 2013, preliminary data indicated that full service jails projected total revenue of $2.8 million. Bedford Heights had the highest budgeted revenues at $2.0 million, which is 76 percent of all budgeted revenues. The table below shows revenues for full-service jails that housed inmates for other jurisdictions from 2010 to 2013. Jurisdictions that did not provide revenues for a given year are noted as N/A.

Table 15 – Total Revenues of Full Service Jails Housing Other Jurisdictions’ Inmates FY10 to FY13

Jurisdiction FY10 Actual Revenues FY11 Actual Revenues FY12 Actual Revenues FY13 Budgeted Revenues

Bay Village $3,576 $6,633 $6,133 $5,250

Beachwood $0 $0 $0 $0

Bedford $0 $1,265 $47,392 $41,802

Bedford Heights $2,477,653 $2,628,801 $2,369,115 $2,094,800

Broadview Heights $120,503 $92,637 $121,843 $113,667

Cleveland Heights $0 $0 $0 $0

Cuyahoga County N/A N/A N/A $0

Fairview Park $500 $500.00 $500 $600

Highland Heights $0 $0 $0 $0

Lyndhurst $0 $0 $0 $0

North Royalton $188,427 $179,662 $176,663 $180,000

Parma $33,820 $17,355 $72,294 $53,869

Solon $131,000 $158,000 $305,000 $265,000

Valley View N/A N/A N/A $0

Westlake $0 $0 $0 $0

Total $2,955,478 $3,084,853 $3,098,940 $2,754,958

Seven jurisdictions with non-full service jails also generated revenue (often comparatively smaller amounts) from housing inmates from other jurisdictions. Many of these jurisdictions housed inmates for entities and municipalities on a mutual aid basis and, as a result, reported no associated revenues. However, the City of Strongsville experienced notable growth in revenue. From 2011 to 2012 Strongsville’s revenues increased from $33,800 to $124,700. The table below shows revenue for non-full service jails that housed inmates for other jurisdictions from 2010 to 2013.

Table 16 – Revenues of Non-Full Service Jails Housing Other Jurisdictions’ Inmates FY10 to FY13

Jurisdiction FY10 Actual Revenues FY11 Actual Revenues FY12 Actual Revenues FY13 Budgeted Revenues

Strongsville20

N/A $33,794 $124,746 $108,169

Brook Park21

$0 $0 $0 $0

North Olmsted22

$13,972 $5,841 $30,339 $0

Cuyahoga Heights23

$0 $0 $0 $0

South Euclid24

$0 $0 $0 $0

Rocky River13

$0 $0 $0 $0

University Heights25

$0 $0 $0 $0

Total $13,972 $39,635 $155,085 $108,169

19 The “Budget” section of this report contains additional details on jail budgets. 20 Strongsville housed inmates for Berea, Middleburg Heights, Olmstead Falls and Olmstead Township. 21 Brook Park and Rocky River housed inmates for Ohio State Highway Patrol (OSP), but did not charge OSP. 22 North Olmstead housed inmates for the Cuyahoga County Sheriff’s Department. 23 Cuyahoga Heights housed inmates for several other municipalities on rare occasions. 24 South Euclid housed inmates for Notre Dame College. 25 University Heights housed inmates for surrounding areas on a mutual aid basis at no charge.


Most full service jails charged a flat per diem rate for each prisoner housed. The per diem rates ranged from $55 per day per inmate to $100 per day per inmate. The tables below display the rates charged by full service jails that housed inmates for outside jurisdictions and the sending jurisdiction or entity.

Table 17 - Full Service Jurisdictions Fees Charged to Other Jurisdictions for Housing Inmates

Receiving Jail Sending Jurisdiction Per Diem Charge Flat Fee

Bay Village Lakewood $55

Bedford Cuyahoga County Sheriff’s Department (CCSD) $55

Bedford Heights

US Marshals $65

Immigration and Customs Enforcement (ICE) $64

Multiple Jurisdictions $75-$85

Broadview Heights

CCSD $55

Seven Hills $75

Metropark $75

Valley View $75

Beachwood Pepper Pike (arrests only, not sentenced) $75

Cleveland Heights CCSD $55

Cuyahoga County Federal $85

Fairview Park

CCSD $55

Rocky River $0

Regional Transit Authority (RTA) $0

Ohio State Highway Patrol (OSP) $0

Highland Heights Richmond Heights $100

Lyndhurst

Hillcrest Area $0

South Euclid $0

Metropark $0

North Royalton CCSD $55

Lakewood $58

Parma Parma Heights $55

CCSD $55

Solon

CCSD $55

Twinsburg $85,000

Chagrin Falls $75

Woodmere $80

Shaker Heights $85

Pepper Pike $75

Orange $75

Reminderville $85

Highland Hills $85

Valley View

Walton Hills $0

Independence $0 Brooklyn Heights $0

Westlake Linndale $100

Metropark $100

The following table shows the fees charged by non-full service jurisdictions, and the sending jurisdiction or entity. Four of the seven non-full service jails that housed inmates for other jurisdictions charged the sending jurisdiction a per diem rate for each prisoner, ranging from $55 and $80 per inmate per day; one jurisdiction (Cuyahoga Heights) charged sending jurisdictions a flat fee of $100 to house each inmate.


Table 18 - Non-Full Service Jails Fees Charged to Other Jurisdictions for Housing Inmates

Receiving Jail Sending Jurisdiction Per Diem Charge Flat Flee

Brook Park OSP $0

Cuyahoga Heights

Newburgh Heights

$100

Brooklyn Heights

$100

Valley View

$100

North Olmsted CCSD $55

Rocky River OSP $75

South Euclid Notre Dame College $75

Strongsville

Olmsted Falls $80

Olmsted Township $80

Middleburg Heights $80

Berea $80

University Heights Mutual Aid Agreement with surrounding area

Seventeen jurisdictions that operated their own full service jail also reported sending inmates to be housed elsewhere. In 2010, among full service jails, the total reported expenditures associated with sending inmates to be housed in other jurisdictions’ jails was approximately $137,000. Euclid ($63,000) and Shaker Heights ($59,000) combined for 89.1 percent of all such expenditures. In 2011, among all full service jurisdictions, the total cost for sending inmates to be housed in other jurisdictions grew to approximately $174,000. In 2012, total costs decreased to approximately $165,000 as a result of cost declines for Shaker Heights (approximate year-over-year decrease of $32,000) and Cleveland Heights (approximate year-over-year decrease of $12,000), which more than offset increased costs in Euclid (approximately a $20,000 year-over-year increase) and Mayfield Heights (approximately a $10,000 year-over-year increase). In 2013, total reported budgeted costs increased to $1.4 million, which was largely due to a projected $1,100,000 expense for Cuyahoga County. Cuyahoga County was unable to provide data for prior years and, thus, when included, increased the total expenditures for full service jails. When excluding Cuyahoga County for 2013 costs, the reported costs for all remaining jurisdictions with full service jails was still higher in 2013 than in 2012 – largely due to Euclid’s costs increasing by nearly $114,000 as a result of the City of Euclid ending operation of its full service jail. The following table displays the costs incurred by full service jurisdictions that also sent inmates to be housed in other jurisdictions. From 2010 to 2013, jurisdictions that did not provide revenues for a given year are noted as N/A.


Table 19 – Expenses of Full Service Jails That Also Sent Inmates to be Housed in Other Jurisdictions – FY10 to FY13

Jurisdiction FY10 FY11 FY12 FY13


Beachwood $3,734 $3,454 $3,760 $10,075

Middleburg Heights $0 $0 $0 $800

Cleveland Heights N/A $30,012 $17,873 $17,821

Cuyahoga County N/A N/A N/A $1,100,000

Euclid $62,715 $64,008 $83,900 $197,817

Fairview Park $0 $0 $0 $0

Garfield Heights $0 $0 $0 $0

Gates Mills Village N/A N/A N/A N/A

Highland Heights $100 $1,500 $2,000 $1,000

Lyndhurst $0 $0 $0 $600

Mayfield Heights $1,563 $0 $10,291 $750

North Royalton $0 $0 $0 $0

Shaker Heights $59,288 $69,148 $37,125 $28,508

Valley View $3,223 $2,833 $6,108 $3,675

Walton Hills $0 $0 $2,946 $713


Total $137,308 $174,155 $165,453 $267,138* * Excludes Cuyahoga County expenditures for consistency. County expenditures were unavailable for 2010 to 2012.

Twenty-nine jurisdictions without a full service jail reported sending inmates to be housed in other jurisdictions. In 2010, total reported expenditures for non-full service jail jurisdictions that sent inmates to be housed in other jurisdictions’ jails was approximately $399,000. Expenditures rose to nearly $437,000 in 2012 in part due to increases experienced by Highland Hills, Olmsted Falls, Parma Heights, and Pepper Pike. In 2013, among all non-full service jail jurisdictions, budgeted total costs for sending inmates to be housed in other jurisdictions was more than $437,000. The total costs reported in 2013 were very close to the 2012 reported costs for such services. As with prior years, Lakewood, Warrensville Heights, and Highland Hills were the three jurisdictions with the greatest costs related to sending prisoners to be housed in other jurisdictions. The table below shows the costs incurred by non-full service jurisdictions that sent inmates out to other jurisdictions. If a non-full service jurisdiction was unable to provide costs incurred from sending out inmates for a given year, N/A was reported.


Table 20 - Non-Full Service Jurisdictions Sending Inmates to Other Jurisdictions FY10 to FY13

Jurisdiction FY10 Costs FY11 Costs FY12 Costs FY13 Costs

Bentleyville $128 $723 $603 $873

Berea $1,620 $3,200 $480 $100

Brook Park $0 $0 $0 $0

Brooklyn $2,000 $2,500 $3,000 $2,500

Brooklyn Heights $1,700 $1,409 $1,790 $6,526

Chagrin Falls N/A N/A N/A N/A

Cuyahoga Heights $7,255 $10,907 $12,829 $9,000

Glenwillow N/A $4,676 $6,918 $6,761

Highland Hills $30,486 $33,568 $41,500 $30,486

Hunting Valley $383 $2,500 $150 $38

Independence $4,415 $1,610 $2,678 $0

Lakewood $126,579 $92,700 $112,286 $117,624

Linndale $20,000 $20,000 $10,000 N/A

Mayfield Village $20,154 $12,263 $15,715 $17,109

Moreland Hills $0 $0 $0 $0

Newburgh Heights $12,430 $7,935 $9,108 $15,269

Olmsted Falls $16,517 $13,758 $25,000 $26,225

Olmsted Township $10,830 $28,639 $16,870 $15,365

Orange Village $8,165 $4,738 $8,911 $8,531

Parma Heights $10,390 $10,207 $23,046 $28,036

Pepper Pike $5,754 $7,122 $28,108 $5,636

Richmond Heights $375 $0 $750 $0

Rocky River 26

$0 $0 $0 $0

Seven Hills $22,001 $9,317 $10,670 $8,500

South Euclid $255 $0 $2,325 $8,288

Strongsville $2,009 $150 $1,875 $10,046

University Heights $0 $3,225 $525 $2,171

Warrensville Heights $93,376 $110,525 $97,815 $115,756

Woodmere $2,100 $4,731 $3,850 $2,934

Total $398,922 $386,402 $436,801 $437,774

Another factor that affects a local jail’s population is its relationship with the municipal courts or Mayor’s Court (collectively referred to herein as “municipal courts”). Municipal courts can send pre-trial and/or sentenced inmates to a specific jail and each respective court’s sentencing approach and case volume affects the jail’s population and the cost of operation. For those jurisdictions that do not have a jail or send most or all of their inmates to another facility, the municipal court that sentences prisoners plays an important role in determining the cost for housing inmates in other jurisdictions. As a result, as the County and its municipalities explore potential regionalization of jail operations, understanding the unique relationships between jurisdictions and respective municipal courts can inform population estimates and costs. Maintaining strong relationships between the municipalities, the municipal courts, and the regional jail system will be critical. The table below depicts the relationship between each respective court and the receiving jail.

26 Rocky River only transfers state charges.


Table 21 - Municipal Court Relationship

Court Receiving Jail Court Receiving Jail

Bedford Municipal Court

Bedford Bedford Heights

Chagrin Falls Highland Hills North Randall

Solon Woodmere

Lyndhurst Municipal Court

Gates Mills Highland Heights

Lyndhurst Mayfield Heights

Richmond Heights

Berea Municipal Court

Berea Broadview Heights

Brook Park Middleburg Heights

North Royalton Strongsville

North Randall Mayor's Court

North Randall

Cleveland Heights

Municipal Court Cleveland Heights

Parma Municipal Court

Broadview Heights Brooklyn Linndale

North Royalton Parma

Cleveland Municipal Court

Cleveland

Rocky River Municipal Court

Bay Village Broadview Heights

Fairview Park North Olmsted North Royalton

Rocky River Strongsville Westlake

East Cleveland Municipal Court

East Cleveland

Shaker Heights Municipal Court

Beachwood North Royalton

Pepper Pike Shaker Heights

Solon University Heights

Euclid Municipal Court

Euclid South Euclid

Municipal Court South Euclid

Garfield Heights Municipal Court

Brecksville Broadview Heights Cuyahoga Heights Garfield Heights Independence Maple Heights

Newburgh Heights Walton Hills

Stow Municipal Court

Solon

Lakewood Municipal Court

Lakewood North Royalton


Bookings

The number of bookings in a jurisdiction is an important factor in determining overall operations of a jail. Booking is the procedural point in the criminal justice system process following arrest, during which an offender’s photograph and fingerprints are typically taken and information about the arrest is documented (i.e. time, offender’s name, crime for which arrest made, etc.). Offenders who are “booked” may remain in a holding cell or other jail cell while throughout the process; however, all inmates who are booked are not admitted to the jail. Bookings are different than admissions. Admissions represent those offenders who enter jail and stay, either awaiting trial or as the result of a court-imposed sentence. In 2010, jails in Cuyahoga County booked 122,212 total offenders.27 The total number of bookings within the County in 2011 and 2012 were less than in 2010 – approximately 111,000 and 118,000 respectively. Preliminary data for 2013 indicate that total bookings declined by more than 20,000 to a total of approximately 96,000. However, the data provided by responding entities may not be complete due to the timing of this survey. The drop in total bookings was likely attributable to several factors: 1) not every municipality was able to provide total bookings for each year surveyed; and 2) total bookings in 2013 were reported by some jurisdictions prior to the close of the calendar year. As a result, booking data for 2013 should be considered as additional context rather than statements of actual data for the entire year. If jail regionalization progresses, the County will likely require information regarding the gender breakdown of bookings so it can ensure it has adequate space for men and women. As a result, bookings are shown by gender when data was available. In 2010, the total number of male bookings was 76,429. From 2010 to 2011, total male bookings decreased by approximately 10,000. Much of the year-over-year decrease in bookings was driven by Euclid (7,027 reduction in male bookings) and East Cleveland (2,742 reduction in male bookings). In 2010, Euclid’s male bookings accounted for 25.8 percent of the total male bookings among responding jails. Euclid’s male bookings as a percentage of all male bookings in the County was smaller in 2011 and 2012, when Euclid accounted for 19.0 percent and 21.9 percent of total male bookings among responding jails. Preliminary data for 2013 suggests that a similar decrease occurred from 2012 to 2013. During this period, Euclid’s male bookings decreased by another 6,776 and East Cleveland’s male bookings decreased by nearly an additional 6,000 bookings. Additionally, preliminary data provided by responding jurisdictions reported a total of 15,910 female bookings in 2013 – a net of nearly 2,700 below the 2010 level.28 Bentleyville, Chagrin Falls, Highland Hills, Moreland Hills, Newburgh Heights, Olmstead Township, Orange, Seven Hills, and Woodmere either reported no bookings or were unable to provide booking data for 2010 to 2013. Middleburg Heights was unable to provide data for 2010 and 2011, and Gates Milles was unable to provide data for 2010 to 2012. Additionally, not every jurisdiction provided complete data for both female and male bookings. As a result, the total of all reported female bookings plus the total of all reported male bookings may differ from

27 Total bookings are calculated from female and male bookings, which may differ from the total bookings provided by respondents. 28 Each jurisdiction did not provide female and male bookings, thus female bookings plus male bookings may not equal total bookings. Additionally, several jurisdictions were able to provide total bookings, but could not disaggregate their information.


the total bookings provided by responding jurisdictions. Cleveland and Walton Hills were able to provide total bookings, but unable disaggregate the data by gender.

Table 22 – Change in Bookings 2010 to 2013

Total Bookings

(2010)

% of Total Bookings

(2010)

Total Bookings

(2013)

% of Total Bookings

(2013)

Change from 2010

(#)

Change from 2010

(%)

All Responding Jurisdictions

122,212 - 96,011 - (26,201) (21.4%)

Cuyahoga County 19,032 15.6% 19,072 19.9% 40 0.2%

Cleveland 26,787 21.9% 23,935 24.9% (2,852) (10.6%)

East Cleveland 14,949 12.2% 3,781 3.9% (11,168) (74.7%)

Euclid 20,957 17.1% 10,076 10.5% (10,881) (51.9%)

All other Responding Jails 40,487 33.1% 39,147 40.8% (1,340) (3.3%)

Figure 2 provides a breakout of total bookings by female and male bookings. For all jurisdictions able to disaggregate their total bookings, male bookings constituted the majority of bookings. The top six jurisdictions by reported bookings were Cleveland, Euclid, Bedford Heights, East Cleveland, Maple Heights and Parma. Together, these six jurisdictions totaled 49,344 bookings in 2013, which accounted for 64.1 percent of all municipal bookings (excluding the County’s 19,072 bookings). When excluding Cleveland, the remaining five jurisdictions (Euclid, Bedford Heights, East Cleveland, Maple Heights and Parma) accounted for 93.1 percent of the total bookings in remaining municipalities. These jurisdictions are the most likely to use a regional jail system which could be important to location decisions of regional satellite jails.

Figure 2 - Total Bookings in Cuyahoga County FY10 to FY1329

29 Male bookings plus female bookings were not able to be disaggregated by every responding jurisdiction. The two jurisdictions unable to disaggregate 2013 data were Cleveland, with a reported total of 23,935 bookings, and Walton Hills, with reported total of 227 bookings. Adding these bookings to the 55,939 reported male bookings and the reported 15,910 female bookings sums to the reported total bookings of 96,011.

122,212 111,013

117,618

96,011

76,429 66,840 70,092

55,939

18,608 17,865 19,730 15,910

0

20,000

40,000

60,000

80,000

100,000

120,000

140,000

2010 2011 2012 2013

Total Bookings Male Bookings Female Bookings


Figure 3 – FY13 Jurisdictions with More than 1,000 Total Bookings

Sentenced Inmates by Top Charge In addition to the booking volume, understanding who is in jail on what charges can assist the County and its municipalities in determining plans for jail regionalization. Classification and length of stay (subsequently discussed in this report) are critical to developing a regional jail system. Misdemeanors can be sentenced under both municipal code and state code, while felonies are sentenced only under state code. This data can help the County and its jurisdictions further understand the drivers of sentenced inmates and the relative level of sentenced inmates in jails in Cuyahoga County. Many municipalities were unable to provide data on sentenced inmates by top charge. Notable jurisdictions that were unable or did not submit the information included Bedford Heights, Cleveland, East Cleveland, and Cuyahoga County. The absence of this data impacts the meaningfulness of the results. As a result, the data are not displayed in an aggregated manner.

23,935

19,072

10,076

4,781 3,781 3,455 3,316 2,200 1,856 1,796 1,790 1,733 1,577 1,424 1,420 1,037

0

5,000

10,000

15,000

20,000

25,000

30,000


Table 23 - Sentenced Inmates by Top Charge (2012)

Jurisdiction 2012 Municipal Misdemeanor

2012 State Misdemeanor 2012 State Felony Total Sentenced

Inmates

Euclid 1,838 4,234 0 6,072

Cleveland Heights 1,312 74 530 1,916

Brook Park N/A 787 134 921

Solon 54 417 204 675

Beachwood 168 504 0 672

Parma 381 129 0 510

North Randall 350 25 0 375

Independence 111 123 120 354

Garfield Heights 25 300 0 325

Bedford 30 205 N/A 235

Strongsville 36 198 0 234

North Royalton 27 173 0 200

Middleburg Heights N/A 162 27 189

Brecksville 132 0 10 142

Lakewood 90 N/A N/A 90

North Olmsted 10 50 N/A 60

University Heights 4 44 0 48

Berea 46 0 0 46

Valley View 40 0 0 40

Fairview Park 6 33 0 39

Broadview Heights N/A 28 N/A 28

Cuyahoga Heights 1 21 5 27

Mayfield Heights 24 N/A N/A 24

Woodmere 24 N/A N/A 24

Olmsted Falls 1 17 N/A 18

Bay Village 6 9 0 15

Lyndhurst 14 0 0 14

Gates Mills Village 12 N/A N/A 12

Pepper Pike 3 5 0 8

Walton Hills 7 N/A N/A 7

Richmond Heights 7 N/A N/A 7

Mayfield Village 1 0 2 3

Brooklyn Heights 0 0 0 0

Highland Hills 0 0 0 0

Moreland Hills 0 0 0 0

Newburgh Heights 0 0 0 0

Olmsted Township 0 0 0 0

Orange Village 0 0 0 0

Parma Heights 0 0 0 0

Rocky River 0 0 0 0

South Euclid 0 0 0 0

Warrensville Heights 0 0 0 0

Bedford Heights N/A N/A N/A N/A

Bentleyville N/A N/A N/A N/A

Brooklyn N/A N/A N/A N/A

Chagrin Falls N/A N/A N/A N/A

Cleveland N/A N/A N/A N/A

Cuyahoga County N/A N/A N/A N/A

East Cleveland N/A N/A N/A N/A

Glenwillow N/A 0 0 N/A

Highland Heights N/A N/A N/A N/A

Hunting Valley N/A 0 N/A N/A

Linndale N/A N/A N/A N/A

Maple Heights N/A N/A N/A N/A

Oakwood N/A N/A N/A N/A

Seven Hills N/A N/A N/A N/A

Shaker Heights N/A N/A N/A N/A

Village of Bratenahl N/A N/A N/A N/A

Westlake N/A N/A N/A N/A


Average Length of Stay for Misdemeanants (Full-Service Facilities) The average length of stay for an inmate (pre-trial, sentenced or both) is important because the duration of stay coupled with the number of admissions is central to determining a jail’s average daily population. As the County and municipalities explore jail regionalization, understanding where the population comes from (i.e. bookings, sentenced inmates) combined with how long they are housed helps to provide context to the overall ADP. The survey requested information from each jurisdiction regarding the average length of stay for misdemeanants. This data point was chosen because it constitutes the majority of inmates in jail in Cuyahoga County municipalities. Twenty-one full service jails provided average length of stay data for misdemeanants in 2013. Two-thirds of all responding full service jails (14) had an average length of stay that was less than 10 days. The two largest jails had substantially higher lengths of stay for misdemeanant: Cleveland’s average length of stay was 45 days and Cuyahoga County’s average length of stay was 40 days. The next most populated jail, Bedford Heights, had an average length of stay of 6.3 days. Fairview Park’s average inmate length of stay of 72 days was the longest average length of stay among full service jails.

Figure 4 - FY13 Average Length of Stay for Misdemeanants (Full Service Jurisdictions)

Note: Parma, Gates Mills, and Westlake did not provide average length of stay data.

Average Daily Population (ADP) Overview30 If the County and its municipalities were to move toward a regional jail model, understanding the ADP of inmates in individual jails and across the system would help the County plan for facilities, staffing, programming and other necessary components of the new jail structure. The PFM Team asked survey respondents to provide ADP data based on one of two formats: 1) total daily census divided by 365, or 2) monthly census divided by 12. In 2013, responding jails reported a total ADP of 2,601 inmates.

30 The survey included questions pertaining to housing juvenile inmates – nearly all responding jails/police departments indicated that juveniles are sent to the County’s Juvenile Justice Center.

14

4

2 1

ALS of less than 10days

ALS of 10 to 15 days ALS of 40 to 50 days ALS of greater than 50days

0

2

4

6

8

10

12

14

16

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Table 24 - 2013 ADPs for Responding Jurisdiction31 Jurisdiction ADP 2013

Bay Village 1

Beachwood 2

Bedford 4

Bedford Heights 66.5

Berea 0.9

Brecksville 3.4

Broadview Heights 2.6

Brook Park 2.1

Brooklyn 8

Brooklyn Heights 6.4

Chagrin Falls 0

Cleveland 270

Cleveland Heights 9.1

Cuyahoga County 2,041

Cuyahoga Heights 0.2

East Cleveland 15

Euclid 28

Garfield Heights 14.4

Highland Heights 1.2

Independence 1.1

Lakewood 5

Lyndhurst 2.1

Maple Heights 23

Mayfield Heights 2

Mayfield Village 0.2

Middleburg Heights 2.9

North Olmsted 4

North Randall 1.1

North Royalton 9.2

Olmsted Falls 0

Parma 21.8

Parma Heights 1.4

Richmond Heights 2.5

Rocky River 3.9

Shaker Heights 7.2

Solon 16.4

South Euclid 2.5

Strongsville 9

University Heights 2

Valley View 0.3

Village of Bratenahl 1.5

Warrensville Heights 0.2

Westlake 5.8

Woodmere 0

Total 2,601

Average Daily Population (Full Service Facilities) Twenty-one of the 24 jurisdictions that operated full service facilities were able to provide ADP data for 2013.32 In 2013, among jurisdictions with full service jails, the total ADP was 2,508:

31 Bentleyville, Fairview Park, Gates Mills, Glenwillow, Highland Hills, Hunting Valley, Linndale, Moreland Hills, Newburgh Heights, Oakwood, Olmstead Township, Orange Village, Pepper Pike, Seven Hills, and Walton Hills did not report 2013 ADP data. 32 The three municipalities unable to provide information were Fairview Park, Walton Hills, and Gates Mills Village (jail is closed).


Cuyahoga County (2,041) and the City of Cleveland (270) reported the highest ADPs, Bedford Heights has the next highest ADP (66) and the remaining 18 full service jails each had an ADP below 30.

Figure 5 – FY13 Average Daily Population (Full Service Jails)33

Average Daily Cost Per Inmate (All Jails)34

Most jails in Cuyahoga County had a relatively small ADP and a relatively short average length of stay. Certain costs are fixed and when total costs are viewed on a per inmate basis, smaller jurisdictions (especially those with full service jails) tend to have higher per inmate costs. As the ADP in a facility goes down, expenditures are spread across fewer individuals, resulting in an increase in the average daily costs (ADC) of housing those individuals. The average daily cost per inmate is a function of budgeted expenditures divided by ADP, divided by 365 days per year. Jurisdictions with a small ADP have average daily costs per inmate that are more sensitive to expenditure changes. Twenty full service jails provided data related to the average cost per inmate per day. Most jails (11) reported average daily costs per inmate of less than or equal to $100, eight jails reported an average daily cost per inmate between $101 and $300, and one jail indicated its facility had an average daily cost per inmate that was greater than $1,000.35 In 2013, among the nineteen responding full service jails, Cuyahoga County Jail reported an average daily cost per inmate of $85.00, a consistent figure reported for each year from 2010 to 2013.36 Cleveland jails reported an average daily cost per inmate of approximately $116.50, and Bedford Heights reported an average daily cost per inmate of $71.86, an increase of approximately $15.00 per inmate per day from prior years. These jails were by far the largest

33 Twenty-one of the 24 full service jails reported 2013 ADP data. Figure 5 displays data from those 21 full service jails that reported ADP data for 2013. 34 The data in this section contain the reported data by each jurisdiction. However, multiple jurisdictions appear to have submitted responses that are inconsistent with the formula provided to calculate the cost per inmate per day. The PFM Team calculated the per inmate per day cost using the provided formula and found that reported data from 12 jails matched or varied by less than half of one percent. The reported data from six jurisdictions varied more than 20 percent from the PFM Team’s calculations using the provided information and formula (Bedford Heights, Cleveland, Cleveland Heights, Cuyahoga County, Highland Heights, Mayfield Heights). Average daily cost data was unable to be calculated for five jurisdictions due to incomplete or missing survey data (Bay Village, Beachwood, Fairview Park, Gates Mills, Walton Hills). 35 In 2013, Valley View reported an average daily cost per inmate of $1,080 and an average daily population of 0.3. 36 The County later provided an updated 2013 average daily cost per inmate of $86.04

10

4 4

1 2

0

2

4

6

8

10

12

ADP less than 5 ADP 5 to 9 ADP 10 to 30 ADP 50 to 100 ADP greaterthan 100

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full service jails to respond. The remaining full service jails generally reported higher average daily costs per inmate resulting from the combined effect of low ADP and fixed cost.

Figure 6 - FY13 Reported Average Daily Cost Per Inmate (Full Service Jails)

Programming Jails across Cuyahoga County provide varying levels of programming, ranging from substance abuse treatment to faith-based programs. Providing programming for inmates often has a fiscal impact for a jail. From the County’s perspective, if jail regionalization proceeds, having an understanding of the various program offerings currently provided to inmates in jails throughout the County is useful to compare and contrast to the programmatic offerings in the County’s jail. Nine full service jails offered some form of programming to inmates. Generally, the programming options provided were: 1) Substance Abuse Treatment (e.g. drugs/alcohol), 2) Education (e.g. GED), 3) Vocational Training (e.g. job training), 4) Faith-based (e.g. Bible-study), and 5) Other (for instance, mental health counseling). Substance abuse and faith-based programming opportunities were the most commonly offered types of programming, all jails reported offering some form of faith-based programming and some form of substance abuse treatment. Seven jails provided education-based programming, while two jurisdictions (Highland Hills and Valley View) provided vocational training to inmates. Other types of programming reported included Mental Health Counseling, Recovery Resources, and Mobile Crisis in Parma and programming on a case by case basis in Solon.

Table 25 – Full Service Jail Offering Programming for Inmates

Jurisdiction Substance Abuse

Treatment Education Vocational Training

Faith-Based

Other

Bedford Heights X

X

Cleveland X X X

Cleveland Heights X X X

Cuyahoga County X X X

Highland Heights X X X X

North Royalton X X X

Parma X X X X

Solon X X X

Valley View X X X X

Total 9 7 2 9 2

6

5

6

2

1

0

1

2

3

4

5

6

7

ADC per inmateless than $50

ADC per inmate$50 to $100



ADC per inmate ofgreater than $1,000

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Jails


Personnel Employees constitute the vast majority of expenditures for jails. Jurisdictions that send inmates to be housed in other jurisdictions are paying a large portion of the prisoner per diem rate to support personnel expenses at the host jail. If Cuyahoga County and its municipalities pursue jail regionalization, personnel will be a critical element in creating the regionalization plan. Any regionalization will require additional personnel to augment the current staff working under the County Sheriff at the County’s jail. Central Findings Number and Cost

In 2013, among all responding jails a total of 976 staff members – 815 full-time staff members and 161 part-time staff members – cost jails approximately $55.5 million (approximately 63.1 percent of all reported expenditures of $88.0 million).

o Nearly 90 percent of total jail staff in responding jurisdictions were State of Ohio certified correctional officers.

Cuyahoga County Jail’s personnel expenses were $40 million. In remaining jurisdictions, approximately 85 percent of all reported personnel expenditures came from Cleveland, Euclid, Bedford Heights, Parma, Solon, and North Royalton.

Collective Bargaining Agreements

The various provisions of collective bargaining agreements should be reviewed prior to regionalization so that any terms or implications are fully understood prior to taking any action.

Use of Patrol and/or Dispatch Staff

A sizable number of jurisdictions use patrol and/or dispatch staff to provide some level of jail-related services. A regional jail model would increase staffing availability to those police departments without any associated additional costs; reallocating time previously spent on jail-related duties to additional patrol and dispatch duties.

Table 26 – 2013 Budgeted Personnel Expenditures of Responding Jails37

Personnel Expenditures

Total Expenditures (All Jurisdictions) $87,959,128

Total Personnel Expenditures (All Jurisdictions) $55,480,596

Cuyahoga County Personnel Expenditures $40,000,000

Cleveland Personnel Expenditures $7,361,827

All Other Personnel Expenditures $8,118,769



Personnel Detail Personnel Overview As of 2013, the jails responding to personnel survey questions reported a total of 976 staff members – 815 full-time staff members and 161 part-time staff members.38 Nearly 90 percent of total jail staff in responding jurisdictions (875) were State of Ohio certified correctional officers. Cuyahoga County jail employed 548 of the 875 State-certified correctional officers (62 percent). The remaining 327 State-certified correctional officers were spread across 27 municipalities – with notable concentrations in Cleveland (129), Parma (25), Beachwood (19 part time staff who likely held principal employment in another jurisdiction), Bedford Heights (18), and Solon (15). In 2013, among all responding jurisdictions, the total reported personnel costs were approximately $55.5 million. Cuyahoga County, Cleveland, Euclid, Bedford Heights, Parma, Solon and North Royalton accounted for 96 percent ($53.2 million) of all reported personnel costs. Personnel expenditures in the top six municipalities (Cleveland, Euclid, Bedford Heights, Parma, Solon and North Royalton) accounted for $13.2 million of total municipal personnel spending on jail operations – or approximately 85 percent of all reported personnel expenditures in municipal jails (those jails other than Cuyahoga County Jail).

38 Full-time jail staff is defined, for the purposes of this analysis, as those employees who spend 75 percent or more of their total time on jail-related tasks.


Table 27 - Personnel Breakdown (All Responding Jurisdictions)39

Jurisdiction Full-time Staff Part-Time Staff Total Staff

# of Staff Certified COs Total Personnel Costs

Cuyahoga County 592 0 592 548 $40,000,000

Cleveland 113 16 129 129 $7,361,827

Euclid 7 6 13 13 $1,440,515

Bedford Heights 17 5 22 18 $1,437,000

Parma 22 12 34 25 $1,340,790

Solon 9 6 15 15 $873,000

North Royalton 7 7 14 12 $759,873

Strongsville 6 9 15 11 $403,933

Broadview Heights 4 3 7 4 $243,513

Brecksville 4 4 8 8 $240,829

Garfield Heights 3 8 11 3 $240,000

Lakewood 1 1 2 2 $196,000

Westlake 4 2 6 5 $183,700

Shaker Heights 2 2 4 4 $165,599

Brooklyn 1 9 10 9 $150,000

Bedford 1 3 4 4 $123,364

Independence 1 2 3 3 $105,500

Brook Park 0 5 5 3 $88,988

North Olmsted 1 0 1 1 $71,098

Mayfield Heights 1 0 1 1 $55,067

Bentleyville 0 0 0 0 $0

Cuyahoga Heights 0 0 0 1 $0

Fairview Park 0 0 0 0 $0

Gates Mills Village 0 0 0 0 $0

Hunting Valley 0 0 0 0 $0

Newburgh Heights 0 0 0 0 $0

Walton Hills 0 0 0 0 $0

Warrensville Heights 0 0 0 8 $0

Woodmere 0 0 0 0 $0

Bay Village 0 3 3 0 N/A

Beachwood 0 19 19 19 N/A

Berea 0 0 0 0 N/A

Brooklyn Heights 0 6 6 6 N/A

Chagrin Falls 0 0 0 0 N/A

Cleveland Heights 0 0 0 0 N/A

East Cleveland 2 0 2 1 N/A

Glenwillow 0 0 0 0 N/A

Highland Heights 0 N/A N/A 0 N/A

Highland Hills 0 0 0 0 N/A

Linndale 0 0 0 0 N/A

Lyndhurst 0 2 2 1 N/A

Maple Heights 5 7 12 9 N/A

Mayfield Village 0 0 0 0 N/A

Middleburg Heights 0 1 1 0 N/A

Moreland Hills 0 0 0 0 N/A

North Randall 0 0 0 1 N/A

Oakwood 0 0 0 0 N/A

Olmsted Falls 0 0 0 0 N/A

Olmsted Township 0 0 0 0 N/A

Orange Village 0 0 0 0 N/A

Parma Heights 0 0 0 0 N/A

Pepper Pike 0 0 0 0 N/A

Richmond Heights 0 0 0 0 N/A

Rocky River 0 0 0 0 N/A

Seven Hills 0 0 0 0 N/A

South Euclid 0 0 0 0 N/A

University Heights 0 0 0 0 N/A

Valley View 0 10 10 10 N/A

Village of Bratenahl 12 13 25 1 N/A

Total 815 161 976 875 $55,480,596

39 Four jurisdictions (Brook Park, Brooklyn, Mayfield Heights, and Strongsville) reported personnel costs that were greater than their reported total costs of operations. It appears these jurisdictions did not include personnel expenditures as part of total costs.


Collective Bargaining Agreements Collective bargaining agreements are an additional consideration for the County and its municipalities in the jail regionalization discussion. The various provisions of collective bargaining agreements should be reviewed prior to beginning regional operations so that terms are fully understood prior to taking any action. Approximately 830 jail employees are covered under collective bargaining agreements with the County and 15 municipalities. Nearly 70 percent of all unionized employees were employees of Cuyahoga County jail. The largest bargaining agreement, in terms of members covered, was the agreement between the County and its correctional officer workforce that expired in 2012. The collective bargaining agreements in Bedford Heights, Cleveland, and Westlake expired in 2013. In 2014, collective bargaining agreements expire in Broadview Heights, Euclid, Garfield Heights, Maple Heights, North Olmsted, and Parma. In 2015, the collective bargaining agreements expire in East Cleveland, Solon, and Strongsville. In 2016 and 2017, the respective collective bargaining agreements in Brooklyn and Lakewood will expire.

Table 28 - Collective Bargaining Agreements Ending date of CBA (Year) Jurisdiction(s)

2012 Cuyahoga County

2013 Bedford Heights

Cleveland Westlake

2014

Broadview Heights Euclid

Garfield Heights Maple Heights North Olmsted

Parma

2015 East Cleveland

Solon Strongsville

2016 Brooklyn

2017 Lakewood

Not Provided North Royalton

Use of Police Patrol and/or Dispatch Staff Various municipal jails augment or staff their jails using police patrol and/or dispatch staff. The use of these staff members, who are already performing other functions as their primary duty in a respective police department, reduces the need for full-time or part-time jail employees and the associated expenses. Jail regionalization could allow police departments to redeploy their patrol and/or dispatch staff to perform their primary job duties (as opposed to any jail-related duties). This could achieve enhanced staffing levels for localities without the associated additional cost of hiring new police employees. Forty-two out of the 59 responding jurisdictions indicated the use of police patrol and/or police dispatch staff to supervise jail operations. Larger full service jails do not typically use police dispatch staff to perform jail-related supervision duties. The larger full service jails generally employed correctional officers dedicated to managing the jurisdiction’s jail operations. Smaller full service jails often use police dispatch staff to perform jail-related supervision duties. For


instance, among the responding 16 full service jails, eight reported using police dispatch staff to perform jail supervision duties “most of the time,” while an additional three jurisdictions used dispatch staff for jail supervision on “infrequent occasions” or “only at night.” The remaining five jurisdictions indicated that they used dispatch staff for jail-related functions in other ways (i.e. an “as needed” basis).

Table 29 - Use of Dispatch Staff for Jail Supervision (Full Service Jails)

Jurisdiction Most of the time Infrequent Occasions

Only at night Other

Bay Village Police X

Bedford X

Bedford Heights X

Broadview Heights X

Cleveland Heights X

Fairview Park X

Highland Heights X

Lyndhurst X

Mayfield Heights X

Middleburg Heights X

North Randall X

Parma X

Shaker Heights X

Valley View X

Walton Hills X

Westlake X

Total 8 2 1 5

The use of police dispatch staff for jail-related duties is more common among non-full service jails. Fourteen of the responding 26 non-full service jails reported using dispatch staff “most of the time.” Half of the remaining 12 jurisdictions reported using dispatch staff on “infrequent occasions” (5) or “only at night” (1). Six jurisdictions reported using police dispatch staff for jail-related duties in other ways, for example, when a full-time or part-time correctional officer takes a day off and a backfill of that position is necessary for a shift or shifts.


Table 30 - Use of Dispatch Staff (Non-Full Service Jails) Jurisdiction Most of the time Infrequent Occasions Only at night Other

Berea X

Brecksville X

Brook Park X

Brooklyn X

Brooklyn Heights X

Chagrin Falls X

Cuyahoga Heights X

East Cleveland X

Hunting Valley X

Independence X

Lakewood X

Linndale X

Mayfield Village X

Moreland Hills X

North Olmsted X

Olmsted Falls X

Parma Heights X

Pepper Pike X

Richmond Heights X

Rocky River X

South Euclid X

Strongsville X

University Heights X

Village of Bratenahl X

Warrensville Heights X

Woodmere X

Total 14 5 1 6

Regional Jail Assessment Study Budget Cuyahoga County, Ohio

Budget40 The PFM Team sought information related to the expenditures, revenues, food costs and medical costs for each jail to assist the County and the municipalities in assessing the potential fiscal implications of regional jail operations. Central Findings Expenditures

Combined, Cuyahoga County Jail and Cleveland’s jails accounted for $79.0 million, or 89.8 percent, of the total $88.0 million in reported expenditures. Among remaining municipalities, only Bedford Heights had expenditures of more than $2 million, while Parma ($1.4 million), Solon ($1.1 million) and North Royalton ($900,000) spent the next highest amounts on jail services.

Revenues

Revenues were primarily generated from fees charged to other jurisdictions for housing inmates.

The only municipality that operated its jail near cost neutrality (revenues equaling expenditures) was Bedford Heights with nearly $2.2 million in expenditures and $2.1 million in revenues.

Food and Medical Costs

Medical costs and food costs are driven by inmate ADP. For jurisdictions with small inmate populations and short average length of stays, medical and food costs were typically low.

For jurisdictions with larger ADPs, medical costs were more significant.

Table 31 - 2013 Budgeted Expenditures of Responding Jails

Budgeted

Expenditures Percent of All Jail

Expenditures

Total Expenditures (All Jurisdictions) $87,959,128 -

Cuyahoga County Expenditures $64,100,000 72.9%

Cleveland Expenditures $14,914,283 17.0%

All Other Expenditures $8,944,845 10.2%

Table 32 - 2013 Budgeted Revenues of Responding Jails

Budgeted Revenues

Percent of All Jail Revenues

Total Budgeted Revenues (All Jurisdictions) $3,037,738 -

Bedford Heights Budgeted Revenues $2,094,800 69.0%

Solon Budgeted Revenues $265,000 8.7%

North Royalton Budgeted Revenues $180,000 5.9%

Broadview Heights Budgeted Revenues $113,667 3.7%

Strongsville Budgeted Revenues $108,169 3.6%

All Other Budgeted Revenues $276,102 9.1%

40 The “Operational Information” section of this report provides additional detail on revenues and expenses.


Budget Details Expenditures In 2013, the total reported budgeted expenditures for responding full service and non-full service jails was slightly less than $88.0 million.41 Cuyahoga County Jail and the City of Cleveland’s jails accounted for $79.0 million, or 89.8 percent, of total expenditures among responding jurisdictions. In 2013, total expenditures for non-full service jurisdictions totaled approximately$1.4 million.

Table 33 – Total Expenditures FY13 (All Jails) Expenditures FY13 Budgeted Expenditures

Full Service $86,529,627

Non-Full Service $1,429,501

Total $87,959,128

A further disaggregation of reported full service expenditures is provided in the following table.

Table 34 - Total Expenditures FY10 to FY13 (Full Service Jails)

Jurisdiction FY 10

Expenditures FY 11

Expenditures FY12

Expenditures FY13 Budgeted Expenditures

Bay Village $7,604 $9,821 $14,665 $17,360

Beachwood N/A N/A N/A N/A

Bedford $145,128 $145,721 $129,113 $152,937

Bedford Heights $2,294,903 $2,250,787 $2,077,437 $2,182,000


Cleveland $14,615,490 $14,051,324 $13,082,190 $14,914,283

Cleveland Heights $109,602 $86,333 $89,222 $90,000

Cuyahoga County N/A N/A N/A $64,100,000

Euclid $1,777,300 $1,639,521 $1,643,597 $65,000

Fairview Park $13,750 $21,300 $15,450 $19,400

Garfield Heights $591,396 $415,996 $410,443 $442,463

Gates Mills Village N/A N/A N/A $0

Highland Heights $10,300 $11,500 $12,500 $15,644

Lyndhurst $12,743 $12,292 $19,841 $25,000

Mayfield Heights $20,877 $27,520 $26,222 $30,000

Middleburg Heights $49,434 $21,500 $33,581 $28,622

North Randall $1,000 $1,000 $1,000 $1,000

North Royalton $732,901 $935,839 $1,002,469 $899,958

Parma $1,404,139 $1,430,723 $1,477,186 $1,449,876

Shaker Heights 347,363 353,415 314,294 $373,878

Solon $830,000 $748,000 $842,000 $1,066,000

Valley View $133,367 $131,000 $127,025 $125,000

Walton Hills $6,720 $5,283 $10,220 $9,390

Westlake $229,352 $241,624 $232,750 $236,700

Total $23,592,555 $22,789,813 $21,817,991 $22,429,627* *Excludes County expenditures for consistency. County expenditures were unavailable for 2010 to 2012.



Revenues In 2013, responding jails (full service and non-full service) reported slightly more than $3 million in budgeted revenue. Full service jails generated nearly 94 percent of revenue, primarily from jurisdictions that housed inmates for other jurisdictions. From 2010 to 2013, total reported revenues decreased by approximately $1.2 million, or 27.8 percent. The most notable reason for the net decrease is the fact that Euclid did not generate any revenue in 2013. In 2010, Euclid generated revenues of more than $711,000. Another contributing factor to the net decline in revenues was that Bedford Heights’ revenues decreased by more than $380,000. Several municipalities, along with the Cuyahoga County Jail, were not able to provide total revenues for the years analyzed.

Table 35 - Total Revenues for All Jails – FY10 to FY13 Revenues FY10 Revenues FY11 Revenues FY12 Revenues FY13 Budgeted Revenues

Full Service $3,715,743 $3,522,735 $3,587,240 $2,854,569

Non-Full Service $490,600 $167,127 $161,454 $183,169

Total $4,206,343 $3,689,862 $3,748,694 $3,037,738

Table 36 - Full Service Jails Revenues (FY10 to FY13)

Jurisdiction FY10 Actual Revenues

FY11 Actual Revenues

FY12 Actual Revenues

FY13 Budgeted Revenues

Bay Village $3,576 $6,633 $6,133 $5,250

Beachwood $0 $0 $0 $0

Bedford $0 $1,265 $47,392 $41,802

Bedford Heights $2,477,653 $2,628,801 $2,369,115 $2,094,800


Cleveland $0 $0 $0 $0

Cleveland Heights $0 $0 $0 $0

Cuyahoga County N/A N/A N/A $0

Euclid $711,459 $436,621 $396,443 $0

Fairview Park $500 $500 $500 $600

Garfield Heights $30,124 $0 $78,800 $75,000

Gates Mills Village N/A N/A N/A $0

Highland Heights $0 $0 $0 $0

Lyndhurst $0 $0 $0 $0

Mayfield Heights $0 $0 $0 $0

Middleburg Heights $13,348 $0 $10,937 $14,025

North Randall $1,000 $1,000 $1,000 $1,000

North Royalton $188,427 $179,662 $176,663 $180,000

Parma $33,820 $17,355 $72,294 $53,869

Shaker Heights 4,334 261 1,120 $450

Solon $131,000 $158,000 $305,000 $265,000

Valley View N/A N/A N/A $0

Walton Hills $0 $0 $0 $9,106


Total $3,715,744 $3,522,735 $3,587,240 $2,854,569

In 2013, the only municipality that reported data indicating it operated its jail at near cost neutrality (revenues equaling expenditures) was Bedford Heights with nearly $2.2 million in expenditures and $2.1 million in revenues. The remaining municipalities and Cuyahoga County reported total budgeted expenditure figures that exceeded reported revenues.


Table 37 - FY13 Revenues vs. FY13 Expenditures (Full Service Jurisdictions)

Jurisdiction FY13 Budgeted Expenditures

FY 13 Budgeted Revenues

Net Cost

Bay Village $17,360 $5,250 $12,110

Beachwood N/A N/A N/A

Bedford $152,937 $41,802 $111,135

Bedford Heights $2,182,000 $2,094,800 $87,200

Broadview Heights $285,116 $113,667 $171,449

Cleveland $14,914,283 $0 $14,914,283

Cleveland Heights $90,000 $0 $90,000

Cuyahoga County $64,100,000 $0 $64,100,000

Euclid $65,000 $0 $65,000

Fairview Park $19,400 $600 $18,800

Garfield Heights $442,463 $75,000 $367,463

Highland Heights $15,644 $0 $15,644

Lyndhurst $25,000 $0 $25,000

Mayfield Heights $30,000 $0 $30,000

Middleburg Heights $28,622 $14,025 $14,597

North Randall $1,000 $1,000 $0

North Royalton $899,958 $180,000 $719,958

Parma $1,449,876 $53,869 $1,396,007

Shaker Heights $373,878 $450 $373,428

Solon $1,066,000 $265,000 $801,000

Valley View $125,000 $0 $125,000

Walton Hills $9,390 $9,106 $284

Westlake $236,700 $0 $236,700

Total $86,529,627 $2,854,569 $83,675,058

Food and Medical Costs

Jail food and medical costs are directly related to inmate population. Food and medical costs would be expected to decrease if jail population declines and increase if jail population rises. Food In 2013, 32 jurisdictions contracted with vendors for jail food services, and 11 jurisdictions reported that they provided food services with their own staff. The PFM Team also sought to capture high-level food cost data and asked jurisdictions to report their total food expenditures and cost per inmate per meal (total food costs divided by ADP, divided by 365, divided by 3). Among the 32 jurisdictions, 25 reported average costs per meal per inmate of $7.00 or less. Seven jurisdictions reported an average cost per meal per inmate of more than $7.00. Among jurisdictions that contracted with private entities for food services, Berea had the highest average meal cost at $12.00 per meal. Although Berea had the highest average meal cost in 2013, its total food budget was only $12,000 because it reported an ADP of 0.9 prisoners.


Table 38 - Contract with Private Vendors for Food Services (All Jails)42

Jurisdictions Food Service Provider Average Cost per Meal Per

Inmate (2013) Food Budget

(2013)

Berea Northwestern Health Care $12.00 $12,000

Highland Heights UH Hospital $10.75 $2,100

Valley View Gordon Food Service $10.00 $3,500

Lyndhurst Kindred Care $9.99 $7,772

South Euclid Subway $9.69 $26,545

Middleburg Heights Bagley Grill $7.36 $24,363

University Heights Jack's Deli $7.17 $0

Pepper Pike Ursuline College $7.00 $100

North Randall Suburban Pavilion Nursing

Home $6.50 $650

Beachwood Gordon Food Service $6.22 $12,000

Brooklyn Gordon Food Service $5.32 $30,000

Brook Park Donte's $5.00 $15,868

Solon Aramark $4.45 $80,000

Westlake* St. John Medical Center $4.32 $28,000

Bay Village Bradley Bay Nursing Home $4.16 $4,263

Bedford Sodexo $4.00 $23,363

Fairview Park Fairview Hospital $4.00 $7,200

Rocky River Aramark & Fairview Hospital $4.00 N/A

Shaker Heights Gordon Food Service $3.92 $30, 871

Lakewood Madison BiRite Supermarket. $3.88 $21,260

North Olmsted St. John Medical Center $3.76 $16,500

Cleveland Heights Subway $3.67 $35,636

North Royalton GFS, Little Debbie, Giant

Eagle $3.64 $36,600

Parma Parma Community General

Hospital $3.58 $95,000

Brecksville Gordon Food Service $3.56 $13,287

Parma Heights Parma General Hospital $3.50 N/A

Maple Heights Tom Paige Catering Company $3.33 $37,500

Euclid Aramark $3.20 $75,000

Bedford Heights Aramark $2.21 $216,000

Richmond Heights University Heights &

Richmond Heights Hospital $2.03 $6,500

Warrensville Heights AVI $0 $0

East Cleveland Tom Paige catering $0 $0

Total - $861,877

Eleven jurisdictions provided food services in-house using their own staff. Most jurisdictions that provided food services in-house did so at a cost per inmate per meal of less than $4.00 dollars. For instance, Cuyahoga County jail was able to provide a meal for $0.79 per inmate and Cleveland was able to provide a meal for $1.69 per inmate. The results differed for these much larger jails as scales of economy and purchasing power likely assisted in attaining lower costs than other smaller municipal jails could attain.

42 Multiple jurisdictions appear to have submitted responses that are inconsistent with the formula provided to calculate the cost per inmate per meal. The PFM Team calculated the per inmate per meal cost using the provided formula and found that reported data from 11 jails varied by more than 20 percent from calculations utilizing the provided formula. The 11 jurisdictions were: Bedford, Bedford Heights, Bratenahl, Brook Park, Brooklyn, Cuyahoga Heights, Euclid, Garfield Heights, Highland Heights, Lyndhurst, and Maple Heights. Subsequent budget data received from Parma suggested that the cost per meal per inmate was potentially lower than reported in the survey submission.


Table 39 - FY13 Average Cost Per Meal (In-house)43

Jurisdictions FY 13 Food Budget FY13 Average Cost per Cost per

Inmate per Meal

Brooklyn Heights $1,500 $26.40

Broadview Heights $17,000 $5.94

Independence $4,555 $4.27

Garfield Heights $35,000 $3.50

Walton Hills As needed $3.00

Cuyahoga Heights $171 $3.00

Mayfield Heights $0 $2.80

Strongsville $19,482 $1.86

Cleveland $500,000 $1.69

Village of Bratenahl $600 $1.08

Cuyahoga County $1,800,000 $0.79

Total $2,378,307 - *There were 16 non-full service facilities with no budget for food.

Medical Similar to food costs, medical costs per inmate per day are a function of total medical budget and the number of inmates housed. In 2013, Cuyahoga County had the highest reported medical budget. Cuyahoga County Jail’s budget for contracted medical costs in 2013 was $7 million; the next highest jurisdiction was Cleveland with a total budget for contracted medical costs of more than $3 million. Taken together, the budgeted medical expenditures for Cuyahoga County’s Jail and Cleveland’s jails were $10.1 million of the total $10.4 million of budgeted medical expenditures among jails that contracted for medical services, 97.1 percent of total costs. Cuyahoga County jail had an average medical cost per inmate per day of $9.40 and Cleveland’s average medical cost per inmate per day was $31.25. In 2013, among all responding jurisdictions, 21 jurisdictions contracted out their medical service. Of those jails contracting for medical service, 14 had an average medical cost per inmate per day of $10.00 or less, four had an average medical cost per inmate that was between $10.00 and $20.00, and three had an average medical cost per inmate per day that was more than $20.00.

43 Multiple jurisdictions appear to have submitted responses that are inconsistent with the formula provided to calculate the cost per inmate per meal. The PFM Team calculated the per inmate per meal cost using the provided formula and found that reported data from 11 jails varied by more than 20 percent from calculations utilizing the provided formula. The 11 jurisdictions were: Bedford, Bedford Heights, Bratenahl, Brook Park, Brooklyn, Cuyahoga Heights, Euclid, Garfield Heights, Highland Heights, Lyndhurst, and Maple Heights.


Table 40 - FY13 Average Medical Cost Per Inmate (Contracted Out)44 Jurisdiction Medical Budget Medical Cost per Inmate per Day

Cleveland $3,080,000 $31.25

Beachwood $18,800 $26.00

Lakewood $37,658 $20.63

Mayfield Heights $0 $17.21

Middleburg Heights $15,000 $14.12

Brook Park $10,500 $13.69

Independence $6,000 $11.66

Cuyahoga County $7,000,000 $9.40

University Heights N/A $8.43

South Euclid $7,500 $8.21

Cuyahoga Heights $2,400 $6.57

Brecksville $8,027 $6.40

Euclid $58,060 $5.68

North Royalton $15,265 $4.56

Broadview Heights $4,200 $4.40

Solon $26,000 $4.40

Bedford $6,000 $3.28

Brooklyn $8,000 $2.74

Bedford Heights $50,500 $2.08

Garfield Heights $10,000 $1.90

Maple Heights $15,900 $1.89

Cleveland Heights $0 $0

Moreland Hills $0 $0

Valley View N/A $0

Walton Hills $0 $0

Woodmere $0 $0

Parma N/A N/A

Parma Heights N/A N/A

Rocky River N/A N/A

Total $10,379,810 -

Some municipal jails provided medical service in-house with their own staff. Eight of the 15 municipalities that provided medical services in-house, did so for a cost of less than $5.00 per inmate per day. In 2013, among all jurisdictions that provide medical service in-house, the North Olmsted had the highest average medical cost per inmate per day at $30.14, followed by Shaker Heights and Strongsville, while Brooklyn Heights, Bay Village, and Richmond Heights had low medical costs per inmate per day principally due to small medical budgets for their small inmate populations.

44 Multiple jurisdictions appear to have submitted responses that are inconsistent with the formula provided to calculate the medical cost per inmate per day. The PFM Team calculated the medical cost per inmate per day using the provided formula and found that reported data from 4 jails varied by more than 20 percent from calculations utilizing the provided formula. The 4 jurisdictions were: Bedford, Cuyahoga Heights, Independence, and Strongsville.


Table 41 - FY13 Average Medical Cost Per Inmate (In House) 45 Jurisdiction Medical Budget Medical Cost per Inmate per Day

North Olmsted $44,000 $30.14

Shaker Heights $64,876 $24.70

Strongsville $74,914 $22.88

Berea $5,000 $15.39

Mayfield Village $1,000 $15.22

Lyndhurst $9,232 $11.87

Westlake $25,000 $11.85

Brooklyn Heights $4,200 $1.80

Bay Village $520 $1.50

Richmond Heights $765 $0.83

Hunting Valley $0 $0.00

North Randall $0 $0.00

Olmsted Falls $0 $0.00

Pepper Pike N/A $0.00

Village of Bratenahl $0 $0.00

Chagrin Falls N/A N/A

East Cleveland N/A N/A

Fairview Park $11,800 N/A

Highland Heights N/A N/A

Linndale N/A N/A

Warrensville Heights N/A N/A

Total $241,306 -

45 Multiple jurisdictions appear to have submitted responses that are inconsistent with the formula provided to calculate the medical cost per inmate per day. The PFM Team calculated the medical cost per inmate per day using the provided formula and found that reported data from 4 jails varied by more than 20 percent from calculations utilizing the provided formula. The 4 jurisdictions were: Bedford, Cuyahoga Heights, Independence, and Strongsville.

Regional Jail Assessment Study Appendices Cuyahoga County, Ohio

Appendices

Appendix A: Letter from Cuyahoga County to Mayors Announcing Jail Survey

(November 2013) Appendix B: Letter from Cuyahoga County to Mayors Confirming Deadline for

Survey Responses (January 2014) Appendix C: Definitions of Terms Used in Survey of Jail Operations in Cuyahoga

County

Regional Jail Assessment Study Appendix A Cuyahoga County, Ohio

Appendix A - Letter from Cuyahoga County to Mayors Announcing Jail Survey (November 2013)

Regional Jail Assessment Study Appendix B Cuyahoga County, Ohio

Appendix B - Letter from Cuyahoga County to Mayors Confirming Deadline for Survey

Responses (January 2014)

Regional Jail Assessment Study Appendix C Cuyahoga County, Ohio

Appendix C – Definitions of Terms Used in Survey of Jail Operations in Cuyahoga County

1) Full service jail: A local confinement facility used primarily to detain adults for more than one hundred twenty hours.

2) Non-full service jail: A temporary holding facility or any other local jail facility not meeting the criteria to be considered a full service jail.

3) Operational status: a. Open and Active – A facility that is open and currently housing inmates. b. Open and Inactive – A facility that is open, but is not currently housing inmates. c. Closed – A facility that has been closed and is non-operational.

4) Average daily population (ADP): The average number of inmates in jail on a given

day. ADP can be calculated using monthly or daily jail population statistics. a. Monthly ADP calculation:

(Jan. + Feb. + Mar. + Apr. + May + June + July + Aug. + Sep. + Oct. + Nov. + Dec.)/12 months

b. Daily ADP calculation:

(Jan. 1 + Jan. 2 + Jan. 3 + Jan. 4 + … + Dec. 29 + Dec. 30 + Dec. 31)/365

5) Average length of stay: The average duration an inmate’s time in jail.

6) Average daily cost per inmate: The average cost of housing a single inmate for one

day. a. Calculation: [ (Total Jail Expenditures) / (Average Daily Population) / 365 ]

7) Average meal cost per inmate: The average cost of a single meal for one inmate.

a. Calculation: [ (Total Food Costs) / (Average Daily Population) / 365 / 3 ]

8) Average medical cost per inmate per day: The average daily medical care cost for a

single inmate. a. Calculation: [ (Total Medical Care Costs) / (Average Daily Population) / 365 ]

9) Full-time jail employee: An employee who spends 75 percent or more of their work

time supervising inmates.

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