COUNTY JAIL, JUVENILE HALL AND HOLDING CELLS:
INSPECTION AND INFORMATION REPORT
INTRODUCTION
The 2013-2014 San Luis Obispo County Grand Jury (Grand Jury) conducted an inquiry into the
condition and management of the San Luis Obispo County Jail (Jail), San Luis Obispo County
Juvenile Hall (Juvenile Hall) plus city and county temporary holding facilities. This report
presents the results of that inquiry and is based on jurors’ observations, interviews and informal
discussions with correctional officers, other local law enforcement officials and information
obtained from the Sheriff’s Office.

AUTHORITY
California Penal Code section 919(b) mandates, “The Grand Jury shall inquire into the
conditions and management of the public prisons within the County.” Authorization extends to
interviewing inmates and staff and reviewing inmates’ grievances.

METHOD
Members of the Grand Jury conducted the following inspection tours:
•

Juvenile Hall - September 18, 2013.

•

County Jail and Women’s Honor Farm - November 20, 2013.

•

Men’s Honor Farm - December 4, 2013.

•

Holding Cells in the County Court House and Arroyo Grande, Atascadero, Grover Beach,
Morro Bay, Paso Robles, Pismo Beach and San Luis Obispo city police departments –
August 28 through September 25, 2013.

Documents reviewed included:
•

County Jail, Juvenile Hall and Holding Cells: Inspection and Information Report - 20122013 San Luis Obispo County Grand Jury, Final Report.

•

San Luis Obispo County Jail Inmate Rules.

•

San Luis Obispo County Sheriff’s Office 2012 Annual Report.

	
  
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Staff interviews included:
•

County Sheriff/Coroner.

•

Undersheriff and Chief Administrator of the Jail.

•

Correctional Services Lieutenant, Supervisor of the Honor Farms.

•

Jail Program Manager.

•

Director of Probation and Chair of County Community Correction Partnership Executive
Committee.

•

Chief Deputy Probation Officer, Superintendent of Juvenile Hall.

•

Police Chiefs, Watch Commanders and/or Lieutenants of the seven San Luis Obispo
County police departments.

Two-person Grand Jury teams spoke with four inmates including two male inmates from the
Men’s Honor Farm and one male and one female youth at Juvenile Hall.

NARRATIVE
County	
  Jail	
  
The Jail is located west of Highway One at 1585 Kansas Avenue. It is nearly 94,000 square feet
in size with about 7,400 square feet used for administrative offices. As stated in the San Luis
Obispo County Sheriff’s Office Annual Report 2012: “The primary purpose of the County Jail is
to house pretrial arrested and sentenced inmates in a safe and secure environment providing
protection of the community. The Jail houses both male and female inmates in maximum,
medium and minimum security housing locations. It also provides for the health and welfare of
the inmates and has the responsibility of transporting those inmates to and from locations outside
of the Jail.”
The Board of State and Community Corrections rates the Jail at a capacity of 526 inmates, but
by adding double bunks in some of the housing units it is “self-rated” at 637 inmates. Even
with double bunking, the current average inmate occupancy of 732 requires many inmates to
sleep in portable plastic sleeping modules with mattresses known as “boats” placed on the
floor. The current average inmate population is a 2% increase over last year’s average
population of 717.
	
  
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Overcrowding at the Jail is due in large part to the 2011 Public Safety Realignment Act (AB
109)

which resulted from a mandate by the United States Supreme Court to reduce

overcrowding in the California State Prison system. Historically, the Jail housed inmates
convicted of either felony or misdemeanor crimes with sentences of one year or less. Under
AB109 three major changes took place effective October 1, 2011:
•

Felony offenders who have never been convicted of a serious or violent crime and are not
required to register as sex offenders will now serve their sentences in local custody.

•

Most offenders released from prison will now be subject to local “post-release
supervision” rather than state parole.

•

Parolees who violate a condition of release will no longer be returned to prison but will
be required to serve out any custodial supervision in county jail.

Currently, 47% of the Jail inmates are awaiting sentencing. Appendix I provides a more
complete breakdown of the inmate population.
Budget: The 2013-2014 budget for the Jail is $23.6 million, an increase of about 2% over last
year’s budget. That figure includes $2.6 million received from the state to cover the additional
cost of AB109 requirements. The legislature has incorporated language in the state Constitution
that ensures the additional funds will continue as long as AB109 is in effect. The Sheriff’s Office
has concerns, however, that cuts may be made in other areas that could offset that funding.
The Sheriff noted a high number of inmates are repeat offenders and believes the most costeffective way to reduce Jail overcrowding is to reduce the number of repeat offenders.
Accordingly, he has directed a portion of County AB109 funds towards efforts to reduce repeat
offender numbers. A Jail Program Manager has been hired and is instituting a series of programs
aimed at changing offenders’ behaviors (including substance abuse), teaching life and job skills
and preparing offenders for reentry into society at large. See Appendix II for a more complete
list of inmate programs.
	
  

	
  
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Expansion: Physical changes that will assist in handling the overcrowding include the
construction of a Women’s Jail. The Board of Supervisors awarded the construction contract for
the Women’s Jail on December 17, 2013. The state has approved the contract, a Notice to
Proceed has been issued and groundbreaking has taken place. Construction of the Women’s Jail
will be in two phases. The first phase will include the inmate housing and property area and the
second phase will be the medical and programming area. The Women’s Honor Farm will be
moved from its current location to an area adjacent to the Men’s Honor Farm, allowing further
expansion of male inmate housing into that vacated area. The Women’s Honor Farm relocation
is described in more detail in the Women’s Honor Farm section.
Mental Health/Medical: Mental health is a significant issue in the Jail. Approximately 40%
of the inmates receive medication for mental health disorders such as schizophrenia,
depression and bipolar disorder. While no suicide attempts were successful in 2013, staff
made 85 safety cell placements for attempted self-harm. To serve inmates with mental health
disorders, five mental health technicians provide Jail coverage and two psychiatrists provide
a total of ten clinic hours per week.
Medical care has become more of an issue in the Jail as AB 109 has resulted in inmates being
housed for much longer sentences. To meet that need, one additional doctor, one and one-half
full-time equivalent Mental Health Technicians and one full-time Administrative Assistant have
been added to staff. Coverage hours for a Supervising Correctional Nurse and a Correctional
Nurse have been increased. Currently, the Jail medical staff consists of three medical doctors
providing ten to fifteen clinic hours per week, a staff of twelve registered nurses, five licensed
vocational nurses and two administrative assistants providing 24 hour Jail coverage.
Staffing: Jail operations are staffed by 176 correctional personnel. Appendix III has a
complete breakdown of the custody staff by position.
Attacks on staff have increased and become more violent with the increase in inmates and
sentence length and the addition of felony offenders. Incidents occur on a nearly daily basis, and
one correctional officer was hospitalized in 2013. Because of that assault, a Custody

	
  
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Emergency Response Team (CERT) consisting of twenty intensively trained and specially
equipped deputies has been formed to respond to combative inmates. At any given time a
minimum five member team can be assembled in minutes for cell extraction, riots, clearing
and searching day rooms, hostage recovery and other situations that would endanger a deputy
beyond the course of normal duty.
Intake: Each individual booked into the Jail is fingerprinted and has his/her photo taken.
During the intake process, if an inmate appears to be under the influence of drugs/alcohol or
exhibits violent or suicidal behavior, he/she is placed in a special designated cell for
observation until stabilized.
As part of the intake process, individuals that are housed at the Jail go through the
Classification Office where a detailed screening is performed to determine the inmate’s
security classification. Classification is based on the charges, previous arrest history, substance
abuse problems, mental health issues, sexual orientation, history of violence, gang affiliations,
need for protection from other inmates, and any other factor that, in the experience of the
screener, will cause the inmate to need special handling.

The inmate’s classification will

determine cellblock assignment and indicates to staff the level of security needed when in
contact with that inmate. A complete list of the Jail’s Inmate Classification System is also
included in Appendix I.
Contraband: Contraband continues to be a problem in the Jail. Staff thoroughly searches every
inmate before he/she is placed in the general population. Searches can include: a metal detector/
scanning device search, pat down search, strip search, visual body cavity search, and if court
ordered and conducted by a doctor, physical body cavity search. The Jail recently acquired a
canine trained to detect drugs, and staff makes random searches of the Jail with the animal.
Housing: Physically, the Jail consists of the older main Jail built in 1971 and the new Jail built
in 1993. The main Jail has several components. While there are some single cells for inmates
who are especially violent or have medical conditions, most inmates are housed in group cells
with up to 10 inmates in each cell. Stahl Hall is the Jail’s medical and mental health center and

	
  
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is where inmates go when ill. The center dispenses medications; however, the Jail staff has
no authority to forcibly medicate inmates having episodes associated with mental illness.
The new Jail consists of West Housing and West Dorm. In West Housing, each dorm is further
divided into groups of cells allowing for segregation of prisoners by classification and special
need such as high security risk, medication requirement, involvement with rehabilitation
programs and any need for special protection.
Women inmates are currently housed in a separate section consisting of maximum security and
dormitory units. The two dormitory style cells house lower to middle security inmates and
average 30 inmates each. Dormitory #1 houses the lowest security risk inmates who are the
source of most work details and Honor Farm candidates. The maximum security side of the
Women’s Jail houses higher security risk inmates including those who are mentally ill, suicidal,
in protective custody or administrative segregation. Because these inmates require a greater
degree of separation, no cell holds more than ten inmates.

Men’s	
  Honor	
  Farm	
  
The Men’s Honor Farm (Men’s Farm) is located about one-half mile east of the Jail complex on
Oklahoma Avenue. The Sheriff has rated its capacity at 80 inmates in two barracks-type
buildings.
On December 4, 2013, when the Grand Jury visited, 78 inmates were in residence. Inmates must
apply to be placed on the Men’s Farm. Applications are closely reviewed to determine eligibility
that is based on the inmate’s classification, charges against them and disciplinary history.
Inmates with known gang affiliations are not placed in the Men’s Farm. Inmate behavior is
closely monitored and those who commit any infraction are returned to the general Jail
population. Currently, the average stay is over one year, which is a sharp increase from the
average of 20 days prior to AB 109.
The Jail kitchen is located within the perimeter of the Men’s Farm and its inmates are the
primary workforce. The kitchen serves the inmate population, the staff and Juvenile Hall,
producing approximately 70,000 meals per month. Twenty-one inmates in two shifts, supervised

	
  
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by seven paid cooks, make the two hot meals and box lunch daily with an average cost of about
one dollar per meal. In response to increased religious diversity among the inmate population,
the kitchen has stopped serving pork and, due to allergies, fish has also been removed from the
inmate menu. All inmates working in the kitchen receive training and can take a test to receive
the California Food Safety Manager Certification. A new program for inmates to receive a
California Food Handlers Card has recently begun.
In November 2012, a fire destroyed the permanent laundry facility. Until that time, supervised
inmates operated the laundry and were responsible for laundering all inmate clothing. Currently,
laundry service is contracted out to the California Men’s Colony and the Jail inmates can only
receive, sort, deliver, and do limited washing and drying. All inmates in the Jail receive one full
exchange of clothes per week and one partial exchange. Construction of the new laundry facility
has begun.
The Men’s Farm has fully functioning wood and metal shops, and the inmates do the majority of
maintenance throughout the Jail. The inmates are also sent on work details. The Jail has
standing agreements with Caltrans, Camp San Luis, the Courthouse, the county garage and trash
services to provide inmate work details.
Men’s Farm inmates assemble, paint, repair and refurbish bicycles that have been donated by
the community and large retail stores such as Target, Costco and Wal-Mart. The bike program is
quite popular with inmates and the community. The Sheriff’s Office sponsors a bike give away
at Christmas to local children and adults in need. During the rest of the year, bikes are available
to charities by application and to probationers, if approved by the Probation Department, as part
of the re-entry program.

Women’s	
  Honor	
  Farm	
  
The Women’s Honor Farm (Women’s Farm) was established in the modular units in 2012 with
funding from the state as part of AB 109. It has a Sheriff-rated capacity of 24 inmates in
two modular buildings adjacent to the Jail. When the Grand Jury visited on November 20,
2013, 20 women were in residence. Inmates must apply to be accepted to the Women’s Farm.

	
  
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Applications are evaluated to determine eligibility that is based on the inmate’s
classification, charges against her and disciplinary history. Inmates with known gang
affiliations are not placed on the Women’s Farm.
Inmates on the Women’s Farm are involved in a rehabilitation program using staff facilitated
training modules entitled “Thinking for a Change.” Currently, two correctional deputies are
trained program instructors. The program offers classes in life skills; this includes recognizing
and changing negative behavior, alternatives to violence, improving parenting skills and ending
substance abuse. Additionally, sewing classes are offered; one project undertaken by the women
has been to sew colorful backpacks for children in the county foster care program to replace the
plastic bags that they had been using.
Some of the women also participate in the Sheriff’s Teen Outreach Program (STOP) for at-risk
youth.

The program educates the youth about the consequences of poor decision-

making. Women inmates participating in the program share their personal stories with the
youth and describe how their poor decisions led to arrest, jail and confinement. The deputies
describe the program as having a powerful emotional impact on both the youth and the
inmates. To be allowed to participate, the women must accept personal responsibility for their
actions, which is a turning point in rehabilitation.
During the day, inmates participate in work programs with the largest number going to County
Animal Services working as Kennel Assistants. The inmates assist with cleaning, feeding and
socializing animals to make them more adoptable. Several inmates are responsible for cleaning
the Emergency Operations Center and administrative offices. Other inmates assist in doing daily
laundry for the Women’s Honor Farm as well as washing and detailing department vehicles.
One inmate assists the Commissary unit.
As part of the Sheriff’s effort to deal with overcrowding at the Jail, the Women’s Farm is being
relocated to an area independently secured but within the perimeter of the Men’s Honor Farm. A
screened area contains two buildings that have been totally refurbished and are capable of
housing 30 women each. At the time of this report, Jail staff anticipates state approval of the
relocation. Once the women are relocated, the former Women’s Farm will be further secured

	
  
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and will be used to house male inmates currently sleeping in “boats.”

Holding	
  Cells	
  
Holding cells are temporary lockup facilities that house arrestees or inmates for a brief time
before they are released or transported to the San Luis Obispo County Jail.
Historically, the County and each of the seven city police agencies (Arroyo Grande, Atascadero,
Grover Beach, Morro Bay, Paso Robles, Pismo Beach and San Luis Obispo) have maintained
holding cells. However, most of these agencies seldom use their holding cells as most offenders
are either cited and released in the field or are immediately transported to Jail for booking.
Arroyo Grande and Morro Bay police departments converted their holding cells to better utilize
the space within their facilities. Arroyo Grande uses the space for property/evidence storage
and Morro Bay uses the space as a property/evidence packaging area and armory. During special
events, such as the July 4th celebration and the Mid-State Fair, when the number of arrests
increases dramatically, the cities of Pismo Beach and Paso Robles, respectively, arrange
with the Sheriff's Department to handle the processing and transportation of offenders. This
arrangement has proved to be of mutual benefit to the agencies during these large special events.
The County Courthouse has the largest and most used holding facility in the county. Operating
only on court days, it houses an average of 70 inmates and arrestees awaiting court proceedings.
	
  

Juvenile	
  Hall	
  
The San Luis Obispo County Probation Department operates the Juvenile Hall. Built in 1983,
Juvenile Hall has a capacity of 50 youths, and is located on the Kansas Avenue campus. Section
208.5 of the California Welfare and Institutions Code allows detention of a youth (defined as 20
years of age or younger). At the time of the Grand Jury's visit, there were 19 youths in residence,
17 males and 2 females.
Upon arrival at Juvenile Hall, each arrestee is assessed by three professionals: a probation
officer, nurse or nurse practitioner, and a mental health therapist. Great care is taken to separate
those arrestees who require specialized housing due to their age, vulnerability, medical and/or
mental health, or gang affiliation. If it is anticipated the youth will be in residence for more than

	
  
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a day, he or she is also assessed by the educational staff. Education services are coordinated
with the school in the youth's home community. The County Office of Education provides
teachers and instructional aides.
Over 150 community member volunteers provide enrichment programs for those held in Juvenile
Hall including but not limited to yoga, guitar lessons, and book club. The volunteer efforts are
led by Sister Theresa Harpin, Director of Restorative Partners, a program that provides support to
those in custody.
Juvenile Hall uses a "Coupon Reward System." Youths earn rewards for good behavior
redeemable for inexpensive amenities such as stationery and healthy snacks. The staff reported
this system has resulted in an overall improvement in the behavior of the youth. A new
program, “Anti-Violence Program” was implemented in April 2014 facilitated by the volunteers
from the Restorative Partners.
The Grand Jury conducted interviews with one female and one male incarcerated at the Juvenile
Hall. They each reported the staff treats them fairly and with respect. One youth complained
about visitor restrictions. Parental visits are allowed per the Juvenile Hall's handbook. All other
visitors must have prior approval by the youth's probation officer; the potential positive or
negative influence a visitor may have on the youth is always the highest concern.
Juvenile Hall is staffed by 24 Juvenile Services Officers, 5 Juvenile Services Officer IIIs and 3
Supervising Deputy Probation Officers. Juvenile Hall has one nurse practitioner, one nurse, a
part-time nurse and an on-call pediatrician on staff to address the medical needs of the youths.
Two mental health therapists and one part-time mental health therapist are also on staff for
mental health needs. The therapists are proactive in their approach, frequently observing and
talking with the youths rather than only providing services by appointment.
Construction of a new addition is expected to begin in 2015 and be completed the following
year. The new addition will add 20 single beds, three classrooms, a gym/multi-purpose room
and an administration wing located above the classrooms.

	
  
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CONCLUSIONS
The Grand Jury found the Jail to be clean and functioning well. The inmates appeared to be safe,
secure and orderly. Despite the recent increase in violence toward the staff, all indications were
deputies were fully in charge of the facility and treated the inmates with dignity.
The Jail’s population has changed in two ways since the implementation of AB109. It now
houses a larger number of inmates and more of them are repeat offenders. The result is an
overcrowded jail. The Sheriff believes the most cost-effective way to reduce Jail overcrowding
is to reduce the number of repeat offenders and he has directed a portion of County AB109 funds
toward those efforts. A Jail Program Manager has been hired and is instituting a series of
programs aimed at changing inmates’ behaviors (including substance abuse), teaching life and
job skills, and preparing them for reentry into society at large.
The cost for medical care for inmates is increasing and is expected to continue to increase as the
Jail population ages. Because 40% of the inmates require mental health care, it is a significant
cost component of the Jail’s budget. A hidden “medical” cost is the need for staff to transport
and guard inmates requiring specialized care outside the Jail. Although this was recently
contracted to a private company, it is still an expense in the budget.
The Grand Jury found all the existing holding cell facilities to be clean and safely operated. All
policy and procedure manuals, state mandated health inspections and safety certifications were
up-to-date and available for review.
The Grand Jury found Juvenile Hall to be clean and well maintained.

COMMENDATIONS
The Grand Jury commends the staffs of the Jail and Juvenile Hall for their professionalism.

	
  

	
  
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REQUIRED RESPONSES
This is an informational report. No responses are required.
Presiding Judge

Grand Jury

Presiding Judge Dodie Harman

San Luis Obispo County Grand Jury

Superior Court of California

P.O. Box 4910

1035 Palm Street Room 355

San Luis Obispo, CA 93403

San Luis Obispo, CA 93408
	
  

	
  
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APPENDIX I
JAIL	
  STATISTICS	
  1	
  
	
  
Rated Capacity
Board of State and Community Corrections 526
Sheriff’s Department

637

Current Population *
Males

670

Females

112

* Includes inmates in outside locations: Sheriff’s Parole and Home Detention.
Average “Boat” Sleepers
Males

35

Females

14

Criminal Classification
Felony

592

Misdemeanor

146

Unknown

15

Inmate Classification System
General Population
Criminal Sophistication
Administrative Segregation
Protective Custody
Medical
Mental Health
1

Statistics as of November 20, 2013.

	
  

	
  
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APPENDIX II
JAIL	
  INMATE	
  PROGRAMS	
  
	
  

FALL/WINTER	
  2013	
  

General Education Development (GED) - Prepares inmates to take the test for a General
Education Diploma. .
English as a Second Language – English instruction for non-native speakers.
Alternatives to Violence – Teaches methods of communication to resolve conflicts.
CA Certified Food Handlers Card Training – Inmates are taught how to safely handle food.
Those completing training receive a Certificate needed to work in the food service industry.
Certified Food Safety Manager Training – Builds on and expands food handler lessons. Inmates
that pass a written test obtain a nationally recognized certificate of competence.
Substance Abuse Treatment – Uses various curriculum including Anger Management, Relapse
Prevention Education, Release Planning, Self Esteem, Perception Checking and more.
Planning for Change – Targeted at changing anti-social thinking and criminal behavior.
Parenting – Enhances parenting skills for creating a healthy family environment.
Alcoholics/Narcotics Anonymous – Twelve Step meetings in custody.
Garden Project, Men’s Honor Farm – Prepare, design and maintenance of garden areas.
Ministry – Coordinates religious activity within the jail and ensures inmates have access to
ministers and spiritual volunteers.

	
  
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Vets Helping Vets – One-on-one counseling for incarcerated vets by vets. Councilors will
accompany vets to Vets Courts hearings.
Vocational Training – Work experience opportunities such as Humane Society and Jail
Commercial kitchen.
Reentry Planning – Assesses inmates needs upon release and sets goals for obtaining assistance
once released.
Post-release Case Management – For eligible inmates based on assessed level of need including
housing, substance abuse, medical, transportation, etc.
Forensic Reentry Services – A program within the Mental Health Services Act to provide
assistance to inmates with primary mental health disorders being released from custody. It
connects the inmate with specialized community support services.
Forensic Coordination Team – Provides more intensive supervision of mentally ill offenders and
assists in connecting with specialized support services.
	
  

	
  
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APPENDIX III
JAIL	
  CORRECTIONAL	
  STAFF	
  
Correctional Captain

1

Correctional Lieutenant

2

Correctional Sergeant

13

Senior Correctional Deputies

15

Correctional Deputies
Senior Correctional Technicians
Correctional Technicians

104
3
25

Program Manager

1

Supervising Legal Clerk

1

Legal Clerk

2

Food Service Supervisor

1

Cook

7

Storekeeper

1

	
  
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