03/13/2001 04:02 PM House HES
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ALASKA STATE LEGISLATURE
HOUSE HEALTH, EDUCATION AND SOCIAL SERVICES
STANDING COMMITTEE
March 13, 2001
4:02 p.m.
MEMBERS PRESENT
Representative Fred Dyson, Chair
Representative Peggy Wilson, Vice Chair
Representative John Coghill
Representative Gary Stevens
Representative Vic Kohring
Representative Sharon Cissna
Representative Reggie Joule
MEMBERS ABSENT
All members present
COMMITTEE CALENDAR
HOUSE CONCURRENT RESOLUTION NO. 7
Relating to proclaiming April 2001 as Sexual Assault Awareness
Month.
- MOVED CSHCR 7(HES) OUT OF COMMITTEE
SPONSOR SUBSTITUTE FOR HOUSE BILL NO. 76
"An Act authorizing the commissioner of health and social
services to provide for the design and construction of
psychiatric treatment facilities to replace the facilities of
the Alaska Psychiatric Institute."
- HEARD AND HELD
SPONSOR SUBSTITUTE FOR HOUSE BILL NO. 77
"An Act relating to appropriations for the design and
construction of a replacement facility or facilities for the
Alaska Psychiatric Institute and for a grant to study the
feasibility of locating certain health programs at the site of
the Alaska Psychiatric Institute; and providing for an effective
date."
- HEARD AND HELD
HOUSE BILL NO. 130
"An Act relating to the issuance of certificates of
participation to finance demolition of all or part of the
existing facility known as the Alaska Psychiatric Institute and
construction of a new facility to be known as the Alaska
Psychiatric Institute; giving notice of and approving the entry
into, and the issuance of certificates of participation in, a
lease-purchase agreement for demolition of all or part of the
existing facility known as the Alaska Psychiatric Institute and
construction of a new facility to be known as the Alaska
Psychiatric Institute; and providing for an effective date."
- HEARD AND HELD
PREVIOUS ACTION
BILL: HCR 7
SHORT TITLE:APRIL 2001 SEXUAL ASSAULT AWARENESS MONTH
SPONSOR(S): REPRESENTATIVE(S)MEYER
Jrn-Date Jrn-Page Action
02/23/01 0409 (H) READ THE FIRST TIME -
REFERRALS
02/23/01 0409 (H) HES
03/13/01 (H) HES AT 3:00 PM CAPITOL 106
BILL: HB 76
SHORT TITLE:NEW FACILITIES FOR API
SPONSOR(S): REPRESENTATIVE(S)ROKEBERG
Jrn-Date Jrn-Page Action
01/19/01 0128 (H) READ THE FIRST TIME -
REFERRALS
01/19/01 0128 (H) HES, FIN
02/14/01 0316 (H) SPONSOR SUBSTITUTE INTRODUCED
02/14/01 0316 (H) READ THE FIRST TIME -
REFERRALS
02/14/01 0316 (H) HES, FIN
02/14/01 0316 (H) REFERRED TO HES
03/13/01 (H) HES AT 3:00 PM CAPITOL 106
BILL: HB 77
SHORT TITLE:APPROP: REPLACEMENT OF API
SPONSOR(S): REPRESENTATIVE(S)ROKEBERG
Jrn-Date Jrn-Page Action
01/19/01 0129 (H) READ THE FIRST TIME -
REFERRALS
01/19/01 0129 (H) HES, FIN
02/14/01 0317 (H) SPONSOR SUBSTITUTE INTRODUCED
02/14/01 0317 (H) READ THE FIRST TIME -
REFERRALS
02/14/01 0317 (H) HES, FIN
02/14/01 0317 (H) REFERRED TO HES
03/13/01 (H) HES AT 3:00 PM CAPITOL 106
BILL: HB 130
SHORT TITLE:C.O.P.S FOR API DEMOLITION/CONSTRUCTION
SPONSOR(S): RLS BY REQUEST OF THE GOVERNOR
Jrn-Date Jrn-Page Action
02/16/01 0344 (H) READ THE FIRST TIME -
REFERRALS
02/16/01 0345 (H) HES, FIN
02/16/01 0345 (H) FN1: (REV)
02/16/01 0345 (H) GOVERNOR'S TRANSMITTAL LETTER
02/16/01 0345 (H) REFERRED TO HES
03/13/01 (H) HES AT 3:00 PM CAPITOL 106
WITNESS REGISTER
REPRESENTATIVE KEVIN MEYER
Alaska State Legislature
Capitol Building, Room 110
Juneau, Alaska 99801
POSITION STATEMENT: Sponsor of HCR 7.
LAUREE HUGONIN, Director
Alaska Network on Domestic Violence and Sexual Assault
130 Seward Street
Juneau, Alaska 99801
POSITION STATEMENT: Testified in support of HCR 7.
REPRESENTATIVE NORMAN ROKEBERG
Alaska State Legislature
Capitol Building, Room 118
Juneau, Alaska 99801
POSITION STATEMENT: Testified as sponsor of SSHB 76 and SSHB
77.
RANDALL BURNS, Director
Alaska Psychiatric Institute
Division of Mental Health & Developmental Disabilities
Department of Health & Social Services
2900 Providence Drive
Anchorage, Alaska 99508
POSITION STATEMENT: Testified on HB 130.
JERRY WATKINS, Engineer/Architect
Construction & Operations
Department of Transportation & Public Facilities
PO Box 196900
Anchorage, Alaska 99519
POSITION STATEMENT: Answered questions on HB 130.
ACTION NARRATIVE
TAPE 01-27, SIDE A
Number 0001
CHAIR FRED DYSON called the House Health, Education and Social
Services Standing Committee meeting to order at 4:02 p.m.
Members present at the call to order were Representatives Dyson,
Coghill, Stevens, and Cissna. Representatives Wilson, Kohring,
and Joule joined the meeting as it was in progress.
HCR 7-APRIL 2001 SEXUAL ASSAULT AWARENESS MONTH
CHAIR DYSON announced that the first order of business would be
HOUSE CONCURRENT RESOLUTION NO. 7, Relating to proclaiming April
2001 as Sexual Assault Awareness Month. [Before the committee,
although not formally adopted, was Version F (22-LS0620\F,
Utermohle, 2/28/01.]
Number 0045
REPRESENTATIVE KEVIN MEYER, Alaska State Legislature, sponsor of
HCR 7, came forth and stated that he and Representative Guess,
cosponsor, thought that a resolution format would help the
public to be more aware of the sexual assaults that occur in
Alaska. He said HCR 7 recognizes the need for awareness,
prevention, and education concerning sexual assault. By
observing [Sexual Assault Awareness Month], schools,
communities, organizations, individuals, agencies, and
businesses are encouraged to educate and work in order to
increase the public's awareness of sexual assaults in Alaska.
He stated that sexual assault is one of the most violent and
underreported crimes in Alaska and that statistics paint a grim
picture for the state. The occurrences of rape have been
increasing over the past year, and Alaska [experiences a rate]
two times higher than the national average. He stressed that
sexual assault affects not only the lives of the victims, but
also the families, friends, and communities of the victim.
Number 0170
REPRESENTATIVE MEYER stated that HCR 7 also recognizes and
appreciates the dedicated staff and volunteers that provide
victims the support and advocacy needed to cope with the trauma.
He concluded that it is necessary to work together to prevent
sexual assault and make a statement that sexual assault is not
acceptable.
Number 0229
REPRESENTATIVE CISSNA stated that HCR 7 is very important. She
said it is interesting, having served on the Public Safety
Finance Subcommittee for the last three years, that the hardest
thing to get level funding for has been the Council on Domestic
Violence and Sexual Assault.
REPRESENTATIVE MEYER remarked that funding is hard to get for
anything. By bringing this forth as a resolution, the issue is
given a little more exposure than if it were just a citation.
He recognized that there are a lot of good groups helping with
this cause such as the Council on Domestic Violence and Sexual
Assault, and STAR (Standing Together Against Rape).
Number 0418
LAUREE HUGONIN, Director, Alaska Network on Domestic Violence
and Sexual Assault, came forth to testify in support of HCR 7.
She stated that April is marked as sexual assault awareness
month in many states across the nation. She said she encourages
people to participate in the Take Back the Night marches that
will be ongoing and the candlelight ceremonies, which are forums
for victims to speak about what has happened to them. She
concluded that to be present and witness these testimonies is a
powerful and encouraging thing.
CHAIR DYSON inquired as to the number of males that are victims
of sexual assault in Alaska.
MS. HUGONIN replied that according to national statistics,
before the age of 18 one in six boys will be sexually assaulted
and one in four girls. She noted that the number is based on
what is reported through the FBI (Federal Bureau of
Investigation), which she understands is an underreporting. She
added that there are adult male victims, but Alaska does not
keep statistics primarily on gender.
Number 0557
CHAIR DYSON remarked that he finds most of his colleagues are
unaware of how many boys are sexually assaulted and molested in
Alaska. He made a motion to adopt a conceptual amendment on
page 1, after line 7 [of version F] to read: "whereas 40
percent of child sexual assaults reported to Alaska child
advocacy centers are males, and male rapes in prison is a
significant or profound problem". There being no objection, the
conceptual amendment was adopted.
REPRESENTATIVE MEYER remarked that he, Representative Guess, and
Representative Croft serve on the Board or Directors of STAR,
which advocates for women as well as men.
Number 0670
REPRESENTATIVE JOULE made a motion to move HCR 7 [version F, 22-
LS0620\F, Utermohle, 2/28/01], as amended, from the committee
with individual recommendations and attached zero fiscal notes.
There being no objection, CSHCR 7(HES) moved from the House
Health, Education and Social Services Standing Committee.
HB 76-NEW FACILITIES FOR API
HB 77-APPROP: REPLACEMENT OF API
Number 0750
CHAIR DYSON announced the committee would hear testimony on
SPONSOR SUBSTITUTE FOR HOUSE BILL NO. 76, "An Act authorizing
the commissioner of health and social services to provide for
the design and construction of psychiatric treatment facilities
to replace the facilities of the Alaska Psychiatric Institute,"
and SPONSOR SUBSTITUTE FOR HOUSE BILL NO. 77, "An Act relating
to appropriations for the design and construction of a
replacement facility or facilities for the Alaska Psychiatric
Institute and for a grant to study the feasibility of locating
certain health programs at the site of the Alaska Psychiatric
Institute; and providing for an effective date."
Number 0815
REPRESENTATIVE NORMAN ROKEBERG, Alaska State Legislature, came
forth as sponsor of SSHB 76 and SSHB 77. He stated that this is
a very important issue that faces Alaska, particularly the
people of Anchorage. He said he understands the priority to
replace the API (Alaska Psychiatric Institute) facility, and he
became interested when the deal with Charter North fell through.
He stated that he introduced this legislation to discuss not
only the replacement of the API facility but also the addition
of what had historically been a wing for forensic psychiatric
use.
REPRESENTATIVE ROKEBERG mentioned that it was brought to his
attention that University or Alaska Anchorage and the
Municipality of Anchorage had some preliminary discussion about
co-locating some of their facilities with land in the area. He
remarked that since real estate is "dear" in that area, it
becomes an important issue about what the highest and best
values are for property in that particular neighborhood. He
added that there have been historic conversations with
Providence Hospital, Providence Medical Center, and Alaska
Regional Hospital regarding whether they had an interest in
participating [jointly in a combined facility] in the Anchorage
Area.
Number 1035
REPRESENTATIVE ROKEBERG stated that right now there is the Mike
Module unit in an Anchorage correctional facility where the most
seriously mentally ill patients in the state are kept. In the
Hiland Mountain Correctional Center (for women) there are 19
beds in a unit called Michelle Module. The Taku unit is a ten-
bed unit in API primarily for the psychological evaluations of
those who are incompetent to stand trial under Title 12. He
added that there is a Palmer special-needs facility with 18 beds
for those who have one year or less to serve [in prison] and the
Spring Creek Correction Center's Echo Module has 65 beds for
chronically mentally ill offenders who are serving one year or
more [in prison]. He remarked that in total, Alaska's
correctional system has 140 beds for those that need mental
health treatment. He expressed that he thinks it is a "crying
shame" that prisoners who need mental treatment have been
neglected. He remarked that with "time served" many of the
prisoners in Alaska, almost invariably, will be back out on the
street, so it is important to get them treatment.
REPRESENTATIVE ROKEBERG stated that the issues that need to be
looked at are: the location of this particular institution,
what's the highest and best use of the available land, the scope
of the institution, the number of beds, the design, the cost,
and the financing. He remarked that the governor has a similar
bill that calls for the appropriations to make up what's
currently available, and that recommends certificates of
participation, which add an ongoing lease payment on the part of
the state in the general fund every year. He added that another
issue is the demolition cost of the existing structure.
[HB 76 and HB 77 were held over.]
HB 130-C.O.P.S FOR API DEMOLITION/CONSTRUCTION
The committee's attention was turned to HOUSE BILL NO. 130, "An
Act relating to the issuance of certificates of participation to
finance demolition of all or part of the existing facility known
as the Alaska Psychiatric Institute and construction of a new
facility to be known as the Alaska Psychiatric Institute; giving
notice of and approving the entry into, and the issuance of
certificates of participation in, a lease-purchase agreement for
demolition of all or part of the existing facility known as the
Alaska Psychiatric Institute and construction of a new facility
to be known as the Alaska Psychiatric Institute; and providing
for an effective date."
Number 1431
RANDALL BURNS, Director, Alaska Psychiatric Institute (API),
Division of Mental Health & Developmental Disabilities,
Department of Health & Social Services (DHSS), came forth to
testify on HB 130. He stated that the problem is that API has
reached the end of its useful life. It contains sprayed on
asbestos, which has fallen onto the ceiling tiles and between
the walls. He said the utilities are very high [in cost]
because of the inefficiencies of the old [mechanical support]
systems. The roof is in need of repair, with an estimate of
$650,000 plus costs for the Department of Transportation [and
Public Facilities]. He stated that another problem is that API
doesn't meet seismic codes. Furthermore, it was not designed as
a hospital, and its physical layout is not conducive to patient
care and treatment. It was built in 1962, during the Cold War,
as a [medical-surgery] hospital. He added that looking for a
replacement has been a problem since 1988. He noted that
studies have concluded that it would be cheaper to construct a
new facility than to abate the asbestos [situation] and make the
renovations necessary. MR. Burns said [DHSS] is very interested
in finding a resolution to these problems.
Number 1657
MR. BURNS explained that the legislature in 1991, 1992, and 1993
gave a total of $6.1 million for the design and planning of a
new hospital. This was to be a $65 million, 114-bed facility -
90 beds for civil patients and 24 beds for forensic beds run by
the Department of Corrections. However, he said, because Alaska
was in a statewide recession in 1994, an appropriation bill of
only $22.8 million was created, putting a limit of 72 beds. He
stated that in 1996 API went out to bid, but the bids that came
in were millions of dollars short of the construction costs. At
that point, API withdrew the project.
Number 1734
MR. BURNS stated that [DHSS], with the Alaska Mental Health
Trust Authority (AMHTA) and the Mental Health Board, looked at
three options: going ahead with the idea of building, looking
at purchasing, or looking at partnering with another hospital.
He said that [API] did "hook up" with Providence [Hospital], as
one of those three options, and spent a whole year talking about
a joint hospital. He remarked that a basic floor plan, budget,
and draft report were produced. The only difficulty was that
Providence [Hospital] wanted to build [the joint facility] on
land to the east of its existing hospital, which is owned by the
university. He stated that API approached the [AMHTA], which
offered the possibility of doing a land swap with its land and
the university's. Unfortunately, he explained, that turned out
to be too complex, and in late 1998 [API] withdrew from the
idea.
MR. BURNS continued, stating that API then looked at purchasing
a replacement facility. He said Charter [North] offered to
build an addition onto its hospital and sell [API] one bed more
than half of the facility. Alaska Psychiatric Institute would
then jointly operate that hospital. By the end on 1998 [Charter
North] offered the entire hospital. Alaska Psychiatric
Institute, starting in the spring of 1999, entered into
intensive negotiations, which took over a year and a half and
become complicated when Charter [North] went bankrupt. He added
that, ultimately, the major drawback was the neighborhood's
objection and Anchorage's planning and zoning commission's
unanimous findings that it would not approve [API's] moving to
that location because there would be forensic patients, not
guilty-by-reason-of-insanity patients, the wards are locked and
the patients are there involuntarily. He remarked that in
December of last year [API] backed out of that deal.
Number 1877
MR. BURNS stated that the answer is to build the facility that
had been planned. He remarked that this could happen now
because [AMHTA] recently conveyed to [DHSS] certain [API]
parcels of land for this purpose. [He indicated to the
committee, through a slide presentation and accompanying
handout, the layout of parcels A, B, C, D, and E.] He explained
that [AMHTA] is willing to convey to [DHSS] parcels B, C, and D,
and wants to develop parcels A and E. The university and
Providence Hospital are interested in any land nearby for
development.
CHAIR DYSON asked whether the new [facility] would be built
after the old one is demolished.
Number 1965
MR. BURNS answered that it is "phased." He continued,
explaining that building [API] on this parcel makes sense
because it is zoned for this use. [Alaska Psychiatric
Institute] is a well-accepted institution in this area and the
neighborhood has actually grown up around it. He remarked that
[API] is also a teaching hospital, so it makes sense to be
located near Anchorage's institution for higher learning. He
stated that [API] needs to be located near an acute-care
hospital because many of the patients need to be medically
cleared before they can be admitted to [API]; also, if there are
medical emergencies, the patients need to get to a hospital as
quickly as possible. He said the university community council
and its residents have been very supportive of API. He
mentioned that the Alaska Native Medical Center has stated that
it has just completed its ten-year plan and has no intention of
building additional psychiatric beds for its hospital; therefore
it will be relying on [API] for at least another ten years.
Most important, Mr. Burns said, the planning and zoning
commission, in its resolution turning down [API's] request to
relocate, said it thought [API] should stay where it is.
MR. BURNS stated that building the facility that had been
planned would be done through certificates of participation,
which would fund both the construction of the hospital and the
demolition of "old" API. He explained that HB 130 and SB 96 do
the following: build the hospital that was planned in 1996 and
reaffirmed in 1998, build a hospital to accommodate 54 to 72
beds, and construct to the additional capacity, given [the
state's] current need for inpatient mental health treatment.
Number 2090
CHAIR DYSON asked what his sense is of the need for the forensic
beds.
MR. BURNS answered that he believes it is necessary to not
proceed and complicate this project with the question of whether
or not the neighborhood would accept a significant addition of
forensic beds to this hospital. In the current hospital there
are ten beds, but those individuals, for the most part, have
just been accused of a crime and are being evaluated as to their
competency to stand trial. He clarified that there is nobody in
the hospital that has been found guilty. Five patients have
been found not guilty by reason of insanity, and there is a
group that comes through the hospital regularly for evaluations
through a court order.
CHAIR DYSON asked if those [patients] are in secure portions of
the facility.
MR. BURNS replied that all of the units are locked, but [these
patients] are in a more secure unit than any of the others.
CHAIR DYSON asked if the neighborhood knows this.
MR. BURNS responded that [the neighborhood] is used to it, but
have commented that they are concerned about the addition of
forensic beds.
Number 2213
CHAIR DYSON asked if it is advantageous for the state to have
the incarcerated mental health patients in a single facility.
MR. BURNS replied that from a mental health and a health
perspective, a prison environment is not conducive to the
treatment of mentally ill individuals.
Number 2270
REPRESENTATIVE JOULE remarked that major maintenance and
replacement of the Department of Education [and Early
Development] go through a priority listing, particular for
schools. He asked Jerry Watkins if there is such a thing for
public facilities, where by state-owned property is looked at
and the maintenance and replacement needs are ranked.
JERRY WATKINS, Engineer/Architect, Construction & Operations,
Department of Transportation and Public Facilities, responded
that he thinks Representative Joule is talking about a long-
range plan for public facility renewal and replacement. He
stated that he does not believe one exists, but there are
efforts going on to address that problem.
MR. BURNS continued, stating that HB 130 and SB 96 would
maintain the gym and the storage beneath it and demolish the
rest. He stated that one of the reasons the demolition is
important is it would open up property for other development.
He said the total cost is $58,750,000 for construction and
demolition. There is $22.2 million in the bank because of the
money remaining from the [API] project and an appropriation from
AMHTA. He clarified that $36.5 million is remaining to be
raised through certification of participation in a lease-
purchase agreement.
TAPE 01-27, SIDE B
MR BURNS continued, stating that since there are significant
funds, [certifications of participation] would actually lower
the lease payments to the state. He added that ultimately,
[DHSS] would be paying $3.7 million annually for 15 years and at
the end of that time would own the facility.
Number 2325
MR. BURNS explained that the total construction cost, after
adding the "change order reserve," additional architecture and
engineering consultants, administration fees, and overall
contingency, is $48 million. He added that there is also cost
for demolition and relocation of patients; therefore, t
deducting what is in the bank, the total cost that [DHSS] is
financing is $36,550,000.
MR. BURNS stated that in comparison to other projects in Alaska,
API's construction cost, at $36 million is $.5 million per bed
and $357 a square foot. Elmendorf's was $1.4 million per bed
and $363 a square foot; Bassett Army Hospital's was $385 [a
square foot];, and Alaska Native Medical Center's was $1.1
million per bed and $441 per square foot.
[Mr. Burns offered a slide presentation to the committee of the
API site layout.]
Number 2247
MR. BURNS stated that there are two other aspects besides the
replacement [of the "old" API]. One is that private
alternatives to API hospitalization have been developed in order
to increase the ability of the private sector to support these
patients in the community. The other aspect is improving the
quality of care at API.
MR. BURNS remarked that one of the major problems in Anchorage
is the difficulty in knowing where to bring a person who needs
treatment. Therefore, [DHSS] is working on a project in
conjunction with Providence Hospital, through federal funds, to
build a space accommodating a single point of entry. He
explained that decisions would be made there regarding
appropriate treatment and then the person would be transferred
to another facility.
Number 2127
MR. BURNS stated that for those reasons, API is still needed.
He remarked that API is a core service of government and
provides services that private providers cannot or will not do.
He said patients who exceed local private treatment options and
people in communities where inpatient treatment is nonexistent
would come to API.
MR. BURNS concluded that [DHSS is before the committee] because
[personnel] feel they have tried a variety of options but none
of them have worked.
[HB 130 was held over.]
Number 2044
ADJOURNMENT
There being no further business before the committee, the House
Health, Education and Social Services Standing Committee meeting
was adjourned at 5:00 p.m.
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