SB 126-CORRECTIONAL FACILITIES; PLACEMENT  4:04:48 PM CHAIR KAWASAKI reconvened the meeting and announced the consideration of SENATE BILL NO. 126 "An Act relating to correctional facilities; relating to the authority of the commissioner of corrections to designate the placement of prisoners; and requiring the Department of Corrections to estimate and report certain cost savings." 4:05:45 PM SENATOR YUNDT sponsor of SB 126 introduced the bill, it directs the Department of Corrections (DOC) to explore two cost-cutting measures. He explained that the first measure involves consolidating facilities with high vacancy rates to reduce budget expenses. He added that the bill also authorizes the commissioner to revisit the option of housing inmates in out-of- state facilities, specifically those with seven or more years left to serve. This would involve a public process with the legislature and DOC. He emphasized that any savings from these measures should support education in Alaska, describing SB 126 as a necessary and difficult starting point for a compassionate and fiscally responsible solution. 4:07:33 PM RYAN MCKEE, Staff, Senator Rob Yundt, Alaska State Legislature, Juneau, Alaska, provided the sectional analysis for SB 126: [Original punctuation provided.] Sectional Analysis   SB 126  Section 1 AS.33.30.061 adds new subsections to section 1. Section (e) would grant the Commissioner the ability to investigate cost reductions by either consolidating existing facilities or designating placement of a prisoner at an out-of-state facility. Section (f) clarifies that any prisoner that is sent out of state shall be housed exclusively apart from prisoners who are not residents of the state. Section (g) requires the state to estimate the cost savings annually, resulting from actions taken under section (e) of this section. It also allows the legislature to appropriate an amount equal to the annual cost savings estimate for education purposes. 4:09:25 PM SENATOR WIELECHOWSKI asked if the Department of Corrections (DOC) has a position on SB 126. 4:09:29 PM JEN WINKELMAN, Commissioner, Department of Corrections (DOC), Juneau, Alaska, answered questions regarding SB 126. She replied no, it is a policy decision by legislature and that Alaska law already permits sending prisoners out of state through contracts when necessary. While SB 126 adds further provisions, she emphasized that the department would carry out the legislature's direction. 4:10:09 PM SENATOR WIELECHOWSKI asked how many inmates have seven or more years remaining to serve in prison. 4:10:34 PM MS. WINKLEMAN answered that, as of Monday, there are 792 inmates with seven or more years remaining. 4:10:45 PM SENATOR WIELECHOWSKI asked how many of the 792 inmates are incarcerated for violent crimes. MS. WINKLEMAN answered 778 inmates. SENATOR WIELECHOWSKI asked which violent crimes were most committed among the 778 incarcerated. MS. WINKELMAN replied the incarcerations were primarily for crimes against a person and sex offences. SENATOR WIELECHOWSKI asked for the average rate of occupancy in Alaska prisons. MS. WINKELMAN answered that 81 percent is the actual inmate to bed ratio. She stated that the operating running percentage is about 95. She explained that inmate population numbers are critical because specialized populations, such as co-defendants, victims, gang members, and different genders must be kept separate. Once a housing module fills with such inmates, beds for the general population may become unavailable. She said as a result, the facility is effectively operating at about 95 percent capacity, and she emphasized the importance of making the legislature and public aware of this operational reality. SENATOR WIELECHOWSKI asked what factors have contributed to the recent decrease in the prison population, given that the DOC experienced overcrowding a few years ago. 4:12:51 PM MS. WINKELMAN answered that the DOC had projections to hit capacity by 2027 and would need to build a new facility or send inmates out of state but covid happened, law changes, pre-trial services came on board and the numbers have remained stagnant. The DOC did see an influx of population at the end of 2019 after House Bill 49 passed. She said when covid hit the inmate population maintained. SENATOR WIELECHOWSKI asked for an estimate of potential cost savings if the state were to investigate and transfer prisoners with seven or more years remaining for violent crimes to out-of- state facilities. MS. WINKLEMAN answered that she did not have a current estimate of cost savings but noted that in 2019, before reopening Palmer Correctional Center, the daily cost of care per inmate was just under $100. She emphasized that additional costs- such as transportation, parole hearings, and ensuring proper separation of inmates in out-of-state facilities, would be considered. SENATOR WIELECHOWSKI asked what the average cost per day is to house an inmate in Alaska compared to other states. MS. WINKLEMAN answered that the cost to house an inmate in Alaska is $202 a day. SENATOR WIELECHOWSKI asked for the cost at a contracted out of state prison. MS. WINKLEMAN answered that when the DOC sent inmates out of state previously the cost of care in Alaska was $176, the out of state cost of care was a little under $100. 4:16:29 PM SENATOR GRAY-JACKSON asked how much DOC's budget has grown in the last six years. 4:16:56 PM KEVIN WORLEY, Director, Corrections, Division of Administrative Services, Juneau, Alaska, answered a question regarding SB 126. She replied that he didn't have an answer and would get back with the committee. 4:17:09 PM SENATOR GRAY-JACKSON asked for the wage of the highest-paid correctional officer over the past three years. 4:17:19 PM MS. WINKLEMAN replied that she doesn't know. 4:17:29 PM SENATOR GRAY-JACKSON requested that follow-up information include a breakdown of salary, retirement, and other benefits to determine the total compensation. 4:17:42 PM SENATOR GRAY-JACKSON asked when correctional officers' work overtime is it at the rate of 1.5 times the hourly rate or double. 4:17:55 PM MS. WINKLEMAN. answered currently overtime is 1.5; it was double time when DOC had a Leave of Absence (LOA) in place. 4:18:07 PM SENATOR GRAY-JACKSON asked when Alaska last housed inmates in another state. 4:18:16 PM MS. WINKLEMAN answered that the inmates were gradually returned to Alaska with the phased opening of Goose Creek Correctional Center between 2012 and 2014. She said the state still uses out- of-state placements for certain inmates, such as those needing specialized medical care or who cannot be safely housed in Alaska. Currently, there are maybe six prisoners held out of state, though the exact number would be confirmed. SENATOR GRAY-JACKSON asked which states Alaska previously contracted with to provide this service. MS. WINKLEMAN replied that Alaska previously had contracts to house inmates in Colorado and Arizona. 4:19:36 PM CHAIR KAWASAKI recounted the history of Goose Creek Correctional Center, which was established through legislative action and bonding to address the need to return 1,000 out-of-state inmates back to Alaska. The facility opened gradually between 2012 and 2014. While more expensive, the goals were to house inmates in- state and keep them closer to their families. He asked for clarification about the six out-of-state inmates, including whether the inmates are there for medical or other reasons. He also asked about the types of out of state facilities used (private or publicly funded), the frequency of sending inmates out of state, and whether Alaska ever receives inmates from other states. 4:21:12 PM MS. WINKLEMAN replied that transferring inmates in and out of state is easy to do because of an interstate compact where Alaska works with other states. She stated her belief that the facilities are all public. 4:21:43 PM CHAIR KAWASAKI stated that the committee wants to study more about the costs of out-of-state housing. 4:22:05 PM SENATOR YUNDT asked if there are facilities currently used to house inmates not owned by the state and possibly leased from another community. 4:22:22 PM MS. WINKLEMAN answered that west side of the Anchorage facility is owned by DOC, the east side of the Anchorage facility is owned by the municipality of Anchorage. She said all other facilities are owned by the state. 4:22:56 PM SENATOR YUNDT requested a list of deferred maintenance issues for each facility, whether state-owned or leased, and clarification on whether maintenance responsibility during a lease falls on the state or the owning community. 4:23:29 PM CHAIR KAWASAKI asked about total available beds and whether transferring inmates to other facilities is possible, especially for long-term stays, and how movement is managed. He asked how pre-trial facilities operate in Fairbanks. 4:24:21 PM MS. WINKLEMAN replied that the DOC continuously transfers inmates daily to maintain safety and manage capacity. While an entire housing unit isn't typically occupied by one inmate, factors like gender distribution, custody level, court hearings, and separation needs can leave beds unused. A classification unit oversees these factors to determine inmate placement and movement. She noted that the unsentenced population has now dipped slightly below the sentenced population. She said most facilities house some unsentenced inmates, though Goose Creek was not designed for that purpose. As a result, inmates are frequently moved from Goose Creek for court hearings or to manage space, such as moving individuals from Fairbanks to other facilities to free up beds for those with upcoming hearings. 4:26:36 PM SENATOR WIELECHOWSKI asked whether the Department of Corrections sees any opportunities for budget cuts or savings, given the state's $677 million deficit and declining oil revenues. He noted that difficult decisions are required in the coming years. 4:27:13 PM MS. WINKLEMAN replied that the department is constantly searching for savings but has not found major areas to cut without risking public safety. She emphasized that DOC often absorbs the downstream effects of broader policy decisions and must balance cost concerns with protecting staff, inmates, and the public. 4:28:09 PM SENATOR WIELECHOWSKI asked if the department has considered reorganizing or restructuring prisons to lower cost. 4:28:28 PM MS. WINKLEMAN explained that while DOC does not have a broad strategic plan for efficiency, it makes daily operational adjustments, such as expanding video court access to reduce transport needs. She noted that facility use is constantly reassessed to adapt to changing inmate populations, but larger planning will depend on upcoming judicial changes that could significantly impact the system. 4:30:12 PM SENATOR WIELECHOWSKI asked for the average level of education of prisoners. 4:30:25 PM MS. WINKLEMAN guessed that the average level of education was high school dropout. SENATOR WIELECHOWSKI compared the high cost of housing inmates ($202 per day, about $73,730 annually) to education spending, noting it is less than 10 percent per student, and asked whether higher education levels reduce the likelihood of committing crimes. MS. WINKLEMAN. responded yes. 4:31:21 PM SENATOR GRAY-JACKSON asked what percentage of the inmates are confirmed gang members. 4:31:35 PM MS. WINKLEMAN replied that she will get back to the committee with a number. 4:31:46 PM SENATOR YUNDT noted that SB 126 asks that education receive any savings. He highlighted a complementary bill supporting electronic devices for inmates, which could reduce costs through telehealth and expand access to education. He shared a personal story about mentoring an incarcerated friend. He emphasized that compassion and education are critical to reducing recidivism. 4:33:22 PM CHAIR KAWASAKI stated that after the repeal of Senate Bill 91 in 20182019, it was expected that the prison population would rise sharply and reach critical levels by 2027. However, that projection has not materialized, and Palmer Correctional Facility was reopened in 2019. He asked how many regular beds are open in the Palmer Correctional Facility.  4:33:55 PM MS. WINKLEMAN answered that all 514 beds are full. CHAIR KAWASAKI asked if Palmer Correctional Facility never opened and the 514 were spread through the rest of the facilities, what would the facility count be. 4:34:17 PM MS. WINKLEMAN answered that all facilities would be a minimum of 100 percent. CHAIR KAWASAKI explained that reopening the facility required at least $18 million for the first year and staffing 70 positions, reflecting a significant expense to bring it into operational status. 4:34:57 PM SENATOR YUNDT asked for clarification on whether reaching 100 percent refers to average occupancy or operational capacity. He asked whether relocating 500+ inmates within Alaska would raise the 81 percent to 100 percent or the 95 percent to 100 percent. 4:35:28 PM MS. WINKLEMAN replied that total capacity, including all beds and segregation units, is just under 5,000 inmates. Adding 500 inmates would push operational occupancy over 100 percent, while average occupancy would exceed 90 percent, leaving only a small margin. SENATOR YUNDT clarified that operational capacity would go over 100 percent occupancy. MS. WINKLEMAN replied that in addition to some cells taken off line because of female ratio or different types of criminal's other cells are taken off line due to deferred maintenance or damage caused by inmates, such as broken sinks or toilets, and these unavailable cells are included in the overall capacity calculations. 4:36:41 PM CHAIR KAWASAKI asked if the gym at the Fairbanks Correctional Facility (FCC) is still half full of "boats" (plastic boat shaped beds). 4:37:09 PM MS. WINKLEMAN replied that DOC does utilize boats in some areas but currently FCC does not have boats in the gym. She said half of the gym is being utilized and the other half has bunk beds. 4:37:41 PM CHAIR KAWASAKI summarized that SB 126 proposes consolidating existing facilities and allowing for the placement of prisoners in out-of-state facilities. He asked how decisions would be made for designating out-of-state placements, noting that some inmates are already sent out for safety or medical reasons. He sked how designation would be decided for inmates with more than seven years remaining on their sentences. 4:38:50 PM MS. WINKLEMAN replied that placing inmates out-of-state would begin with a Request for Information (RFI) to identify which facilities are willing to accept specific populations, such as sex offenders, while keeping Alaska prisoners separate. After identifying suitable facilities, the classification unit would review inmates' eligibility, considering facility requirements and current in-state capacity issues, like the 110 beds offline at Lemon Creek due to construction. 4:40:41 PM SENATOR YUNDT asked whether the 778 inmates that are in the facilities for violent crimes are all at maximum security facilities or are the inmates spread throughout the state. 4:41:02 PM MS. WINKLEMAN stated her belief that inmates are located throughout the state but she would get back to the committee with a definitive ansewr. She explained that committing a crime against a person doesn't necessarily make an inmate a maximum- security offender. There are a lot of factors to consider when DOC classifies the inmates. 4:42:51 PM CHAIR KAWASAKI held SB 126 in committee.