Minneapolis-Hennepin County Jails

CITIZENS LEAGUE REPORT
No. 195
Minneapolis-Hennepin Co. Jails
July 1966
CITIZENS LEAGUE
REPORT ON
MINNEAPOLIS-HEMEPIN
comm JAILS
Approved
Citizens League Board of Directors
July 13, 1966
Citizens League
545 Mobil O i l Building
Minneapolis, Minnesota 55402
Phone:
338-0791
Citizens League
545 Mobil O i l Building
Minneapolis, Minnesota
TO:
FROM:
J u l y 6, 1966
55402
Citizens League Board of Directors
Minneapolis-Hennepin County Jails Committee, C. Paul Jones, Chairman
SUBJECT:
Improvement i n J a i l F a c i l i t i e s and the Need f o r Consolidation
SUMMARY
The major recommendations i n t h i s report a r e as follows:
1. The Municipal Building Commission should discontinue immediately its
plan f o r remodeling t h e f i f t h f l o o r of t h e Courthouae f o r the Hennepin
County and Minneapolis J a i l s . Instead the jails should be combined by
a c t of t h e 1967 Legislature and t h e County Board of C d s a i o n e r s should
proceed with plans f o r a new building t o house a combined j a i l .
2. The new building housing t h e combined jail should a l s o include, a t a
minimum, other a c t i v i t i e s of a public safety nature, such as t h e Hemepin
County S h e r i f f ' s o f f i c e and t h e Minneapolis Police Department.
3. A new Division of Detention and Corrections should be established i n
County government, under t h e County Board, and include the combined j a i l ,
t h e Workhouse, t h e Juvenile Center and t h e Rome Schools f o r Boys and G i r l s .
Such a move, though, probably has t o be p a r t of an o v e r a l l reorganization
of County government. However, the need is s o urgent f o r planning new
j a i l f a c i l i t i e s t h a t t h e 1967 Legislature should combine the jails under
t h e County Board a s an interim s t e p i f reorganization cannot be accomp lished then.
The 1967 Legislature should a l s o t r a n s f e r control of t h e Minneapolis
Workhouse t o t h e County Board, even i f reorganization does not occur.
4.
5 . Adequate quarters f o r juveniles should be b u i l t a t t h e Juvenile Center
a s p a r t of any plan f o r construction of a new combined jail s o t h a t juveniles no longer w i l l have t o be housed a t t h e j a i l .
6. Operating costs of t h e combined j a i l should be apportioned s o t h a t
c o s t s of keeping prisoners from Hennepin County ?funicipal Court w i l l be
assessed t o t h e municipality where the v i o l a t i o n occurred and costs of
prisoners from Bennepin Gouty D i s t r i c t Court w i l l be a general county
obligation.
RECOMMENDATIONS, FINDINGS AND CONCLUSIONS
I.
REMODELING J A I L FACILITIES VERSUS A NEW BUILDING
Recommendation:
We reoomend that the Municipal BuiZding C&ssim
ime&ately discontinue
i t s pZans for remodeling the Hennepin County and Mimreapolis JaiZs on the
f i f t h floor of the Courthouse. Instead the Hennepin Comty Board of Commissioners should authorize a new buiZding t o house a combined jcril. Jail
facilities for both the City and the County are inadequate, but 6nprovements can best be ma&--both from the standpoint of the mst efficient use
of the taxpayer's dolZar and providing the best j d l facilities--by building one new, unified jail t o repZace the two jails. A t a minimum the n m
h i t d i n g should include the following facilities:
(a) Adequate provision for the v&ous c a t e g o ~ e sof prisonera i n
Rennepin County, from &demeanants mquiring n&aimum security t o
accused d r e r s , requiring max6mm security, from pepsons aoaiting
t r i a l t o persons awaiting sentencing or t m f e r t o other institutions,
and other ~ t e g o r 5 e s ,elus m d e m facilities for mecEica2 t r e a m t ,
exercise and food sennce.
(b) Facilities for nork-release prkoners, so they no b g e r have to
be housed i n inadequate quarters at the Workhouse.
libugh courtmoms t o handle the appearances and trials fop jailed
defendants.
(c)
(dl Other facilities of a public safety nature, such as the p em pin
po8siCounty Sheriff 'a office, the Mmsapolis Police -d,
bZy the adnrinistrative offices of the ~ n n e a p o l i sFire Dqmtmnt.
We further reconmend that the County trork closely with state and national
e q e r t s on jaZl construction t o give matcirmmr assurance that the new jail
will be built according t o the most modem principles of detention and
corrections.
Findings and Conclusions
1. The physical adequacy of t h e Bennepin County J a i l
We have toured the f a c i l i t i e s of the j a i l and have m e t with t h e chief
jailer, t h e superintendent of t h e Municipal Building Commission, t h e a r c h i t e c t f o r
t h e Building Commission, and f e d e r a l and s t a t e j a i l inspectors. W e have reviewed
proposed remodeling plans f o r t h e j a i l as submitted by t h e chief jailer. W e have
a l s o m e t with t h e president of a consulting f i r m which is doing a major study of a l l
courthouse f a c i l i t i e s . I n addition we have s t u d i e d a r e p o r t by t h e Correctional
Service of Minnesota on t h e Hennepin County J a i l . W e have found unanimous agreement
t h a t t h e physical f a c i l i t i e s of t h e Hennepin County Jail a r e t o t a l l y inadequate f o r
today's needs. W e concur. S p e c i f i c a l l y , w e f i n d t h e as follows:
--The j a i l w a s b u i l t about t h e t u r n of t h e century. Many of its orTgina1
f a c i l i t i e s s t i l l a r e i n use, but i n d i r e need of replacement. The j a i l
is not b u i l t i n accord with modern p r i n c i p l e s of penology.
--Locks f o r t h e v a s t majority of c e l l s a r e v i r t u a l l y worn out. It i s poss i b l e f o r a prisoner t o kick open t h e door of h i s c e l l , an event which
happens more than once a month. Locksmiths f i n d i t extremely d i f f i c u l t t o
r e p a i r the locks because many replacement p a r t s a r e not manufactured anymore. A prisoner who kicks open t h e door of h i s c e l l s t i l l cannot g e t out
of h i s c e l l block without getting through another locked c e l l door, but
i t is generally accepted t h a t the j a i l should have a minimum of two, and
preferably three, security checks.
--Of a t o t a l of 73 c e l l s i n t h e Hemepin County J a i l , 60 of them a r e twoman c e l l s , a type of construction which v i o l a t e s a l l p r i n c i p l e s of modern
penology. With two-man c e l l s , t h e r e is l i t t l e opportunity t o guarantee
the protection of one prisoner from another, thus exposing a prisoner t o
t h e r i s k s of homosexual advances o r other dangers. I f a prisoner should
be injured or d i e i n a two-man c e l l , t h e r e is no witness except the other
prisoner. The i d e a l j a i l construction is f o r one-man c e l l s f o r a l l prisoners, such a s i s found a t the Minneapolis Workhouse. Four-man c e l l s a r e
considered preferable t o two-man c e l l s because t h e r i s k of harm t o a sing l e individual by another is diminished.
--Concrete f l o o r s a r e cracked and porous i n many places, making them hard
t o keep clean. Paint a l s o w i l l not s t i c k t o t h e f l o o r s properly. Further,
f l o o r drains a r e lacking i n most p a r t s of t h e j a i l . T o i l e t s a r e flooded
on t h e average of once a week. I n the past t h e r e has been seepage of water
t o t h e fourth f l o o r o f f i c e s and courtrooms.
--It i s very d i f f i c u l t f o r j a i l e r s t o be aware of what is going on i n t h e
c e l l s because most of the c e l l s a r e f a r removed from the c e n t r a l headquarters. I n f a c t , some c e l l s a r e almost a c i t y block away. Frequently
a j a i l e r must take a b e l l i g e r e n t prisoner by himself t o a c e l l a t t h e f a r
end. It would be d i f f i c u l t f o r other jailers t o l e a r n quickly i f trouble
arose. This problem has been a l l e v i a t e d somewhat i n the past year with
t h e i n s t a l l a t i o n of sound equipment which enables j a i l e r s a t t h e c e n t r a l
headquarters t o hear what is going on i n t h e various c e l l s . It would be
desirable f o r j a i l e r s t o be able t o view the c e l l s a t a l l times also.
- - C e l l blocks a r e very poorly constructed f o r any type of exercise space
or general assembly area where prisoners could take p a r t i n some a c t i v i t y
For example, i n c e l l blocks A and B, t h e l a r g e s t c e l l blocks i n t h e j a i l ,
with 19 two-man c e l l s i n each block, t h e only 91 exercise space" is a corridor 46 inches wide. C e l l doors swing open i n t o t h i s space. Not only does
such an area pose problems f o r the prisoners, i t a l s o makes i t very d i f f i c u l t f o r j a i l e r s t o q u e l l any disturbances because of t h e cramped quarters.
--Almost a l l prisoners must e a t i n t h e i r c e l l s . I f an exercise area were
available, such an area a l s o could have t a b l e s available where meals would
be served.
--Plumbing f i x t u r e s , lighting systems and other such f a c i l i t i e s a r e located
s o close t o t h e c e l l s t h a t it is possible f o r prisoners t o have access t o
them and produce vandalism. I n some cases i t is possible f o r a prisoner
t o remove a lightbulb and bring i t i n t o h i s cell.
--Prisoners a r e kept i n a block of c e l l s with a s many a s 38 o t h e r prisoners.
Modern penology p r a c t i c e s generally c a l l f o r c e l l blocks t o have no more
than 12 prisoners. With l a r g e c e l l blocks i t is extremely d i f f i c u l t t o
s e p a r a t e d i f f e r e n t types of prisoners, such a s t h e drunks, t h e d e v i a t e s ,
t h e young, t h e old, t h e f t r s t offenders, t h e r e p e a t e r s , t h e f e l o n s , t h e
misdemeanants and others. Further, law enforcement o f f i c i a l s f i n d i t d i f f i c u l t t o s e p a r a t e s u s p e c t s i n t h e same crime when they a r e brought t o
jail.
--Expansion p o s s i b i l i t i e s a t t h e Hennepin County J a i l a r e s e v e r e l y limited.
Any expansion would have t o be predicated on t h e removal of o t h e r f i f t h
f l o o r o f f i c e s . Also, expansion would have t o be t a i l o r e d t o t h e s p e c i f i c
construction, and i t s l i m i t a t i o n s , of the present Courthouse.
--A request has been made by t h e superintendent of t h e Minneapolis Workhouse t h a t t h e Hennepin County J a i l become responsible f o r c a r i n g f o r t h e
work-release p r i s o n e r s who have been sentenced by t h e Municipal Court o r
D i s t r i c t Court t o s e r v e time during t h e i r non-working hours. The j a i l
cannot p o s s i b l y handle such p r i s o n e r s i n t h e present s i t u a t i o n .
--The j a i l lacks adequate f a c i l i t i e s where p r i s o n e r s can be s t r i p p e d c l e a n
and inspected f o r contraband and f o r medical purposes.
2.
The p h y s i c a l adequacy of t h e Minneapolis City J a i l
W e have m e t w i t h t h e chief j a i l e r of t h e Minneapolis City J a i l , t h e Minnea p o l i s Chief of P o l i c e , t h e S t a t e J a i l Consultant, a f e d e r a l j a i l i n s p e c t o r , t h e
superintendent of t h e k n i c i p a l Building Conrmission, t h e a r c h i t e c t f o r t h e Commission
and w e have toured t h e Minneapolis City Jail. As i n t h e case of t h e Hennepin County
J a i l , we have found unanimous agreement t h a t t h e p h y s i c a l f a c i l i t i e s of t h e Minnea p o l i s C i t y J a i l a r e t o t a l l y inadequate. W
e concur. I n f a c t , evidence w e have received i n d i c a t e s t h a t conditions i n t h e Minneapolis City J a i l are worse than those
i n t h e Hennepin County J a i l . S p e c i f i c a l l y , we f i n d a s follows:
--Serious s e c u r i t y problems e x i s t i n t h e City J a i l . I n t h e main a r e a of
cells, only a few of t h e cells are locked anymore. The only s e c u r i t y is
t h e locked door of t h e c e l l block. This means t h a t p r i s o n e r s c i r c u l a t e
f r e e l y w i t h i n a given c e l l block. I f a guard wishes t o e n t e r t h e c e l l
block f o r any reason, such a s removing a prisoner, i t i s impossible t o
lock t h e p r i s o n e r s i n t h e i r i n d i v i d u a l c e l l s f o r t h e p r o t e c t i o n of t h e
guard.
- - F a c i l i t i e s f o r t h e c a r e of p r i s o n e r s who a r e brought i n drunk a r e very
poor. The so-called "drunk tank", where t h e l a r g e number of weekend drunks
a r e placed, is d i r e c t l y connected t o another c e l l block. A l l persons taken
t o t h e drunk tank f i r s t must be transported through t h i s c e l l block. Of
course, it i s not p o s s i b l e t o lock p r i s o n e r s i n t h e i r c e l l s i n t h i s c e l l
block while p r i s o n e r s a r e being taken t o t h e drunk tank. Within t h e drunk
tank i t s e l f t h e r e is no way t o s e p a r a t e p r i s o n e r s who a r e vomiting o r otherw i s e unable t o c o n t r o l themselves from o t h e r p r i s o n e r s who may have been
a r r e s t e d , f o r example, f o r d r i v i n g under t h e influence, but may not be i n
a stupor.
--The a r e a of t h e C i t y J a i l known as Duffy's F l a t s , which is t h e p r i n c i p a l
s e c u r i t y a r e a of t h e C i t y Jail, has c e l l s which are secure, but t h e area
is s o f a r removed from t h e r e s t of t h e j a i l t h a t i t is d i f f i c u l t f o r guards
t o maintain s u r v e i l l a n c e here. A man committed s u i c i d e i n t h i s a r e a on
April 17 of t h i s year. Shouts by fellow prisoners f a i l e d t o a t t r a c t
guards because of t h e d i s t a n c e involved.
--The women's s e c t i o n of t h e City J a i l has s e c u r i t y problems s i m i l a r t o
t h e main j a i l a r e a , with locks not working properly. Further, t h i s a r e a
lacks proper s u r v e i l l a n c e , too. A woman committed s u i c i d e here on March
12 of t h i s year.
--Prisoners i n t h e City J a i l do not have mattresses t o s l e e p on, regardless of t h e l e q t h of s t a y . Mattresses need not be i n c e l l s i n which
drunks a r e placed, but i t is c l e a r t h a t any prisoner who is kept 48 hours
o r more should have a mattress. Some prisoners s t a y two weeks o r longer.
--The City purchases 10 h o t meals d a i l y from t h e County J a i l f o r City J a i l
prisoners, regardless of t h e number of prisoners i n j a i l . A l l o t h e r p r i soners a r e fed cold meals.
--The physical f a c i l i t i e s i n t h e drunk tank a r e very poor, with only one
t o i l e t and wash basin f o r up t o 40 prisoners. Also, t h e r e is no f l o o r
d r a i n i n t h e drunk tank, making i t very d i f f i c u l t t o clean t h e area.
--The City J a i l lacks a c e n t r a l c o n t r o l area f o r locks, such a s recently
were i n s t a l l e d i n t h e County J a i l .
3.
The Remodeling Plan
W
e have reviewed t h e six-phase remodeling plan f o r t h e Hennepin County J a i l
as developed by Chief J a i l e r Robert McLane i n cooperation with the Municipal Building
Commission and i t s a r c h i t e c t . I n general we f i n d t h a t given t h e l i m i t a t i o n s of cons t r u c t i o n of the f i f t h f l o o r of t h e courthouse t h e plan would provide an acceptable
j a i l , i f . c a r r i e d out t o t h e f u l l e s t . However, our examination has revealed two major
new j a i l f a c i l i t i e s
f a c t o r s which l e d us t o t h e conclusion t h a t construction of
i n a new public s a f e t y building is
c l e a r l y preferable.
(1) The square-foot remodeling c o s t would be a s much a s i f not more, than
t h e square-foot c o s t of new construction. (2) The b u i l t - i n l i m i t a t i o n s of remodeling on t h e f i f t h f l o o r of t h e Courthouse--such a s t h e necessity t o build around t h e
rotunda and a l s o t o avoid construction i n t h e a t t i c - - d i c t a t e t h a t Hennepin County
cannot possibly end up with a s good a j a i l a s would be produced i n a new building.
With remodeling, the plan would have t o f i t t h e layout of t h e building, but with new
construction, t h e layout of t h e building could be made t o f i t t h e plan. Further
expansion i n t h e f u t u r e would be d i f f i c u l t , i f not impossible with a remodeled j a i l ,
because t h e e n t i r e f l o o r would be used i n t h e i n i t i a l stages. Later, i f a d d i t i o n a l
space were needed, t h e r e would be no way t o expand. Our s p e c i f i c findings a r e below:
Success of t h e remodeling plan i s contingent upon t h e removal from t h e
5th f l o o r of t h e Courthouse of some 16,000 square f e e t of space now used by t h e
Minneapolis City Planning Commission, a courtroom and jury waiting rooms. These
q u a r t e r s , obviously, would have t o be located elsewhere. W
e a r e not aware of any
agreements which have been made t o d a t e t o i n d i c a t e t h a t these other o f f i c e s can o r
w i l l be vacated.
Quite a s i d e from our recommendations i t is important f o r the remodeling
plan t o be halted t o await t h e outcome of a study by SUA, Inc., a West Coast cons u l t i n g firm, on t h e f u t u r e building space needs of county government. Preliminary
information from t h i s firm i n d i c a t e s t h a t a recommendation w i l l be made t o discont i n u e remodeling of t h e present f a c i 2 i t i e s and b u i l d a new building.
W e were surprised t o l e a r n t h a t s o many d i f f e r e n t c o s t estimates of t h e
remodeling plan have been made. The minimum estimate is about $1,250,000, which was
made by J. Clifford Boies, superintendent of t h e Municipal Building Commission. (A
few years ago an estimate of $600,000 was made, but t h i s has been discounted by a l l
persons involved a s f a r too low.) James Hulbert, S t a t e J a i l Consultant, t o l d us t h e
remodeling c o s t s would be about $1,500,000, and R. D. Rukes, Federal J a i l Inspector,
with t h e r e s p o n s i b i l i t y f o r inspecting 103 j a i l s i n s i x s t a t e s , has s a i d t h a t he was
F i n a l l y , f i g u r e s on f i l e with t h e
informed t h e remodeling c o s t would be $2,250,000.
City-County Buildings Committee of t h e Citizens League i n d i c a t e one estimate from
county o f f i c i a l s was $2,500,000, though t h i s cannot be s u b s t a n t i a t e d today.
There a r e a t o t a l of 46,815 square f e e t on t h e f i f t h f l o o r of t h e courthouse, 14,323 f o r the c i t y j a i l ; 15,363 f o r t h e county j a i l ; 1,051 square f e e t f o r
the county j a i l e r ' s residence, and 16,078 f o r the City Planning Commission, a D i s t r i c t Courtroom and a jurors' room.
I f t h e remodeling c o s t is $1,250,000 t h e square f e e t remodeling c o s t i s
$26.70 per square foot. I f the c o s t i s $1,500,000, t h e square f o o t c o s t is $32.04.
I f t h e c o s t is $2,500,000, the square f o o t c o s t is $48.06, and i f the c o s t is $2,500,
000, t h e square f o o t c o s t is $53.40.
The S t a t e J a i l Consultant has informed us t h a t l a t e s t f i g u r e s on t h e c o s t
of new j a i l construction i n Minnesota a r e running about $30 per square f o o t , excluding
land.
It is c l e a r t o us from these f i g u r e s t h a t t h e square f o o t remodeling c o s t s
f o r t h e f i f t h f l o o r of t h e Courthouse a r e f a r more than can be j u s t i f i e d .
I n addition we were t o l d by s e v e r a l l o c a l , state and f e d e r a l j a i l o f f i c i a l s
t h a t they would "prefer" new construction i f i t were possible, but t h a t t h e remodeling plan seemed more l i k e l y t o be r e a l i z e d than a new building.
The j a i l s were b u i l t around t h e t u r n of the century. It would be shortsighted t o u t i l i z e t h e present a r e a t o plan a f a c i l i t y f o r t h e next 50 t o 75 years
when t h e opportunity is present t o build a new s t r u c t u r e instead. Hennepin County
should plan a j a i l t o meet modern standards of construction and penology and should
not be limited by t h e construction on t h e f i f t h f l o o r of t h e Courthouse.
The j a i l should be expandable, s o t h a t i t can meet t h e needs of an expanding population. It needs t o be e s p e c i a l l y f l e x i b l e i n connection with serving t h e
work-release o r Huber prisoners, who serve time but a t t h e same t i m e can continue
t o hold dowa t h e i r regular jobs.
Temporary q u a r t e r s f o r Huber prisoners a t t h e Minneapolis Workhouse a r e
overtaxed. I n t h e long run i t is d e s i r a b l e t o house work-release prisoners downtown where it is e a s i e r f o r them t o g e t t o and from t h e i r jobs. The demand f o r
space f o r work-release prisoners w i l l i n c r e a s e s u b s t a n t i a l l y i n coming years, even
t o t h e extent t h a t some felons and f e d e r a l prisoners w i l l be placed on work-release.
The j a i l needs t o be i n c l o s e proximity t o t h e c r i m i n a l courtrooms s o t h a t
p r i s o n e r s can b e brought from t h e i r cells t o t h e courtroom with a minimum--if any-amount of p u b l i c c o n t a c t . This i s f o r t h e b e n e f i t of both t h e p r i s o n e r s and t h e
public. Parading p r i s o n e r s through p u b l i c c o r r i d o r s p r e s e n t s somewhat of a s e c u r i t y
r i s k . It a l s o p r e s e n t s r i s k s t o t h e p r i s o n e r s themselves t o harm from i n d i v i d u a l
c i t i z e n s who might b e enraged by a c e r t a i n case. F u r t h e r , t h e parading of handcuffed
p r i s o n e r s i n p u b l i c c o r r i d o r s p r e s e n t s an a s p e c t of h u m i l i a t i o n t o p r i s o n e r s who
may o r may n o t b e convicted of crimes.
It would be p o s s i b l e , i n remodeling t h e f i f t h f l o o r , t o c o n s t r u c t e l e v a t o r s
t o go d i r e c t l y from t h e j a i l i n t o t h e courtrooms. I n terms of a new building--and
w e emphasize w e a r e n o t making a s p e c i f i c recommendation on l o c a t i o n pending outcome
of t h e SUA study--the j a i l could be constructed a c r o s s t h e s t r e e t from t h e p r e s e n t
b u i l d i n g s o t h a t p r i s o n e r s could be brought e i t h e r by t u n n e l o r by an w e r - t h e - s t r e e t
passageway t o t h e courtrooms. It seems t o make much more sense, though, t o b u i l d
t h e courtrooms a s an i n t e g r a l p a r t of t h e p u b l i c s a f e t y b u i l d i n g . The demand f o r
courtrooms i s expected t o continue t o i n c r e a s e i n coming y e a r s , s o i t is n o t unwise
t o b u i l d some courtrooms i n t h e j a i l building. Only a few rooms would b e needed.
Our examination of criminal c o u r t a c t i v i t y i n d i c a t e s t h a t f o u r courtrooms would be
s u f f i c i e n t , a t r a f f i c courtroom, a p o l i c e courtroom, an arraignment c o u r t f o r D i s t r i c t
Court c a s e s , which a l s o could be used f o r r e g u l a r District Court trials, and an overflow Courtroom f o r D i s t r i c t Court trials, t o handle t h e defendants who a r e j a i l e d .
W
e s e e considerable m e r i t i n t h e o f f i c e s of t h e S h e r i f f and t h e P o l i c e Department being l o c a t e d i n c l o s e proximity t o t h e j a i l . Thus i t seems proper t o house
both of t h e s e f u n c t i o n s i n a new b u i l d i n g along w i t h t h e j a i l and t h e c r i m i n a l courtrooms. Administrative o f f i c e s of t h e Minneapolis F i r e Department a l s o could be ine would expect t h a t
cluded. conceivably, t h i s could be a P u b l i c Safety Building. W
t h e p r o f e s s i o n a l c o n s u l t a n t s h i r e d by t h e Hennepin County Board of Commissioners t o
recommend a b u i l d i n g plan f o r county government w i l l be making some s p e c i f i c recommendations on what f u n c t i o n s should be provided i n t h e same b u i l d i n g w i t h t h e j a i l .
The S h e r i f f ' s o f f i c e probably w i l l r e t a i n i t s f u n c t i o n s of s e r v i n g warrants
and making a r r e s t s , thus bringing people t o t h e j a i l i n t h e f u t u r e . The P o l i c e Department no doubt w i l l remain i n c l o s e c o n t a c t with p r i s o n e r s i t is i n t e r e s t e d i n .
Further t h e P o l i c e Department w i l l have a c l o s e connection w i t h t h e i d e n t i f i c a t i o n
and record-keeping f u n c t i o n i n a new jail. Also, w e do n o t know a t t h i s t i m e what
f u t u r e changes w i l l be made i n t h e r e l a t i o n s h i p between t h e P o l i c e Department and
t h e S h e r i f f ' s o f f i c e i n terms of county-wide r e s p o n s i b i l i t i e s . Housing both i n a
P u b l i c S a f e t y Building with t h e j a i l s means t h a t we can prepare f o r such changes.
11. JUVENILE DETENTION
We recommend that i n planing new jail f a c i l i t i e s the ~ennepinCounty ~ o a r d
o f Commissioners also plan a sufficiently h y e addition t o the Cowzty
Juvenile Center, ZOO0 S. 6 t h Street, so that juveniZes no longer tvill
have t o be kept a t the City-County J a i l .
Findings and Conclusions
W
e f i n d t h a t t h e County J u v e n i l e Center, w i t h a c a p a c i t y f o r 30 j u v e n i l e s ,
i s f a r t o o small t o handle t h e j u v e n i l e population. In f a c t , more j u v e n i l e s were
s e n t t o t h e City J a i l i n 1965 than t o the J u v e n i l e Genter. During 1965, 1,485 juveniles w e r e admitted t o t h e J u v e n i l e Center and 1,696 t o t h e City J a i l .
We do not b e l i e v e t h a t t h e new City-County J a i l should include any q u a r t e r s
f o r juveniles. J u v e n i l e s properly sttould be kept a t t h e J u v e n i l e Center, which is
c l e a r l y removed from t h e jail.
111.
CONSOLIDATION
Recommendation
We recammend that the 2967 Legistaturn combine the Minneapolis City Jail
and the Hennepin County Jail into one Hennepin County J a i l . Only then
can proper planning for n m j a i l f a c i l i t i e s take ptace. Also widespread
duplication of services u i Z Z be eliminated.
Findings and Conclusions
We have extensively examined t h e administration and functioning of t h e two
jails which a r e located s i d e by s i d e on t h e f i f t h f l o o r of t h e City-County Courthouse
i n downtown Minneapolis. We f i n d as follows:
1. A s long a s two s e p a r a t e j a i l s e x i s t we b e l i e v e it is u n l i k e l y t h a t
e i t h e r j a i l w i l l be s u b s t a n t i a l l y improved. It is impossible t o plan improvements
sensibly without consolidation. It would be a n extravagant waste of funds f o r both
the City and t h e County t o proceed independently with j a i l improvements. This was
recognized by t h e County i n i t s proposed remodeling plan. The f i n a l s t e p of t h i s
plan provides f o r consolidation. The urgent need t o provide new f a c i l i t i e s , a s we
noted i n our f i r s t recommendation, makes i t a l l t h e more important t h a t consolidation
t a k e place a t t h e next s e s s i o n of t h e L e g i s l a t u r e .
2. Extensive and unnecessary d u p l i c a t i o n of s e r v i c e s exists which is both
wasteful t o t h e taxpayers and detrimental t o welfare of p r i s o n e r s i n both jails.
The areas of unnecessary d u p l i c a t i o n include t h e following:
(a) Bookinn and i d e n t i f i c a t i o n . Each j a i l operates its awn booking
procedures, including f i n g e r p r i n t i n g , picture-taking and s o c i a l h i s t o r y r e p o r t s . The City J a i l ' s f a c i l i t i e s f o r booking and i d e n t i f i W
e have been inc a t i o n a r e f a r more extensive than the County's.
formed t h a t i n c e r t a i n cases persons who a r e brought d i r e c t l y t o t h e
County J a i l a r e not even booked b u t go r i g h t through t h e c o u r t and
a r e processed with t h e r e s u l t t h a t no p o s i t i v e permanent i d e n t i f i c a t i o n of t h e s e people is ever included i n t h e records.
Mhen a prisoner i s t r a n s f e r r e d from t h e Minneapolis City J a i l t o t h e
County J a i l ( t h i s occurs when a person a r r e s t e d i n Minneapolis is
bound over t o t h e District Court), the i d e n t i f i c a t i o n and booking
process i s repeated, which seems unnecessary, b u t occurs because each
j a i l operates independently.
With a consolidated j a i l such d u a l booking and i d e n t i f i c a t i o n procedures would be eliminated. Only one booking desk is needed. A p r i soner need not be booked again when he is bound over t o t h e D i s t r i c t
Court. Only one s e t of f i n g e r p r i n t s , p i c t u r e s and s o c i a l h i s t o r y i s
needed.
Each j a i l operates its own f i l e of records of
(b) Record-keepinq.
prisoners. The City J a i l ' s records a r e f a r more d e t a i l e d and complete
than aro the County J a i l ' s records. Approximately 750,000 fingerp r i n t s and d o s s i e r s on various individuals a r e on f i l e .
With two groups of records law enforcement o f f i c i a l s have t o contact
both the County J a i l and t h e City J a i l records t o check on an individual.
Separate record-keeping has the e f f e c t of making both t h e c i t y ' s f i l e s
and the County's f i l e s incomplete. I f the records were combined, then
both the City and County would have a more complete f i l e t o r e l y upon.
(c) Crime laboratorv. Both j a i l s have a crime l a b and an evidence
room f o r s t o r i n g weapons, l i q u o r and other items t o be used during
court hearings, There appears t o be general agreement by j a i l o f f i c i a l s on both s i d e s t h a t t h e crime l a b s and evidence rooms should not
be p a r t of t h e j a i l s . There is a serious r i s k t h a t prisoners could
have access t o a v a r i e t y of weapons i n these rooms, s i n c e t h e only
provision of s e c u r i t y is a wooden door with a standard lock.
(d) Women's Section. Each j a i l has its own section f o r women. The
County J a i l has only one matron, t h e wife of the chief j a i l e r , who
i s responsible on a 24-hour, 7-day-a-week basis. The City J a i l has
a s t a f f of s i x matrons, which i s s u f f i c i e n t t o guarantee t h a t the two
matrons a r e on duty a t a l l times. City and County j a i l personnel
generally agreed t h a t the present matron s t a f f of the c i t y could
handle the e n t i r e woman population of both j a i l s . It i s n o t sound,
we believe, f o r one matron t o be responsible f o r t h e women prisoners
i n the County J a i l , It i s equally unsound, though, f o r the County
t o h i r e enough matrons t o provide s e r v i c e t o women prisoners i n t h e
County Jail. The s o l u t i o n i s t o combine t h e women's sections and
have only one s e c t i o n f o r women.
(e) Men's Section, Although the City J a i l serves mainly prisoners
accused of misdemeanors and the County J a i l serves mainly prisoners
accused of f e l o n i e s , both j a i l s serve a number of d i f f e r e n t types of
prisoners who r e q u i r e various types of custody. For example, on a
weekend, drunks a r e brought both t o t h e County J a i l and t h e City J a i l .
The City J a i l has t h e v a s t majority of them but the County J a i l has
a few, who d i s r u p t t h e nights of the other prisoners who a r e kept
there. A properly run j a i l would provide an e n t i r e l y separate a r e a
f o r the drunks so t h a t they would not bother t h e other prisoners- A
number of the inmates of t h e City J a i l a r e non-weekenders and should
be kept i n areas s e p a r a t e from t h e overnight cases* Both j a i l s have
a need f o r some heavy s e c u r i t y c e l l s and some medium s e c u r i t y c e l l s .
Neither j a i l , though, should have t o provide t h e range of s e c u r i t y on
its own.
(f )
Elevators.
Each j a i l has its own separate elevator.
However,
t h e County J a i l e l e v a t o r i s operated only on a 40-hour-a-week b a s i s .
After r e g u l a r daytime hours each day and on weekends a l l County J a i l
t r a f f i c must use t h e C i t y J a i l e l e v a t o r , thus passing through t h e
City J a i l enroute. Only one e l e v a t o r is needed.
Food and meals. The C i t y J a i l does n o t provide h o t meals f o r
The C i t y J a i l purchases 10 h o t meals a day from t h e
County J a i l which a r e given a s a reward f o r good behavior t o p r i s o n e r s
i n t h e City J a i l . To o t h e r p r i s o n e r s t h e C i t y J a i l provides a r o l l
and c o f f e e f o r b r e a k f a s t , a sandwich f o r noon lunch and another sandwich f o r dinner. Because of i t s l a r g e r , more fully-equipped food prep a r a t i o n a r e a , t h e caunty provides cooked meals f o r a l l i t s prisoners.
Our information i n d i c a t e s t h a t t h e food preparation f a c i l i t y i n t h e
County J a i l , with a few minor r e v i s i o n s , could provide well-balanced
meals f o r every p r i s o n e r i n both j a i l s . It is our impression t h a t
c e r t a i n p r i s o n e r s i n t h e City J a i l , p a r t i c u l a r l y t h e drunks, would
n o t be i n shape f o r a h o t meal. But q u i t e c l e a r l y , with a consolidated j a i l you could have one k i t c h e n preparing adequate meals f o r
a l l prisoners.
(g)
i t s prisoners.
(h) I11 prisoners. Both j a i l s have p r i s o n e r s with h e a l t h problems
o r who r e q u i r e s p e c i a l medical care. It would be d e s i r a b l e i f such
p r i s o n e r s could be kept s e p a r a t e from t h e o t h e r prisoners i n t h e
jails. With a consolidated j a i l you could provide a s p e c i a l ward f o r
such prisoners.
( i ) Laundry. The City J a i l now provides no laundry s e r v i c e f o r i t s
prisoners. The County J a i l h a s a laundry room with washing and drying f a c i l i t i e s . From t h e s t a n d p o i n t of c l e a n l i n e s s , personal hygiene
and general improvement of t h e j a i l program, i t seems l o g i c a l t h a t a
laundry s e r v i c e should be provided f o r t h e C i t y J a i l a s w e l l as t h e
County, but i t would not make s e n s e f o r t h e City t o provide another
s e p a r a t e f a c i l i t y . Only one is needed.
( j ) Library. Each j a i l operates its own l i b r a r y f o r inmates. One
l i b r a r y e a s i l y could s e r v e both jails, with probably a g r e a t e r choice
of m a t e r i a l than now i s a v a i l a b l e i n e i t h e r .
3. Both j a i l s serve t h e same c o u r t s , t h e Hennepin County Municipal Court
and t h e Hennepin County D i s t r i c t Court. Minneapolis no longer has i t s own municipal
court.
4. The administration of t h e Minneapolis C i t y Jail can b e s t be characteri z e d a s part-time.
The City J a i l is administered a s p a r t of t h e Bureau of I d e n t i f i c a t i o n . The Head of the Bureau of I d e n t i f i c a t i o n has s a i d t h a t he devotes no more
than about one-third of h i s time t o a d m i n i s t r a t i o n of t h e C i t y J a i l . Administration
of t h e C i t y J a i l could be improved considerably i f a person were assigned the permanent job of r e g u l a r supervision. This would be p o s s i b l e with consolidation.
IV.
ADMINISTRATION OF A CONSOLIDATED JAIL
Recommendation
We recomnend that the a&n.istratton
of a combined jail be p a r t of a neu
Division of Detention and Corrections i n County Government. m e %vision
woutd be responsibte for the combined jait, the Workhouse, the work-retease
(Ruber) prisoners, the County Home SchooZ for Bop, the County Home School
for Girts and the County JuveMiZe Center. We are aware that proposa2s for
reorganization of County Government soon wilt be forthcoming from the C i t izens League County Government Structure C d t t e e rmd from a West C o a t
crmsuZting fim hired by the Rennepin County Board of Conamissioners. We
would Fdpe that reconmendations made by these groups would incZu.de joint
management of the above-named i n s t i t u t i m s under one div-k.ion. We believe,
though, that the need i s so crucial for combining the jails protnptly that
it should not hinge an overat2 reorganization of C m t y Government... We
recononend that the 1967 LegisZature p k c e a combined j a i l under the Rennepin County Board of C d s s i o n e r s , This wouM be the best interim step
pending such reorganization. We also recornend--in Zine with a Citizens
League report dated March 27, 2965--that the MirmeapoZis Workhouse be
brought under the County Board a t the same time the combined jail i s .
Findings and Conclusions
1. It would b e p o s s i b l e a s an i n t e r i m s t e p t o combine t h e jails under t h e
J o i n t Powers A c t . I n 1961 t h e County Attorney gave a n opinion t o t h e Municipal
Building Commission t h a t t h e j a i l s could b e combined i n t h i s manner. E i t h e r t h e
Minneapolis P o l i c e Department o r t h e S h e r i f f could b e given t h e r e s p o n s i b i l i t y f o r
managing t h e j a i l under such an arrangement. Because of t h e l i m i t e d n a t u r e of t h e
P o l i c e Department's involvement i n j a i l a d m i n i s t r a t i o n a t t h e p r e s e n t t i m e ( t h e chief
s u p e r v i s o r of t h e C i t y J a i l spends two-thirds of h i s t i m e i n i d e n t i f i c a t i o n work),
i t would appear t h a t t h e S h e r i f f would be t h e only l o g i c a l a d m i n i s t r a t o r . However,
w e see disadvantages i n combining t h e jails under t h e J o i n t Powers A c t even a s a n
i n t e r i m s t e p . This is a purely voluntary arrangement which can b e terminated a t
any t i m e . It would n o t b e p o s s i b l e t o provide t h e proper long-range planning f o r
new o r remodeled f a c i l i t i e s which a r e s o r e l y needed by both jails. Such planning
must b e on a u n i f i e d b a s i s f o r both jails.
2.
It i s p o s s i b l e as an i n t e r i m s t e p f o r S t a t e Law t o s p e c i f y t h a t t h e
S h e r i f f b e r e s p o n s i b l e f o r a combined j a i l . This would e l i m i n a t e t h e shortcomings
mentioned i f t h e S h e r i f f were r e s p o n s i b l e through t h e J o i n t Powers A c t . Then planning f o r a combined j a i l f a c i l i t i e s could proceed immediately.
There are c e r t a i n disadvantages, though, i n such a i n t e r i m s t e p because
i t might n o t a i d i n accomplishing t h e long-term g o a l of b r i n g i n g a l l t h e i n s t i t u e do n o t b e l i e v e t h a t
t i o n s of d e t e n t i o n and c o r r e c t i o n s under one a d m i n i s t r a t i o n . W
t h e S h e r i f f should be t h e a d m i n i s t r a t o r of a D i v i s i o n of Detention and C o r r e c t i o a s .
In f a c t , our
This i s n o t a c r i t i c i s m of t h e a d m i n i s t r a t i o n of t h e p r e s e n t j a i l .
v i s i t s w i t h j a i l i n s p e c t o r s i n d i c a t e d they a r e q u i t e pleased w i t h t h e job of t h e
p r e s e n t Chief J a i l e r . But w e see t h e r o l e of t h e S h e r i f f p r i m a r i l y as a service
o f f i c e r i n t h e long run, n o t an a d m i n i s t r a t o r . The o f f i c e of S h e r i f f i n a n urban
county such a s Hennepin is f a r d i f f e r e n t from h i s r o l e i n a predominantly r u r a l
county. I n Hennepin County t h e S h e r i f f ' s o f f i c e has become p r i m a r i l y one of providing s e r v i c e t o t h e c o u r t s , performing such d u t i e s a s s e r v i n g w a r r a n t s and o t h e r l e g a l
papers o r s e r v i n g as b a i l i f f t o t h e Courts. I n a s e n s e w e see t h e r o l e of t h e S h e r i f f
somewhat s i m i l a r t o t h e r o l e of t h e U. S. Marshal s e r v i n g the F e d e r a l Courts. Also
i t should be noted t h a t c u r r e n t l y t h e o f f i c e of S h e r i f f i s elective. The chief
a d m i n i s t r a t o r of t h e j a i l should n o t b e an e l e c t i v e p o s i t i o n .
3. It i s p o s s i b l e a s an i n t e r i m s t e p f o r t h e County Board of Commissioners,
t h e chief executive arm of county government, t o be given t h e a u t h o r i t y by l e g i s l a t i v e a c t t o be responsible f o r t h e combined j a i l . I n terms of long-term considera t i o n s f o r a Division of Detention and Corrections, t h i s would be t h e b e s t s t a r t
s i n c e we b e l i e v e t h e long-term i n t e r a s t s of county government w i l l b e s t be served by
c e n t r a l i z i n g a u t h o r i t y i n t h e County Board.
4. The Hennepin County Department of Court Services, an arm of Hennepin
County D i s t r i c t Court, a l s o could b e given t h e r e s p o n s i b i l i t y f o r operating t h e
j a i l as an interim s t e p . The Department of Court Services c u r r e n t l y i s responsible
f o r a d m i n i s t r a t i o n of t h e j u v e n i l e i n s t i t u t i o n s , t h e Home Schools and t h e J u v e n i l e
Center, a l l of which w e b e l i e v e should b e p a r t of a Division of Detention and Corr e c t i o n s i n t h e long run. One of t h e disadvantages of giving t h e Department addit i o n a l a d m i n i s t r a t i v e r e s p o n s i b i l i t i e s under i t s present organization is t h a t t h e
Department is administered by t h e D i s t r i c t Judges. While Judges have a l e g i t i m a t e
concern f o r p o l i c y d i r e c t i o n i n t h e Department of Court Services, they should not
be involved i n administration. Also i t is not sound t o g i v e a d m i n i s t r a t i v e a u t h o r i t y
t o one group of Judges, when another group, t h e Municipal Court Judges, have a s much
an i n t e r e s t i n t h e operation of t h e j a i l a s t h e District Judges.
On balance w e conclude t h e p r e f e r a b l e i n t e r i m s t e p is f o r t h e L e g i s l a t u r e
t o p l a c e a combined j a i l under t h e County Board. Pending any change i n t h e independent n a t u r e of t h e S h e r i f f ' s o f f i c e i n County Government, i t would be p o s s i b l e
f o r t h e County Board t o c o n t r a c t with t h e S h e r i f f t o operate t h e j a i l . The advantages of p l a c i n g t h e combined j a i l under t h e County Board immediately a r e (1) It
w i l l enable much more o r d e r l y planning f o r new f a c i l i t i e s . (2) It w i l l p l a c e t h e
chief governing board of Hennepin County i n a more d i r e c t supervisory p o s i t i o n over
t h e j a i l , which is c o n s i s t e n t with t h e general d i r e c t i o n of county reorganization
proposals.
With t h e j a i l under t h e County Board w e s e e t h e b e s t opportunity f o r our
long range recommendation f o r an i n t e g r a t e d Division of Detention and Corrections
t o be implemented, It may be t h a t such a Division would b e p a r t of t h e Department
of Court Services, should t h a t Department come a d m i n i s t r a t i v e l y under t h e County
Board.
We b e l i e v e a l s o t h a t t h e 1967 L e g i s l a t u r e should go beyond consolidating
t h e J a i l s . The L e g i s l a t u r e should p l a c e t h e Minneapolis Workhouse under t h e County
Board, too. The C i t i z e n s League i n a r e p o r t t o t h e 1965 L e g i s l a t u r e had urged transf e r of t h e Workhouse t o t h e County. Placing both t h e combined J a i l s and t h e Workhouse under t h e County Board immediately would not i n t e r f e r e with long range county
reorganization,
V.
ACCESS TO THE JAIL BY OFFICIAL PERSONNEL
Recommendation :
We recommend that any Zeg-istation or agreement i n connection w i t h a combined j a i l specifically provide that officriat personnel shalt be guwanteed access to the f a i l 24 horns a day.
Findings and Conclusions
One of t h e main reasons o f f i c i a l s of t h e Minneapolis P o l i c e Department
have given f o r t h e i r r e l u c t a n c e t o s u p p o r t a combined j a i l i s t h a t they f e a r they
w i l l l o s e t h e 24-hour-a-day access t a t h e j a i l f o r o f f i c i a l purposes. They s a i d
It seems
t h a t c u r r e n t l y t h e County J a i l i s closed t o o u t s i d e r s every day a t 5 p.m.
t o us t h a t adequate guarantees can b e provided s o t h a t p o l i c e do n o t l o s e access
under a combined j a i l .
VI.
RESPONSIBILITY FOR IDENTIFICATION AND RECORDS I N A COMBINED JAIL
Recommendation:
We recommend that the lcrrge volwne of identification and records which
has been developed over the years by the Minneapolis Police Department be
guaranteed adequate protection i n a combined jail.
Findinns and Conclusions
The only o t h e r reason, i n a d d i t i o n t o f e a r of l o s i n g f u l l a c c e s s t o t h e
j a i l t h a t Minneapolis P o l i c e o f f i c i a l s have been c o o l t o j a i l c o n s o l i d a t i o n has been
they want t o p r o t e c t t h e i r l a r g e volume of r e c o r d s and i d e n t i f i c a t i o n .
W e regard i t as extremely important t h a t a combined j a i l have a n adequate
i d e n t i f i c a t i o n and r e c o r d s system--at least a s e x t e n s i v e a s t h e one developed by
e b e l i e v e t h a t l e g i s l a t i o n can provide
t h e Minneapolis P o l i c e Department t o d a t e . W
t h a t whoever maintains t h e i d e n t i f i c a t i o n and r e c o r d s system t h a t t h e i n t e r e s t s of
Minneapolis w i l l b e p r o t e c t e d . Perhaps personnel now employed by t h e Minneapolis
P o l i c e Department could head up t h e i d e n t i f i c a t i o n and records s e c t i o n i n a new j a i l .
O r , i f necessary, t h e County could even c o n t r a c t w i t h t h e P o l i c e Department t o c a r r y
o u t t h i s function.
VII.
FINANCING ARRANGEMENTS FOR A COMBINED JAIL
Recommendation:
We recommend that operating costs of a combined jQiZ be apportioned on
the f o l h i n g basis:
(a) The cost of keeping prisoners accused of misdemeanors and ordinance violations, whose cases w i l l be f i n a l l y disposed o f i n Eennepin
County Municipal Court, would be assessed t o the municipality where
the alleged vialation occurred.
( b ) The cost of keeping prisoners accused of gross misdemeamrs and
fetonies, whose cases potentially w i l l be disposed o f i n Hennepin
County District Court, m Z d be a general county obligation.
Findings and Conclusions
W e have concluded t h a t i n Municipal Court c a s e s t h e c o s t s of keeping p r i s o n e r s should be apportioned t o t h e m u n i c i p a l i t y where t h e a l l e g e d v i o l a t i o n occurred.
Under p r e s e n t state l a w a l l f i n e s imposed by t h e Municipal Court are r e t u r n e d t o t h e
municipality where t h e v i o l a t i o n occurred. U n t i l o r u n l e s s t h i s is changed, t h e
i n d i v i d u a l municipality should continue t o be r e s p o n s i b l e f o r its own Municipal
Court prisoners.
U n t i l A p r i l 1, 1966, t h e Ceunty had charged suburban m u n i e t p a l i t i e s a per
diem r a t e of $4.84 f o r p r i s o n e r s h e l d f o r Municipal Court. This was eliminated because u s e by suburbs was s o s l i g h t and because Minneapolis was not paying anything
f o r t h e l i m i t e d amount of use i t made of t h e County J a i l f o r Municipal Court cases
i n c e r t a i n instances. Under our recommendation, a p e r diem would be re-established
w i t h t h e c r e a t i o n of t h e combined jail.
Under a combined j a i l , c o s t s of keeping p r i s o n e r s accused of gross m i s demeanors and f e l o n i e s would be assumed immediately by the county, without apportionment t o t h e m u n i c i p a l i t i e s where t h e v i o l a t i o n s occurred. These cases a r e destined
f o r D i s t r i c t Court. Revenue from District Court f i n e s a r e not returned t o t h e munic i p a l i t i e s b u t are r e t a i n e d by t h e County.
SCOPE OF TEE REPORT
I n t h e f a l l of 1965 t h e Citizens League Board of Directors authorized
c r e a t i o n of t h e J a i l s Committee with t h e following assignment:
1. To review the physical adequacy of t h e Minneapolis and Hennepin County
Jails.
2.
To review t h e need f o r improved o r a d d i t i o n a l f a c i l i t i e s .
3.
To review t h e d e s i r a b i l i t y of consolidating t h e j a i l s .
The establishment of t h i s committee was an outgrowth of c e r t a i n f a c t s uncovered by another committee of t h e Citizens League which has been studying t h e
building space needs of Minneapolis and Hennepin County. These f a c t s indicated t h a t
UP t o $2.5 m i l l i o n i n remodeling was being considered f o r the j a i l s .
COMMITTEE MEMBERSHIP
Twenty-two Citizens League members p a r t i c i p a t e d i n t h e d e l i b e r a t i o n s of
t h e J a i l s Committee. The Committee was headed by C. Paul Jones, new S t a t e Public
Defender. Among members were t h r e e a r c h i t e c t s , a suburban p o l i c e chief and t h e
executive d i r e c t o r of t h e Correctional Service of Minnesota.
Committee members besides Jones w e r e Russell Baumgardner, Wayne Bennett,
Bruce W. Blackburn, Sam Bloom, Robert C. Burton, W. Brooks Cavin, D r . Bernard
Chris tensen, Ford W. Crouch, Jr , Richard W. Faunce, Murray Galinson, Lloyd Graven,
Allan C. Hubanks, Roger T. Johnson, Kenneth L e e , James B. Lund, Richard Lurie, Alan
C. Mingo, M e l o r e n s t e i n , Harlan E. Smith and S. L. S t o l t e . The committee was a s s i s t ed by Paul G i l j e , Citizens League Research Director.
.
COMMITTEE PROCEDURE
A t o t a l of 17 meetings of the cormnittee were held between November 24,
1965, and J u l y 6, 1966.
Committee members spent two afternoons touring t h e Minneapolis and Hemep i n County J a i l s and t h e Minneapolis Workhouse. I n a d d i t i o n very valuable informat i o n about t h e i n s t i t u t i o n s was obtained from Robert McLane, chief j a i l e r , Hennepin
County J a i l ; Ronald Welbaum, superintendent, Bureau of I d e n t i f i c a t i o n , Minneapolis
P o l i c e Department, and Rolf W. Stageberg, superintendent of t h e Minneapolis Workhouse. McLane, Welbaum and Stageberg a l l appeared personally before the committee
and a l s o were very cooperative i n providing more information i n informal v i s i t s
with t h e League s t a f f .
Cal Hawkinson, chief of p o l i c e i n Minneapolis, met with the committee t o
discuss i n d e t a i l the P o l i c e Department's f e e l i n g s about j a i l consolidation. The
committee met with J. C l i f f o r d Boles, superintendent of t h e Municipal Building
C o d s s i o n , and A 1 E i l e r s , a r c h i t e c t f o r t h e Building Commission, on remodeling
plans f o r t h e j a i l s .
Late i n 1965, t h e Hennepin County Board of Cotmissioners h i r e d t h e firm
of SUA (Space U t i l i z a t i o n Analysis) Inc., Beverly Ulls, California, t o conduct a
study of building needs f o r county government. The conrmittee ;net with Walter Jacobs,
president of SUA, t o d i s c u s s t h e firm's preliminary r e a c t i o n t o t h e question of remodeling t h e j a i l s a s a g a i n s t a new building.
On t h e question of governmental s t r u c t u r e f o r a consolidated j a i l t h e committee m e t with Stanley Cowle, t h e chief administrative o f f i c e r f o r t h e County Board.
The committee was very f o r t u n a t e t o meet with R. D. Rukes, Federal J a i l
Inspector with t h e Federal Bureau of Prisons. M r . Rukes is responsible f o r inspecting some 103 j a i l s i n six s t a t e s i n t h e Upper Midwest. He was i n Minneapolis f o r a
r o u t i n e inspection of t h e County J a i l and consented t o meet with us. Also t h e comm i t t e e met with James Hulbert, S t a t e J a i l Consultant with t h e Minnesota Department
of Corrections. Hulbert discussed h i s recent inspections of t h e Minneapolis and
Hennepin County J a i l s .
BACKGROUND
I.
Detention of Prisoners i n H e n n e ~ i nCounty
Contrary t o t h e p r a c t i c e inmany counties throughout Minnesota and the
nation n e i t h e r t h e Minneapolis City J a i l nor t h e Hennepin County J a i l is used f o r
sentenced prisoners--except on r a r e occasions.
The City J a i l and County J a i l can more appropriately be r e f e r r e d t o a s
lockups o r i n s t i t u t i o n s of detention. Prisoners i n t h e s e i n s t i t u t i o n s may be awaiti n g t r i a l , sentencing o r t r a n s f e r t o another i n s t i t u t i o n . Sentenced p r i s o n e r s i n
Hennepin County a r e s e n t t o t h e Minneapolis Workhouse i f t h e term is l e s s than a
year o r t o t h e S t a t e P r i s 0 n o r S t a t e Reformatory i f t h e term is more than a
year. On r a r e occasions, someone sentenced t o t h e Workhouse may be t r a n s f e r r e d t o
t h e County J a i l because of d i f f i c u l t y i n handling him a t t h e Workhouse.
(a)
City J a i l
The City J a i l occupies 14,323 square f e e t on t h e f i f t h f l o o r of t h e CityCounty Courthouse. The Jail has 44 c e l l s i n its main cell block. The main c e l l
block i s divided i n t o s i x sections. Four s e c t i o n s have 8 cells each; one s e c t i o n
has 4 cells and one s e c t i o n has 8 c e l l s ~ l u as l a r g e holding a r e a f o r 30-40 persons
picked up on charges of drunkenness. This holding a r e a is known a s t h e "bullpen"
o r "drunk tank". None of these c e l l s has good s e c u r i t y . Locks on many of t h e c e l l
doors a r e inoperative. Only t h e locked door t o each s e c t i o n keeps t h e . p r i s o n e r s
secure
.
A t t h e end of a c o r r i d o r which runs along t h e main cell block i s a sixc e l l s e c u r i t y a r e a knam a s Duffy's F l a t s . This is t h e a r e a where p r i s o n e r s requiri n g the g r e a t e s t s e c u r i t y a r e kept.
I n a s e p a r a t e a r e a of t h e City J a i l is an e i g h t - c e l l s e c t i o n f o r women
prisoners. There a l s o is a f i v e - c e l l a r e a f o r juvenile boys; one room f o r f i v e
o t h e r juvenile boys and one room f o r f o u r j u v e n i l e g i r l s .
Capacity of t h e City J a i l , exclusive of t h e bullpen, is about 72 prisoners.
During 1965 a t o t a l of 18,068 p r i s o n e r s w e r e kept i n t h e City J a i l , a n average of
about 50 per day.
Prisoners accused of crimes i n Minneapolis a r e o r i g i n a l l y brought t o t h e
City J a i l . They a r e held h e r e u n t i l b a i l can be obtained, t h e i r cases a r e disposed
of i n Hennepin County Municipal Court o r u n t i l they are bound over t o t h e D i s t r i c t
Court, i n which case they a r e t r a n s f e r r e d down t h e h a l l t o t h e Hennepin County J a i l
on t h e other s i d e of t h e building.
The City J a i l is administered by t h e Minneapolis P o l i c e Department. The
J a i l is p a r t of the P o l i c e Department's Bureau of I d e n t i f i c a t i o n which is located
on t h e f i f t h f l o o r a l s o . The Bureau of I d e n t i f i c a t i o n compiles a l l necessary d a t a
f o r an i d e n t i f i c a t i o n f i l e on each prisoner. This includes f i n g e r p r i n t i n g , p i c t u r e s
and a s o c i a l h i s t o r y report. The Bureau maintains an extensive record-keeping system, including cross-references, on a l l i t s prisoners.
The superintendent of t h e Bureau of I d e n t i f i c a t i o n a l s o serves as chief
j a i l e r . H e s a i d t h a t administration of t h e j a i l occupies about one-third of h i s
t i m e . H e h a s s a i d t h a t it is d i f f i c u l t f o r him t o be i n charge of t h e j a i l and t h e
Bureau of I d e n t i f i c a t i o n and wishes t h a t t h e j a i l could have a l i e u t e n a n t o r s e r geant i n complete charge of running t h e j a i l who would b e d i r e c t l y responsible t o
him.
Other personnel i n t h e Bureau of I d e n t i f i c a t i o n are 5 i d e n t i f i c a t i o n o f f i cers, 13 patrolmen, 6 matrons and 3 c l e r k - t y p i s t s .
Mine of t h e patrolmen and a l l
s i x matrons a r e assigned t o t h e j a i l . Occasionally one of t h e i d e n t i f i c a t i o n o f f i c e r s is c a l l e d t o a s s i s t with t h e operation of t h e j a i l . The n i n e patrolmen who
s e r v e a s j a i l e r s and t h e s i x matrons o p e r a t e on a 24-hour-a-day s h i f t b a s i s s o t h a t
two patrolmen and e i t h e r one o r two matrons a r e on duty a t a l l times. The superintendent of t h e Bureau of I d e n t i f i c a t i o n has s a i d t h a t occasionally he is s o s h o r t of
help t h a t r e g u l a r patrolmen have t o be taken o f f t h e i r r e g u l a r b e a t s t o a s s i s t i n
the j a i l . This is very d i f f i c u l t , he s a i d , because such patrolmen a r e n o t experienced i n working i n t h e j a i l and have t o be t r a i n e d almost a s beginning j a i l e r s .
H e would l i k e t h r e e more patrolmen t o be assigned f u l l - t i m e a t t h e j a i l , one of whom
could be t h e l i e u t e n a n t o r sergeant who would s e r v e as s u p e r v i s o r . This would mean
t h a t a t l e a s t one more man would be serving on each s h i f t .
The P o l i c e Department's Crime Lab-Evidence Room a l s o is included i n t h e
Bureau of I d e n t i f i c a t i o n . The C o r r e c t i o n a l S e r v i c e of Minnesota, a p r i v a t e organiz a t i o n , i n a r e p o r t on t h e City-County J a i l s l a s t y e a r s a i d t h a t t h e presence of
t h e evidence room i n t h e j a i l p r e s e n t s a r i s k because a v a r i e t y of weapons, including
knives, guns and o t h e r dangerous a r t i c l e s , i n a d d i t i o n t o v a r i o u s forms of intoxic a t i n g beverages, could be obtained by p r i s o n e r s . The only s e c u r i t y of t h e evidence
room is a s i n g l e wooden door with a standard lock.
Based on conversations with t h e superintendent of t h e Bureau of I d e n t i f i c a t i o n , w e estimate t h a t approximately 58 per cent of t h e Bureau's budget is f o r t h e
a c t u a l operation of t h e j a i l and t h e balance f o r t h e Bureau of I d e n t i f i c a t i o n .
(b)
Hennepin County J a i l
The County J a i l occupies 15,363 square f e e t on t h e f i f t h f l o o r of t h e
City-County Courthouse. The j a i l has a capacity f o r about 134 prisoners. The
The c e l l blocks a r e located
l a r g e s t c e l l a r e a is made up of C e l l Blocks "A" and "B".
i n two tiers. Each c e l l block has 19 two-man c e l l s , f o r a t o t a l capacity i n t h e two
c e l l blocks of 76 p r i s o n e r s . C e l l Blocks "c" and "D" a r e l o c a t e d a t t h e end of a
c o r r i d o r which runs alongside Blocks "A" and "B".
Blocks "C" and "D" each have 6
two-man c e l l s . C e l l Block "EM, which is s e p a r a t e d from t h e rest of t h e j a i l , is used
f o r women. It has 8 c e l l s , each with a capacity f o r two women.
C e l l Block "F" has one one-man c e l l and one two-man c e l l . It was b u i l t i n
1965 a s p a r t of t h e f i r s t phase remodeling of t h e j a i l . The c e l l s a r e used as temporary holding q u a r t e r s . C e l l Block "G" has one four-man c e l l and four one-man
c e l l s . This c e l l block a l s o was b u i l t i n 1965.
C e l l Block "H" has s i x one-man c e l l s . T h i s cell block is s e p a r a t e from t h e
rest of t h e j a i l and u s u a l l y houses c e r t a i n problem p r i s o n e r s , such as sexual d e v i a t e s
During 1965 a t o t a l of 3,268 p r i s o n e r s s p e n t 26,259 prisoner-days a t t h e
j a i l . Dividing t h e number of prisoner-days by 365 days i n a year, t h e r e s u l t i s an
average of about 72 p r i s o n e r s per day.
Follcrwing is a breakdown of t h e types of p r i s o n e r s i n t h e County J a i l i n
1965:
Hold f o r Other J u r i s d i c t i o n s ,
(U S Marshal, other counties,
c i t i e s , s t a t e s , etc.)
Driving Violations (includes 235 drunken
(driving)
Check Violations
Burglary
Public I n t o x i c a t i o n
P e t t y Larceny
Simple Assault
Violation of Probation
Contempt of Court
Aggravated Forgery
Robbery
Minor Consuming I n t o x i c a n t s
Disorderly Conduct
Non-support
Auto Theft
Bench Warrants
Shoplifting
Disturbing t h e Peace
Possession of Narcotics
Contributing t o Delinquency of a Minor
Indecent Assault
R e s i s t i n g Arrest
Illegitimacy
Murder
Criminal Negligence
Mans laughter
P r o s t i t u t i o n (appeals)
Tampering with Motor Vehicle
0ther
..
Total
3,610*
* The
t o t a l number of prisoner types is g r e a t e r than t h e t o t a l number of prisoners.
Some p r i s o n e r s w e r e j a i l e d f o r more than one offense.
The Hennepin County J a i l serves a s t h e detention i n s t i t u t i o n f o r suburban
Hennepin p r i s o n e r s awaiting t r i a l o r preliminary hearing i n Hennepin County Municip a l Court, f o r Hennepin prisoners awaiting t r i a l in Hemepin County D i s t r i c t Court,
f o r p r i s o n e r s under pre-sentence i n v e s t i g a t i o n and f o r prisoners being h e l d f o r other
j u r i s d i c t i o n s , such a s t h e U. S. Marshal, o t h e r counties, c i t i e s and states.
Although i t is l e g a l f o r t h e Courts t o sentence someone t o t h e County J a i l ,
t h i s is not done a t t h e present time. Sentenced p r i s o n e r s a r e sent t o o t h e r i n s t i t u t i o n s . Hcrwever, on r a r e occasions a p r i s o n e r may b e t r a n s f e r r e d from the Minneap o l i s Workhouse t o t h e County J a i l because of d i f f i c u l t i e s i n handling him a t t h e
Workhouse. Also, a few work-release prisoners, who o r d i n a r i l y would have been s e n t
t o t h e Workhouse have been kept a t t h e j a i l i n t h e last four months. The Chief
Jailer s a i d t h a t only about two-a-day a r e kept a t t h e j a i l . There is a p o s s i b i l i t y
t h a t f a c i l i t i e s f o r additional work-release prisoners might b e p r w i d e d i n t h e j a i l ,
according t o t h e Chief J a i l e r , i f adequate space can be found.
The Hennepin County S h e r i f f , according t o S t a t e Law, is i n charge of t h e
Hennepin County J a i l . A l l employees i n the j a i l a r e S h e r i f f ' s Deputies. There a r e
19 personnel i n t h e County J a i l , 1 chief j a i l e r , 13 general deputies, 1 a s s i s t a n t
j a i l e r (sergeant), 1 i d e n t i f i c a t i o n o f f i c e r , lbookkeeper, l m a t r o n and 1 cook.
Based on conversations with j a i l o f f i c i a l s , i t appears t o us t h a t a t least 80 p e r
cent of t h e t o t a l budget is f o r d i r e c t jail operation and less than 20 per cent f o r
identification.
(c)
Other Lockups i n t h e County
The Minneapolis Police Department, i n addition t o i t s main j a i l , a l s o has
c e l l s i n three of i t s precinct s t a t i o n s , t h e E a s t Side, North Side and Mixmehaha
Stations. Personnel i n t h e Minneapolis Police Department t o l d us t h a t prisoners
never a r e kept i n these c e l l s overnight b u t a r e kept there only u n t i l they can be
transferred i n p a t r o l wagons t o the City J a i l downtown. I n f a c t , these lockups now
a r e used only on busy weekend nights, p o l i c e o f f i c i a l s said. The East Side $ t a t i o n
has 8 cells; t h e North Side, 4; and Minnehaha, 16.
Following is a l i s t of t h e lockup f a c i l i t i e s i n suburban Hemwin:
Robbinsdale. Three c e l l s , but they a r e used only about once a week, and
then f o r s h o r t periods of time, overnight o r a few hours.
Osseo. Three cells, with an average use of s l i g h t l y more than one detent i o n a week. Usually overnight, but on rare occqaions 48 hours. Maple Grove and
Brooklyn Park a l s o use t h i s j a i l .
Hopkins. Three cells, can accomodate a maximum of f i v e prisoners. Usuall y kept w e r n i g h t , but on r a r e occasions f o r a weekend. Minnetonka sends prisoners
here as do a few small Lake Minnetonka communities on occasions.
-
Edina. Three c e l l s . Average population is one o r two a day. Prisoners
a r e kept u n t i l t h e next session of court, which usually is t h e next day. On r a r e
occasions, prisoners a r e kept u n t i l Monday morning i f they a r e picked up on, say,
Friday night and cannot r a i s e b a i l . Edina may take persons accused of f e l o n i e s o r
women d i r e c t l y t o t h e County J a i l .
St. Louis Park. Four cells, with one available f o r juveniles o r women,
who would be kept only during t he day. Therq a r e about 10 t o 14 overnight prisoners
per week. I n t h e p a s t month, two prisoners were held from Friday night t o Monday
morning.
Bloomincrton. Three double sets of s i n g l e c e l l s and a bullpen. Prisoners
normally a r e kept only overnight u n t i l they can appear i n court t h e next day. On
occasion, a man may s t a y t h e weekend.
Crystal. Crystal has j u s t opened its f i r s t lockup a s p a r t of t h e c i t y ' s
new Municipal Building. There are two, two-man cells, and four s i n g l e cells, with
two of those s i n g l e cells s o arranged s o they could accomodate juveniles o r women.
Crystal now averages about four o r f i v e prisoners a week who have been housed i n
t h e County J a i l .
Richfield.
Three c e l l s .
Normally w e r n i g h t lockup.
Suburban municipalities e i t h e r w i l l keep prisoners overnight i n these lockups o r w i l l take prisoners d i r e c t l y t o t h e County J a i l . None of these lockups, of
course, i s used f o r sentenced prisoners.
(d)
The Minneapolis Workhouse
The Minneapolis Workhouse,'owned and operated by the c i t y of Minneapolis,
is the only i n s t i t u t i o n i n the County t o which prisoners a r e sentenced. Prisoners
a t t h e Workhouse can serve sentences up t o one year. For sentences of one year o r
longer, s t a t e law requires t h a t t h e prisoners be s e n t t o s t a t e i n s t i t u t i o n s .
The Workhouse is located about 10 m i l e s w e s t of Minneapolis on the west
s i d e of Parker's Lake i n Plymouth.
The c i t y of Minneapolis charges $5.50 a day f o r non-resident confinement
a t the Workhouse. For example, t h e c o s t s of confining a person a r r e s t e d f o r a vial a t i o n i n Bloomington and sentenced t o t h e Workhouse by Hennepin County Municipal
Court w i l l be paid by t h e c i t y of Bloomington. The c o s t s of confining a person
sentenced by Hennepin County D i s t r i c t Court w i l l be paid by t h e county-at-large
through t h e S h e r i f f ' s budget.
The men's s e c t i o n of t h e Workhouse has 408 one-man c e l l s , and t h e women's
s e c t i o n has 40 one-woman c e l l s . I n addition the Workhouse has used t h e second f l o o r
of the administration building and t h e tower of the administration building f o r accommodating work-release prisoners. About 60 t o 70 can be accommodated without crowding.
However, up t o 100 work-release prisoners have been kept i n these quarters. Only
t h r e e t o i l e t s a r e a v a i l a b l e f o r t h e work-release prisoners. Therefore, a t t i m e s t h e r e
men.
has been a r a t i o of one t o i l e t t o every 33
The Citizens League i n a r e p o r t approved March 17, 1965, urged t r a n s f e r of
the Minneapolis Workhouse t o Hennepin County because with the establishment of one
county-wide Municipal Court, Mimeapo1j.s no longer has a need f o r t h e Workhouse. The
question of j a i l consolidation was n o t addressed i n t h i s r e p o r t , but the League urged
t h a t the Workhouse be under the same management a s t h e Home Schools f o r Boys and G i r l s
and the County Juvenile Center and t h a t t h e County Board of Commissioners be respons i b l e f o r the i n s t i t u t i o n s .
(e)
County Juvenile Center, 1000 S. 6th S t .
This i n s t i t u t i o n was b u i l t i n 1957. It has 30 residence rooms f o r juven i l e s . The Center is operated by t h e Hemepin County D i s t r i c t Court through t h e
Department of Court Services, an arm of the D i s t r i c t Court.
The Juvenile Center serves a s a holdiag i n s t i t u t i o n f o r youths under 18
years of age f o r the Juvenile Center.
I n 1965 a t o t a l of 1,485 youths were admitted t o t h e Juvenile Center.
center was f i l l e d t o capacity on 268 nights out of t h e year.
The
Another 1,696 juveniles were admitted t o t h e Minneapolis City J a i l , of
which 955 were released t o t h e i r parents within a few hours.
(f)
County Home Schools f o r Boys and Girls
A County Home School f o r Boys is located a t Glen Lake i n suburban Hennepin
County. It is operated a s an arm of the D i s t r i c t Court through the Department of
Court Services j u s t a s is t h e Juvenile Center. The capacity of the Home School is
about 150. During 1965 t h e average d a i l y population w a s about 117.
A County Home School f o r G t r l s is scheduled t o be b u i l t soon on t h e same
premises.
RECENT DEVELOPMENTS
(a)
Remodeling Plan
I n 1963 Robert Mchne, S t a t e J a i l Consultant, was h i r e d by s h e r i f f Ed
Ryan of Hemepin County t o become chief j a i l e r of the County J a i l and t o be i n
charge of a complete renovation of obsolete f a c i l i t i e s which McLane had c r i t i c i z e d
i n h i s capacity a s S t a t e J a i l Consultant.
McLane immediately proceeded t o develop a plan f o r r a o d e l i n g t h e f i f t h
f l o o r i n cooperation with t h e superintendent of t h e Municipal Building Commission,
which is responsible f o r a l l construction i n connection with the City Hall-Courthouse, and t h e a r c h i t e c t f o r the Building Commission.
The following plan was proposed i n October 1963:
1st Phase
I n s t a l l new s e c u r i t y cell block of t o o l r e s i s t a n t steel f o r s e c u r i t y r i s k
prisoners and t r u s t i e s (14 persons).
Remodel two present o f f i c e rooms i n t o four interview rooms. Convert pres e n t interview room i n t o Central Control and Booking room. Remove present
control area. I n s t a l l a s e c u r i t y cage i n f r o n t of elevator and new Control
Room. Remove &sting g r i l l czge i n f r o n t of stairway and windows. Ins t a l l s e c u r i t y door t o stairway.
2nd Phase
Completely renovate existing c e l l block H (commonly r e f e r r e d t o a s I 1Detention").
I n s t a l l Sally post and e l e c t r i c locks i n Women's section.
1. Remove e x i s t i n g c e l l s on a l l 3 l e v e l s .
2. Convert 3rd l e v e l t o s t o r a g e a r e a with entrance from Tower s t a i r s .
3. I n s t a l l new c e l l blocks on 1st and 2nd l e v e l s including exercise
space i n Detention, new shower s t a l l and s i n k room.
4. I n s t a l l new f l o o r t i l e i n Laundry, Grocery, and Guards Room.
1967
3rd Phase
I n s t a l l new g r i l l type s l i d i n g doors and controls f o r c e l l block C and D,
A and B and Women's section.
1968
4th Phase
Remodel Kitchen, i n s t a l l Dining Room, i n s t a l l method t o move prisoners
t o dining room a d v i s i t i n g room.
5 t h Phase
Move C r i m e Lab t o 4 t h S t . s i d e of 5 t h f l o o r i n t o space p r e s e n t l y occupied
by Courtroom, J u r y Rooms, and Planning Commission. This would i n c l u d e
t h e i d e n t i f i c a t i o n s e c t i o n of t h e S h e r i f f and C i t y P o l i c e , t h e J a i l Lib r a r y , and would i n c l u d e a small Chapel. I n s t a l l d i s c i p l i n a r y cells and
s e c l u s i o n cells f o r s i c k and mental p r i s o n e r s i n t o space p r e s e n t l y occupied
by t h e Lab and i d e n t i f i c a t i o n rooms i n p r e s e n t County J a i l a r e a .
6 t h Phase
Expand c e l l block a r e a of j a i l i n t o C i t y I d e n t i f i c a t i o n a r e a f o r about 100
p r i s o n e r s . New c e l l block f o r 100 p r i s o n e r s n e c e s s i t a t e d by change8 i n
t h e Work Release P r i s o n e r Law. Combine County and C i t y J a i l s and provide
f o r new r e c e i v i n g s e c t i o n i n a r e a n e a r C i t y J a i l e l e v a t o r .
I n i t i a l estimates of t h e c o s t of t h e p l a n w e r e about $100,000 p e r y e a r ,
(though t h e f i r s t y e a r ' s c o s t was t o be $25,000), with t h e money t o came from t h e
annual a p p r o p r i a t i o n t o t h e Municipal Building Commission by t h e c i t y of Minneapolis
and Hennepin County.
The p l a n g o t underway a s scheduled i n 1965. The f i r s t phase was completed
b u t t h e c o s t was $39,800, which does n o t i n c l u d e t h e plumbing, h e a t i n g and electric a l work done by employees of t h e Municipal Building Commission. W e could n o t obt a i n t h e c o s t f i g u r e s f o r t h i s work. I n a d d i t i o n another $13,000 was s p e n t on t h e
C i t y J a i l t o provide a n adequate v i s i t i n g room.
The 1966 phase h a s n o t g o t t e n underway because t h e superintendent of t h e
Municipal Building Commission has suspended a l l f u r t h e r work on t h e remodeling p l a n
pending t h e outcome of an o v e r a l l study of county b u i l d i n g space needs by SUA, Inc.,
Beverly H i l l s , C a l i f . , and t h e C i t i z e n s League study.
(b)
Other s t u d i e s
I n a d d i t i o n t o t h e s t u d i e s by SUA, Inc., and t h e C i t i z e n s League, t h e
Hennepin County Grand J u r y is i n v e s t i g a t i n g j a i l c o n d i t i o n s and management as a
r e s u l t of two s u i c i d e s i n t h e Minneapolis C i t y J a i l s i n c e March 12.
The Minnesota C i v i l L i b e r t i e s Union has announced i t is i n v e s t i g a t i n g c i v i l
l i b e r t i e s problems i n connection with holding p r i s o n e r s .
Mayor Arthur N a f t a l i n of Minneapolis and Robert J a n e s , chairman of t h e
Hennepin County Board have named a committee of p r o f e s s i o n a l s connected w i t h t h e
J a i l s t o recommend improvements.
The C o r r e c t i o n a l Service of Minnesota last f a l l published a r e p o r t pointi n g up d u p l i c a t i o n of s e r v i c e s between t h e j a i l s .
The Minnesota Council on Delinquency and C r i m e a l s o is looking i n t o j a i l
problems.
(c)
Work-release p r i s o n e r s
The r a p i d l y developing p r a c t i c e of sentencing persons t o work-release
terms, r a t h e r than full-time commitment, is expected t o have a profound e f f e c t on
new construction f o r detention and c o r r e c t i o n s i n Hennepin County.
'
Under t h e Minnesota work-release law, a l s o known a s t h e Huber law, t h e
Court may sentence c e r t a i n offenders t o a short-term i n s t i t u t i o n , such a s t h e Mirmea p o l i s Workhouse, with t h e provision,.that t h e offenders can r e t a i n t h e i r r e g u l a r
full-time employment and spend t h e i r nonworking hours a t t h e i n s t i t u t i o n .
The use of t h e work-release law has increased markedly i n t h e p a s t two
years t o t h e e x t e n t t h a t t h e Minneapolis Workhouse superintendent has s a i d he i s
unable t o handle any more work-release prisoners without a d d i t i o n a l f a c i l i t i e s o r
remodeled f a c i l i t i e s .
I n 1961 t h e d a i l y average population of work-release p r i s o n e r s a t t h e Workhouse was 56.9.
I n 1962, t h e f i g u r e was 48.8; 1963, 48,5; 1964, 57.5, and i n 1965,
84, The s u b s t a n t i a l i n c r e a s e i n 1965 i s holding up t h i s year.
Work-release p r i s o n e r s do not r e q u i r e regular Workhouse o r J a i l c e l l s .
Dormitory-type f a c i l i t i e s a r e adequate. Work-release prisoners a t t h e Wcrkhouse
have used old o f f i c e r s ' q u a r t e r s on t h e second f l o o r of t h e administration building.
Only t h r e e t o i l e t s a r e a v a i l a b l e f o r t h e work-release inmates.
Because of t h e inadequate crowded conditions t h e superintendent of t h e
Workhouse has asked t h e Hennepin County Sheriff t o s e e i f he can provide f o r workr e l e a s e prisoners i n connection with t h e j a i l . The proposed remodeling plan f o r
t h e f i f t h f l o o r of t h e J a i 1 includes provision f o r a 100-bed dormitory f o r
work-release prisoners.
Information we have received i n d i c a t e s t h a t t h e number of p r i s o n e r s on
work-release w i l l continue t o increase, p a r t i c u l a r l y i f f a c i l i t i e s a r e a v a i l a b l e .
There is considerable evidence t o i n d i c a t e t h a t more p r i s o n e r s would be sentenced
under t h e work-release law today i f a d d i t i o n a l spaces were a v a i l a b l e . Further,
other developments i n d i c a t e t h a t f e l o n s and f e d e r a l prison inmates may be made e l i g i b l e f o r work-release terms i n t h e f u t u r e . It i s l i k e l y t h a t such developments
w i l l r e q u i r e t h e extensive provision f o r work-release q u a r t e r s i n Hennepin County.
DISCUSSION
The detention and c o r r e c t i o n a l i n s t i t u t i o n s serving t h e Courts of Hennepln
County have evolved over t h e years i n such a manner t h a t today f o u r d i f f e r e n t governmental bodies--each operating independently of each other--are responsible f o r some
phase of t h e organization.
I r o n i c a l l y , the one body which l o g i c a l l y would seem t o be s u i t e d f o r most,
i f not a l l of t h e r e s p o n s i b i l i t y , today has very l i t t l e , t h e Hennepin County Board
of Commissioners.
This fragmented system of providing f a c i l i t i e s f o r persons i n custody, both
p r i o r t o and a f t e r t h e determination t h a t a v i o l a t i o n has occurred, has been a key
f a c t o r i n the problems we have discovered i n connection with adequate f a c i l i t i e s f o r
t h e Hennepin.County J a i l and t h e Minneapoais C i t y J a i l .
The four d i f f e r e n t governmental bodies responsible a r e a s follows:
The Hennepin County Sheriff--for
t h e Hennepin County J a i l .
The Minneapolis Police Department--for
the Minneapolis City J a i l .
The Minneapolis Board of P9blic Welfare--for
the Minneapolis Workhouse.
The Hennepin County Department of Court Services--for
and the Home Schools f o r Boys and G i r l s .
the Juvenile Center
Another governmental body--the Municipal Building Commission--also has
some connection with the problem of providing adequate f a c i l i t i e s , f o r the Commission
is responsible f o r any remodeling of t h e present Courthouse f o r improvements i n t h e
County J a i l o r the City J a i l . The Municipal Building Commission's r e s p o n s i b i l i t y i s
exclusively connected with the e x i s t i n g City Hall-Courthouse i n dawntown Minneapolis.
The Commission has no power o r r e s p o n s i b i l i t y f o r any other buildings, even those
governmental o f f i c e s across t h e s t r e e t from t h e Courthouse.
The Hennepin County Board of ~ommissioners' present r e s p o n s i b i l i t y is t o
provide adequate f a c i l i t i e s f o r those county i n s t i t u t i o a e outside the City HallCourthouse, the Juvenile Center and t h e Home Schools. The County Board, though,
does not exercise any control over t h e administration of any of t h e county i n s t i t u t ions.
Given t h e present s i t u a t i o n , therefore, i t is not a t a l l surprising t h a t
t h e remodeling plan f o r t h e f i f t h f l o o r of t h e j a i l s proceeded a s i t did. I n f a c t ,
t h e S e r i f f ' s o f f i c e is t o be commended f o r seeking t o make improvements i n the j a i l s
within t h e present governmental framework.
Unfortunately, though, implementation of t h e plan began i n 1965 without
many responsible Courthouse o f f i c i a l s even knowing i t was underway. The reason f o r
t h i s lack of communication i s t h a t t h e Municipal Building Commission operates independently. Its only connection with t h e County Board is t h a t t h e chairman of the
County Board serves a s one of its four members. The other members a r e the Hennepin
County Auditor, t h e mayor offMinneapolis and'the City.Treasurer.
The Municipal Building Commission thus approved t h e remodeling plan f o r
t h e j a i l s and proceeded with the f i r s t phase without general knowledge throughout
t h e Courthouse.
An example of t h e l a c k of coaununication which has been present i s t h a t t h e
president of SUA, Inc., which is conducting a study of building space needs f o r
Hennepin County government, s a i d he did n o t know t h a t t h e remodeling of t h e j a i l s
was underway u n t i l he read minutes of t h e Citizens League J a i l s Committee.
The superintendent of t h e Municipal Building Commission has deferred taking
any f u r t h e r a c t i o n on t h e remodeling of t h e j a i l s pending the r e s u l t s of t h e SUA
study. However, a s f a r a s w e can determine t h e Building Commission s t i l l has the
power today t o proceed with t h e remodeling plan a s proposed, even with t h e SUA study
underway.
The remodeling plan was not h a l t e d , though, u n t i l $39,000 was spent ins t a l l i n g high-security, tool-resistant s t e e l c e l l s f o r 14 prisoners i n t h e County
J a i l and a new Control Room was set up, a s e c u r i t y cage was i n s t a l l e d i n f r o n t of
the elevator, new lock mechanisms were i n s t a l l e d i n some a r e a s and t h e cormwnications
network w a s improved. I n t h e City J a i l $13,000 was spent on a new v i s i t i n g area.
Some of these itrrprwemeats may w e l l have been needed f o r t h e interim w e n
with construction of a new building. However, t h e i n s t a l l a t i o n of t h e a d d i t i o n a l
c e l l s i n t h e County J a i l d e f i n i t e l y could have been avoided.
Another problem with planning improvements i n f a c i l i t i e s with t h e present
s t r u c t u r e is t h a t t h e r e a r e important i n t e r r e l a t i o n s h i p s between most of the ins t i t u t i o n s which need t o be taken i n t o consideration when any i n s t i t u t i o n is improved.
The following i n t e r r e l a t i o n s h i p s a r e appropriate examples :
1. Currently, t h e Juvenile Center and t h e Minneapolis C i t y J a i l provide
detention quarters f o r juveniles. A major policy decision needs t o be made a s t o
whether any juveniles a t a l l w i l l b e housed i n a remodeled j a i l on t h e f i f t h f l o o r
of t h e Courthouse o r i n a new j a i l elsewhere. I f n o t , then a d d i t i o n a l f a c i l i t i e s
e b e l i e v e t h a t juveniles should not
need t o be provided a t t h e Juvenile Center. W
be kept a t t h e j a i l but they a l l should be a t t h e Juvenile Center.
2. The question of what i n s t i t u t i o n is t o be responsible f o r work-release
prisoners has not been determined t o date. The superintendent of t h e Minneapolis
Workhouse has asked t h a t the Sheriff provide q u a r t e r s a t t h e County J a i l because of
lack of room a t t h e Workhouse. Without remodeling o r rebuilding t h e Sheriff cannot
provide t h e space needed f o r work-release prisoners. Meanwhile, though, t h e superintendent of t h e Workhouse is proceeding t o develop t e n t a t i v e plans f o r providing
b e t t e r q u a r t e r s a t t h e Workhouse f o r work-release prisoners.
I f t h e same body were responsible f o r both t h e Workhouse and t h e County
J a i l , t h e appropriate policy decisions f o r both i n s t i t u t i o n s could be made and adequate f a c i l i t i e s could be provided a t t h e proper i n s t i t u t i o n .
3. W
e have documented extensively e a r l i e r i n t h i s r e p o r t t h e necessity
t o merge t h e Minneapolis and Hennepin County J a i l s because of the c l o s e i n t e r r e l a tionships between t h e two.
It seems c l e a r t o us t h a t r e s p o n s i b i l i t y f o r planning and administration
of a l l of t h e above i n s t i t u t i o n s properly belongs with t h e chief governing body i n
Hennepin County Govermnent, t h e County Board.
There a r e several other advantages of one unified system of detention and
corrections. As noted i n t h e Citizens League Workhouse r e p o r t l a s t year employees
i n t h e various i n s t i t u t i o n s would have more opportunities f o r advancement and transf e r . This would enhance recruitment p o s s i b i l i t i e s and provide opportunities f o r ins e r v i c e t r a i n i n g on a broader base than now is possible. It would enable t h e h i r i n g
of a top administrative s t a f f , well-trained i n up-to-date p r i n c i p l e s of detention
and corrections, t o guide t h e various i n s t i t u t i o n s i n a co-ordinated manner and
implement these principles.
Without a doubt, t h e Judges of D i s t r i c t Court and of Municipal Court w i l l
always maintain a c l o s e i n t e r e s t i n and concern f o r t h e administration of t h e ins t i t u t i o n s . Currently, Judges of D i s t r i c t Court exercise f u l l administrative control,
through t h e Department of Court Services, wer t h e Juvenile i n s t i t u t i o n s . Judges
do not have any c o n t r o l over administration of t h e a d u l t i n s t i t u t i o n s , t h e J a i l s
and Workhouse.
W e envision t h a t Judges i n a l l likelihood w i l l become less and less involved with d i r e c t administration o f . i n s t i t u t i o n s i n t h e f u t u r e . Y e t they properly
should s t i l l be a b l e t o e x e r c i s e some c o n t r o l over policy, d i r e c t l y o r i n d i r e c t l y .
I t is a t t h i s point t h a t we d e f e r t o t h e o t h e r s t u d i e s now underway, dealing with
the o v e r a l l organization of County Goverment i n t h e f u t u r e , t o determine s p e c i f i c
recommendations on t h e r o l e of t h e Judges.
This is a l s o t h e reason t h a t w e recognize t h e need f o r an i n t e r i m s t e p f o r
j a i l consolidation, s h o r t of t h e establishment of one a d m i n i s t r a t i v e c o n t r o l over
a l l i n s t i t u t i o n s of d e t e n t i o n and corrections. u n t i l t h e p r e c i s e r o l e s of t h e Judges
and t h e Department of Court Services, which i s operated under t h e Judges a t t h e pres e n t , a r e determined, we can see some d i f f i c u l t y i n bringing the J u v e n i l e Center
and t h e Home Schools f o r Boys and G i r l s under the same management with t h e combined
j a i l and Workhouse. Combining t h e j a i l s need n o t wait u n t i l o v e r a l l county reorganization, though it could come a t t h e same t i m e . I f t h e 1967 L e g i s l a t u r e does
not move t o enact such reorganization, w e b e l i e v e the City and County J a i l s s t i l l
should be combined i n 1967 under t h e County Board and t h a t t h e Workhouse be brought
under t h e Board a t t h e same t i m e .
W e f u r t h e r b e l i e v e t h a t j a i l consolidation should precede any f u r t h e r act i o n by t h e Municipal Building Commission i n remodeling, o r a s w e recommend i n s t e a d ,
building a new combined j a i l . Although both t h e City J a i l and t h e County J a i l a r e
i n seriuous need of improvements, t h e s e improvements can b e s t be planned only i f t h e
j a i l s a r e combined. W
e do not see any s e r i o u s consequences i f t h e remodeling p l a n
f o r t h e Hennepin County J a i l is delayed another year o r so. The most s e r i o u s def i c i e n c i e s i n t h e present j a i l were corrected i n t h e p a s t year-improving
t h e locking mechanisms, t h e jail-wide communications system and t h e s e c u r i t y cage around t h e
elevator. A s f a r a s w e have been a b l e t o determine the C i t y J a i l does not have a
d e t a i l e d remodeling plan f o r i t s j a i l a t t h i s time, though t h e County J a i l ' s remodeling p l a n takes i n t o consideration t h e C i t y J a i l ' s q u a r t e r s a s p a r t of consolidation
i n t h e f i n a l s t a g e s of remodeling.
I n terms of building an e n t i r e l y new combined j a i l i n s t e a d of remodeling
we b e l i e v e t h a t Hennepin County not only would be choosing t h e w i s e s t course from
a c o s t standpoint (given t h e high c o s t s of remodeling a s p r e s e n t l y estimated). The
County a l s o would have almost a unique opportunity t o provide as modern a j a i l a s
could be constructed today.
The County need not--and should not--build a n exclusively maximum s e c u r i t y
i n s t i t u t i o n . Tool-resistant s t e e l c e l l s , such a s were i n s t a l l e d i n t h e County J a i l
l a s t year, need make up only a small portion of the e n t i r e j a i l . I n a r e p o r t of
an i n s p e c t i o n of t h e Hennepin County J a i l dated A p r i l 9, 1962, R. W. Meier, then
Warden a t Sandstone Federal Prison, s t a t e d a s follows: "Actually, t h e number of
c l o s e s e c u r i t y c e l l s a r e i n excess of t r u e needs. A u t h o r i t i e s have determined t h a t
generally i n j a i l s throughout t h e country, only about 20 per cent of j a i l p r i s o n e r s
need t o be confined t o c l o s e custody quarters. Any remodeling plans should take t h i s
and o t h e r r e l a t e d f a c t o r s i n t o consideration."
James V. Bennett, Director of t h e Federal Bureau of Prisons s a i d i n 1960
i n a handbook on p r i s o n and j a i l construction cautioned a g a i n s t an unnecessary
amount of expensive steel i n s t a l l a t i o n s .
W e were t o l d by R. D,.Rukes, Federal J a i l Inspector, t h a t concrete cons t r u c t i o n f o r c e l l s runs about l e s s than one-half of t h e c o s t of t o o l - r e s i s t a a t
steel and is adequate f o r most j a i l construction.
There i s a b s o l u t e l y no doubt t h a t maximum s e c u r i t y c e l l s a r e needed i n t h e
j a i l f o r some p r i s o n e r s , but t h e same standards of s e c u r i t y need not b e applied t o
t h e hundreds of t r a f f i c and drinking v i o l a t o r s who pass through t h e j a i l yearly a s
must b e applied t o desperate criminals. A glance a t t h e background s e c t i o n of t h i s
r e p o r t where t h e types of inmates a t t h e County J a i l a r e l i s t e d w i l l i n d i c a t e roughly
how much maximum s e c u r i t y seems t o be needed.
I n building a new s t r u c t u r e , Hennepin County has t h e opportunity t o experiment with new i d e a s i n d e t e n t i o n and c o r r e c t i o n s and need not be bound by cons t r u c t i o n t r a d i t i o n s of t h e p a s t . Federal Prison a u t h o r i t i e s encourage such experimentation.
It is somewhat i r o n i c today t h a t t h e Minneapolis and Hennepin County J a i l s - which serve primarily as d e t e n t i o n i n s t i t u t i o n s f o r persons who have n o t y e t been
found g u i l t y o r been sentenced--are i n f a r g r e a t e r need of improvement than t h e
i n s t i t u t i i n s f o r persons who have been found g u i l t y and sentenced, t h e Workhouse,
S t a t e Prison and S t a t e Reformatory. It does not n e c e s s a r i l y follow t h a t a person
who has not y e t been found g u i l t y and sentenced is e n t i t l e d t o b e t t e r f a c i l i t i e s
than someone who has. But a t t h e very l e a s t t h e f a c i l i t i e s should be a s good.
A new j a i l can be b u i l t with adequate medical f a c i l i t i e s f o r examining
a l l p r i s o n e r s upon admittance. C e l l blocics can be s o constructed t o provide a s much
s e p a r a t i o n of p r i s o n e r s as i s needed, s o t h a t f i r s t offenders never have t o be placed
with r e p e a t e r s , persons awaiting t r i a l can b e separated from persons awaiting sentencing, i f necessary, misdemeanants can be separated from f e l o n s , drunks can be
separated from o t h e r offenders, s e x d e v i a t e s can be separated from o t h e r s , e t c .
Adequate exercise areas--in c o n t r a s t with t h e 42-inch passageway f o r County J a i l
p r i s o n e r s now--can b e provided, including, perhaps, some way f o r p r i s o n e r s t o be
exposed t o t h e outdoors, by means of a courtyard o r o t h e r means. A room f o r chapel
s e r v i c e s and o t h e r a c t i v i t i e s can b e provided. Better e a t i n g a r e a s can b e made
a v a i l a b l e s o t h a t p r i s o n e r s no longer have t o e a t i n t h e i r i n d i v i d u a l c e l l s .
A new j a i l d e f i n i t e l y would n o t include l i v i n g q u a r t e r s f o r t h e chief
j a i l e r , as now is provided f o r t h e chief j a i l e r of t h e Hennepin County J a i l . R e s i dence of t h e chief j a i l e r i n t h e j a i l i t s e l f i s a throwback t o turn-of-the-century
j a i l p r a c t i c e s . Currently i n t h e County J a i l t h e chief j a i l e r ' s w i f e a l s o serves
a s matron; t h e only matron f o r t h e j a i l .
The Federal Bureau of Prisons has offered its o f f i c e s t o b e consulted on
whatever type of j a i l p l a n might be developed. The Bureau maintains a planning
u n i t which keeps t r a c k of up-to-date j a i l construction p r a c t i c e s . The County should
t a k e advantage of t h i s s e r v i c e .