Untitled Texas Attorney General Opinion ( 1985 )

The Attorney General of Texas
JIM MAl-TOX Oc:t,ober 18, 1985
Attorney General
suprrnw court sulidlwJ Ur. Robert 0. Vitcrma Opinion NO. JM-360
P. 0. Box1254s Executive Director ,
Austin.TX. 78711-2542 Texas Comieaion on Jail Stsodards UC: Detention of pcrsoos in
512/47w5o1 P. 0. I)or 12985 county jail under articles 5115
1u.x 91011)1*1s7
1ekwpler SI21475ae8
Austin. Texae 78711 and X47-26, V.T.C.S.
Dear Mr. Viterna:
714Jackam.Sulta700
0811*1,Tx. 752024506
You request an opinion construing aevcrel ltetutee vith respect
ZIu142am44
to vbao a ~lptally Hl person may be detained in the county jail. YOU
first aak whether article 5115. V.T.C.S., conflicta with lrticle
4lt24Albwt4*w.suit*Iw 5547-26, V.T.C.S. Article 5115 provides in part:
Elkso,lx.7wos27w
SIY53344M The ~Cc~missiooers Court shall provide safe
and suitable jails for their respective
1aJ11*rrr,Sul14700 countlea. . . .
Houuon. TX. 77002-5111
712l2295Ba6 . . . .
SUITABLESISGREGATION
es5 Bm4ow4y,sun~~I2
Luotack,lx. 7Mo1-2472
208l747-5238 The ten1 ‘ufe cod suitable jails.' as uwl in
thie Act, 11hel1be constroed to mu jells which
: ~.. provide c.r’deqaate ugreytion facilitiee . 1 .
U00N.TWth.SUtUB 8epar8tS.q; ritoeeum from all ela~sificatiow of
wcAltm.lx. 78sol-lam
s12m2-4547 .. prim&i; :and.ulem from feaaleo. . 1 . '
L: (:.;:~?,~~.
. . . a
200 MSh Plaza,Suit*400
&nAntonlo,TX -2727
S1;e~l~;~~:suapectcd of insenitr. or ubo has
51?J2254191
m k dB&W itmner @hall be houred or
~bold in:~>~ailv except that e&h a person vbo
:~. ~t~al~i.bafc'i&l~t~cllcieo.~a~ who awt be
r~rtrdnetl from comittiug act8 -of violence
againet oILbar parmona. uy be held in a iail for a
period of ,tlme mt to exceed l ~total of tventy-
,.i . four.~24)~llhoura,:,duf~g vhici; period be o&l1 be
kept unde:~'obscrvetioa continuoumly. At the end
of the twenty-four (24) hour period. much Denon
Shli be ri:lused or teken to a hornpita or uotal
hospital. Furthetmre. for ouch temporary holding
p. 1645
. .
Mr. Robert 0. Viteras - Psge i! (J?l-360)
of each person swpected of inssnity. or who has
been legslly sdjl*lged insane, there ehsll be
provided [e padded cell]. (Emphseis sdded).
The last parsgrsph quoted does not relate to the ordinsry county
jell prisoner who hns been mrested for violating s criminnl law. IO
our opinion it mesns thet s jell shall not be used to house persons
solely on the ground that ,theysppeer to be insane or have been
adjudged insana. An axcq~tiw is ude for soy such person who
“deuonstrates hoaicidel teodmcies” en4 has to be rertreinad from acts
of violence sgainst others,, The requirements of article 5115 are
npproprinte for dealing vitll insure persons who are iocercernted for
the purpose of restraining th,smfrom cowittiog acts of violence; they
aeke little aeose vhen sp?:Lied to priroaers lrrested on criminal
cherges. since iocarceretiom asp last no wre thso 24 hours end aust
be follwed by the iodividusl’s release or hospits1ization.
IO our opioioo. the qwted paragraph de~lr vith insane persons
placed io jail to reotraio (them~fraa acta of violeoca and oot with
persons jailed for criainal charges. Only the formar cetegory of
persons are required by art:Lcla 5115 to be held in a padded cell.
LOZNO V. With. 718 P.2d ‘756,..759 o. 6 (5th Cir. 1983) (diets)
(article 5115 d-6 not reqwlte release or transfer of persons held on
cricainal charges who are c:oiocideqtally insane); contrs Wright v.
Wagner, 641 P.2d 239 (5th c:!lr. 1981) (dicta) (article 5115 requires
padded cell for prisoner legally adjudged insane or suspected of
1ns401ty). The standards prescribed in article 5115 “are minImum
stsndsrds only.” The Taxes C&ssion on Jail Stsoderds is smpovered
to establish %inimn stamdards for the construction, equipment,
asiotenaoce, and oparntion of .county jails” and “for the cuntody.
~cara, aod treatment of -pri~ooars.* V.T.C.S. art. 5115.1. )9(s)(l),
(2). The cowi~i+ ho -ratluirad that a jail have one or aore padded
calls “foi.tamporary halding of rialaot persoos or parsuos suspected
of 1nDNity.~ 37 T.A.C. --Wig.66 -:<19gO). The ccnnission has in
addition required aach l htriff to davalop a plan for classifying
imnates, vhicb must prwido for
[t]ha .raparate b~~iog of persc+ suopectad of
iosa+ity or tio.ht~a be&o lagally Cdjudged insane,
:. a@ .p+rsaor-%he . . ; krt be restrained from
comittinJ l.;aCtm roof ViOlSUN againrt other
parsons. .~...
37 T.A.C. :271.2(g) (1’jgO:s. Thus. aoy .violaot prisoner. iosene
primmer,. or prironar .~auspBctod of insanity” .wBt be placed in e
paddad cell.
I.
Article 5547-26; V.T.C.S.. was anactod as psrt of the 1983
revirioo to the Taxas Xaotrl Health Cads. Actr 1983. 68th Leg., ch.
p. 1646
Mr. Robert 0. Viteroe - Page '3 (a-360)
47, at 211. It la awog th#: Haotal Raalth Code prwirioos easoded in
1985 by Rouse Bill No. 1256. Aeta 1985. 69th Lag., ch. 70. nt 281.
Articles 5547-26 through 5547-30, V.T.C.S.. prwide for the
emergency detention of a patron believed to be mentnlly ill. Article
5547-26(a) prwidas ls follolrs:
Aoy peace offic:er. vhe has remon to believe
aod does believe upon the reprasentntion of A
credible persoo, or upeo the basis of the conduct
of a pereoa, or the circumstnocer under uhich the
person is found, l:bmt the person IO uentslly ill
lnd'because of ruclr mot.1 illness represents A
lubstnotial risk I,:[ sarieuo hera to hfmself or
othere uolaes imwdiataly rertrsinad. vhicb hnru
uy be deaooetrctad either by the person’8
behavior or by rvidenca of aavare eaetiooal
distress aod deter:;aratioo in his uental condition
to the extent that the perooo caooot reusio at
liberty, sod who-believes there im not nufficieot
time to obtain a vnrraot. ray, uithaut first
obtnioiog a warrant, take Ncb person into custody
aod imediately woosport the person to the
oaua8t Spproprist~s in-pAtiNt mento health
facility and &al:1 fmuedintely file lpplication
vith the facility Eor the pertwn'~ detention. If
facility shall be kept eaparata from those parroor
chuged tith or convicted of ~a~.crime. (Raphesis
added).
V.T.C.S. lr t.5547-26(n). A '"aaotnl haalth authority" is the ngeocy
desigoatad by the ccmiasiaoer of the Texn~ Departnot of Ueotnl
Eenlth lnd Uaotnl Retardation to direct.oparate, fncilitate and/or
coordinete sarviceo in the vrriour service nraas of the stnte.
Article 5547-26(c),.V.T.C.S ., requires a physicisn to ammine the
person vitbio 24 hour6 of lpprehNrieo. Uoless the physicleo asker,
the nittN ltataaent raqufred by lrticla 5547-27 thnt emergency
detNtioo IO oecassnty, the' person wet be rclensed. A perron
nppreheodad under article 55M’-26 , asy be detnined PO longer than 24
hours nftar ha IO presantad to the facility unless he is takan into
custody after noon eo Friday or 00 a Sbturdsy. Sun&y or legal
Nr. Robert 0. Viterns - Pnge 4 (J&360)
holiday. lo that came, the :I~Ihour detention period begins lt 9 0.0.
on the firmtNccaading bu.1cul.s dny. V.T.C.S. lrt. 5547-26(f).
The 1983 ravimioa of the Mental Eultb Code vam uodartakanportly
in rasponaato a, fedora1 court ruling thmt existing prwioions for
detention in protective custody violntad due proce... Dix, -1983
Revision of ihe Tub. Uentnl- Health Code, 16 St. Mary'. L.J. 41
(1984); mea Luna v. Van ZantF554 P. Suvu. 681 (S.D. Tu. 1982). Lun.
V. VN 1,
i%ii held thnt tbe.mtntaamy mot ho.pitmlire no iodivi~
plodlog a!n involuotnry civil. cdtment hamring for more than three
&ym u&e.a a neutrnlfactf:Lnder ukam a probnble csuse deteraiontion
at A hemring tire the potlent im present.
Article 5547-26, V.T.C.S.. rats out in detnil circmstances thmt
nuthorire the varrantlas. dotantion of a aentally ill or apparently
maotnlly ill person; it 81~ indicntem uban detention in A jail is
permitted. Article 5115 in oontrnst, priaerily establishes require-
aeot. for phymical conditioutr of a county jnil, but it refers in on
lmhiguoumand i~,oapleta vcby to the jailing of 4 mentblly ill or
presuambly aentally ill pawm vho dancmmtrntambaicidal tendencies
nnd aust be restraioad frolr hnraiog others. Article 5115 does not
stnte who la nuthorizad to ~?:Lnce Nch A parson in jail, nor who must
tnka hia to a hompital or raL.ame hia at the Nd of 24 hours. It does
not stbte vhd ehall brraqge for the iodividual's ndmission to A
hoepitnl or untal hospital.
NAN thio prwision wm rddad to article 5115 in 1957. it
permitted a 7-&y detantion,. Acts 1957, 55th Leg.. eh. 277, lt 637.
A 1975 enmctmentcraatad the Comimmion on Jail Standard. lnd mmeodad
lrticle 5115 to reduce the detenti& to 24 hoarm. Actm 1975, 64th
Leg.. ch. 480, at 1278. Article 5115. in our opinion, reflects an
early le8imlativa l ffort~:to dul with the urgency deter&ion of
parmonm&c-had n&t comitttrd a criaa, but vhome mat81 illnams or
appbraot laotal illnasm .utlo thea dan8erNs to others. The period
betveen 1957 mad 1983 ~%av:;B'significaat incruse in concern for the
lag81 interests of involuntc.ry mental pbtients. Dir, m at 43.
Article 555736 :raprasm~tm tlu later nod lore datniled lagisln-
rive lffott 20 prwida for the eaergancy detention of mentally ill
permons or permonm.rumonab1.y balievad~to be uotnlly ill.. It nppurs
in A coaprmhanmivocoda.dasLgnad to prw1da~icea.m to humane care and
treataent for permonm muffarlng from severeaentbl illoems. V.T.C.S.
art. -5547-2. Awq..othar purposu. the code mats out to safegumrd
X!dxr i.vgS’+ aY&ts. - ~3.3.%:ir.~ aft. %t3VZiYz,. is our oplnlon, lrtl&e
5547-26 gwanii. the aarSency detanticm of parwns vhome amntal
ill.namo reprueota l mariournthrut.of hmn to tbeamelves or others,
and-itorevails wer 8rticLi 5115 to the utmot of aw conflict. See
Stnta v: h&y. 404 8.U.2d :!96 (Tax. 1966); Pncific Pkoductm, Inc.7
Grant WesternPlywood. Ltd,!, 528 S.U.2d 286 (Tu. Civ. App. - Fort
p. 1648
?lr. Robert 0. Vitcrna - Page S (Jh-360)
Worth 1975, no vrit); Robsrtmn v. State, 406 S.Y.Zd 90 (fex. Clv.
APP. - Fort Worth 1966,-3,t ref’d n.r.c.). The requirements 10
article 5115 ao to a padded cell and other Jail cmditiono have not
been impliadly repealed, but they are miaLur ltandards which have
baen aupplamted by rule of the Comieaion on Jail Standerda.
Article 5547-26(a), V.T.C.S.. otatea th a t l 1jail or similar
detentlou facility shall ‘not be deemed suitable for emergency
detention except in au extrew emergency. IOU ask vhat constitutes an
“extreme emergency” under this statute.
Article 5547-26 requiruo thst even s person uho “represents a
substantial risk of meriom hara to himself or other6 unless
imediately rxainad” ahou1.d be taken to a mental health facility
rather than to jail if at al:1 possible. The 1985 amendmentto article
5547-26 provides that the pc’rson shall be traarportad to a facility
deeaad suitable by the ment,r:Lhealth authority for the county if no
appropriate in-patient manta1 haalth fscility is available.
What constitutes an “extrame emergency” tbat would permit
detention of the person la a :jail depends upon the facts of each case.
Factors to be considered vou’ld include the tiinance of the risk of
harm, the severity of the harm threatenad. and the availability
of appropriate mental health facilities. * V.T.C.S. art.
5547-27(a) (l)-(4). Cases ,ihich discuss the standard for actual
cosaoltmant provide tome guidance. For -la, in Taylor v. State,
671 S.W.id 535, 538 (Tax. App. - Eouston [lat Dist.] 1983. no urit).
the court held that to comply with standards of due process required
by the Texae and Federal Couotitution a person may not be deprived of
hia liberty by a temporary involuntary comitment unless the ltate
eatabliahes by clear and convincing evidanca that there exists a
aubatantlal threat of harm to himsalf or othara. Moreover, the court
stated tbat the “showing .auat be found[adI upon actual dangerous
behavior manifested by aoae wert act or threat in the recent past.”
Article 5547-26 “~alloua an l.ndividual to ba, placed in jail vithout a
magiatrate’m determination tbat ‘detention is necessary; therefore. the
risk of haa that invokes ltr procedures is graater and more Wdiate
than that required under involuntary comitment procedures. -See
V.T.C.S. arta. 5547~SO. 5541~,S1.
You .aak whether a pe::son tsken into. protective custody under
article 5547-36, V.T.C.S.. q ny be detained in jail. A Motion for an
Order of Protective Custody suy be filed only in the court in which an
Application for Court-Ordsrad Mental Eulth Services lo pending.
V.T.C.S. art. 5547-36(a). The judge may ishue the order if he
detarm.inas ..
p. 1649
ttr. Robert 0. Vitarna - Page 6 (m-360)
(1) that a phyr.ician haa etatad him opinion
and the detaflad basis for his opinion that the
paroon la sentally 01; and
(2) the perron proeanta a lubetaotiel risk of
lerioue haa to hfmself or othera if not
immediately rartrain~ad pending the hearing; ruch
harm may be demonlrtreted either by the peraou’a
behavior or by widtnca of savere emtional
diatrasm and deteria~ration in him mental condition
to the extent that the parson cannot remain at
liberty.
V.T.C.8. art. 5547-36(c). k~ order of protective custody directa that
the mentally ill person be cxken to “an appropriate in-patient mental
bealth facility or other suitable place” and detained pending a
probable cause hearing. V.T.C.S. art. 5547-36(d). Article 5547-39,
V.T.C.8.. prwides for the place and term of dcteation in protective
clmtody:
(a) The head of a facility in vhich a person
is detained pursuant to an Order for Protective
Cuatody or his dedgnae shall detain the perruo
pending an Order ,for Court-Ordered Pfental Easlth
Services issued ‘7nrsuant to Section SO or 51 of
this coda, exceptse provided in thir section.
(b) The person detained in protective curtody
lhall detainr~d in an appropriate in-petient
be
mental health fircility . If there is no appro-
priate in-patiart mtal health facility avail-
able, the perrot shall be detained in a facility
deeacd mitabla 'bytha untal health authority for
extrens Getthe; e&gencias daciarrd to
Subwction (a) of .~Section 38 of this coda.
Persona detained in a aonnedicdl facility ahall be
k a pl aparate firom those peraono charged uith or
t
convicted of a crima.
(c) Zf thtr parson is datainad during en
emergency In a. oonudical facility, the county
health officer shall tat that proper care and
madical attentLon are made evailable to the pernon
p. 1650
?lr. Robert 0. Viterns - Page 1 (JH-360)
held in protective custody. . . . (Pkpharls
added).
Thue, article 5547-39 apraooly provides tbat a parson detained in
protectivecustodymay be placed in a jail only in case of an extreme
emergency and for no wre than, the tims period described in subsection
&I. As uith an "extreme emergency” under erticle 5547-26, m
"extremeemergency” under 554,7-36 dependsupon the facts in escb case.
Pou finallyask vhathar a.person chargedvith a crime may be bald
in jail vhile a datarmiuatioli of his mantel capacity is msde pursuant
to article 46.02 or articla M.03 of the Code of Criminal Procedure.
Article 46.02 of the l:oda provides for determining whether a
dafendaot is competent to stand trial. “A defendant Is presumed
competent to stand trial and aball be found competent to stand trial
unless proved incompetent b7, a preponderance of the evideoca." Code
Crlm. Proc. art. 46.02, 61 lb). The Issue of competencymay arise
before or during the trial ou the merits. Id. 52. When this issue is
raised, the court uy appoi.nt experta toxuine the defendant and
testify about his competency to stand trial. Id. 13(a). If the court
finds that there it evidence! to support a fiodiog of incompetency, a
5ury la impaneled to decide ,this question. Id. 14(a). Until the jury
finds him incompetent based on a prapooder= of the evidence. the
defendantla presumed compatmt under section l(b) of article 46.02 of
the Code of Criminal Procedure. Sea Graham v. State, 566 S.W.2d 941
(Tex. Grim. App. 1978); -- Cross v. State. 446 S.W.2d 314 (Tex. Grim.
App. 1969).
While the question of defendant's cowpetancyIs being determined,
ha remains in custody pursuant to criminal charges. Be has been
detained because of theta charges, not because he appeared to be
mentslly ill. l'be terma of energancy detention and protective custody
prescribed by lrticlao 5115, 5547-26. and 5547-39. V.T.C.S., do not
apply to custody for crimiwl charges.
A criminal defendant free on ball may be ordered to submit to a
mental examination under lectlon 3(b) of article 46.02 of the Code of
Criminal Procedure. If he refuses to, the court may order him into
custody for examination "f,xra reasonable period not to exceed 21
days." Code Grim. Proc. art:. 46.02, 13(b).
Article 46.03 of the Code of Criminal Procedure governs the
Insanity dafenre, an lffiru~t:iva defense which defeodant muat raise in
the trial on the merits and lprwe by a prepond&rance of the evidence.
Code Crlm. Proc. art. 46.03; tee Penal Code 512.04, 8.01. The
defendant must also file notice This intent to raise this defense
before the trial. Code Cria. Proc. art. 46.03. 12. The court ray
order a defendant to sublsit to examination vith respect to the
p. 1651
Hr. Robert 0. Vltarna - Page 8 (m-360)
insanity dafenre. If he is free on ball and refuaas to eubmit to
examination, the court uy ordlar him into custody for axaminatioo "for
a reasonable period not to exceed 21 days." Coda Grim. Prof. art.
46.03, 13(b). Othenrisa, th#c defendant remalas in custody or free on
bail, just as if ha had not rslaed the inaanity dafenae. The Insanity
defense conceras defendant's rwntal status when he cllttad the crime
and doas not necassarily in&ate present mental illnaaa. See Code
Grim. Proc. art. 46.03, !Iri (procedures for determining whether
defendant is mentally ill fo:L:Lou detarainationof not guilty by reason
of iosanlty). The prwiaionr for detaining lomaonein jail because he
appears mentally ill do not become applicable to a criminal defendant
on trial merely because ha rs:Loed the Insanity defense.
The provisions lo article 5115. V.T.C.S., on
holding.an apparer~tly insane person lo jell, have
been fmpliadly rapcaled to the extent of incon-
sintancy by artt::Le 5547-26. V.T.C.S. Article
5547-39. V.T.C.S,, prwider the circumstancaa
under which a person detained in protective
custody pursuant ta article 5547-36, V.T.C.S., may
be held in jail. A defendant in a criminal case
remains a prisoner lo jail or free on bail while
his competency ‘to stand trial is determined
pursuant to artie:le 46.02 of the Coda of Criminal
Procedure or xhile the insanity defense under
article 46.03 of'the Code of Criminal Procedure is
decided in the tr:tal on the merits.
Very I truly yours
JIU MATTOX
Attorney General of Texas
TOMGRXRN
Pirat Assistant Attorney General
DAVID It. BICBASDS
gxacutive Assistant Attoraey General '
.
ROBERTGRAY
Special Asslstsnt Attorney.G~aneral
p. 1652
’ ,
- . nr. Robert 0. Vitarna - Past 9 (Jn-360)
” .
Rx8 GILPIll
Chairman. Opinion Cowittoe
Preparad by Suaan L. Garrison
Araiatant Attornay Ganaral
APPBDVIZD:
OPINIOII COMITTPZ
Rick Gilpin, Chairman
Colin Carl
Susan Garrison
Jim lloallingar
Iaocy Sutto8
Sarah Uoalk
p. 1653