JIM MAl-TOX 

Attorney General 

suprrnw court sulidlwJ 

P. 0. Box 1254s 

Austin. TX. 78711-2542 

512/47w5o1 

1u.x 91011)1*1s7 

1ekwpler SI21475ae8 

714Jackam.Sulta700 

0811*1,Tx. 752024506 

ZIu142am44 

4lt24Albwt4*w.suit*Iw 

Elkso,lx.7wos27w 

SIY53344M 

1aJ11*rrr,Sul14700 

Houuon. TX. 77002-5111 

712l2295Ba6 

es5 Bm4ow4y,sun~~I2 

Luotack,lx. 7Mo1-2472 

208l747-5238 

: ~. . 

U00N.TWth.SUtUB 

wcAltm.lx. 78sol-lam 

s12m2-4547 .. 

200 MSh Plaza, Suit* 400 

&nAntonlo,TX -2727 

51?J2254191 

,.i . 

The Attorney General of Texas 

Oc:t,ober 18, 1985 

Ur. Robert 0. Vitcrma Opinion NO. JM-360 

Executive Director , 

Texas Comieaion on Jail Stsodards 

P. 0. I)or 12985 

UC: Detention of pcrsoos in 

county jail under articles 5115 

Austin. Texae 78711 and X47-26, V.T.C.S. 

Dear Mr. Viterna: 

You request an opinion construing aevcrel l tetutee vith respect 

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 l rticle 

5547-26, V.T.C.S. Article 5115 provides in part: 

The ~Cc~missiooers Court shall provide safe 

and suitable jails for their respective 

countlea. . . . 

. . . . 

SUITABLE SISGREGATION 

The ten1 ‘ufe cod suitable jails.' as uwl in 

thie Act, 11hel1 be constroed to mu jells which 

provide c. r’deqaate ugreytion facilitiee . 1 . 

8epar8tS.q; ritoeeum from all ela~sificatiow of 

prim&i; :and.ulem from feaaleo. . 1 . ' 

L: (:.;:~?,~~. 

. . . a 

S1;e~l~;~~:suapectcd of insenitr. or ubo has 

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 tventyfour.~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 ,they sppeer 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,sm from cowittiog acts of violence; they 

aeke little aeose vhen sp?:Lied to priroaers l rrested 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 l s 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 

l nd'because of ruclr mot.1 illness represents A 

l ubstnotial 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 l pplication 

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. l r t. 5547-26(n). A '"aaotnl haalth authority" is the ngeocy 

desigoatad by the ccmiasiaoer of the Texn~ Departnot of Ueotnl 

Eenlth l nd 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 l pprehNrieo. Uoless the physicleo asker, 

the nittN l tataaent raqufred by l rticla 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~I hour detention period begins l t 9 0.0. 

on the firmt Nccaading bu.1cul.s dny. V.T.C.S. l rt. 5547-26(f). 

The 1983 ravimioa of the Mental Eultb Code vam uodartakan portly 

in rasponaa to a, fedora1 court ruling thmt existing prwioions for 

detention in protective custody violntad due proce... Dix, -1983 

1 (S.D. Tu. 1982). Lun. 

Revision of ihe Tub. Uentnl- Health Code, 16 St. Mary'. L.J. 41 

(1984); mea Luna v. Van ZantF554 P. Suvu. 68 

V. VN i%ii 

plodlog a! 

1, held thnt tbe.mtnta amy mot ho.pitmlire no iodivi~ 

n involuotnry civil. cdtment hamring for more than three 

&ym u&e.a a neutrnlfact f: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 requireaeot. for phymical conditioutr of a county jnil, but it refers in on 

l mhiguoum and i~,oapleta vcby to the jailing of 4 mentblly ill or 

presuambly aentally ill pawm vho dancmmtrntam baicidal 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, l t 637. 

A 1975 enmctment craatad the Comimmion on Jail Standard. l nd mmeodad 

l rticle 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 lagislnrive l ffott 20 prwida for the eaergancy detention of mentally ill 

permons or permonm.rumonab1.y balievad~to be uotnlly ill.. It nppurs 

in A coaprmhanmivo coda.dasLgnad to prw1da~icea.m to humane care and 

treataent for permonm muffarlng from severe aentbl 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, l rtl&e 

5547-26 gwanii. the aarSency detanticm of parwns vhome amntal 

ill.namo reprueota l mariourn thrut.of hmn to tbeamelves or others, 

and-it orevails 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 Western Plywood. 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 l tandards 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 1 jail 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 amendmento article 

5547-26 provides that the pc’rson shall be traarportad to a facility 

deeaad suitable by the ment,r:L health 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 l tate 

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 l ubetaotiel risk of 

l erioue 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, except se provided in thir section. 

(b) The person detained in protective curtody 

l hall be detainr~d in an appropriate in-petient 

mental health f ircility . If there is no appropriate in-patiart mtal health facility available, the perrot shall be detained in a facility 

deeacd mitabla 'by tha 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 t aparate firom those peraono charged uith or 

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 

protective custody may 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 

"extreme emergency” under 554,7-36 depends upon the facts in escb case. 

Pou finally ask vhathar a. person charged vith 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 competency may 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 

defendant la 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 cowpetancy Is 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 l rticlao 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 l ectlon 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,xr a 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 l ffiru~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 detaraination of not guilty by reason 

of iosanlty). The prwiaionr for detaining l omaone in 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 inconsintancy 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. 

TOM GRXRN 

Pirat Assistant Attorney General 

Very I truly yours 

JIU MATTOX 

Attorney General of Texas 

DAVID It. BICBASDS 

gxacutive Assistant Attoraey General ' 

ROBERT GRAY 

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