**JIM MAl-TOX**  **Attorney General** 

suprrnw courtsulidlwJ P.0.Box1254s 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

es5Bm4ow4y,sun~~I2 Luotack,lx. 7Mo1-2472 208l747-5238

:~. . U00N.TWth.SUtUB wcAltm.lx. 78sol-lam s12m2-4547

..

200MSh Plaza,

Suit*400 &nAntonlo,TX -2727 51?J2254191

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. 

# The Attorney General ofTexas

**Oc:t,ober 18,**  **1985**

Ur. Robert 0. Vitcrma Opinion NO. JM-360 Executive Director , Texas 

### Comieaion onJail Stsodards P. 0. I)or 12985 UC: Detention 

### of pcrsoos in countyjail 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 maybe 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 5115provides 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 fromfeaaleo.

. 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~ whoawt **be r~rtrdnetl**  **from comittiug**  **act8** -of violence againet oILbarparmona.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. muchDenon Shli be ri:lused or teken to a hornpita or uotal hospital. Furthetmre. **for** ouchtemporaryholding

p. 1645Mr. 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 paddedcell]. (Emphseissdded).
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 mesnsthet 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” en4has to be rertreinad from acts of violence sgainst others,, The requirements of article 5115 **are npproprinte**  for dealing 

### vitll insure persons whoare 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 5115d-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.” TheTaxes 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). Thecowi~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 mustprwido for

:. 

### [t]ha .raparate b~~iog of persc+ suopectad of iosa+ity 

### ortio.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 paddadcell. 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 1985by RouseBill 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 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 fromthose parroor chuged 

### tith or 

### convicted of **~a~.crime.** (Raphesis added).
V.T.C.S. lrt.

**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 amminethe 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 POlonger 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 legalNr. **Robert** 0. Viterns - **Pnge** 4 (J&360)

holiday. lo **that** came,the :I~I hour detention period begins l t 9 0.0. 

### onthe 

### firmt

Nccaading bu.1cul.s dny. V.T.C.S. l rt. **5547-26(f).**
The 1983ravimioa 

### oftheMental Eultb Code

### vamuodartakan portly 

### in **rasponaa** 

### to a, fedora1 

### courtruling 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); meaLunav. VanZantF554 P. Suvu. 68
**V. VN**  i%ii plodlog a!

1, held thnt 

### tbe.mtnta amymot ho.pitmlire no iodivi~ n involuotnry civil. cdtment hamring 

### for **more than**  **three** 

### &ym u&e.a 

### aneutrnlfactf:Lnder

### ukam a probnble csuse deteraiontion 

### atAhemringtire the potlent impresent. 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 ubandetention 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 vcbyto 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 Aparson in jail, nor whomust tnkahia to a hompital or raL.amehia 

### atthe Nd 

### of 24hours. 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** 1975enmctment craatad the ComimmiononJail Standard. l nd mmeodad l rticle 5115

### to reduce **the** 

### detenti&to24 **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 1957mad 1983~%av :;B'significaat incruse in concern for the lag81 interests of involuntc.ry mentalpbtients. **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 

### beuotnlly ill.. It nppurs in A coaprmhanmivo coda.dasLgnad 

### toprw1da~icea.m 

### to **humane care**  **and** treataent **for** 

### permonmmuffarlng 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,**  l **rtl&e** 5547-26 **gwanii. the**  aarSency detanticm of 

### parwns vhome amntal ill.namo **reprueota** l mariourn

### thrut.ofhmn to tbeamelves **or others,**  

### and-it

orevails wer 8rticLi 5115

### to **the utmot**  

### ofaw 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 5115ao **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 onJail **Standerda.** Article 5547-26(a), V.T.C.S.. otatea thatl 1 jail or similar detentlou facility shall ‘not be deemed suitable for emergency detention except in au 

### extrew **emergency.** 

### IOUaskvhat 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.dbe **taken** 

### to a mental health facility rather than tojail if 

### at al:1possible. The 1985amendment o 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 manta1haalth fscility is available.
What constitutes an “extrame 

### emergency ” tbat would permit detention of the person la a :jail dependsupon**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 cosaoltmantprovide tomeguidance. 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 complywith standards of dueprocess required by **the** Texae and Federal Couotitution a person maynot 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 

### ofharmto 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“~allouaan 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 nybe 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 harmmaybe demonlrtretedeither by the peraou’a behavior or by widtnca of savere emtional diatrasm anddeteria~ration 

### inhimmental 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 cxkento **“ 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 

### inthir section. (b) The person detained in protective 

### curtody l hall **be** detainr~d in 

### an appropriate in-petient mental health 

### f

ircility

. **If** 

### thereis no appropriate in-patiart mtal health facility available, the perrot shall be detained in 

### a facility deeacdmitabla 

### 'by

thauntal 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 

### kapt l **aparate firom**  **those** peraono **charged** uith or convicted **of** a 

### crima. (c) Zf **thtr** parson is datainad during en emergencyIn a.oonudical facility, **the** county health officer shall **tat that**  **proper care**  

### and madical attentLon **are** madeevailable **to** the pernon

p. 1650?lr. Robert 

### 0.Viterns-Page 1 (JH-360)

held in protective **custody.**

. . . (Pkpharls added). Thue, article 

### 5547-39apraooly providestbat a parson detained in 

### protectivecustodymaybe placed in ajail only in case of an extreme 

### emergency andfor nowre 

### than, the tims period described in subsection &I. **As** uith an "extreme emergency ” 

### under erticle 5547-26,m "extremeemergency

” 

### under554,7-36

dependsupon **the facts**  in escb **case.**


### Pou finally**ask** 

### vhathara. personchargedvithacrimemaybebald in jail vhile a datarmiuatioli **of** his mantel capacity is msdepursuant to article 46.02 or articla M.03 of the Codeof Criminal Procedure.
Article 46.02 of **the** l:oda provides for determining **whether a**  dafendaot is competent to stand trial. **“ A**  defendant Is presumed competentto stand trial and aball be found competentto stand trial unless proved incompetentb7,a preponderance of the evideoca." Code **Crlm.** Proc. **art. 46.02,**  

### 61lb). The Issue **of** 

### competencymay arise before or during the trial outhe merits. Id. 52. Whenthis issue is raised, the court **uy appoi.nt**  experta toxuine the defendant and testify about his competencyto stand trial. Id. 13(a). If **the** court finds **that** there it evidence!to support a fiodiog of incompetency,a 

### 5ury la impaneledto decide ,this question. Id. 14(a). Until thejury finds him incompetent based on a prapooder= of the evidence. **the** 

### defendantlapresumedcompatmtunder section l(b) of article 46.02 of the Code of Criminal Procedure. 

### Sea Grahamv. State, 566 S.W.2d 941 (Tex. Grim. App. 1978); Cross v. 

### -- State. **446** 

### S.W.2d314 (Tex.Grim. App. 1969).
While the 

### questionofdefendant's 

### cowpetancy Is 

### beingdetermined, 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 termaof 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 maybe ordered to submit to a mental examinationunder l ectlon 

### 3(b)of article 

### 46.02of 

### theCodeof CriminalProcedure. If he refuses **to, the**  court mayorder him into custody **for** examination 

### "f,xr a reasonable period not to exceed 21 days." CodeGrim. 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 

### lprweby a prepond&ranceof the evidence. Code Crlm. Proc. art. **46.03;** tee Penal Code **512.04, 8.01.**  **The** defendant mustalso 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. 1651Hr. 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**

### notrslaed **the** 

### inaanity dafenae. The Insanity defense conceras defendant's rwntal status 

### whenhe 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 ofnot guilty by reason of iosanlty). Theprwiaionr for detaining lomaone injail because **he appears**  mentally ill do not become applicable to a criminal defendant on trial merelybecause ha rs:Loedthe 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 onbail 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

### ofCriminal Procedure is decided in the tr:tal 

### on **the** 

### merits.

TOMGRXRN Pirat Assistant **Attorney** General VeryItruly yours

JIU MATTOX **Attorney** General 

### of Texas

DAVIDIt. 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: OPINIOIICOMITTPZ

**Rick** Gilpin, Chairman Colin Carl SusanGarrison Jimlloallingar **Iaocy Sutto8**  **Sarah Uoalk** 

p. 1653