Commonwealth Puerto Rico Findings Letter
The Honorable Pedro J. Rossello
Governor
Commonwealth of Puerto Rico
La Fortaleza
San Juan, Puerto Rico 00901
Re: Investigation of Juvenile Facilities in the Commonwealth of Puerto
Rico
Dear Governor Rossello:
I am writing in reference to our ongoing investigation into conditions
within juvenile facilities in Puerto Rico pursuant to the Civil Rights
of Institutionalized Persons Act ("CRIPA"), 42 U.S.C. §1997 et
seq. As you know, we notified your predecessor in December 1992
of unconstitutional conditions in seven Commonwealth facilities -- the
Juvenile Detention Center of San Juan in Hato Rey, the Industrial School
of Mayaguez, the Juvenile Detention Center of Ponce (now a training center
called "LaVictoria"), the Center for Social Treatment of Ponce, the Industrial
School for Boys and Girls in Ponce, the Juvenile Detention Center in Humacao,
and the Central Treatment Center in Guaynabo. We notified then Governor
Hernandez-Colon of fire safety hazards in all of the above-mentioned facilities.
In addition, we notified Governor Hernandez-Colon that in all facilities
except the Central Treatment Center in Guaynabo, unconstitutional conditions
included: lack of adequate medical care and mental health services; the
presence of unsanitary and unsafe conditions throughout the facilities;
the absence of sufficient beds and/or mattresses for juveniles to sleep
on; the lack of proper mechanisms to identify, investigate, and implement
remedial measures, if necessary, regarding abuse of juveniles and sufficient
security measures to control institutional violence among juveniles; and
the absence of constitutionally-required periods of exercise.
In May and June of this year, we re-toured all of the above-named facilities
(except, of course, the facility in Hato Rey, which was closed in April
1994). In May and June, we also toured a detention center that did not
exist when we conducted our earlier tours, the Cabo Rojo Detention Center,
as well as the facility to which the Hato Rey juveniles were transferred,
Centro Juvenil Metropolitano in Bayamon. Consistent with the requirements
of CRIPA, we now write to advise you of our further findings, the facts
supporting our determination of constitutional and legal violations, and
the necessary remedial measures to correct these violations with respect
to the Cabo Rojo Detention Center and additional problems at other facilities
not covered by our previous letter which implicate the constitutional and
legal rights of confined juveniles.
I. LEGAL FRAMEWORK
A. CRIPA
CRIPA gives the Department of Justice standing to bring actions against
facilities such as Commonwealth juvenile facilities over "rights, privileges,
or immunities protected by the Constitution or laws of the
United States ..." CRIPA § 3, 42 U.S.C. § 1997a (emphasis added).
Hence, CRIPA authorizes suit for violation of federal statutes and regulations
as well as for constitutional violations.
B. Juvenile Detainee Constitutional Rights
1. Substantive Due Process Juveniles in custody have a constitutional
right to adequate basic care, medical care, and protection from harm. Youngberg
v. Romeo, 457 U.S. 307 (1982). Courts recognize that there are clear
differences between the rights of juveniles held in custody and the rights
of incarcerated adults. Conditions of confinement for youth in custody
-- who have not been convicted of a crime -- are governed by the Due Process
Clause of the Fourteenth Amendment, and not the less protective Eighth
Amendment. Santana v. Collazo, 714 F.2d 1172, 1179 (1st Cir.
1983), cert. denied, 466 U.S. 974 (1984); see also
Gary H. v. Hegstrom, 831 F.2d 1430, 1432 (9th Cir. 1987);
H.C. by Hewett v. Jarrard, 786 F.2d 1080, 1084-85 (11th Cir.
1986); Milonas v. Williams, 691 F.2d 931, 942 & n.10
(10th Cir. 1982), cert. denied, 460 U.S. 1069 (1983). (1)
2. Equal Protection Incarcerated juveniles do not lose their
rights to equal protection under the law guaranteed by the 14th Amendment
simply by virtue of their incarceration. Any disparity in treatment with
non-incarcerated juveniles -- such as provision of educational services
-- must be rationally related to a legitimate penological interest. Donnell
C. v. Illinois State Board of Education, 829 F. Supp. 1016 (N.D.
Ill. 1993).
C. Juvenile Detainee Federal Statutory Rights
1. IDEA The Individuals with Disabilities Education Act ("IDEA")
(formerly, the Education of the Handicapped Act), 20 U.S.C. § 1400
et seq., was enacted to ensure that children with disabilities
receive a free appropriate public education which "consists of educational
instruction specially designed to meet the unique needs of the handicapped
child, supported by such services as are necessary to permit the child
'to benefit' from the instruction." Board of Education v. Rowley,
458 U.S. 176, 188-89 (1982). The IDEA applies to the provision of educational
services to incarcerated juveniles. Donnell C. v. Illinois State
Board of Education, 829 F. Supp. 1016 (N.D. Ill. 1993); Green
v.
Johnson, 513 F. Supp. 965 (D. Mass. 1981).
2. Rehabilitation Act Section 504 of the Rehabilitation Act of
1973, 29 U.S.C. § 794, prohibits discrimination on the basis of handicap
by any recipient of federal financial assistance. Section 504 applies to
the provision of educational services to incarcerated juveniles. Donnell
C. v. Illinois State Board of Education, 829 F. Supp. 1016 (N.D.
Ill. 1993).
II. FACTUAL SUMMARY
The following factual summary is based upon our inspections in May and
June 1994.
A. Education
1. General Education Except for juveniles confined at La Victoria,
the juveniles in Commonwealth facilities are getting little or no education
at all. The three detention facilities (Humacao, Cabo Rojo, and Ponce Detention
Center for Girls) provide absolutely no education services at all, although
juveniles spend many months in these institutions awaiting placement in
one of the training centers. In the training centers (Bayamon, Mayaguez,
Ponce Industrial, Guaynabo, and Ponce CTS), juveniles attend classes one
or two days a week -- at most -- for a few hours. There is
no reading material or educational material of any kind available in the
living areas, where juveniles spend roughly 22 out of 24 hours a day. The
educational evaluation of the juveniles, if one is ever done, is not available
to facility staff. Students do not have individualized plans. In fact,
educational problems, goals, interventions, and progress are not recorded
in the juveniles' records.
2. Special Education Except for a few residents at La Victoria,
not a single resident was receiving appropriate special education services.
In none of the records reviewed was there any documentation of educational
special needs which are so prevalent in this population. (2)
All of the juveniles reviewed were markedly delayed in their educational
achievement. None of the facilities had developed mechanisms to identify
juveniles in need of special education assistance. Assessments that might
reveal the reasons for truant behavior, such as the presence of Attention
Deficit Hyperactivity Disorder, the presence of a receptive and/or expressive
language disorder, the presence of visual-perceptual skills deficits, or
intellectual limitations, are never done. None of the facilities had developed
individualized education plans for juveniles with disabilities. None of
the facilities had developed individualized curricula designed for youths
with special education needs.
B. Cabo Rojo Detention Center
1. Medical and Mental Health Care The medical and mental health
care provided to juveniles in Cabo Rojo is as deficient as the medical
and mental health care provided at other Commonwealth facilities. Suicidal
and/or self-mutilating youths are harming themselves without staff intervention
or psychiatric treatment. One youth who had attempted suicide by hanging
on a number of occasions while detained in Cabo Rojo was allowed to walk
around the facility with a sheet around his neck. There are no suicide
resistant areas to house these youths and an insufficient number of staff
to supervise them. There are no psychiatrists, psychologists, or counsellors
to provide therapy to juveniles with mental health problems. Psychotropic
medications are not used in accordance with accepted professional practices.
The physician who is supposed to care for the medical needs of the youths
at Cabo Rojo does not visit Cabo Rojo, and there are not sufficient staff
to bring Cabo Rojo youths with medical needs to the physician. The youths
are covered with contagious skin infections.
2. Unsafe and Unsanitary Conditions Juveniles confined in Cabo
Rojo are subjected to unsanitary and unsafe conditions. The center is dangerously
overcrowded. For instance, we found five youths confined in a one person
cell where they spent 23 out of 24 hours sharing three filthy foam mattresses
on the floor. Rats, insects and other vermin crawl over the juveniles in
the night. The youths only get out of their cells to exercise once or twice
a week for short periods of time. Water is not available for large portions
of the day. Living areas are unventilated and very hot.
III. CONSTITUTIONAL AND LEGAL VIOLATIONS
These conditions violate the constitutional and statutory rights of
the juveniles confined in Commonwealth facilities. The Commonwealth's failure
to provide incarcerated juveniles with educational services similar to
the educational services provided to children in the community violates
the incarcerated juveniles' rights under the Equal Protection clause of
the Constitution. Further, the Commonwealth's failure to provide special
educational services to juveniles with educational disabilities violates
rights established by the IDEA and Section 504 of the Rehabilitation Act.
Finally, at Cabo Rojo, the Commonwealth's failure to provide adequate basic,
medical, and mental health care in unsafe and unsanitary conditions violates
the juveniles' due process rights under the Fourteenth Amendment to the
Constitution.
IV. REMEDIAL MEASURES
Remedial measures must be taken to ensure that juveniles confined to
these facilities are not deprived of their constitutional and statutory
rights. These measures must include, at a minimum, the following remedies:
1) The Commonwealth must provide educational services to each resident
in its juvenile facilities, including vocational services that expose students
to a range of different, realistic occupations. Meaningful and specific
educational goals and objectives must be devised and implemented for each
resident. Students must attend several hours of classes five days a week.
Reading and educational materials must be available on the living units.
Under the IDEA and Section 504 of the Rehabilitation Act, the Commonwealth
must identify all youths in need of special education services and then
provide quality, individualized special educational services to all who
need them. Juveniles with educational deficits should not be penalized
or left out of the educational process simply to avoid being labeled as
needing special attention.
2) A medical and mental health care delivery system must be developed
and implemented at Cabo Rojo. The health care system must be able to identify,
treat, and manage the acute, serious and chronic medical and mental health
care needs of juveniles. This system may include the reliance on outpatient
care facilities, inpatient facilities, or both. If outpatient facilities
are to be utilized in a significant manner, the Commonwealth must ensure
that such facilities can meet the medical and mental health care needs
of juveniles identified by Commonwealth officials to be met by such facilities.
In particular, Cabo Rojo must hire adequate numbers of staff to properly
supervise the youths, and then train the staff to recognize and effectively
intervene in suicidal behaviors. Suicide resistant areas must be developed.
3) At Cabo Rojo, dangerous overcrowding must be eliminated. Each juvenile
must have his own bed and mattress. Vermin must be exterminated. Living
areas must be adequately ventilated. Potable drinking water must be available
to the juveniles at all times. The youths must be allowed at least one
hour of outdoor exercise each day.
You may wish to contact the regional offices of the Department of Health
and Human Services and Education as well as the National Institute for
Corrections to ensure that Commonwealth officials have taken full advantage
of any available federal financial assistance which may be available to
assist in the correction of these deficiencies. If we can assist you in
this regard, please contact us.
We appreciate the assistance and cooperation that representatives of
the Commonwealth and the facilities have extended to us during this investigation.
My staff will contact appropriate officials in the near future to discuss
this matter further. In the meantime, should you or your staff have any
questions regarding this matter, please feel free to call Judy Preston,
Senior Trial Attorney, Special Litigation Section, at (202) 514-6258.
Sincerely,
Deval L. Patrick
Assistant Attorney General
Civil Rights Division
cc: Mr. Pedro Pierluisi
Secretary
Justice Department of the Commonwealth of Puerto Rico
Mr. Miguel G. Laffitte
Deputy Attorney General
Justice Department of the Commonwealth of Puerto Rico
Guillermo Gil, Esquire
United States Attorney
Maria Hortensia Rios, Esquire
Assistant U.S. Attorney
Ms. Zoraida Buxo
Secretary
Department of Corrections and Rehabilitation
Mr. Miguel A. Rivera
Director
Juvenile Institutions Administration
Dr. Carmen Feliciano Vda. de Melecio
Secretary
Department of Health
Astrid Oyola de Benitez
Director
Anti-Addiction Services Department
Mr. Victor Fajardo
Secretary
Department of Education
Ms. Carmen Rodriguez
Secretary
Department of Social Services
Mr. Daniel Vazquez Torres
Director
Humacao Detention Center
Mr. Edgard Ortiz Albino
Director
Mayaguez Industrial School and Cabo Rojo Detention Center
Ms. Norma Cruz
Director
Ponce Central Training School
Ms. Francisca Aponte
Director
La Victoria Ponce Training Center
Mr. Francisco Rivera Mayor
Director
Ponce Detention Center and Ponce Industrial School for Boys and Girls
Mr. Julio Cualio Bonet
Director
Guaynabo Training School
Ms. Lydia LaSalle
Acting Director
Central Metropolitan Training School of Bayamon
1. Even under the more restrictive Eighth Amendment,
the constitutionality of conditions of confinement is not assessed on an
item by item basis, rather, courts assess the totality of circumstances
present at an institution to determine whether those conditions as a whole
violate the constitution. SeeTillery v. Owens, 907 F.2d 418,
426-27 (3d Cir. 1990) ("in determining whether conditions of confinement
violate the Eighth Amendment we must look at the totality of conditions
within the institution .... factors to be considered includ[e] food, medical
care, sanitation ... ventilation, bedding, furniture, education and rehabilitation
programs, safety and security and staffing.");
Young v. Quinlan,
960 F.2d 351, 359, n.20 (3d Cir. 1992) (same).
2. The Department of Justice understands from conversations
with its expert consultants that typically 30-40% of juveniles in detention
and/or training centers require some special educational services.
Updated July 25, 2008