HB 25-1146
Fiscal Note
Legislative Council Staff
Nonpartisan Services for Colorado’s Legislature
HB 25-1146: JUVENILE DETENTION BED CAP
Prime Sponsors:
Rep. Bird; Woog
Published for: House Appropriations
Drafting number: LLS 25-0062
Fiscal Analyst:
Aaron Carpenter, 303-866-4918
aaron.carpenter@coleg.gov
Version: First Revised Note
Date: April 14, 2025
Fiscal note status: This fiscal note reflects the introduced bill.
Summary Information
Overview. The bill increases the number of emergency detention beds in the Division of Youth Services
and creates grant program.
Types of impacts. The bill is projected to affect the following areas on an ongoing basis:
State Revenue
State Expenditures
Local Government
Appropriations. For FY 2025-26, the bill requires appropriations totaling $10.8 million to the Department
of Human Services and the Department of Public Safety.
Table 1
State Fiscal Impacts
Type of Impact
1
Budget Year
FY 2025-26
Out Year
FY 2026-27
State Revenue $0 $0
State Expenditures $10,920,527 $10,594,657
Transferred Funds $0 $0
Change in TABOR Refunds $0 $0
Change in State FTE 62.0 FTE 62.0 FTE
1
The fund sources for these impacts are shown in the table below. Page 2
April 14, 2025 HB 25-1146
Table 1A
State Expenditures
Fund Source
Budget Year
FY 2025-26
Out Year
FY 2026-27
General Fund $10,778,449 $10,452,579
Cash Funds $0 $0
Federal Funds $122,279 $122,279
Centrally Appropriated $19,799 $19,799
Total Expenditures $10,920,527 $10,594,657
Total FTE 62.0 FTE 62.0 FTE
Summary of Legislation
Detention Beds and Required Reporting
The bill increases the number of “emergency detention beds” available under the statewide
juvenile detention bed cap from 22 to 39, and allows more flexibility on when the beds may be
used. It requires the Department of Human Services (CDHS) to publish report monthly on the
number of youths in detention and who are awaiting mitigating services. By July 1, 2027, the
Division of Youth Services (DYS) must report on available placements for juveniles awaiting
services and barriers to these placements.
Body-Worn Camera Pilot Program
The bill establishes a pilot program at one detention and one commitment facility, requiring DYS
staff supervising youth to wear body-worn cameras during interactions. After the pilot program
is established, the DYS must establish policies and procedures concerning body-worn cameras.
The pilot program must be implemented from January 1, 2026, to December 31, 2028.
Deflection and Community Investment Grant Program
The bill creates the Deflection and Community Investment Grant Program in the Division of
Criminal Justice in the Colorado Department of Public Safety (CDPS). The program provides
competitive grants for three years to implement a mixed-delivery system of trauma-informed
health and development deflection programs for youth. The bill requires the division to develop
an application process, contract with a third party to provide technical assistance, and support
data collection. The bill outlines eligibility requirements, and requires grant awards to be
distributed by June 30 each year funding is provided for grants, starting in 2026. The bill also
requires the CDPS to contract with a research university to conduct an evaluation. Finally, the bill
requires the General Assembly to annually appropriate necessary funds to the grant program for
FY 2025-26, FY 2026-27, and FY 2027-28 and outlines how the money may be spent. The
program is repealed on January 1, 2031. Page 3
April 14, 2025 HB 25-1146
Juvenile Justice Procedures
Finally, the bill makes procedural changes to the juvenile justice system, including repealing
infrequently used provisions for expanding detention capacity and streamlining case dismissal
for low-level charges when juveniles are found incompetent to proceed.
Background
Division of Youth Services
The DYS in the Department of Human Services (CDHS) provides for the care and supervision of
youths pre-adjudication or after they are committed to custody of the DYC by district courts.
DYS operates 14 secure youth centers serving youth between the ages of 10 to 21. DYS also
administers juvenile parole services.
Emergency Beds
House Bill 23-1307 allowed the DYS to administer 22 temporary emergency beds that did not
count toward the detention cap of 215 beds. District courts are permitted to use these beds
when there are no available beds in the judicial district, catchment area, or within 50 miles of the
full facility.
State Revenue
From FY 2025-26 through FY 2030-31, state revenue to the DPS may increase from gifts, grants,
and donations to support the new grant program. No source for gifts, grants, and donations has
been identified at this time; therefore, it is assumed that any revenue will be minimal. Gifts,
grants, and donations are not subject to the TABOR revenue limit.
State Expenditures
The bill increases state expenditures in the CDHS by $7.6 million in FY 2025-26, and $7.2 million
ongoing, paid from the General Fund and federal funds. The bill will also increase costs for the
Department of Public Safety by $3.4 million per year from FY 2025-26 to FY 2027-28, paid from
the General Fund. Expenditures are summarized in Table 3 and discussed below. The bill may
also impact workload for the Office of the Child’s Representative and the Judicial Department.
Page 4
April 14, 2025 HB 25-1146
Table 2
State Expenditures
All Departments
Department
Budget Year
FY 2025-26
Out Year
FY 2026-27
Department of Human Services $7,567,395 $7,241,525
Department of Public Safety $3,353,132 $3,353,132
Total Costs $10,920,527 $10,594,657
Total FTE 62.0 FTE 62.0 FTE
Department of Human Services
Starting in FY 2025-26, the bill increase costs in the CDHS to hire staff and operate additional
emergency detention placement beds, as well as to initiate the body-worn camera pilot
program, as described below.
Table 2A
State Expenditures
Department of Human Services
Cost Component
Budget Year
FY 2025-26
Out Year
FY 2026-27
Personal Services $4,689,762 $4,689,762
Operating Expenses $78,080 $78,080
Capital Outlay Costs $406,870 $0
Bed Operating Costs $594,667 $594,667
Additional Staff Operating $23,100 $23,100
Third-Party Contractor $500,000 $500,000
Body-Worn Cameras $81,000 $162,000
All Employee Insurance $779,186 $779,186
Supplemental PERA $414,730 $414,730
Total Costs $7,567,395 $7,241,525
Total FTE 61.0 FTE 61.0 FTE
Staff
The DYS requires 61.0 FTE which includes the following officers and medical staff:
39 security officers, including supervisory officers;
15 social workers, including supervisory roles;
5 clinical and nursing staff, including supervisory roles;
1 administrator; and
1 analyst for the reporting requirements. Page 5
April 14, 2025 HB 25-1146
Additional Bed Operating Costs
Starting in FY 2025-26, the bill increases costs associated operating each additional bed. This
includes costs for medical and pharmacy supplies, food, clothing, hygiene, bedding, and laundry.
These costs total $15,500 per bed per year, or about $43 per day. Of these costs, $3,135 per bed
per year are covered by federal funds. In addition, each of the medical staff require electronic
health record licenses.
Employee Insurance and Supplemental Retirement
Pursuant to fiscal note and Joint Budget Committee policy, centrally appropriated costs for bills
involving more than 20 FTE are appropriated in the bill, rather than through the annual budget
process. These costs, which include employee insurance, supplemental employee and retirement
payments for the Department of Human Services, are shown in Table 2A.
Department of Public Safety
Expenditures in the CDPS will increase by $3.3 million per year through FY 2027-28 to administer
the new grant program created by the bill. This includes costs for staff, a third-party technical
assistance contract, a third-party evaluator, and grants, as described below.
Table 2B
State Expenditures
Department of Public Safety
Cost Component
Budget Year
FY 2025-26
Out Year
FY 2026-27
Personal Services $79,314 $79,314
Operating Expenses $1,280 $1,280
Capital Outlay Costs $6,670 $0
Technical Assistance Contract up to 250,000 up to 250,000
Evaluation Contract up to $100,000 up to $100,000
Grants up to $2,896,069 up to $2,902,739
Centrally Appropriated Costs $19,799 $19,799
Total Costs $3,353,132 $3,353,132
Total FTE 1.0 FTE 1.0 FTE
Staff
The CDPS requires 1.0 FTE in FY 2025-26, FY 2026-27, and FY 2027-28 to provide administrative
support to the grant program. This includes work to create and oversee contracts, coordinate
the grant program, create applications and policies, provide financial oversight, and to complete
all close-out requirements for grants. First-year costs assume a September 1 start date. Page 6
April 14, 2025 HB 25-1146
Technical Assistance Contract
Starting in FY 2025-26, the bill increases expenditures by up to $250,000 to contract with a
third-party to provide technical assistance. This amount is based on the maximum allowable
amount the department can use to contract with a third-part outlined in the bill.
Evaluation Contract
Starting in FY 2025-26, the bill increases expenditures by up to $100,000 per year to contract
with a university to conduct an evaluation of the grant program. This amount is based on the
maximum allowable amount the department can use to contract with a third-part outlined in the
bill.
Grants
Expenditures will increase by $2.6 million in FY 2025-26 and FY 2026-27 to provide grants to
grantees. These amounts represent the remainder of funds after accounting for administrative
and contracting costs.
Centrally Appropriated Costs
Pursuant to a Joint Budget Committee policy, certain costs associated with this bill are
addressed through the annual budget process and centrally appropriated in the Long Bill or
supplemental appropriations bills, rather than in this bill. These costs, which may include
employee insurance, supplemental employee retirement payments, indirect cost assessments,
and other costs, are shown in Table 2B.
Office of the Child’s Representative
To the extent that the additional beds require the Office of the Child’s Representative to appoint
more guardians ad litem (GALs) to represent youth placed in detention, costs will increase.
According to current law, a GAL is automatically assigned to a juvenile if they are placed in
detention. The fiscal note assumes any cost adjustments will be addressed through the annual
budget process. For informational purposes, it is estimated each additional detention placement
requires an additional $840 per placement (8 hours of attorney time at $105 per hour).
Judicial Department
While it may lead to slightly longer hearings and increased collaboration among professionals,
the resulting workload impacts for the trial courts in the Judicial Department are expected to be
minimal and absorbable within existing resources.
Page 7
April 14, 2025 HB 25-1146
Local Government
To the extent increasing the number of detention beds places more juveniles in detention than
another placement, costs to county departments of human services will decrease.
Effective Date
The bill takes effect July 1, 2025.
State Appropriations
For FY 2025-26, the bill requires the following appropriations:
$7,567,395 and 61.0 FTE to the Department of Human Services, of which $7,445,116 is from
the General Fund and $122,279 is from federal funds; and
$3,333,333 General Fund to the Department of Public Safety, and 1.0 FTE.
State and Local Government Contacts
Bridges
Child Welfare
Counties
District Attorneys
Human Services
Judicial
Public Safety
The revenue and expenditure impacts in this fiscal note represent changes from current law under the bill for each
fiscal year. For additional information about fiscal notes, please visit the General Assembly website.