This docum ent does not reflect the intent or official position of the bill sponsor or House of Representatives.
STORAGE NAME: h1337c.JDC
DATE: 2/22/2024
HOUSE OF REPRESENTATIVES STAFF ANALYSIS
BILL #: CS/CS/HB 1337 Department of Corrections
SPONSOR(S): Judiciary Committee, Criminal Justice Subcommittee, Stark and others
TIED BILLS: IDEN./SIM. BILLS: CS/SB 1278
REFERENCE ACTION ANALYST STAFF DIRECTOR or
BUDGET/POLICY CHIEF
1) Criminal Justice Subcommittee 17 Y, 0 N, As CS Padgett Hall
2) Judiciary Committee 20 Y, 0 N, As CS Padgett Kramer
SUMMARY ANALYSIS
CS/CS/HB 1337 makes several changes to statutes relating to the Florida Department of Corrections (FDC).
The bill amends s. 944.710, F.S., to revise the term “private correctional facility” to “contractor-operated correctional
facility.” The bill leaves the definition unchanged. As such, the change in terminology has no substantive effect. The
bill makes nonsubstantive changes in statute to conform to the change in terminology
The bill also amends s. 957.04, F.S., to specify that a contract for operating a contractor-operated correctional
facility is not exempt from ch. 287, F.S., including competitive solicitation requirements. Under the bill, the provisions
of ch. 957, F.S., will control if there is a direct conflict between ch. 287, F.S., and ch. 957, F.S. The bill also specifies
that contracts for operating a contractor-operated correctional facility are not considered to be “outsourced” under s.
287.012, F.S., and that the specific outsourcing requirements in s. 287.0571, F.S., are not required under the bill.
The bill also amends ss. 957.07, and 957.12, F.S., to make changes to conform with the provisions of the bill which
specify that FDC may use any competitive solicitation process in ch. 287, F.S., to procure a contract for the
operation of a contractor-operated correctional facility, not just a request for proposal.
The bill amends. 957.07, F.S., to delete references to the obsolete Prison Per-Diem Workgroup that was previously
tasked with determining the inmate per diem that is used in determining the cost of operating a correctional
institution, which is used in the competitive solicitation and legislative appropriations process for contractor-operated
correctional facilities. As such, FDC will continue to provide the per diem calculations required as part of the
competitive solicitation process for contractor-operated correctional facilities.
The bill amends s. 957.15, F.S., to delete the provision in current law that prohibits FDC from having authority over
funds appropriated for the operation, maintenance, and lease-purchase of contractor-operated correctional facilities,
thereby reflecting FDC’s contract monitoring authority of contractor-operated correctional facilities.
The bill amends s. 944.31, F.S., to authorize a law enforcement officer employed by the FDC Office of the Inspector
General to conduct all criminal investigations involving matters over which FDC has jurisdiction at contractor-
operated correctional facilities and authorizes such an officer, for matters over which FDC has jurisdiction, to have
the same arrest authority as provided for law enforcement officers generally in ch. 901, F.S. The bill authorizes an
officer to make arrests consistent with such authority in the following circumstances, including an arrest of:
Any prisoner or visitor to a state correctional institution or a contractor-operated correctional facility for a
violation of the criminal laws of this state involving an offense that occurs on property owned or leased by FDC
or on the property of a contractor-operated correctional facility;
Offenders who have escaped or absconded from custody;
An FDC staff member, including any contract employee, subcontractor, or volunteer, for a violation of the
criminal laws of this state on property owned or leased by FDC;
A staff member, contract employee, subcontractor, or volunteer at any contractor-operated correctional facility
for a violation of the criminal laws of this state that occurs on the property of a contractor-operated correctional
facility; or
Persons against whom arrest warrants have been issued.
The bill does not appear to have a fiscal impact to state or local governments.
The bill provides an effective date of July 1, 2024. STORAGE NAME: h1337c.JDC PAGE: 2
DATE: 2/22/2024
FULL ANALYSIS
I. SUBSTANTIVE ANALYSIS
A. EFFECT OF PROPOSED CHANGES:
Private Correctional Facilities
Background
Private Correctional Facilities
Section 944.105, F.S., authorizes the Florida Department of Corrections (FDC) to enter into contracts
with private vendors
1
to operate and maintain correctional facilities and supervise inmates.
2
Generally,
ch. 957, F.S., provides requirements with which FDC must comply in contracting with private vendors to
operate private correctional facilities, specifies minimum standards for such private vendors, and
establishes certain criteria for the operation of private correctional facilities. Section 944.710(3), F.S.,
defines a “private correctional facility” as any facility, which is not operated by FDC, for the
incarceration of adults or juveniles who have been sentenced by a court and committed to the custody
of FDC.
Methods of Competitive Solicitation
Chapter 287, F.S., generally provides requirements and procedures with which a state agency must
comply when procuring commodities and contractual services. The three types of competitive
solicitation that a state agency may use for procuring a commodity or service greater than $35,000 are
as follows:
Invitation to bid, which is used when an agency is capable of specifically defining the scope of
work for which a contractual service is required or when the agency is capable of establishing
precise specifications defining the actual commodity or group of commodities required.
3
In an
invitation to bid, a contract is awarded to the responsible
4
and responsive vendor
5
who submits
the lowest bid.
6
Request for proposal, which is used when the purposes and uses for which the commodity,
group of commodities, or contractual service being sought can be specifically defined and the
state agency is capable of identifying necessary deliverables.
7
In a request for proposal, the
contract is awarded to the responsible and responsive vendor whose proposal is determined in
writing to be the most advantageous to the state, taking into consideration the price and other
criteria set forth in the request for proposals.
8
Invitation to negotiate, which used by a state agency to determine the best method for achieving
a specific goal or solving a particular problem and which identifies one or more responsive
vendors with which the agency may negotiate in order to receive the best value.
9,
10
In an
invitation to negotiate, a state agency must award a contract to the responsible and responsive
vendor that such agency determines will provide the best value to the state, based on the
selection criteria.
11
1
“Private vendor” means any individual, partnership, corporation, or unincorporated association bound by contract with the department
to construct, lease, or operate a private correctional facility. S. 944.710(5), F.S.
2
Prior to October 1, 2023, the Florida Department of Management Services was responsible for negotiating and overseeing contracts
for private correctional facilities. See Ch. 2023-268, L.O.F.
3
S. 287.057(1)(a), F.S.
4
“Responsible vendor” means a vendor who has the capability in all respects to fully perform the contract requirements and the
integrity and reliability that will assure good faith performance. S. 287.012(25), F.S.
5
“Responsive vendor” means a vendor that has submitted a bid, proposal, or reply that conforms in all material respects to the
solicitation. S. 287.012(27), F.S.
6
S. 287.057(1)(a)4., F.S.
7
S. 287.057(1)(b), F.S.
8
S. 287.057(1)(b)4., F.S.
9
S. 287.057(1)(c), F.S.
10
“Best value” means the highest overall value to the state based on factors that include, but are not limited to, price, quality, design,
and workmanship. S. 287.012(4), F.S.
11
S. 287.057(1)(c)4., F.S. STORAGE NAME: h1337c.JDC PAGE: 3
DATE: 2/22/2024
In addition to the requirements for the competitive solicitation of commodities and contractual services,
there are additional requirements for state procurement if such procurement results in the outsourcing
12
of state services. Prior to proceeding with outsourcing with any service, the business case for any
outsourcing that has an expected cost in excess of $10 million within a single fiscal year must be
evaluated for feasibility, cost-effectiveness and efficiency.
13
Generally, the business case for
outsourcing any service must specify the service for which outsourcing is proposed, the goals of
outsourcing the service, an analysis of the advantages and disadvantages of outsourcing a service, a
cost-benefit analysis for such outsourcing, performance standards, the projected timeframe for key
events in the outsourcing contract, and a contingency plan for contractor nonperformance.
14
FDC is currently limited to using a request for proposal in procuring contracts for the operation of
private correctional facilities.
15
During such a request for proposal, a bidder or potential bidder is
prohibited from contacting an FDC employee or consultant until the time a notification of intent to award
the contract is announced.
16
Inmate Per Diem
FDC is prohibited from entering into a contract with a private vendor to operate a correctional facility
unless the contract will result in cost savings to the state of at least seven percent over a similar state-
operated correctional facility.
17
FDC is responsible for calculating the inmate per diem that is used to
determine cost of operating and maintaining such a state-operated correctional facility.
18
In the
alternative, current law authorizes the Speaker of the House of Representatives and the President of
the Senate to develop consensus per diem rates for legislative use by convening the Prison Per-diem
Workgroup (Workgroup) comprised of appropriations staff from the House of Representatives and the
Senate, as well as staff from the Office of Program Policy Analysis and Government Accountability. The
inmate per diem calculated by the Workgroup is used in the competitive solicitation and legislative
appropriations process for private correctional facilities. According to FDC, this Workgroup has not
existed for over 20 years and all inmate per diem calculations are provided directly by FDC.
19
FDC Authority over Appropriations
Section 957.15, F.S., requires FDC to request legislative appropriations for funds for the operation,
maintenance, and lease-purchase of private correctional facilities as separately identified items in its
budget request. Following such an appropriation from the Legislature, FDC is prohibited from having
any authority over such funds other than to pay a private vendor the appropriate amounts that are
certified for payment by FDC.
20
Effect of Proposed Changes – Private Correctional Facilities
Private Correctional Facilities
12
“Outsource” means the process of contracting with a vendor to provide a service as defined in s. 216.011(1)(g), F.S., in whole or in
part, or an activity as defined in s. 216.011(1)(a), F.S., while a state agency retains the responsibility and accountability for the service
or activity and there is a transfer of management responsibility for the delivery of resources and the performance of those resources. S.
287.012(20), F.S.
13
S. 287.0571(2) and (4), F.S.
14
S. 287.0571(4), F.S.
15
Ss. 957.04, 957.07, 957.12, F.S.
16
S. 957.12, F.S.
17
S. 957.07(1), F.S.
18
Id.
19
Florida Department of Corrections, Agency Analysis of 2024 House Bill 1337, p. 2-3 (Jan. 19, 2024).
20
S. 957.15, F.S. STORAGE NAME: h1337c.JDC PAGE: 4
DATE: 2/22/2024
The bill amends s. 944.710, F.S., to revise the term “private correctional facility” to “contractor-operated
correctional facility.” The bill leaves the definition unchanged. As such, the change in terminology has
no substantive effect. The bill makes nonsubstantive changes to the following sections to conform to
the change in terminology: ss. 330.41, 553.865, 633.218, 775.21, 775.261, 784.078, 800.09, 943.0435,
943.13, 943.325, 944.105, 944.151, 944.17, 944.35, 944.40, 944.605, 944.606, 944.607, 944.608,
944.609, 944.7031, 944.714, 944.715, 944.716, 944.717, 944.718, 944.719, 944.72, 944.801, 944.803,
945.10, 945.215, 945.6041, 946.5025, 946.503, 951.062, 951.063, 957.05, 957.06, 957.08, 957.09,
957.13, 957.14, 960.001, 985.481, and 985.4815, F.S.
Methods of Competitive Solicitation
The bill amends s. 957.04, F.S., to specify that a contract for operating a contractor-operated
correctional facility is not exempt from ch. 287, F.S., including competitive solicitation requirements.
Under the bill, the provisions of ch. 957, F.S., will control if there is a direct conflict between ch. 287,
F.S., and ch. 957, F.S. The bill also specifies that contracts for operating a contractor-operated
correctional facility are not considered to be “outsourced” under s. 287.012, F.S., and that the specific
outsourcing requirements in s. 287.0571, F.S., are not required under the bill.
The bill amends ss. 957.04, 957.07, and 957.12, F.S., to make changes to conform with the provisions
of the bill which specify that FDC may use any competitive solicitation process in ch. 287, F.S., to
procure a contract for the operation of a contractor-operated correctional facility, not just a request for
proposal.
Inmate Per Diem
The bill amends. 957.07, F.S., to delete references to the obsolete Prison Per-Diem Workgroup. As
such, FDC will continue to provide the per diem calculations required as part of the competitive
solicitation process for contractor-operated correctional facilities.
FDC Authority over Appropriations
The bill amends s. 957.15, F.S., to delete the provision in current law that prohibits FDC from having
authority over funds appropriated for the operation, maintenance, and lease-purchase of contractor-
operated correctional facilities, thereby reflecting FDC’s contract monitoring authority of contractor-
operated correctional facilities,.
21
Inspector General
Background
Arrest Powers of a Law Enforcement Officer - Generally
21
See note 16, supra. STORAGE NAME: h1337c.JDC PAGE: 5
DATE: 2/22/2024
A judge may issue a warrant authorizing a person’s arrest for a felony
22
or misdemeanor
23
crime upon
finding probable cause that the person committed a crime in the judge’s jurisdiction.
24
However, the
United States Supreme Court has held that the Fourth Amendment to the United States Constitution
does not forbid warrantless arrest, even for a misdemeanor offense.
25
In Florida, a law enforcement officer may arrest a person without a warrant under certain statutorily
enumerated circumstances, such as when:
An officer reasonably believes a person committed a felony;
There is probable cause to believe a person has committed certain enumerated misdemeanor
offenses, such as a battery, criminal mischief or graffiti, an act of domestic violence, an
injunction violation, or sexual cyberharassment; or
A person commits a misdemeanor in an officer’s presence.
26
Office of the Inspector General
The FDC Office of Inspector General (OIG) is responsible for prison inspection and investigation,
internal affairs investigations, and management reviews.
27
The OIG conducts criminal investigations
that occur on property owned or leased by FDC or that involve matters over which FDC has
jurisdiction.
28
The Secretary of FDC may designate a person employed by the OIG as a law
enforcement officer (OIG law enforcement officer) provided such person meets specified certification
and training requirements.
29
An OIG law enforcement officer has more limited arrest authority than that of other law enforcement
officers, such as a deputy sheriff or municipal police officer. An OIG law enforcement officer has the
authority to arrest, with or without a warrant, any prisoner or visitor to a state correctional institution for
committing any felony that occurs on property owned or leased by FDC, or any FDC staff member or
contract employee for committing any felony under ch. 944, F.S.,
30
or ch. 893, F.S.,
31
that occurs on
property owned or leased by FDC.
32
An OIG law enforcement officer may also arrest any person for
whom an arrest warrant was issued, including an offender who has escaped from custody.
33
Thus, an
OIG law enforcement officer may not arrest any person for committing a misdemeanor, regardless of
whether such person commits the misdemeanor in the officer’s presence, unless a warrant has been
issued for his or her arrest. An OIG law enforcement officer who makes any such arrest must surrender
the arrestee to the sheriff of the county in which the arrest is made “without delay.”
34
In circumstances where an OIG law enforcement officer lacks the authority to make a warrantless
arrest, such as when a prisoner or visitor commits a misdemeanor offense, arrests are made by the law
enforcement agency which has jurisdiction over the FDC facility, such as the sheriff or municipal police
department.
Effect of Proposed Changes – Inspector General
22
The term “felony” means any criminal offense that is punishable under the laws of this state, or that would be punishable if committed
in this state, by death or imprisonment in a state penitentiary. S. 775.08(1), F.S.
23
The term “misdemeanor” means any criminal offense that is punishable under the laws of this state, or that would be punishable if
committed in this state, by a term of imprisonment in a county correctional facility, except an extended term, not in excess of one year.
The term “misdemeanor” does not mean a conviction for any noncriminal traffic violation of any provision of ch. 316, F.S., or any
municipal or county ordinance. S. 775.08(2), F.S.
24
S. 901.02, F.S.
25
Atwater v. City of Lago Vista, 532 U.S. 318 (2001).
26
S. 901.15, F.S.
27
S. 944.31, F.S.
28
Id.
29
Id. To be designated as an OIG law enforcement officer, a person must be certified as law enforcement officer under s. 943.1395,
F.S., and have a minimum of three years’ experience as an inspector in the OIG or three years experience as a law enforcement officer
at another law enforcement agency. Id.
30
For example, s. 944.47, F.S., prohibits a person from introducing contraband into a state correctional institution.
31
Generally, ch. 893, F.S., provides offenses related to controlled substances.
32
S. 944.31, F.S.
33
Id.
34
Id. STORAGE NAME: h1337c.JDC PAGE: 6
DATE: 2/22/2024
The bill amends s. 944.31, F.S., to authorize an OIG law enforcement officer to conduct all criminal
investigations involving matters over which FDC has jurisdiction at contractor-operated correctional
facilities and authorizes such an officer, for matters over which FDC has jurisdiction, to have the same
arrest authority as provided for law enforcement officers generally in ch. 901, F.S. The bill also
authorizes an OIG law enforcement officer to make arrests consistent with such authority in the
following circumstances, including an arrest of:
Any prisoner or visitor to a state correctional institution or a contractor-operated correctional
facility for a violation of the criminal laws of this state involving an offense that occurs on
property owned or leased by FDC or on the property of a contractor-operated correctional
facility;
Offenders who have escaped or absconded from custody;
An FDC staff member, including any contract employee, subcontractor, or volunteer, for a
violation of the criminal laws of this state on property owned or leased by FDC;
A staff member, contract employee, subcontractor, or volunteer at any contractor-operated
correctional facility for a violation of the criminal laws of this state that occurs on the property of
a contractor-operated correctional facility; or
Persons against whom arrest warrants have been issued.
The bill provides an effective date of July 1, 2024.
B. SECTION DIRECTORY:
Section 1: Amends s. 944.31, F.S., relating to inspector general; inspectors; power and duties.
Section 2: Amends s. 944.710, F.S., relating to definition of terms relating to private operation of state
correctional facilities and s. 944.105.
Section 3: Amends s. 957.04, F.S., relating to contract requirements.
Section 4: Amends s. 957.07, F.S., relating to cost-saving requirements.
Section 5: Amends s. 957.12, F.S., relating to prohibition on contact.
Section 6: Amends s. 957.15, F.S., relating to funding of contracts for operation, maintenance, and
lease-purchase of private correctional facilities.
Section 7: Amends s. 330.41, F.S., relating to Unmanned Aircraft Systems Act.
Section 8: Amends s. 553.865, F.S., relating to private spaces.
Section 9: Amends s. 633.218, F.S., relating to inspections of state buildings and premises; tests of
firesafety equipment; building plans to be approved.
Section 10: Amends s. 775.21, F.S., relating to The Florida Sexual Predators Act.
Section 11: Amends s. 775.261, F.S., relating to The Florida Career Offender Registration Act.
Section 12: Amends s. 784.078, F.S., relating to battery of facility employee by throwing, tossing, or
expelling certain fluids or materials.
Section 13: Amends s. 800.09, F.S., relating to lewd or lascivious exhibition in the presence of an
employee.
Section 14: Amends s. 943.0435, F.S., relating to sexual offenders required to register with the
department; penalty.
Section 15: Amends s. 943.13, F.S., relating to officers’ minimum qualifications for employment or
appointment.
Section 16: Amends s. 943.325, F.S., relating to DNA database.
Section 17: Amends s. 944.105, F.S., relating to contractual arrangements with private entities for
operation and maintenance of correctional facilities and supervision of inmates.
Section 18: Amends s. 944.151, F.S., relating to safe operation and security of correctional institutions
and facilities.
Section 19: Amends s. 944.17, F.S., relating to commitments and classification; transfers.
Section 20: Amends s. 944.35, F.S., relating to authorized use of force; malicious battery and sexual
misconduct prohibited; reporting required; penalties.
Section 21: Amends s. 944.40, F.S., relating to escapes; penalty.
Section 22: Amends s. 944.605, F.S., relating to inmate release; notification; identification card.
Section 23: Amends s. 944.606, F.S., relating to sexual offenders; notification upon release.
Section 24: Amends s. 944.607, F.S., relating to notification to Department of Law Enforcement of
information on sexual offenders. STORAGE NAME: h1337c.JDC PAGE: 7
DATE: 2/22/2024
Section 25: Amends s. 944.608, F.S., relating to notification to Department of Law Enforcement of
information on career offenders.
Section 26: Amends s. 944.609, F.S., relating to career offenders; notification upon release.
Section 27: Amends s. 944.7031, F.S., relating to eligible inmates released from private correctional
facilities.
Section 28: Amends s. 944.714, F.S., relating to quality assurance and standards of operation.
Section 29: Amends s. 944.715, F.S., relating to delegation of authority.
Section 30: Amends s. 944.716, F.S., relating to contract termination and control of a correctional
facility by the department.
Section 31: Amends s. 944.717, F.S., relating to conflicts of interest.
Section 32: Amends s. 944.718, F.S., relating to withdrawal of request for proposals.
Section 33: Amends s. 944.719, F.S., relating to adoption of rules, monitoring, and reporting.
Section 34: Amends s. 944.72, F.S., relating to Privately Operated Institutions Inmate Welfare Trust
Fund.
Section 35: Amends s. 944.801, F.S., relating to education for state prisoners.
Section 36: Amends s. 944.803, F.S., relating to faith- and character-based programs.
Section 37: Amends s. 945.10, F.S., relating to confidential information.
Section 38: Amends s. 945.215, F.S., relating to inmate welfare and employee benefit trust funds.
Section 39: Amends s. 945.6041, F.S., relating to inmate medical services.
Section 40: Amends s. 946.5025, F.S., relating to authorization of corporation to enter into contracts.
Section 41: Amends s. 946.503, F.S., relating to definitions to be used with respect to correctional
work programs.
Section 42: Amends s. 951.062, F.S., relating to contractual arrangements for operation and
maintenance of county detention facilities.
Section 43: Amends s. 951.063, F.S., relating to privately operated county correctional facilities.
Section 44: Amends s. 957.05, F.S., relating to requirements for contractors operating private
correctional facilities.
Section 45: Amends s. 957.06, F.S., relating to powers and duties not delegable to contractor.
Section 46: Amends s. 957.08, F.S., relating to capacity requirements.
Section 47: Amends s. 957.09, F.S., relating to applicability of chapter to other provisions of law.
Section 48: Amends s. 957.13, F.S., relating to background checks.
Section 49: Amends s. 957.14, F.S., relating to contract termination and control of a correctional
facility by the department.
Section 50: Amends s. 960.001, F.S., relating to guidelines for fair treatment of victims and witnesses
in the criminal justice and juvenile justice systems.
Section 51: Amends s. 985.481, F.S., relating to sexual offenders adjudicated delinquent; notification
upon release.
Section 52: Amends s. 985.4815, F.S., relating to notification to Department of Law Enforcement of
information on juvenile sexual offenders.
Section 53: Provides an effective date of July 1, 2024.
II. FISCAL ANALYSIS & ECONOMIC IMPACT STATEMENT
A. FISCAL IMPACT ON STATE GOVERNMENT:
1. Revenues:
None.
2. Expenditures:
According to FDC, the bill will not have a fiscal impact to FDC or state government.
35
B. FISCAL IMPACT ON LOCAL GOVERNMENTS:
1. Revenues:
35
Florida Department of Corrections, Agency Analysis of 2024 House Bill 1337, p. 5 (Jan. 19, 2024). STORAGE NAME: h1337c.JDC PAGE: 8
DATE: 2/22/2024
None.
2. Expenditures:
None.
C. DIRECT ECONOMIC IMPACT ON PRIVATE SECTOR:
None.
D. FISCAL COMMENTS:
None.
III. COMMENTS
A. CONSTITUTIONAL ISSUES:
1. Applicability of Municipality/County Mandates Provision:
Not Applicable. This bill does not appear to require counties or municipalities to spend funds or take
action requiring the expenditures of funds; reduce the authority that counties or municipalities have
to raise revenues in the aggregate; or reduce the percentage of state tax shared with counties or
municipalities.
2. Other:
None.
B. RULE-MAKING AUTHORITY:
FDC has sufficient rulemaking authority to implement the provisions of the bill.
C. DRAFTING ISSUES OR OTHER COMMENTS:
None.
IV. AMENDMENTS/COMMITTEE SUBSTITUTE CHANGES
On January 25, 2024, the Criminal Justice Subcommittee adopted an amendment to the bill and reported
the bill favorably as a committee substitute. The amendment made non-substantive technical changes to
clarify a provision in the bill and correct a punctuation error.
On February 21, 2024, the Judiciary Committee adopted a strike-all amendment and reported the bill
favorably as a committee substitute. The amendment differed from CS/HB 1337 in that it:
Changed the term “private correctional facility” to “contractor-operated correctional facility” and
made conforming changes in statute.
Made technical changes to restructure and clarify the provision in the bill relating to the arrest
authority of an OIG law enforcement officer.
This analysis is drafted to the committee substitute as passed by the Judiciary Committee.