Special Review Results in Brief – CDCR’s Implementation and Compliance With Reforms Governing Restricted Housing Units

Amarik K. Singh OIG OFFICE of the Inspector General INSPECTOR GENERAL Shaun Spillane Chief Deputy Inspector General Results in Brief Independent May 18, 2026 Prison Oversight Special Review: The California Department of Corrections and Rehabilitation’s Implementation and Compliance With Reforms Governing Restricted Housing Units (Audit Report № 25–01, May 2026) Introduction Assaults Against Staff Increased Following Implementation of the New Regulations In this special review, we reviewed both historical California regulations on segregated housing From November 1, 2022, through June 30, 2025, confinement and regulations that became effective on we found that the number of times staff used force November 1, 2023, that implemented the Department increased significantly. Each year of our review period of Corrections and Rehabilitation’s (the department) saw an overall increase in use-of-force incidents restricted housing units. We assessed the department’s within restricted housing units starting with a low compliance with regulations and policies governing of 86 in November 2022, which more than doubled to the placement and retention of incarcerated people 174 by June 2025. in restricted housing, the living conditions within those units, and the effects of these regulations We also analyzed reports of incidents that occurred and policies on violence against staff and the from November 1, 2021, through October 31, 2025, incarcerated population. categorized as involving force and violence at the four prisons we reviewed and found that the total As of June 2025, 29 of California’s 31 prisons have number increased both inside and outside restricted restricted housing units with a total capacity of housing units after the current regulations took effect. just over 7,000 beds. We focused on the restricted housing units at four prisons: California State Prison, The Number of Rules Violations Committed Sacramento (CSP-Sacramento); California State Prison, by Incarcerated People Did Not Decrease Corcoran (Corcoran); Mule Creek State Prison; and Following Implementation of Restricted Central California Women’s Facility. Housing Regulations Results To determine the effect the regulatory reform had on the number and types of rules violations committed, we compared four years of statewide data—two years Despite Significant Revisions to the Restricted predating restricted housing and two years after Housing Term Matrix, the Number of Rules restricted housing was implemented. We found that Violations, Incidents Requiring the Use of Force, the number of rules violations committed increased and Incidents of Violence Have Not Decreased each year even though the offenses that qualified for Our review of departmental data including incident restricted housing decreased by 14 (from 32 offenses to reports, rules violations, and use-of-force incidents 18) and the incarcerated population declined. supports our finding that violence in prisons has increased. However, because the current restricted Total rules violations increased each year from housing regulations had been implemented for only November 1, 2021, through October 31, 2025, for both two years at the time of our review, it is difficult to the 14 offenses removed from the restricted housing determine whether the increase in prison violence we term matrix (term matrix) and the 18 offenses that found will continue. were retained. The total number of violations for offenses removed from the term matrix increased over the four years, from 8,939 to 14,563, which constituted Page 1 of 5 10111 Old Placerville Road, Suite 110, Sacramento, California 95827 5 Telephone: (916) 288-4212 5 www.oig.ca.gov Amarik K. Singh OIG OFFICE of the Inspector General INSPECTOR GENERAL Shaun Spillane Chief Deputy Inspector General Results in Brief Independent May 18, 2026 Prison Oversight an increase of 5,624 violations, or 63 percent. Likewise, week, and 20 hours total of out-of-cell time per week. the violations related to offenses that continued to However, Corcoran’s Enhanced Outpatient Program result in a restricted housing term also increased from (EOP) restricted housing unit and all four of CSP- 6,885 to 12,130 rules violations, or 76 percent. Sacramento’s EOP and Correctional Clinical Case Management System (CCCMS) restricted housing The Elimination of Some Violent Offenses units lacked adequate documentation of compliance From the Restricted Housing Term Matrix Has with out-of-cell time, particularly the 20-hour Likely Contributed to the Increase in Violence weekly requirement. in Prisons The highest noncompliance rate for yard time was Violence against incarcerated people made up 59 percent at Corcoran’s EOP restricted housing 76 percent (11,026 out of 14,563) of the rules violations unit and approximately 61 percent at one of CSP- that were eliminated from the term matrix for the Sacramento’s EOP restricted housing units. The 12-month period ending October 31, 2025. These rules highest noncompliance rate for total out-of-cell time violations were for relatively minor acts against other was 67.5 percent at Corcoran’s same EOP unit and incarcerated people, not against staff. In addition, 91 percent at CSP-Sacramento’s CCCMS unit. although the total number of rules violations for relatively minor violent offenses and nonviolent We reviewed four additional weeks at the offenses, excluding the category of violence against five restricted housing units that had high persons, decreased the first year after implementation noncompliance rates for out-of-cell time. We found of the current regulations, from 3,427 to 3,020, that that noncompliance in these five units at Corcoran and number rose to 3,537 the year after. Therefore, CSP-Sacramento were not anomalies. The two prisons the increase in relatively minor violent offenses did not consistently offer or at least did not document and nonviolent offenses that had been removed out-of-cell time required by regulations and policy. from the matrix may be in part attributed to the Managing restricted housing units at Corcoran and regulatory reform. CSP-Sacramento is particularly challenging because of the higher number of units these prisons operate, Violations for violent offenses including violent and the mental health level of care required in these acts against staff and serious acts of physical and restricted housing units. sexual violence against incarcerated people made up 57 percent (6,929 out of 12,130) of rules violations that Incarcerated People at the EOP and CCCMS remain on the term matrix for the 12-month period Levels of Care Are Not Always Offered ending October 31, 2025. Within this category of the Required Weekly Hours for Structured violence against persons, at least 4,180 out of 6,929 Therapeutic Activity (60 percent) were against nonincarcerated people such as staff, visitors, contractors, or stakeholders. Incarcerated people in restricted housing at the CCCMS level of care must generally be offered at least The Department Did Not Ensure Staff Offered 1.5 therapeutic-activity hours per week; those at the the Minimum Required Out-of-Cell Time to the EOP level of care must be offered at least 10 hours per Restricted Housing Population week that may be counted towards the minimum out- of-cell requirement. We analyzed records of 12 restricted housing units for the week of June 23, 2025, through June 29, 2025, in We reviewed selected mental health records of the four prisons included in our review for compliance 100 incarcerated people placed in 10 EOP and CCCMS with the regulatory weekly requirement of 20 out-of- restricted housing units of the four prisons for the cell hours. We found that Mule Creek State Prison, week of June 23, 2025, through June 29, 2025, and the Central California Women’s Facility, and five out of week of December 1, 2025, through December 7, 2025. six units at Corcoran generally offered their restricted We found that 31 of the 100 incarcerated people populations exercise time of at least 10 hours per whose records we reviewed were not offered the Page 2 of 5 10111 Old Placerville Road, Suite 110, Sacramento, California 95827 5 Telephone: (916) 288-4212 5 www.oig.ca.gov Amarik K. Singh OIG OFFICE of the Inspector General INSPECTOR GENERAL Shaun Spillane Chief Deputy Inspector General Results in Brief Independent May 18, 2026 Prison Oversight minimum weekly therapeutic treatment hours for their In addition, in six of the 65 placements we reviewed, designated EOP or CCCMS level of care. or 9 percent, the administrative review was not completed on the first business day after the Much like the noncompliance with yard time and total incarcerated person was placed in restricted housing, weekly out-of-cell hours, we found that Corcoran’s as required by regulations. In one of these cases, the EOP unit and all four of CSP-Sacramento’s EOP review was delayed for nine business days and three and CCCMS restricted housing units did not always weekends after the incarcerated person was placed in offer the required therapeutic treatment hours to its restricted housing. restricted population. While Mule Creek State Prison and Central California Women’s Facility had some We reviewed the classification committee records deficiencies in the two weeks we reviewed, Corcoran’s to determine whether the department conducted an three CCCMS restricted housing units complied initial classification hearing within 10 days of each of with all required mental health group therapy hours the 65 incarcerated person’s placement in restricted we reviewed. housing. We identified only two cases in which the initial classification hearing occurred more than Restricted Housing Records are Incomplete 10 days after the individuals were first placed in a restricted housing unit; both occurred 16 days after and Inaccurate initial placement. In one case, the committee’s notes We found that the four prisons we reviewed indicated the hearing was delayed because it was not maintained incomplete and inconsistent records on held before the incarcerated person was transferred to restricted housing unit activities, including out-of- another prison for a court proceeding. cell time. We compared group therapy treatment hours recorded by custody staff in the Automated The Department Has Struggled to Achieve Restricted Housing Records (ARHR) system to mental Two Objectives of the Revised Regulations: health records and found inconsistencies in 69 of Reducing the Number of Transfers and Increasing 100 group therapeutic treatment records we reviewed. Participation in Rehabilitation Programming Specifically, custody staff did not document in the ARHR all EOP and CCCMS group therapy sessions The current regulations organize restricted that mental health staff offered. These oversights may housing based on the mental health care needs have contributed to the high rates of noncompliance of the incarcerated population. The department’s with the requirements for out-of-cell time. goals included reducing staff workload by limiting unnecessary transfers between restricted housing units. Of the 65 restricted housing placements we In Some Cases, Administrative Reviews and reviewed, 35 involved transfers to other prisons Classification Committee Hearings for Incarcerated following each incarcerated person’s initial placement. People Placed in Restricted Housing Were Not Twenty-two of the 35 cases involved transfers of Conducted Timely or Documented Consistently individuals requiring mental health treatment—eight We examined 65 cases from November 1, 2023, through at the EOP level of care and 14 at the CCCMS level June 30, 2025, to determine whether incarcerated of care—after their initial placement in restricted people were properly placed and retained in restricted housing. Sixteen, or 73 percent, of the 22 transfers housing. We found that three of the 65 cases lacked occurred only because the regulations required documented evidence that the required administrative transfer to a designated restricted housing prison review had been completed. Furthermore, a fourth based on the individual’s level of care. Of the case did not include information about the official who 16 required transfers, 14 occurred within the required conducted the review, making it difficult to confirm 30-day time frame; however, two transfers did not meet whether the review had been completed by a staff the required timeline. In both cases, the incarcerated member of the rank required by regulations. people had been receiving mental health services at the CCCMS level of care and were placed in general population restricted housing and therefore required Page 3 of 5 10111 Old Placerville Road, Suite 110, Sacramento, California 95827 5 Telephone: (916) 288-4212 5 www.oig.ca.gov Amarik K. Singh OIG OFFICE of the Inspector General INSPECTOR GENERAL Shaun Spillane Chief Deputy Inspector General Results in Brief Independent May 18, 2026 Prison Oversight a transfer to a prison with a CCCMS restricted To determine whether incarcerated people earned housing unit. credits through this system to reduce their terms, we reviewed classification committee records for Even though the department generally met transfer 65 people in restricted housing from November 1, 2023, timelines, we question whether transferring EOP through June 30, 2025. Of these 65 cases, 41 involved and CCCMS patients to restricted housing at individuals with determinate restricted housing terms. different prisons is either necessary or the best use of Only 20 of these cases contained evidence that the departmental resources. The 16 required transfers we incarcerated person participated in rehabilitative reviewed resulted in moves from 14 prisons statewide. programs and earned enough credits to reduce their restricted housing unit term. In 20 other cases, we Restricted Housing Unit Programming Credits did not find any evidence in classification committee and the Shift to Behavior-Based Release records that the incarcerated individuals participated in rehabilitative programs, even though available To meet the goal of reducing the amount of time information indicated they were eligible to participate. incarcerated people spend in restricted housing, the department shifted toward a model that rewards In the final case, records show some participation in the positive behavior. A part of this reform is the programming credit system, but the hours completed restricted housing unit programming credit, a process did not reduce the restricted housing unit term. In this that allows individuals serving set terms in restricted instance, the incarcerated person completed 9.33 hours housing to earn their way back to the general of programming by the hearing date but did not population sooner through a voluntary rehabilitative- receive any credit because the hours did not meet the programming reward system. department’s minimum requirement of 20 hours. Recommendations Despite Significant Revisions to the Restricted The Department Did Not Ensure Staff Offered Housing Term Matrix, the Number of Rules the Minimum Required Out-of-Cell Time to the Violations, Incidents Requiring the Use of Force, Restricted Housing Population and Incidents of Violence Have Not Decreased 1. Departmental and prison-level management 1. The department should determine how the should routinely review the unit report transition to the new restricted housing summaries available to them in the ARHR policy, particularly the removal of specific system and require corrective action when disciplinary categories and the reduction of units do not comply with out-of-cell-time disciplinary terms, has affected the number requirements. of disciplinary incidents and incidents of violence within restricted housing units and 2. Prison management should document among the general population. reasons for not meeting weekly out-of-cell- time requirements and discuss those reasons 2. The department should consider returning with staff to identify learning opportunities drug-related rules violations to the and address future needs. term matrix. Page 4 of 5 10111 Old Placerville Road, Suite 110, Sacramento, California 95827 5 Telephone: (916) 288-4212 5 www.oig.ca.gov Amarik K. Singh OIG OFFICE of the Inspector General INSPECTOR GENERAL Shaun Spillane Chief Deputy Inspector General Results in Brief Independent May 18, 2026 Prison Oversight Recommendations 3. Prison management should ensure that EOP c. The rationale and supporting and CCCMS patients in restricted housing evidence for the decision to retain the are offered the minimum therapeutic services incarcerated person in restricted required by departmental policy. housing or release the incarcerated person from restricted housing. 4. Prison management should document their reviews of weekly ARHR activity to ensure d. The review of every restricted accountability, routine monitoring, and housing placement for continued corrective actions. retention within 10 days of initial placement. 5. Custody and mental health staff should also conduct routine reconciliations of their The Department Has Struggled to Achieve Two records for CCCMS and EOP restricted Objectives of the Revised Regulations: Reducing the housing units to ensure accurate reporting Number of Transfers and Increasing Participation in Rehabilitation Programming and improve monitoring and oversight. In Some Cases, Administrative Reviews and 1. The department should consider designating Classification Committee Hearings for Incarcerated cells for EOP and CCCMS patients in People Placed in Restricted Housing Were Not restricted housing units where they are Conducted Timely or Documented Consistently already housed. 1. The department should ensure an a. If the prison where they are housed administrative review is conducted for every does not have a restricted housing restricted housing placement on the first unit, the department should consider business day following placement and retain placing EOP and CCCMS patients documentation of the review. at the closest prison that has both a restricted housing unit and mental 2. The department should implement enhanced health staff available to provide monitoring controls to verify consistent necessary treatment. and accurate use of the automated restricted housing unit placement notice to document 2. The department should consider changing the following: the programming credit system to allow for prorated credits and explore ways to a. The date and time of the encourage increased participation in the administrative review and rehabilitative programming reward system incarcerated person interview. for early release from restricted housing. b. The name and rank of the administrative reviewer. OIG Page 5 of 5 10111 Old Placerville Road, Suite 110, Sacramento, California 95827 5 Telephone: (916) 288-4212 5 www.oig.ca.gov