AB 2478: Incarcerated persons: health records.
- Session Year: 2023-2024
- House: Assembly
- Latest Version Date: 2024-02-13
Current Status:
Failed
(2024-05-16: In committee: Held under submission.)
Introduced
In Committee
First Chamber
In Committee
Second Chamber
Enacted
What does this bill do?
The bill requires jails, county medical facilities, state hospitals, state prisons, and county behavioral health agencies to share a transferred inmate’s mental health records so the receiving facility can continue treatment. It also requires each county to create a secure, standardized system for sharing those records, report to the Legislature on data‑sharing effectiveness and its effects on inmate well‑being, safety, and reoffending, and requires all transmissions to comply with state and federal privacy laws.
The summary is provided by generative AI which can make mistakes. For original language, please view the details in the table below.
Existing law, the Confidentiality of Medical Information Act, prohibits a health care provider, a contractor, or a health care service plan from disclosing medical information, as defined, regarding a patient of the provider or an enrollee or subscriber of the health care service plan without first obtaining an authorization, except as specified. Existing law authorizes, among other things, mental health records to be disclosed by a county correctional facility, county medical facility, state correctional facility, or state hospital, as specified.
Existing law requires, when jurisdiction of an inmate is transferred from or between the Department of Corrections and Rehabilitation, the State Department of State Hospitals, and county agencies caring for inmates, those agencies to disclose, by electronic transmission when possible, mental health records, as defined, regarding each transferred inmate who received mental health services while in custody of the transferring facility, as specified. Existing law requires mental health records to be disclosed to ensure sufficient mental health history is available for the purpose of satisfying specified requirements relating to parole and to ensure the continuity of mental health treatment of an inmate being transferred between those facilities. Existing law requires all transmissions made pursuant to those provisions to comply with specified provisions of state and federal law, including the Confidentiality of Medical Information Act.
This bill would require, when jurisdiction of an inmate is transferred from or between a county correctional facility, a county medical facility, the State Department of State Hospitals, and a county agency caring for inmates, those agencies to disclose, by electronic transmission if possible, mental health records, as defined, regarding each transferred inmate who received mental health services while in custody of the transferring facility, as specified. The bill would require mental health records to be disclosed to ensure sufficient mental health history is available to ensure the continuity of mental health treatment of an inmate being transferred between those facilities.
This bill would require all county behavioral health departments and contractors to establish and maintain a secure and standardized system for sharing inmate mental health records, as specified. The bill would require each county to prepare a report containing information about the effectiveness of the data sharing, the continuity of care measures, and an evaluation on the impact of inmate well-being, safety, and recidivism rates. The bill would require the report to be submitted to the Legislature on or before June 30, 2028. By imposing additional duties on local entities, the bill would impose a state-mandated local program.
This bill would require all transmissions made pursuant to these provisions to comply with specified provisions of state and federal law, including the Confidentiality of Medical Information Act.
The California Constitution requires the state to reimburse local agencies and school districts for certain costs mandated by the state. Statutory provisions establish procedures for making that reimbursement.
This bill would provide that, if the Commission on State Mandates determines that the bill contains costs mandated by the state, reimbursement for those costs shall be made pursuant to the statutory provisions noted above.
(a)A provider of health care, health care service plan, or contractor shall not disclose medical information regarding a patient of the provider of health care or an enrollee or subscriber of a health care service plan without first obtaining an authorization, except as provided in subdivision (b) or (c).
(b)A provider of health care, a health care service plan, or a contractor shall disclose medical information if the disclosure is compelled by any of the following:
(1)A court order.
(2)A board, commission, or administrative agency for purposes of adjudication pursuant to its lawful authority.
(3)A party to a proceeding before a court or administrative agency pursuant to a subpoena, subpoena duces tecum, notice to appear served pursuant to Section 1987 of the Code of Civil Procedure, or any provision authorizing discovery in a proceeding before a court or administrative agency.
(4)A board, commission, or administrative agency pursuant to an investigative subpoena issued under Article 2 (commencing with Section 11180) of Chapter 2 of Part 1 of Division 3 of Title 2 of the Government Code.
(5)An arbitrator or arbitration panel, when arbitration is lawfully requested by either party, pursuant to a subpoena duces tecum issued under Section 1282.6 of the Code of Civil Procedure, or another provision authorizing discovery in a proceeding before an arbitrator or arbitration panel.
(6)A search warrant lawfully issued to a governmental law enforcement agency.
(7)The patient or the patients representative pursuant to Chapter 1 (commencing with Section 123100) of Part 1 of Division 106 of the Health and Safety Code.
(8)A medical examiner, forensic pathologist, or coroner, when requested in the course of an investigation by a medical examiner, forensic pathologist, or coroners office for the purpose of identifying the decedent or locating next of kin, or when investigating deaths that may involve public health concerns, organ or tissue donation, child abuse, elder abuse, suicides, poisonings, accidents, sudden infant deaths, suspicious deaths, unknown deaths, or criminal deaths, or upon notification of, or investigation of, imminent deaths that may involve organ or tissue donation pursuant to Section 7151.15 of the Health and Safety Code, or when otherwise authorized by the decedents representative. Medical information requested by a medical examiner, forensic pathologist, or coroner under this paragraph shall be limited to information regarding the patient who is the decedent and who is the subject of the investigation or who is the prospective donor and shall be disclosed to a medical examiner, forensic pathologist, or coroner without delay upon request. A medical examiner, forensic pathologist, or coroner shall not disclose the information contained in the medical record obtained pursuant to this paragraph to a third party without a court order or authorization pursuant to paragraph (4) of subdivision (c) subparagraph (D) of paragraph (3) of subdivision (b) of Section 56.11.
(9)When otherwise specifically required by law.
(c)A provider of health care or a health care service plan may disclose medical information as follows:
(1)The information may be disclosed to providers of health care, health care service plans, contractors, or other health care professionals or facilities for purposes of diagnosis or treatment of the patient. This includes, in an emergency situation, the communication of patient information by radio transmission or other means between emergency medical personnel at the scene of an emergency, or in an emergency medical transport vehicle, and emergency medical personnel at a health facility licensed pursuant to Chapter 2 (commencing with Section 1250) of Division 2 of the Health and Safety Code.
(2)The information may be disclosed to an insurer, employer, health care service plan, hospital service plan, employee benefit plan, governmental authority, contractor, or other person or entity responsible for paying for health care services rendered to the patient, to the extent necessary to allow responsibility for payment to be determined and payment to be made. If (A) the patient is, by reason of a comatose or other disabling medical condition, unable to consent to the disclosure of medical information and (B) no other arrangements have been made to pay for the health care services being rendered to the patient, the information may be disclosed to a governmental authority to the extent necessary to determine the patients eligibility for, and to obtain, payment under a governmental program for health care services provided to the patient. The information may also be disclosed to another provider of health care or health care service plan as necessary to assist the other provider or health care service plan in obtaining payment for health care services rendered by that provider of health care or health care service plan to the patient.
(3)The information may be disclosed to a person or entity that provides billing, claims management, medical data processing, or other administrative services for providers of health care or health care service plans or for any of the persons or entities specified in paragraph (2). However, that disclosed information shall not be further disclosed by the recipient in a way that would violate this part.
(4)The information may be disclosed to organized committees and agents of professional societies or of medical staffs of licensed hospitals, licensed health care service plans, professional standards review organizations, independent medical review organizations and their selected reviewers, utilization and quality control peer review organizations as established by Congress in Public Law 97-248 in 1982, contractors, or persons or organizations insuring, responsible for, or defending professional liability that a provider may incur, if the committees, agents, health care service plans, organizations, reviewers, contractors, or persons are engaged in reviewing the competence or qualifications of health care professionals or in reviewing health care services with respect to medical necessity, level of care, quality of care, or justification of charges.
(5)The information in the possession of a provider of health care or a health care service plan may be reviewed by a private or public body responsible for licensing or accrediting the provider of health care or a health care service plan. However, no patient-identifying medical information may be removed from the premises except as expressly permitted or required elsewhere by law, nor shall that information be further disclosed by the recipient in a way that would violate this part.
(6)The information may be disclosed to a medical examiner, forensic pathologist, or county coroner in the course of an investigation by a medical examiner, forensic pathologist, or coroners office when requested for all purposes not included in paragraph (8) of subdivision (b). A medical examiner, forensic pathologist, or coroner shall not disclose the information contained in the medical record obtained pursuant to this paragraph to a third party without a court order or authorization pursuant to paragraph (4) of subdivision (c) subparagraph (D) of paragraph (3) of subdivision (b) of Section 56.11.
(7)The information may be disclosed to public agencies, clinical investigators, including investigators conducting epidemiologic studies, health care research organizations, and accredited public or private nonprofit educational or health care institutions for bona fide research purposes. However, no information so disclosed shall be further disclosed by the recipient in a way that would disclose the identity of a patient or violate this part.
(8)A provider of health care or health care service plan that has created medical information as a result of employment-related health care services to an employee conducted at the specific prior written request and expense of the employer may disclose to the employees employer that part of the information that:
(A)Is relevant in a lawsuit, arbitration, grievance, or other claim or challenge to which the employer and the employee are parties and in which the patient has placed in issue the patients medical history, mental or physical condition, or treatment, provided that information may only be used or disclosed in connection with that proceeding.
(B)Describes functional limitations of the patient that may entitle the patient to leave from work for medical reasons or limit the patients fitness to perform the patients present employment, provided that no statement of medical cause is included in the information disclosed.
(9)Unless the provider of health care or a health care service plan is notified in writing of an agreement by the sponsor, insurer, or administrator to the contrary, the information may be disclosed to a sponsor, insurer, or administrator of a group or individual insured or uninsured plan or policy that the patient seeks coverage by or benefits from, if the information was created by the provider of health care or health care service plan as the result of services conducted at the specific prior written request and expense of the sponsor, insurer, or administrator for the purpose of evaluating the application for coverage or benefits.
(10)The information may be disclosed to a health care service plan by providers of health care that contract with the health care service plan and may be transferred between providers of health care that contract with the health care service plan, for the purpose of administering the health care service plan. Medical information shall not otherwise be disclosed by a health care service plan except in accordance with this part.
(11)This part does not prevent the disclosure by a provider of health care or a health care service plan to an insurance institution, agent, or support organization, subject to Article 6.6 (commencing with Section 791) of Chapter 1 of Part 2 of Division 1 of the Insurance Code, of medical information if the insurance institution, agent, or support organization has complied with all of the requirements for obtaining the information pursuant to Article 6.6 (commencing with Section 791) of Chapter 1 of Part 2 of Division 1 of the Insurance Code.
(12)The information relevant to the patients condition, care, and treatment provided may be disclosed to a probate court investigator in the course of an investigation required or authorized in a conservatorship proceeding under the Guardianship-Conservatorship Law as defined in Section 1400 of the Probate Code, or to a probate court investigator, probation officer, or domestic relations investigator engaged in determining the need for an initial guardianship or continuation of an existing guardianship.
(13)The information may be disclosed to an organ procurement organization or a tissue bank processing the tissue of a decedent for transplantation into the body of another person, but only with respect to the donating decedent, for the purpose of aiding the transplant. For the purpose of this paragraph, tissue bank and tissue have the same meanings as defined in Section 1635 of the Health and Safety Code.
(14)The information may be disclosed when the disclosure is otherwise specifically authorized by law, including, but not limited to, the voluntary reporting, either directly or indirectly, to the federal Food and Drug Administration of adverse events related to drug products or medical device problems, or to disclosures made pursuant to subdivisions (b) and (c) of Section 11167 of the Penal Code by a person making a report pursuant to Sections 11165.9 and 11166 of the Penal Code, provided that those disclosures concern a report made by that person.
(15)Basic information, including the patients name, city of residence, age, sex, and general condition, may be disclosed to a state-recognized or federally recognized disaster relief organization for the purpose of responding to disaster welfare inquiries.
(16)The information may be disclosed to a third party for purposes of encoding, encrypting, or otherwise anonymizing data. However, no information so disclosed shall be further disclosed by the recipient in a way that would violate this part, including the unauthorized manipulation of coded or encrypted medical information that reveals individually identifiable medical information.
(17)For purposes of disease management programs and services as defined in Section 1399.901 of the Health and Safety Code, information may be disclosed as follows: (A) to an entity contracting with a health care service plan or the health care service plans contractors to monitor or administer care of enrollees for a covered benefit, if the disease management services and care are authorized by a treating physician, or (B) to a disease management organization, as defined in Section 1399.900 of the Health and Safety Code, that complies fully with the physician authorization requirements of Section 1399.902 of the Health and Safety Code, if the health care service plan or its contractor provides or has provided a description of the disease management services to a treating physician or to the health care service plans or contractors network of physicians. This paragraph does not require physician authorization for the care or treatment of the adherents of a well-recognized church or religious denomination who depend solely upon prayer or spiritual means for healing in the practice of the religion of that church or denomination.
(18)The information may be disclosed, as permitted by state and federal law or regulation, to a local health department for the purpose of preventing or controlling disease, injury, or disability, including, but not limited to, the reporting of disease, injury, vital events, including, but not limited to, birth or death, and the conduct of public health surveillance, public health investigations, and public health interventions, as authorized or required by state or federal law or regulation.
(19)The information may be disclosed, consistent with applicable law and standards of ethical conduct, by a psychotherapist, as defined in Section 1010 of the Evidence Code, if the psychotherapist, in good faith, believes the disclosure is necessary to prevent or lessen a serious and imminent threat to the health or safety of a reasonably foreseeable victim or victims, and the disclosure is made to a person or persons reasonably able to prevent or lessen the threat, including the target of the threat.
(20)The information may be disclosed as described in Section 56.103.
(21)(A)The information may be disclosed to an employee welfare benefit plan, as defined under Section 3(1) of the Employee Retirement Income Security Act of 1974 (29 U.S.C. Sec. 1002(1)), which is formed under Section 302(c)(5) of the Taft-Hartley Act (29 U.S.C. Sec. 186(c)(5)), to the extent that the employee welfare benefit plan provides medical care, and may also be disclosed to an entity contracting with the employee welfare benefit plan for billing, claims management, medical data processing, or other administrative services related to the provision of medical care to persons enrolled in the employee welfare benefit plan for health care coverage, if all of the following conditions are met:
(i)The disclosure is for the purpose of determining eligibility, coordinating benefits, or allowing the employee welfare benefit plan or the contracting entity to advocate on the behalf of a patient or enrollee with a provider, a health care service plan, or a state or federal regulatory agency.
(ii)The request for the information is accompanied by a written authorization for the release of the information submitted in a manner consistent with subdivision (a) and Section 56.11.
(iii)The disclosure is authorized by and made in a manner consistent with the federal Health Insurance Portability and Accountability Act of 1996 (Public Law 104-191).
(iv)Any information disclosed is not further used or disclosed by the recipient in any way that would directly or indirectly violate this part or the restrictions imposed by Part 164 of Title 45 of the Code of Federal Regulations, including the manipulation of the information in any way that might reveal individually identifiable medical information.
(B)For purposes of this paragraph, Section 1374.8 of the Health and Safety Code shall not apply.
(22)Information may be disclosed pursuant to subdivision (a) of Section 15633.5 of the Welfare and Institutions Code by a person required to make a report pursuant to Section 15630 of the Welfare and Institutions Code, provided that the disclosure under subdivision (a) of Section 15633.5 of the Welfare and Institutions Code concerns a report made by that person. Covered entities, as they are defined in Section 160.103 of Title 45 of the Code of Federal Regulations, shall comply with the requirements of the federal Health Insurance Portability and Accountability Act of 1996 (HIPAA) privacy rule pursuant to subsection (c) of Section 164.512 of Title 45 of the Code of Federal Regulations if the disclosure is not for the purpose of public health surveillance, investigation, intervention, or reporting an injury or death.
(23)The information may be disclosed to a school-linked services coordinator pursuant to a written authorization between the health provider and the patient or client that complies with the federal Health Insurance Portability and Accountability Act of 1996.
(24)Mental health records, as defined in subdivision (c) of Section 5073 of the Penal Code, may be disclosed by a county correctional facility, county medical facility, state correctional facility, or state hospital, as required by Section Sections 4034 and 5073 of the Penal Code.
(d)Except to the extent expressly authorized by a patient, enrollee, or subscriber, or as provided by subdivisions (b) and (c), a provider of health care, health care service plan, contractor, or corporation and its subsidiaries and affiliates shall not intentionally share, sell, use for marketing, or otherwise use medical information for a purpose not necessary to provide health care services to the patient.
(e)Except to the extent expressly authorized by a patient or enrollee or subscriber or as provided by subdivisions (b) and (c), a contractor or corporation and its subsidiaries and affiliates shall not further disclose medical information regarding a patient of the provider of health care or an enrollee or subscriber of a health care service plan or insurer or self-insured employer received under this section to a person or entity that is not engaged in providing direct health care services to the patient or the patients provider of health care or health care service plan or insurer or self-insured employer.
(f)For purposes of this section, the following definitions apply:
(1)Medical examiner, forensic pathologist, or coroner means a coroner or deputy coroner, as described in subdivision (c) of Section 830.35 of the Penal Code, or a licensed physician who currently performs official autopsies on behalf of a county coroners office or a medical examiners office, whether as a government employee or under contract to that office.
(2)School-linked services coordinator means an individual located on a school campus or under contract by a county behavioral health provider agency for the treatment and health care operations and referrals of students and their families that holds any of the following:
(A)A services credential with a specialization in pupil personnel services, as described in Section 44266 of the Education Code.
(B)A services credential with a specialization in health authorizing service as a school nurse, as described in Section 44877 of the Education Code.
(C)A license to engage in the practice of marriage and family therapy issued pursuant to Chapter 13 (commencing with Section 4980) of Division 2 of the Business and Professions Code.
(D)A license to engage in the practice of educational psychology issued pursuant to Chapter 13.5 (commencing with Section 4989.10) of Division 2 of the Business and Professions Code.
(E)A license to engage in the practice of professional clinical counseling issued pursuant to Chapter 16 (commencing with Section 4999.10) of Division 2 of the Business and Professions Code.
SEC. 2.Section 4034 is added to the Penal Code, to read:4034.(a)(1)If jurisdiction of an inmate is transferred from or between a county correctional facility, a county medical facility, the State Department of State Hospitals, and a county agency caring for inmates, these entities shall disclose, by electronic transmission if possible, mental health records for the transferred inmate who received mental health services while in the custody of the transferring facility.
(2)(A)Except as provided in subparagraph (B), the mental health records shall be disclosed at the time of transfer or within seven days of the transfer of custody.
(B)When a person is transferred to a state hospital, the records shall be provided prior to, or at the time of, transfer.
(b)Mental health records shall be disclosed by and between a county correctional facility, county medical facility, state correctional facility, state hospital, or state-assigned mental health provider to ensure sufficient mental health history is available to ensure the continuity of mental health treatment of an inmate being transferred between those facilities.
(c)(1)To comply with the requirements of this section, all county behavioral health departments and contractors shall establish and maintain a secure and standardized system for sharing an inmates mental health records. This system shall ensure both of the following:
(A)All mental health records and information is kept confidential in a manner that complies with all privacy laws.
(B)All mental health records are guarded against unauthorized access.
(2)The standardized system shall have clear protocols and procedures for sharing records that include the secure transmission of records.
(d)(1)Each county shall prepare a report that contains all of the following:
(A)The effectiveness of the data sharing.
(B)The continuity of care measures.
(C)An evaluation of the impact on inmate well-being, safety, and recidivism rates of inmates who move between behavioral health systems and the criminal justice system.
(2)(A)On or before June 30, 2028, each county shall submit the report to the Legislature.
(B)The reports submitted pursuant to subparagraph (A) shall be submitted in accordance with Section 9795 of the Government Code.
(e)For the purpose of this section, mental health records has the same meaning as defined in subdivision (c) of Section 5073.
(f)All transmissions made pursuant to this section shall comply with the Confidentiality of Medical Information Act (Part 2.6 (commencing with Section 56) of Division 1 of the Civil Code), Chapter 1 (commencing with Section 123100) of Part 1 of Division 106 of the Health and Safety Code, the Information Practices Act of 1977 Chapter 1 (commencing with Section 1798) of Title 1.8 of Part 4 of Division 3 of the Civil Code, the federal Health Insurance Portability and Accountability Act of 1996 (HIPAA) (Public Law 104-191), the federal Health Information Technology for Economic and Clinical Health Act (HITECH) (Public Law 111-005), and the corresponding implementing regulations relating to privacy and security in Parts 160 and 164 of Title 45 of the Code of Federal Regulations.
SEC. 3.If the Commission on State Mandates determines that this act contains costs mandated by the state, reimbursement to local agencies and school districts for those costs shall be made pursuant to Part 7 (commencing with Section 17500) of Division 4 of Title 2 of the Government Code.
|
Date
|
Status
|
|---|---|
| May 16, 2024 | In committee: Held under submission. |
| May 8, 2024 | In committee: Set, first hearing. Referred to APPR. suspense file. |
| Apr 17, 2024 | From committee: Do pass and re-refer to Com. on APPR. with recommendation: To Consent Calendar. (Ayes 8. Noes 0.) (April 16). Re-referred to Com. on APPR. |
| Mar 18, 2024 | Referred to Com. on PUB. S. |
| Feb 14, 2024 | From printer. May be heard in committee March 15. |
| Feb 13, 2024 | Read first time. To print. |
|
Date
|
Description
|
Location
|
Votes
|
|
|---|---|---|---|---|
| Apr 16, 2024 | Do pass and be re-referred to the Committee on [Appropriations] with recommendation: To Consent Calendar | Assembly Standing Committee on Public Safety |
Passed |
This list shows positions taken on this bill by organizations on the date displayed, which is linked to the original source.
Positions by individuals are not included.
|
Organization
|
Position
|
Date
|
|---|---|---|
| California Association Of Psychiatric Technicians | ** Support | |
| California State Sheriffs Association | ** Support | |
| San Bernardino County SheriffS Department | ** Support | |
| Steinberg Institute | ** Support |
Date of Hearing: May 8, 2024
ASSEMBLY COMMITTEE ON APPROPRIATIONS
Buffy Wicks, Chair
ABPCA Bill Id:AB 2478
Author:(Ramos) – As Introduced Ver:February 13, 2024
Policy Committee: | Public Safety | Vote: | 8 - 0 |
|
| ||
|
|
Urgency: No State Mandated Local Program: Yes Reimbursable: Yes
SUMMARY:
This bill requires the transfer of mental health records when an incarcerated person is transferred from or between specified facilities and agencies, and requires county behavioral health departments to establish a secure and standardized system for sharing such mental health records.
FISCAL EFFECT:
Likely reimbursable costs (local funds, General Fund) to county behavioral health departments (departments). Departments will incur one-time costs to establish the required record transfer systems, possibly in the tens of millions of dollars. Departments will incur lower but significant ongoing costs, possibly in the high hundreds of thousands to low millions of dollars annually, to use and maintain the record transfer system and complete the required report to the state. Advocates for the county behavioral health departments estimate minimum one-time costs around $9 million to establish a compliant record transfer system, with annual costs around $2 million ongoing. Costs statewide may be higher depending on the costs incurred by county detention facilities and other affected entities to ensure their systems work with the county behavioral health departments’ system. General Fund costs will depend on whether the duties imposed by this bill constitute a reimbursable state mandate, as determined by the Commission on State Mandates.
According to the Legislative Analyst’s Office, the General Fund faces a structural deficit in the tens of billions of dollars over the next several fiscal years.
COMMENTS:
- Purpose. According to the author:
Protecting and supporting those suffering from mental health is a big part of rehabilitation within our correctional system. That is why it’s important that our agencies have a system in place where information regarding an incarcerated person’s medical history, like there [sic] mental health, is easily shared amongst each other. Any disruptions to that care or miscommunication between agencies can have serious consequences, not just for the individuals suffering from mental health, but for those responsible for their care as well. AB 2478 will ensure that law enforcement has all the health information about an individual in one place so that they can make sure that the person in their custody is safe and continues to receive the same level of care, no matter where they’re being transferred.
- Background. In 2022, the Governor signed AB 2526 (Cooper), Chapter 968, Statutes of 2022, which requires the transfer of mental health records when an incarcerated person is transferred from or between the California Department of Corrections and Rehabilitation (CDCR), the Department of State Hospitals (DSH), county correctional facilities, and specified county agencies. This bill appears to re-codify these same record transfer provisions, though the bill excludes CDCR. Additionally, this bill requires all county behavioral health departments and contractors to establish a secure and standardized system for sharing an incarcerate person’s mental health records. Finally, the bill requires each county to submit a report to the Legislature about the effectiveness of this data sharing, continuity of care measures, and an evaluation of the impact on the well-being, safety, and recidivism rates of incarcerated people who move between behavioral health systems and the criminal justice system.
Analysis Prepared by: Annika Carlson / APPR. / (916) 319-2081
Date of Hearing:
Counsel: Shaun Naidu
ASSEMBLY COMMITTEE ON PUBLIC SAFETY
Kevin McCarty, Chair
ABPCA Bill Id:AB 2478
Author:(Ramos) – As Introduced Ver:February 13, 2024
SUMMARY:
Requires the disclosure of mental health records for an incarcerated person who is transferred by and between a county correctional facility, a county medical facility, the Department of State Hospitals (DSH), and a county agency caring for an incarcerated person, as specified. Specifically, this bill:
- Requires, if jurisdiction of an incarcerated person is transferred from or between a county correctional facility, a county medical facility, DSH, and a county agency caring for incarcerated people, these entities to disclose mental health records for the transferred person who received mental health services while in the custody of the transferring facility.
- Requires the mental health records to be disclosed at the time of transfer or within seven days of the transfer of custody, except that the records must be provided prior to, or at the time of transfer, when the person is transferred to a state hospital. Encourages electronic transmission of the records if possible.
- Requires all county behavioral health departments and contractors to establish and maintain a secure and standardized system for sharing mental health records of an incarcerated person. Specifically, the system must ensure that all mental health records and information is kept confidential in a manner that complies with all privacy laws and that the records are guarded against unauthorized access. Requires the standardized system to have clear protocols and procedures for sharing records that include the secure transmission of records.
- Requires each county to report to the Legislature, as specified, on or before June 30, 2028, on all of the following:
- The effectiveness of the data sharing.
- The continuity of care measures.
- An evaluation of the impact on the incarcerated population’s wellbeing, safety, and recidivism rates of incarcerated people who move between behavioral health systems and the criminal justice system.
- Requires all transmissions of mental health records of an incarcerated person by and between state and local correctional and medical facilities comply with the Confidentiality of Medical Information Act (CMIA), the Information Practices Act of 1977, the federal Health Insurance Portability and Accountability Act of 1996 (“HIPAA”), the federal Health Information Technology for Economic and Clinical Health Act (“HITECH”), and the corresponding implementing regulations relating to privacy and security in federal regulations, as specified.
EXISTING LAW:
- Requires, when jurisdiction of an incarcerated person is transferred from or between the Department of Corrections and Rehabilitation (CDCR), DSH, and county agencies caring for incarcerated people to disclose, by electronic transmission when possible, mental health records for any transferred incarcerated people who received mental health services while in the custody of the transferring facility. (Pen. Code, § 5073, subd. (a).)
- Requires mental health records to be disclosed at the time of transfer or within seven days of the transfer of custody, except that the records must be provided prior to, or at the time of transfer, when the person is transferred to a state hospital. (Pen. Code, § 5073, subd. (a).)
- Requires mental health records to be disclosed by the entities listed in 1) above to ensure sufficient mental health history is available for the purpose of evaluating the incarcerated person for a commitment as an offender with a mental health disorder (OMHD) and to ensure the continuity of mental health treatment of an incarcerated person being transferred between those facilities. (Pen. Code, § 5073, subd. (b).)
- Defines “mental health records” to include, but is not limited to, the following:
- Clinician assessments, contact notes, and progress notes.
- Date of mental health treatment and services.
- Incident reports.
- List of an incarcerated person’s medical conditions and medications.
- Psychiatrist assessments, contact notes, and progress notes.
- Suicide watch, mental health crisis, or alternative housing placement records. (Pen. Code, § 5073, subd. (c).)
- Requires all transmissions of mental health records of an incarcerated person by and between state and local correctional and medical facilities comply with CMIA, the Information Practices Act of 1977, HIPAA, HITECH, and the corresponding implementing regulations relating to privacy and security in federal regulations, as specified. (Pen. Code, § 5073, subd. (d).)
FISCAL EFFECT:
Unknown
COMMENTS:
- Author's Statement: According to the author, "Protecting and supporting those suffering from mental health is a big part of rehabilitation within our correctional system. That is why it’s important that our agencies have a system in place where information regarding an incarcerated person’s medical history, like there[sic] mental health, is easily shared amongst each other. Any disruptions to that care or miscommunication between agencies can have serious consequences, not just for the individuals suffering from mental health, but for those responsible for their care as well. AB 2478 will ensure that law enforcement has all the health information about an individual in one place so that they can make sure that the person in their custody is safe and continues to receive the same level of care, no matter where they’re being transferred.”
- Need for the Bill: This bill seeks to mandate the transfer of mental health records for an incarcerated person who obtained mental health services by and between county correctional and medical facilities and DSH within seven days of the persons transfer (or no later than when the person is transferred when transferred to a state hospital). In 2022, the Legislature passed and the governor signed AB 2526, which required the transfer of these same records by and between these same agencies—with the addition of CDCR—within the same timeframe outlined in this measure. (Pen. Code, § 5073.) Consequently, the need to recodify this requirement in a new Penal Code section appears questionable.
In addition to the transfer of mental health records, however, AB 2526 also would impose a novel requirement on county agencies. Specifically, this bill would require each county to report to the Legislature by June 30, 2028, on the effectiveness of the data sharing, the continuity of care measures, and an evaluation of the impact on the well being, safety, and recidivism rates of incarcerated individuals who move between behavioral health and criminal justice systems.
- Offender with Mental Health Disorder Evaluation: As stated in the analysis of AB 2526 by this committee, the OMHD Law requires mental health evaluations of certain persons by CDCR psychologists prior to release on parole to aid in determining if they should be released into the community or need additional treatment from DSH. The OMHD Law is designed to confine an incarcerated person with a mental illness who is about to be released on parole when it is deemed that they have a mental illness which contributed to the commission of a violent crime. (Pen. Code, § 2960.) Rather than release the person to the community, CDCR paroles the person to the supervision of a state hospital, and the individual remains under hospital supervision throughout the parole period. The OMHD Law addresses treatment in three contexts: first, as a condition of parole (Pen. Code, § 2962); then, as continued treatment for one year upon termination of parole (Pen. Code § 2970); and, finally, as an additional year of treatment after expiration of the original, or previous, one-year commitment (Pen. Code § 2972). (People v. Cobb (2010) 48 Cal.4th 243, 251.)
With respect to evaluations for OMHD commitments, existing law requires a practicing psychiatrist or psychologist from DSH, CDCR, or the Board of Parole Hearings be afforded prompt and unimpeded access to the person and their records for the period of confinement at that facility upon submission of current and valid proof of state employment and a departmental letter or memorandum arranging the appointment. (Pen. Code, § 2962.)
The Confidentiality of Medical Information Act generally prohibits the sharing of a patient’s medical information but allows health care providers, service plans, contractors, or other health care professionals or facilities to disclose medical information for purposes of diagnosis or treatment. (Civ. Code, § 56.10) Additionally, existing law requires CDCR to transmit electronically to a county agency, if the information is available, an incarcerated person’s, specific medical, mental health, and outpatient clinic needs and any medical concerns or disabilities for the county to consider as the person transitions onto post-release community supervision for the purpose of identifying the medical and mental health needs of the individual. (Pen. Code, § 3003, subd. (e)(2)-(5).)
Thus, under the OMHD Law, CMIA, and AB 2526 the state and local agencies specified in this bill currently have the authority to disclose an incarcerated person’s mental health information to each other.
- Argument in Support: According to the San Bernardino County Sheriff’s Department, “Existing law (AB 2526, Cooper, 2021-22) already recognizes the importance of disclosing mental health records when transferring inmates between the California Department of Corrections and Rehabilitation and the California Department of State Hospitals. AB 2478 builds upon this foundation by extending the requirement to county facilities and behavioral health systems.
“Ensuring the continuity of mental health treatment is paramount in safeguarding the well-being and safety of individuals in custody. By mandating the disclosure of mental health records between medical professionals, AB 2478 will help prevent disruptions in care and ensure that inmates receive the support they need to address their mental health needs effectively.
“Moreover, AB 2478 will have a significant impact on reducing in-custody deaths within county jails. Often, individuals who are booked at county correctional facilities experience metal health crises during non-business hours, when county behavioral health systems typically do not operate. This delay in accessing mental health records can result in inadequate treatment, prolonging mental health crises and increasing the risk of harm to individuals in custody.”
Additionally, the California Association of Psychiatric Technicians states, “Currently, one of the major challenges faced in the treatment of mentally ill forensic patients is the lack of access to their mental health records upon arrival at DSH. This absence significantly delays the process of restoring competency, as clinicians are forced to restart the assessment and treatment planning process from scratch. AB 2478 addresses this issue by mandating the transmission of mental health records with the individual as they move through the forensic process, ensuring continuity of care and minimizing unnecessary delays.
“While we commend the inclusion of provisions regarding the transfer of mental health records between local facilities and DSH, we believe it is imperative to extend these requirements to include CDCR facilities as well. Ensuring the seamless transfer of mental health records across all jurisdictions is essential in maintaining a comprehensive continuum of care for mentally ill individuals within the correctional system.”
- Argument in Opposition: None submitted.
- Prior Legislation:
- AB 2526 (Cooper), Chapter 968, Statutes of 2022, required the transfer of mental health records when an incarcerated person is transferred from or between the CDCR, DSH, and county correctional and medical facilities, as specified.
- AB 998 (Lackey), of the 2021-2022 Legislative Session, was substantially similar to AB 2526 and was held on the Suspense File of the Senate Committee on Appropriations.
- SB 591 (Galgiani), Chapter 649, Statutes of 2019, requires a practicing psychiatrist or psychologist from DSH or CDCR to be afforded prompt and unimpeded access to an incarcerated person temporarily housed at a county jail, when the psychiatrist or psychologist is conducting an OMHD evaluation of the incarcerated person.
- SB 350 (Galgiani), of the 2017-2018 Legislative Session, would have required the disclosure of medical, dental, and mental health information between a county correctional facility, a county medical facility, a state correctional facility, a state hospital, or a state-assigned mental health provider when an incarcerated person is transferred from or between state and county facilities, as specified. SB 350 was held on the Suspense File of the Senate Committee on Appropriations.
- SB 1443 (Galgiani), of the 2015-2016 Legislative Session, would have permitted the sharing of medical, mental health and dental information between correctional facilities, as specified. SB 1443 was held on the Suspense File of the Senate Committee on Appropriations.
- SB 1295 (Nielsen), Chapter 430, Statutes of 2016, authorized the use of documentary evidence for purposes of satisfying the criteria used to evaluate whether a person released on parole is required to be treated by the DSH as an OMHD.
REGISTERED SUPPORT / OPPOSITION:
Support
California Association of Psychiatric Technicians (Co-Sponsor)
San Bernardino County Sheriff’s Department (Co-Sponsor)
California State Sheriffs’ Association
Steinberg Institute
Opposition
None
Analysis Prepared by:
Shaun Naidu / PUB. S. / (916) 319-3744
Bill Author
Bill Co-Author(s):