Senate Finance reviews House Bill 5076 and DOC recidivism report as staffing, programs and capital needs draw scrutiny

The Senate Committee on Finance on March 25 heard testimony on House Bill 5076, “an act making appropriations for support of the state for fiscal year ending June 30, 2026,” concerning supplemental FY2025 and FY2026 funding for the Rhode Island Department of Corrections (DOC). Director Wayne Salisbury told the committee the department is operating within the governor's revised budget but continues to face major fiscal pressure from overtime costs tied to staffing shortfalls.

Why it matters: the department reported roughly 90 correctional-officer vacancies, ongoing overtime expenses, and capital needs that the agency says are essential for security and habitability. Lawmakers pressed the DOC on how its budget requests and program investments relate to recidivism outcomes, staff recruitment and long-term savings proposals.

—"The department is federally mandated to ensure the incarcerated individuals have a clean, safe environment, as well as sufficient food and medication," Salisbury said, arguing the budget must cover per-diem medical and basic living costs. He told senators the DOC's second-quarter projections show the agency remaining within the governor's revised spending plan, but said overtime driven by vacancies, workers' compensation and retirements remains the department's largest fiscal concern.

Salisbury said roughly 300 uniform staff are eligible for retirement in coming years and described recent hiring: earlier classes this fiscal year produced cohorts that included graduated class sizes of roughly 41, about mid-20s in another cohort, and a third class that graduated 23 trainees; a subsequent class began with about 40 candidates. CFO Jack Collins told the committee most DOC funding is general revenue and that salaries and benefits account for the bulk of costs.

The committee also reviewed a statutorily required recidivism study delivered to the legislature by the March 1 deadline. Salisbury summarized the report's high-level findings: use of wellness and substance-use disorder treatment showed the strongest negative correlation with recidivism, and program completion was moderately associated with reduced reoffending. "Programming and treatment works," he said, urging expansion of participation and offerings.

DOC officials outlined existing and planned programming tied to reentry and employment: correctional industries equipment purchases funded in part by a $500,000 congressional earmark; the Polaris manufacturing program (35 graduates, 17 released of whom 12 secured manufacturing jobs); Building Futures vocational training (21 graduates, 12 placed in trade unions, five accepted awaiting placement, and four awaiting application windows); and the Last Mile coding program (first cohort began April 2024; 10 phase-1 graduates, three participants released with two employed in the field).

Senators pressed for more detail on program scale and employer connections. Senator DePalmer (chair) and others encouraged DOC to accelerate partnerships with labor unions, community colleges and the Department of Labor to place graduates in jobs upon release; Salisbury said DOC is pursuing a business model to manufacture and sell products that could sustain programming.

On facilities and capital needs, Salisbury described the largest project in the DOC capital plan: an approximately $40 million HVAC replacement for the intake service center, which he said is on time and on budget. DOC also reported ongoing roof replacements and security-system upgrades. The committee learned a consultant feasibility study from CGL Industries concluded consolidation of the minimum-security facility into the medium-security complex was "not feasible due to security and financial resource issues," in part because extensive capital work would be required to preserve programming, visitation and work-release access.

Committee members queried the DOC about the minimum facility's operating costs and utilization. The agency cited an average FY2024 per-person cost in minimum-security of about $40,000 and about $96,000 for medium-security, and noted the minimum facility's average population was 47 through February and was 37 on the day of the hearing.

Officials also described operational challenges tied to the synthetic cannabinoid known as K2 ("spice"). Salisbury said the drug can be introduced via soaked mail or paper and described a planned digital-mail system with DOC's telecom vendor to reduce paper entering facilities; the department is also changing legal-mail processing while working with counsel and the court system on procedures.

Salisbury updated the committee on changes to restrictive-housing practices implemented in August 2023, including a disciplinary limit of 30 days in restrictive housing, expanded privileges while confined, and hearings conducted by impartial staff members. He said the department is tracking impacts with the federal court and plaintiff's counsel while noting increases in disciplinary bookings for violence and drugs.

Members asked for more facility-level staffing data. Senator Acosta requested vacancy and overtime breakdowns by facility; Salisbury said DOC would provide those numbers. Senators also questioned the department's recruitment and retention strategy; DOC officials said they've created a recruitment unit, run multiple hiring classes and increased outreach (billboards, bilingual radio, career fairs, TV spots and other advertising), and that pay and academy stipends have been adjusted in past contracts.

On next steps, Salisbury said DOC will continue work with the Office of Management and Budget on alternative savings options after the consolidation study found the earlier plan infeasible and will incorporate recommendations from a Falcon Group assessment of classification practices into the agency's strategic plan. He also said DOC is pursuing American Correctional Association accreditation across facilities over a multiyear cycle.

No formal committee vote on House Bill 5076 or any other measure was recorded during the hearing. The committee adjourned after members finished questions.

The hearing record and DOC presentation were made available on the Senate Finance committee documents page for the March 25 hearing.